77907 Rural Housing Reconstruction Program Post-2005 Earthquake Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers Shahnaz Arshad Sohaib Athar Bangladesh Germany Solomon Islands South Africa Spain Sweden Switzerland Togo United Kingdom United States Vietnam Yemen Rural Housing Reconstruction Program Post-2005 Earthquake Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers Shahnaz Arshad Sohaib Athar Rural Housing Reconstruction Program Post-2005 Earthquake Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers Copyright © 2013 by The International Bank for Reconstruction and Development The World Bank, 1818 H Street, N.W. Washington, DC 20433, U.S.A. Internet: www.worldbank.org All Rights Reserved Printing and Manufactured in Washington, DC, 2013 First Printing: May, 2013 This book is a product of the staff of the International Bank for Reconstruction and Development/The World Bank. The findings, interpretations, and conclusions expressed in this book are entirely those of the authors and should not be attributed in any manner to the World Bank, to its affiliated organizations, or to members of its Board of Executive Directors or the countries they represent. The World Bank and the GFDRR do not guarantee the accuracy of the data included in this publication and accepts no responsi- bility for any consequence of their use. The boundaries, colors, denominations, and other information shown on any map in this volume do not imply on the part of The World Bank Group any judgment on the legal status of any territory or the endorsement or acceptance of such boundaries. 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Rural Housing – Reconstruction Program – Manual for Post-Disaster Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Contents Abbreviations and Acronyms ........................................................................................................................................................ iv Acknowledgements ......................................................................................................................................................................... v About the Authors ........................................................................................................................................................................... vii EXECUTIVE SUMMARY.............................................................................................................................................................. ix INTRODUCTION............................................................................................................................................................................ xv Chapter 1. Housing Reconstruction Program: Guiding Principles and Strategy............................................... 1 Chapter 2. Institutional Arrangements.............................................................................................................................. 7 Chapter 3. Detailed Damage Assessment & Beneficiary Eligibility Verification Survey ............................... 13 Chapter 4. Grant Payment Mechanism............................................................................................................................... 21 Chapter 5. Seismic-Resistant Structural Design Solutions......................................................................................... 27 Chapter 6. Training And Capacity Building....................................................................................................................... 33 Chapter 7. Assistance, Inspection, and Certification.................................................................................................... 39 Chapter 8. Public Information Campaigns........................................................................................................................ 53 Chapter 9. Building Materials Supply Chain.................................................................................................................... 61 Chapter 10. Partnerships for Coordinated Implementation...................................................................................... 65 Chapter 11. Community and Social Mobilization.......................................................................................................... 69 Chapter 12. Social Aspects in Program Design and Implementation.................................................................... 73 Chapter 13. Grievance Redressal Mechanisms................................................................................................................ 77 Chapter 14. Reporting, Monitoring, and Evaluation.................................................................................................... 81 Chapter 15. Post-Script: An Emerging Culture of Disaster Risk Reduction......................................................... 85 Consolidated RHRP Results Framework............................................................................................................................. 87 List of Tables Table 1: Financial Assistance Disbursed by RHRP ................................................................................................................... xix Table 2: Status of Housing Reconstruction as of June 2010 .................................................................................................... xix Table 3: Guiding Principles and Strategies of RHRP ............................................................................................................... 3 Table 4: Summary Criteria for Financial Assistance ................................................................................................................ 4 Table 5: Responsibilities of Different Institutions Involved in Post-Earthquake Reconstruction ...................................... 9 Table 6: RHRP Tranche-Based Financial Assistance Regime ................................................................................................. 22 Table 7: RHRP Partnership Arrangements ................................................................................................................................ 66 List of Figures Fig. 1: Damage Assessment and Beneficiary Eligibility Verification Survey Process ....................................................... 17 Fig. 2: RHRP Grant Payment Mechanism .............................................................................................................................. 23 Fig. 3: RHRP Cascaded Training Model ................................................................................................................................. 35 Fig. 4: RHRP Grievance Redress System ................................................................................................................................ 78 Fig. 5: Key Functions of RME System ..................................................................................................................................... 82 Fig. 6: Flow of Data from Field to RHRP Management ........................................................................................................ 83 A Manual for Post-Disaster Housing Program Managers iii Abbreviations AI Assistance and Inspection AJK Azad Jammu and Kashmir CSO Civil Society Organization DRC Data Resource Centre DNA Damage and Needs Assessment ERRA Earthquake Reconstruction and Rehabilitation Authority FRC Federal Relief Commission GRM Grievance Redressal Mechanism HRC Housing Reconstruction Centre HSWG Housing Strategic Working Group ICT Information and Communication Technology KP Khyber Pakhtunkhwa MoU Memorandum of Understanding NADRA National Database and Registration Authority NCRS Non-Compliant Referral System NDMA National Disaster Management Authority NIC National Identity Card NGO Non-Governmental Organization PDMA Provincial Disaster Management Authority PERRA Provincial Earthquake Reconstruction and Rehabilitation Agency PO Partner Organization PPAF Pakistan Poverty Alleviation Fund RHRP Rural Housing Reconstruction Program RME Reporting, Monitoring and Evaluation SERRA State Reconstruction and Rehabilitation Agency SOP Standard Operating Procedures TSS Temporary Shelter Support UC Union Council VRC Village Reconstruction Committee iv Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Acknowledgements The 2005 earthquake in Pakistan was a cataclysmic event. The unprecedented loss of life and property, and devastation inflicted across a vast mountainous terrain presented an unparalleled challenge to national and international partners for effective relief, recovery, and reconstruction. The challenge was not just met, but surpassed, by the organizations, agencies, and individuals who participated in the massive recovery and reconstruction effort, including in the housing sector. While the World Bank led development of the policy and strategic framework for the Rural Housing Reconstruction Program, and contributed US$210 million in technical and financial assistance out of the US$1.5 billion needed, multiple stakeholders played critical roles in its successful implementation. Many of them have contributed to the development of this Manual by generously sharing information, training materials, graphics, and photographs. The authors would like to express their deep appreciation for their contributions. In particular, the authors would like to acknowledge the invaluable contributions and the wealth of information proffered by the Earthquake Reconstruction and Rehabilitation Authority (ERRA), especially its then Deputy Chairman and the former Housing Program Manager. Moreover, the authors would also like to extend their deep gratitude to the management and staff of UN-HABITAT for their generous support towards the development of this manual through sharing of materials and graphics. All photographs presented in the document have been included courtesy of ERRA and UN-HABITAT. Many Bank staff, who were core members of the Task Team which helped design and implement the RHRP, have contributed generously with their time, inputs, ideas and moral support. The contribution of each is deeply appreciated. Finally, this Manual would not have been possible without the financial support of the Global Facility for Disaster Reduction and Recovery (GFDRR). The authors remain indebted to its generosity. A Manual for Post-Disaster Housing Program Managers v About the Authors Shahnaz Arshad is a Senior Urban Specialist with the Sustainable Development Department, South Asia Region of the World Bank, and is currently based in Islamabad, Pakistan. She has extensive experience in working in Urban and Disaster Risk Management (DRM) sectors including work in Jordan, Turkey, Bhutan, Bangladesh, and Pakistan. She has led a number of initiatives covering urban, local government, and DRM issues including the Pakistan: Post-2005 earthquake Rural Housing Reconstruction Program. Her areas of expertise include architecture and urban development; municipal governance and management; cultural heritage; community-driven development; and disaster and conflict risk management. Prior to joining the World Bank, she had been a practicing Architect and Urban Designer. She holds a Master’s of Science in Architecture Studies from the Massachusetts Institute of Technology, USA. Sohaib Athar has three years of multilateral and non-profit experience in policy-oriented analytical work; results monitoring and evaluation; and program design and management. He has interest and expertise in urban development and local governance; economic development; and disaster risk reduction and recovery. He is currently working as a consultant with the Pakistan country office of the World Bank for the urban development unit. He holds a Master’s in Public Policy from the Kennedy School of Government, Harvard University, USA. A Manual for Post-Disaster Housing Program Managers vii Emerging clusters of seismic-resistant houses adorning the landscape. Executive Summary What is this Manual About? Verification Survey was conducted to develop verified beneficiary lists. Grant disbursements were channelled This Manual is a guide for those tasked with responding through commercial banks directly into beneficiary to post-disaster housing reconstruction needs. It details bank accounts. Partner organizations provided technical the various processes, tasks, and interventions involved assistance for reconstruction and rehabilitation. In total in the design and management of such programs. PKR 86 billion were disbursed through RHRP and, It uses Pakistan’s post-earthquake Rural Housing by end 2008, 94 percent of reconstructed houses were Reconstruction Program (RHRP) as a case study, and compliant to seismic-resistant standards up to lintel level. draws on the experience and lessons from that to derive recommendations for future post-disaster housing The various components of Pakistan’s RHRP, the lessons reconstruction programs. The manual also provides a learned from its experience and recommendations for strong results-based outlook through a results framework future such programs are summarized below: that links desired impacts, program level and intermediate outcomes, and outputs into a coherent whole. A) Program Guiding Principles and Strategy Pakistan Experience: The Guiding Principles and Pakistan’s Rural Housing accompanying strategies underpinning the RHRP were Reconstruction Program decided based on international experience as well as the The October 2005 earthquake in Pakistan killed over specific context of the Pakistan earthquake, and were as 73,000 people and left more than 2.8 million in need of follows: shelter. In response the Government of Pakistan, in 1. Ensuring owner-driven housing reconstruction; collaboration with international partners, launched the 2. Assisted and Inspected reconstruction & restoration Rural Housing Reconstruction Program (RHRP) at a cost regime; of over US$1.5 billion. This included technical and 3. Ensuring seismic safety; financial assistance of US$210 million from the World 4. Ensuring uniform principles and assistance packages Bank. across all funding sources and maximizing outreach; 5. Ensuring judicious use of grants; reducing and RHRP relied on an owner-driven mechanism providing managing conflicts and grievances; avoiding socio- multi-tranche financial support to beneficiary economic distortions, inequities and disparities. households, based on assistance, inspection, and certification at various stages of construction to ensure Recommendations: As soon as the details of a disaster compliance with seismic-resistant standards. The and its impact start emerging, reconstruction strategy housing grants financed both replacement of completely formulation needs to begin. This strategy needs to identify destroyed houses with new seismic-resistant core units, key decisions that have to be made regarding reconstruction: and repair of damaged houses to seismically acceptable the implementing agency and institutional arrangements, standards. A Detailed Damage Assessment and Eligibility eligibility criteria, and assistance entitlements. A Manual for Post-Disaster Housing Program Managers ix B) Institutional Arrangements for Rural process, mitigates risk of error, and ensures transparency Housing Reconstruction and equitability. Pakistan Experience: Within a month of the disaster, the Earthquake Reconstruction and Rehabilitation Agency Recommendation: Assessment should happen once, and (ERRA) was set up with a clear mandate to manage be clear and conclusive. A detailed survey is critical to post-disaster recovery and reconstruction across the 12 ascertain the scope and extent of damage to the housing affected sectors. The agency coordinated all assistance stock against uniformly applied engineering criteria, through a ‘one-window’ mechanism. All stakeholders and to validate the authenticity of beneficiaries. A single of the RHRP were obliged to work through it. ERRA survey exercise should combine the following three also created strong linkages with existing national-level separate activities to enable efficient use of resources: institutions to assist in the implementation of various elements of the reconstruction program. ■■ Comprehensive damage assessment, to determine nature of damage to each surveyed dwelling; Lesson learned: Political support is crucial, but drops ■■ Beneficiary eligibility verification; over time. The absence of government leadership is ■■ Signing of a quasi-legal agreement (MoU) with one of the greatest risks in responses, at times more the verified beneficiaries stipulating mutual problematic than resource deficiencies. responsibilities, and purpose of grants. Recommendations: Set up a dedicated Reconstruction Agency as soon as possible. It is extremely important D) Transparent Mechanism for Grant to have an appropriate institutional mechanism with Payments to Beneficiary requisite authority, clear mandate and necessary Pakistan Experience: A multi-tranche grant payment resources in place as quickly as possible. Governments mechanism was developed that was closely tied to bene- should take an early and active role in the response, ficiary eligibility as well the inspection and certification showing political commitment. regime. Beneficiary households received financial assis- tance in tranches; the first tranche was released upon C) Detailed Damage Assessment and beneficiary verification, while subsequent releases were Beneficiary Eligibility Verification Survey dependent upon them meeting criteria for seismic- Pakistan Experience: A preliminary damage resistant reconstruction agreed to in the initial MoU. assessment by local authorities was followed by a comprehensive door-to-door assessment covering the Lessons Learned: Many beneficiaries did not have entire affected area. There were insufficient suitable bank accounts and lived in remote areas. A strong effort consulting firms or Non-Governmental Organizations was needed to mobilize commercial banks and other (NGO) with requisite wherewithal to carry out this task, financial entities to facilitate expedited opening of bank so the Pakistan military was brought in. Over 600 teams accounts. Most grievances and complaints are likely conducted the survey, each led by a military engineer, to relate to establishment of eligibility and financial and comprising a representative of the local community assistance. and a government functionary such as a revenue official or a teacher. The results were compiled to create a Recommendations: Payment mechanisms that entail central database of beneficiaries, which was linked to the existing national identity database of NADRA. release of grants in tranches, subject to compliance Alongside conducting the survey, the teams signed with seismic-resistant housing standards, can greatly MoUs with verified beneficiaries specifying the purpose enhance compliance. If possible, grant payments should of the grant and mutual responsibilities. be released directly into beneficiary bank accounts to ensure transparency and reduce the risk of leakages. Lessons learned: Carrying out damage assessment and Financial assistance should be tied to robust grievance eligibility verification as a single exercise accelerates the redress mechanisms. x Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience E) Development of Seismic-resistant Recommendations: In order to achieve the objective Structural Designs of improving the quality of housing reconstruction and incorporating necessary disaster risk resistant features, Pakistan Experience: The large scale devastation training needs to be provided to craftsmen and artisans caused by the 2005 earthquake provided a window of involved in the reconstruction process. Otherwise it opportunity to improve the prevalent methods and is likely that houses will be rebuilt as before, leaving quality of construction. The guiding motto of the households vulnerable to hazard risks. A cascaded reconstruction effort was ‘build back better’. A menu training model can be an efficient and effective way of of seismic-resistant structural designs was developed, training large numbers of people across a wide area. based on familiar materials already prevalent in the region. G) Assistance, Inspection and Lessons Learned: People build early; policies and Certification of Seismic-resistant strategies are always catching up with them. Housing Construction reconstruction starts earlier than other sectors. It is Pakistan Experience: Since the release of housing grant important that policies, standards, and support systems tranches was conditional on adherence to seismic- are devised and in place in time to ensure that people are resistant construction standards, an independent aware of the terms and conditions of financial support, regime of assistance, inspection, and certification was and can access technical advice in time to use it. set up. Over 600 Assistance and Inspection (AI) teams were mobilized across the affected area for the entire Recommendations: Develop appropriate structural duration of the Program. The teams were also provided design standards using local materials and knowledge. training to carry out their roles. Inputs from these teams This will require a review and assessment of prevalent were then linked with the beneficiary database to release materials and methods, especially including grant tranches electronically. documentation of common vulnerabilities due to Lesson Learned: Dealing with non-compliance is defective construction practices. Development of essential in achieving Program objectives. The AI teams designs should be part of a two-pronged strategy, the advised beneficiaries on necessary improvements to other part being training (see below). achieve compliance and, in cases where beneficiaries could not independently rectify defects, arranged F) Training and Capacity Building in for technical assistance to be provided by partner Seismic-resistant Construction organizations working in the area. The AI teams largely Pakistan Experience: Training materials and curricula comprised the same members as the original survey were developed for various target groups (e.g. architects, teams; hence they already had familiarity with the area masons, community members). A ‘cascaded training’ and communities assigned to them. approach was used to train a critical mass of artisans Recommendation: An assistance, inspection and and craftsmen in the affected area in seismic-resistant certification regime should be set up with the dual role construction techniques. Model houses and demonstration of monitoring compliance with disaster-resistant housing structural details were also set up at field level. standards, and helping non-compliant beneficiaries to rectify their houses and achieve compliance. Lessons Learned: International experience in training on seismic-resistant construction techniques, provided by a team of experts from Nepal, proved invaluable in H) Effective Public Information developing training curricula. The building boom in the Campaigns disaster-affected areas attracted unskilled individuals to Pakistan Experience: Two kinds of information material join the construction sector, exacerbating the need for were developed for the Program: a) general material training. for mass media (radio, TV, print) to enhance Program A Manual for Post-Disaster Housing Program Managers xi knowledge and deliver key messages to beneficiaries in their price. Communities that are rural and/or and various stakeholders; and b) technical information remote can also incur significant transportation costs materials (e.g. training materials, drawings, posters) for for reconstruction materials. These factors will erode various target groups outlining technical standards on the purchasing power of disaster-affected households, seismic-resistant construction. All information release particularly if provided with fixed financial assistance. was controlled by ERRA, thereby ensuring consistency in Efforts need to be made to ensure adequate supply of fair- the messages conveyed. priced materials. Involving the private sector can help ensure these do not distort markets. However, special Lesson Learned: Retrieving messages already measures will be needed to ensure cost-effective access to disseminated is very difficult. While strong measures materials for people in remote areas. for consistency were set in place, some unauthorized guidelines on construction standards did get introduced, resulting in some initial reconstruction activity not J) Community Mobilization following approved standards. Among visual tools, all Pakistan Experience: ERRA tasked Partner groups expressed preference for photographs. Organizations (which were also responsible for capacity building at field level on seismic-resistant Recommendations: The need for reliable information reconstruction) with social mobilization activities in the aftermath of a disaster cannot be over-stressed. in affected villages. The Program strategy provided Messages need to be consistent. Hence strong systems consistent messages and outlined common outputs for for authorization of information materials release, and social mobilization (and trained social mobilization for coordination among diverse organizations involved, teams), but left Partner Organizations to achieve them need to be established. A variety of communication using their own best practices and approaches. Village tools should be used, appropriate to the context (levels Reconstruction Committees (VRCs) were formed to of literacy, access to media, etc). support this effort. Lessons Learned: The partner organizations, mainly I) Creating a Building Materials Supply local NGOs, often had prior experience with this Chain nature of work and thus provided valuable expertise Pakistan Experience: To counter potential shortages in community mobilization. VRCs played a facilitation in availability of building materials, price increases role but lacked authority over households, at times and difficulties in accessing materials in remote areas undermining their effectiveness. (leading to high transportation costs), the Program helped set up a building materials supply chain and Recommendations: Community participation is a materials hubs with the collaboration of the private necessary and integral component of development. Strong sector. These were designed to ensure consistent and and continuous community and social mobilization will be fair-priced supply of required materials across the needed to harness the collective strengths of communities affected area. The hubs represented an expansion rather in understanding and propagating the reconstruction than replacement of the private sector, and hence did program principles and ensuring sustainability of program not distort markets. objectives. This will require systematic planning and implementation of mobilization strategies. Lessons Learned: Private sector-led materials hubs tend to be located near existing markets. The creation of building materials hubs did not resolve the problem K) Social Aspects of limited supply in secondary centres and remote areas. Pakistan Experience: RHRP ensured that women-headed households and orphan households also received financial Recommendations: Construction activity increases assistance. Under the Landless Program, financial assistance manifold in post-disaster settings, which can lead to a was provided to households without land or who had lost/ shortage of required building materials and an increase had rendered hazardous their land due to the earthquake. xii Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Reconstruction grants were provided on the basis of houses M) Reporting, Monitoring and and not households; in cases where more than one family Evaluation lived under one roof, the grant was provided to the owner Pakistan Experience: The Program developed a subject to agreement by other family members. comprehensive Reporting, Monitoring, and Evaluation (RME) system to function in a coordinated manner Recommendations: It is critical to understand the social to standardise and compile all data streams related to dynamics in post-disaster settings and account for these, so as to ensure that reconstruction programs do not reconstruction data, seismic compliance, and technical exacerbate existing social inequities. Ideally a program support activities. This provided reporting on a should be empowering in nature, but at the very least it disaggregated level on key program outcomes, and should ensure that it is not leaving vulnerable groups was used to make information available to a range of even more disadvantaged. stakeholders for Program analysis, planning, and course corrections. L) Grievance Redress Mechanisms Lesson Learned: All forms and methodologies were Pakistan Experience: In order to ensure equity, a formal standardised, making processing and compilation mechanism was developed that streamlined the handling easier, and ERRA retained centralised control providing and resolution of complaints and grievances faced by accountability and reducing confusion or parallel beneficiaries. It was a simple, low-cost, and automated systems. Indicators determined monitoring priorities. system and was based on four tiers: community/village, The Program measured rates of compliant completion sub-district, and district (where appeals could be made), of houses, and financial disbursement – its formal and ERRA, which centrally tracked data on complaints indicators – but several other aspects of reconstruction redress to determine trends and problems. A number (e.g. cost of reconstruction) were formally tracked only of district-level Data Resource Centres (DRCs) were retroactively to inform policy development. also established in the affected areas to deal with certain kinds of complaints and grievances related to personal Recommendations: An outcomes-based information and financial data. management system can play a central role in the Lessons Learned: The grievance redress mechanism overall management and implementation of a post- also ensured quality control and a built-in monitoring disaster reconstruction program. A robust system will and evaluation function for the Program. be needed to manage the scale of construction activity, information flows, and financial resources. RME Recommendations: In order to ensure the principle systems built on information and communication of equity in the operation of a reconstruction program technologies (ICT) can help ensure that field involving a large number of affected households, and information is systematically processed to track enhance the legitimacy of the program for its beneficiaries, progress, and ensure that policymakers can make the a formal mechanism needs to be developed that streamlines program a dynamic, field-driven model, improving the handling and resolution of complaints and grievances the chances of successful achievement of program faced by beneficiaries. objectives. A Manual for Post-Disaster Housing Program Managers xiii The program brought about major improvements in the quality of building construction, introducing a culture of seismic-resistance. xiv Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Introduction A Manual for Post-Disaster Housing Program Managers xv xvi Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Introduction Background: The Disaster sectors. Moreover, the Pakistan military was mobilized and its Scale with its extensive logistical and human resource capacity to assist the relief efforts. Civil society efforts The earthquake that struck northern parts of Pakistan complemented the support provided by government, on the morning of October 8, 2005 left widespread and almost all major and local NGOs became active in destruction in its wake, killing at least 73,000 people, the provision of relief, including shelter support. Within severely injuring another 70,000, and leaving an estimated a month of the disaster, the government established 2.8 million people in need of shelter at the onset of a harsh the Earthquake Reconstruction and Rehabilitation winter, in rural, difficult to access terrain. Authority (ERRA), responsible for planning and implementing reconstruction activities across the entire The earthquake affected nine districts in Khyber affected area in all sectors with the aim to ‘build back Pakhtunkhwa (KP) province and Azad Jammu & Kashmir better’. ERRA was established as an autonomous body, (AJK) state, covering an area of approximately 30,000 square structured in a manner that allowed decentralized kilometres of rough and inhospitable terrain. Economic decision making, and with devolved presence in KP assets and infrastructure suffered extensive damage, with province as Provincial Earthquake Reconstruction social service delivery, commerce, and communications and Rehabilitation (PERRA) and in AJK state as State either debilitated or completely destroyed. Vulnerable Reconstruction and Rehabilitation Agency (SERRA). groups, mainly women and children living in inaccessible mountain areas with low levels of income and service The international community responded to the provision, bore the brunt of the earthquake’s impact. government’s call for assistance through pledges of About 600,000 houses were either completely destroyed US$550 million to the United Nations’ Flash Appeal for or partially damaged. Virtually none of the housing in immediate relief. The government requested the World affected areas featured seismic considerations in their Bank and the Asian Development Bank to undertake design. Compounding this was the generally poor quality a preliminary Damage and Needs Assessment (DNA) of construction and maintenance. using globally accepted standards for the quantification of post-disaster damage and needs. The DNA estimated overall reconstruction would require approximately Response to the Disaster: US$5.2 billion. Out of this, approximately US$1.4 billion Relief, Recovery, Reconstruction was estimated to be the cost of rebuilding damaged and Planning destroyed houses. The government, civil society and the international community responded swiftly and decisively to the Six weeks after the quake, an international donor disaster, providing relief and recovery support to the conference was held where representatives of various affected communities. Immediately following the governments, financial institutions, and international disaster, the government established the Federal Relief development partners participated. They pledged Commission, Pakistan’s first central disaster response different sums for reconstruction financing amounting agency, to coordinate relief activities across all actors and to US$5.0 billion. A Manual for Post-Disaster Housing Program Managers xvii Planning for reconstruction and longer term recovery The housing grants were meant to finance: (a) began soon after. Due to the onset of severe winter in most replacement of a destroyed house with a new seismic- of the affected area, permanent reconstruction could not resistant core unit of 250 sq.ft covered area, or (b) begin until next spring. The immediate challenge was to restoration and strengthening of a damaged house to meet the basic shelter needs of the affected population seismically acceptable standards. The rebuilding was over the harsh winter. Besides the early provision of tents to be owner-driven - a mode well suited to the mainly for shelter support, the focus was shifted to winterised rural affectees. Moreover, getting involved in rebuilding shelter solutions such as a ‘one warm room’ strategy their own homes would help them get over their trauma supplementing materials salvaged from the debris of and grief. A flexible and decentralized approach was destroyed houses with ten CGI sheets. Additionally, necessary to respond quickly and in a sustainable manner a temporary shelter support grant of PKR 25,000 per to the needs of the moment. Households were able to affected household was disbursed across the affected area. utilize their own labour, hire trained craftsmen, and receive technical assistance from partner organizations to reconstruct or rehabilitate their houses to requisite The Rural Housing standards. This approach proved to be a major factor in Reconstruction Program the eventual success of this initiative. The DNA had identified private rural housing to have been the hardest hit sector. However, there was a The eligibility criteria for these cash grants were: (i) all dearth of experience and expertise in conceptualizing Pucca houses with structural damage beyond economic and designing a post-disaster housing reconstruction repair or structurally damaged katcha houses were program of this scale and magnitude. There was immense eligible for a PKR 175,000 Reconstruction Grant; (ii) all pressure to mobilize and swing into action regardless of Pucca houses with repairable structural damage were the limited means available at that time. The possibility eligible for a PKR 80,000 Restoration and Strengthening of providing prefabricated housing solutions, or delivery Grant. Housing units with non-structural damage were of houses through large international contracting firms not eligible for any compensation. A Detailed Damage began to gain credence. But global experience in similar Assessment and Eligibility Verification Survey was situations elsewhere had proved that these solutions conducted to categorize housing units in the affected achieve partial success at best. Prefabricated houses areas by the extent of damage and to develop beneficiary provide an alien environment that is hard to accept as a lists for each. home, and contractor built units generally do not respond to the needs of individual household requirements. Such The grants were released in tranches, linked to stages programs worldwide have thus had mixed results. of construction and adoption of seismically resistant standards. The Reconstruction Grant was disbursed The Government of Pakistan therefore launched its in three tranches: (i) PKR 75,000 advance payment flagship Rural Housing Reconstruction Program (RHRP) (including PKR 25,000 immediate shelter support in April 2006, with technical and financial assistance already provided by the government); (ii) PKR 50,000 (of US$210 million) from the World Bank. An owner- upon completion up to plinth level; and (iii) PKR driven mechanism was devised which would provide 50,000 upon completion of walls. The Restoration and multi-tranche assistance to the beneficiaries, based on Strengthening Grant was disbursed in two tranches: assistance, inspection, and certification at various stages (i) PKR 50,000 advance payment (including PKR of construction. Initially, there was some hesitation on 25,000 immediate shelter support already provided the part of the government about the program design, as by the government); and (ii) PKR 30,000 upon it was under great pressure to show results quickly. The completion of repairs. Disbursement of all tranches proponents of RHRP however convinced the government after the advance payment was subject to verification that reconstruction would be accelerated if individual of progress and compliance with seismic-resistant owners of destroyed and damaged properties were made standards. Disbursements were channelled through responsible for supervising their reconstruction. bank branches directly to beneficiary accounts. xviii Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Results Achieved by the Program the fourth and final grant, disbursed after certification of seismic-resistant construction up to lintel level (all The RHRP is considered highly successful because it but roof and fixtures), was successfully disbursed to 91 was able to achieve impressive results in both physical percent of beneficiaries. and financial progress. A total of PKR 86 billion were disbursed to beneficiary households for rural housing The most significant achievement of the Program reconstruction and repair through the Program. Disbursements were made directly to beneficiary was the inculcation of a culture of seismic-resistant bank accounts. Due to the electronic disbursement construction in the affected area. By end-2008, 99 mechanism so devised, not a single rupee out of the percent of reconstructed houses were compliant to huge sums disbursed changed hands. All monetary seismic-resistant standards at plinth level, while 94 transactions took place through banks, and thus every percent were compliant at lintel level. Moreover, transaction had an audit trail ensuring transparency while expanding the housing units through their own and accountability. resources, beneficiaries predominantly continued to voluntarily adhere to construction standards required Disbursement was made in tranches based on stages of by the Program. reconstruction. The second tranche to enable beneficiaries to mobilize materials to begin reconstruction was By June 2010, of the 463,000 completely destroyed disbursed after the completion of a comprehensive houses that were to be rebuilt, 93 percent (429,000) had damage assessment and beneficiary eligibility survey, and completed construction. Only 6 percent of the houses to was successfully disbursed to all beneficiaries. Similarly, be reconstructed remained unable to begin construction. Table 1: Financial Assistance Disbursed by RHRP % of eligible Amount of Total disbursed Number of beneficiaries Nature of Tranche tranche (PKR) (PKR billion) beneficiaries covered First Tranche: Temporary Shelter Support 25,000 14 550,000 n/a Second Tranche: Mobilization 75,000 40 567,000 101% Third Tranche: Completion up to Plinth level 25,000 11 438,000 95% Fourth Tranche: Completion up to Lintel level 50,000 21 420,000 91% Total 175,000 86 Note: The first tranche of PKR 25,000 for Temporary Shelter Support was provided to 550,000 beneficiary households before the official launch of the Rural Housing Reconstruction Program and the Detailed Damage Assessment and Beneficiary Eligibility Verification Survey. Thus, the universe of beneficiaries for this grant was different than that for the remaining grants, which were based on the Survey and part of the RHRP. Source: ERRA M&E Annual Report 2010-11 Table 2: Status of Housing Reconstruction as of June 2010 Status of Housing Reconstruction (of completely destroyed houses) as of June 2010 Number of houses Percentage Construction completed 429,000 93% Under construction 7,000 2% No work started to date 27,000 6% Total 463,000 100% Source: ERRA Annual Review 2009-10 - construction status as at June 2010. Objective of this Manual natural disasters. It provides a comprehensive guide to the tasks and processes required for development and This Manual has been developed to assist project managers management of post-disaster housing reconstruction and policy makers engaged in large-scale post-disaster programs, using key lessons and learning from housing reconstruction programs make decisions on reconstruction undertaken following the 2005 earthquake how to reconstruct housing and communities after major that struck northern Pakistan. A Manual for Post-Disaster Housing Program Managers xix A gathering of beneficiaries discussing reconstruction issues and challenges. RHRP’s experience shows that an institutionalized focus In disasters, the absence of an easily accessible and on results yields strong dividends even in post-disaster applicable document often leads officials to ‘re-invent settings when urgency is required and baselines for the wheel’ when faced with such a task for the first relevant information often do not exist. The Manual (and perhaps only) time in their professional career. thus also provides a strong results-based outlook on The sudden onset and enormous scale of the task they post-disaster Program management. It aims to guide face, coupled with the obvious sense of urgency, leave policymakers in designing and implementing such a many with little time to reflect. And feeling that they are program with a focus on achieving results, especially facing a unique challenge deters them from looking for program-level outcomes and objectives. It thus tries to precedents. make a unique contribution by bringing in a results lens to conventional post-disaster reconstruction efforts. Why Learn from Pakistan’s While the Pakistan Rural Housing Reconstruction Experience? Program (RHRP) began with a series of decisions that had to be made almost immediately, these decisions and Pakistan’s experience with the post-2005 earthquake the manner in which they were implemented are likely reconstruction has been held up as a model of effective to have long-term impacts on the lives of those affected rebuilding, especially with regard to rural housing by the disaster. Those responsible for making these – an undertaking that was both large and complex. decisions had to do so with few precedents to guide The response has been commendable given Pakistan’s them. Although considerable expertise was available, it previous limited exposure to such events. The lessons to was not always pertinent or relevant to the situation that be learned from the experience are many and not limited confronted the project management team in 2005. This to post-disaster response only. Many apply equally to Manual provides information on the options that were national development efforts as well. An objective of this considered in various aspects of reconstruction and Toolkit is therefore to capture and make easily available insights into what worked and what did not. the lessons from this unique and successful experience. xx Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience The RHRP is also important as a model of how well- Subsequently, detailed descriptions on how these results conceived policy and strategic underpinnings along were achieved in the Pakistan context through the with requisite financing can be used to incentivise RHRP as a case study, how activities were managed, and active participation and leverage behaviour change, as what challenges were faced are presented. Finally, each well as ensure efficiency, accountability, and compliance section concludes with a list of lessons learned/policy with standards. recommendations, that policymakers should keep in mind for future such programs. The Toolkit provides a results-based perspective on post-disaster Housing Format of this Manual Program management. It presents a results framework for This Manual is meant to be a guide for those tasked with each component of the RHRP that links desired impacts, responding to post-disaster housing reconstruction needs, program level and intermediate outcomes, and outputs.. and takes them through the various processes, tasks, and A consolidated results framework for the entire RHRP interventions involved in rural housing reconstruction. It is provided at the end. uses the Pakistan experience of the post-earthquake Rural Housing Reconstruction Program as a case study, and It is, however, important to mention the obvious – presents methods and learning from that particular model. that each reconstruction project is unique, and the relative importance and extent of each activity and sub- Each chapter of the document covers a separate component may vary relative to the context. The Pakistan component of the Program. Within each chapter, a experience may not directly translate into similar results rationale is presented as to why this component is in a different context. Nonetheless, there are significant needed. This is followed by a results framework listing lessons to be shared for similar programs across the outcomes to be aimed for and possible indicators. world. A Manual for Post-Disaster Housing Program Managers xxi The proud owners of a newly reconstructed seismic-resistant house. Chapter 1 Housing Reconstruction Program: Guiding Principles and Strategy Why Needed? contractor-built housing. Experience from the response to the Indian Ocean tsunami of 2004 had demonstrated As the immediate rescue, relief, and recovery the risk of inequitable assistance packages and the operations are being conducted in a post-disaster consequences for housing, as well as the challenges of setting, the planning of an institutionalized response relocation of affected communities. and development of longer-term recovery and reconstruction plans must begin. This is because In Pakistan, prior to the 2005 disaster seismic provisions planning and initiation of reconstruction activities takes time and thus a headstart is desirable. Moreover, as soon in the building codes were almost non-existent and as the affected communities have recovered from the rarely regulated. Moreover, their application on rural initial shock, they want to get their lives back on track. housing was not required. The majority of rural families Housing is an integral and often central component of had previous experience of managing construction of this and, in the absence of a government policy or plan, their own homes, generally by local skilled artisans. disaster-affected people initiate actions that may later In many cases households had some knowledge of prove redundant, or obstacles to safe reconstruction. local construction materials and techniques. Historically, local construction techniques had had Hence, as soon as the details of a disaster and its seismic provisions as well, since the area was a high impact start emerging, the formulation of an outline seismic risk zone. However, since no major earthquakes reconstruction strategy needs to be initiated. The had happened over a long time, people had either outline strategy needs to identify key decisions that have forgotten these good practices, or given them up in the to be made regarding reconstruction: the implementing interests of economy. agency and institutional arrangements, eligibility criteria, and assistance entitlement. These may need to The earthquake affected area was vast, remote, be fine tuned later, as the strategy development process mountainous, and extremely difficult to access, with unfolds after more details become available. highly scattered settlement patterns. The majority of affected home owners owned the land and intended to rebuild on the same sites. There was thus little scope for The Pakistan Context for Post- consolidation, multi-family development, or standardized disaster Housing Reconstruction housing. This proposition would not have been attractive The development of a post-disaster reconstruction to contractors, even had an agency/contractor-driven strategy in Pakistan, especially in the rural housing model been preferred. And neither was there an extensive sector, had to cater to a number of contextual challenges. pre-disaster NGO presence across the affected area to The country had not previously experienced a disaster make an NGO-driven model feasible. Owner-driven on the scale of the 2005 earthquake. Recent experience housing reconstruction therefore seemed the best fit for from Gujarat, India and elsewhere had shown the challenge at hand. Moreover, global experience with promising results for housing reconstruction under an contractor or agency-led reconstruction had proved this owner-driven model as compared to NGO- or agency/ strategy to be wanting. A Manual for Post-Disaster Housing Program Managers 1 Approach to Strategy successful operationalization of the Program, and their Development inter-linkages with each other to form a cohesive whole. The DNA had included underpinnings of sectoral It is important to mention here that while multi-hazard reconstruction policies and strategies, including those risk mapping greatly enhances the effectiveness of post- for housing. The World Bank-funded US$400 million disaster reconstruction, by promoting disaster risk Earthquake Emergency Recovery Project, which reduction, it was not a part of the overall RHRP per se. included a US$210 million housing reconstruction The massive scale of the disaster and absence of requisite component, had further detailed and refined the policy capacity to undertake such an exercise would have and strategy for launching the RHRP. Once a dedicated meant – had this been undertaken - a substantial delay in post-disaster reconstruction agency had been set up in commencing implementation of RHRP, awaiting results the form of ERRA, it was able to function as a central of the hazard risk mapping. As an alternative, the form hub for all planning and reconstruction activities. for the Detailed Damage Assessment Survey included questions noting visible hazard risks like proximity to ERRA helped various stakeholders come together, a fault line, land sliding, etc. These identified the need and was able to carve out roles appropriate to their for relocation of houses on hazardous sites, for which strengths, available skills, and areas of interest. These the Landless Policy was subsequently announced. An included government agencies, the military, development important lesson from this experience is that, time partners, national and international NGOs, private permitting, a multi-hazard risk mapping exercise in sector, and philanthropists. To ensure coherence and concert with a major reconstruction program can add avoid duplication, a Housing Strategic Working Group great value, and fundamentally contribute to the disaster (HSWG) was later established as a discussion forum, risk reduction agenda on a national level by identifying especially for detailing the cascaded training program. By concrete steps for prevention and mitigation. doing so, ERRA ensured strong commitment to common principles from among a very diverse range of partners. The HSWG was split into thematic working groups Tranche-based Reconstruction/ concerned with: (a) technical guidelines; (b) assessment; Repair Grants (c) training curricula; and (d) information campaigns. As a policy principle, grants for housing reconstruction were to be provided in tranches linked to stages of Program Vision construction and meeting seismic-resistant construction criteria, duly inspected and certified by Assistance and The Rural Housing Reconstruction Program was Inspection (AI) teams. guided by the overarching principle of ‘build back better’ through an owner-driven, assisted, and inspected reconstruction regime supported through Determining the size of a grant community mobilisation and training. Seismic- The size of the grant was determined after an extensive resistant housing reconstruction and rehabilitation, analysis of the prevailing market costs in building a core and inculcation of a culture of voluntary seismic housing unit, of a uniform number of rooms and size, compliance in the earthquake affected districts of KP to appropriate seismic-resistant standards, with locally and AJK were the envisaged outcomes. available materials. This involved collection of data on prices of various building materials across the affected area, and prevailing rates for labour and transportation. Program Policy Principles and It was assumed that there would be significant (up to Strategies 40 percent) reuse of salvaged building materials such The Guiding Principles and accompanying strategies as timber, stone, blocks and bricks from the debris of underpinning the Program and its implementation are the damaged/destroyed houses, which would increase summarized in Table 3. It provides a comprehensive the value-for-money of the Program grant. Moreover, snapshot of the various elements involved in the beneficiaries were also expected to reuse the corrugated 2 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Table 3: Guiding Principles and Strategies of RHRP Policy Principle Strategy The Program Objectives were to: (a) Provide financial and technical assistance to disaster-affected homeowners in reconstruction or rehabilitation of their destroyed or damaged houses to seismic-resistant standards, using an owner-driven, assisted and inspected construction regime; and (b) Inculcate a culture of voluntary seismic compliance by inducing a behavioural change. Providing an enabling environment to homeowners, through: 1. Ensuring ■■ Prior training, information, education, and communication campaigns; owner-driven ■■ Rebuilding with familiar methods & easily accessible materials – ensuring sustainability and cultural housing preferences in design; reconstruction ■■ Providing technical assistance during construction; - homeowners in charge of ■■ Promoting the use of salvaged material, own labour and/or additional resources such as hired trained rebuilding their craftsmen, etc.; own homes ■■ Ensuring building materials supply chain; ■■ Facilitating the opening of homeowner bank accounts. Mobilizing a large number of assistance and inspection (AI) teams, for house-to-house outreach 2. Assisted Disbursing grants in tranches, linked to stages of construction and adoption of acceptable seismic-resistant and Inspected standards reconstruction & restoration regime Tranche disbursement through banks after progress and quality validation and certification Resources for AI teams and their management structures procured through partnership arrangements Development of structural design options, construction guidelines, and training curricula that meet internationally accepted standards for low-cost seismic-resistant housing such as: ■■ Having thinner walls ■■ Having lighter roofing 3. Ensuring ■■ Having well-connected structural systems seismic safety ■■ Excluding the use of katcha (semi-permanent) type construction Establishment of a review and approval mechanism for additional structural design options submitted by various stakeholders, based on reference to minimum structural design standards Seismic zoning and multi-hazard risk mapping on-going to guide planning and construction Coordination of multiple reconstruction initiatives & standards for equity. ERRA to ensure: ■■ application of uniform policies across the board ■■ application of consistent structural design standards ■■ full spatial coverage ■■ reduced risks of beneficiary double counting or being missed 4. Ensuring ■■ Cash grants to target core housing – which may not be necessarily proportionate to the replacement uniform principles value of loss and assistance packages across Reconstructing only where necessary- through damage assessment that distinguishes against set criteria, all funding between houses needing reconstruction and those only needing economically feasible restoration/retrofitting sources & Replacement of destroyed houses with new seismic resistant core units maximizing outreach Restoration and strengthening of damaged houses to seismically acceptable standards - through optimized Rebuilding In-situ minimizing relocation costs designs and Relocating only where necessary – i.e. where hazard risks remain very high due to: implementation ■■ Seismicity mechanisms ■■ Topography ■■ Soil conditions ■■ Other environmental factors Enhanced sustainability of Program ensured through parallel efforts on rehabilitation of livelihoods, physical and social infrastructure - linking housing to livelihoods and infrastructure rehabilitation, etc. A Manual for Post-Disaster Housing Program Managers 3 Table 3: Guiding Principles and Strategies of RHRP (cont.) Policy Principle Strategy 5. Ensuring Damage assessment criteria consistent across all affected areas (resurvey may be done for specific trouble judicious use of areas) grants; reducing and managing Eligibility criteria to include land ownership criteria, or in case of tenants, agreements/authorization from conflicts and owners to rebuild the house grievances; MoUs to be signed with beneficiaries to ensure the judicious and best possible use of the grants, with avoiding socio- penalizing clauses for those found in intentional non-compliance economic distortions, Developing and putting in place participatory and inclusive information management and grievance redressal inequities and mechanisms disparities iron sheets provided to each affected household along There were three tranches, in addition to the TSS grant, with the temporary shelter support (TSS) grants. Since disbursed in 3 stages: a) at damage assessment and the Program was owner-driven, contractors’ profit establishment of eligibility, as an advance to mobilize and margins were not included in the costing of housing reconstruct up to plinth level); b) after certification of reconstruction. foundations and the plinth, for construction up to lintel level; c) upon certification of the walls and structure to The need for tranches – putting lintel level, for the roof, finishes, and completion of the disaster risk reduction at the forefront house. These stages were set based on structural design In order to ensure that housing reconstruction was of considerations, as these provided key points for inspection the requisite seismic-resistant standards, the Program and remedial measures in case of non-compliance. disbursed the housing grants in tranches, based on certification of construction quality, as opposed to a one- A summary of the criteria and financial assistance time disbursement of the entire amount at the beginning. amounts is provided below: Table 4: Summary Criteria for Financial Assistance Extent of Damage Fully Destroyed House Partially Damaged House Core units of Pucca & semi-Pucca houses that need to be reconstructed – including both totally destroyed houses, or partially destroyed houses with structural damage that is beyond economic repair (as determined Core units of Pucca & semi-Pucca houses with Definition through the detailed damage assessment). structural damage within economic repair. Core units of Katcha houses that have either been destroyed or have suffered visible structural damage (not subjected to detailed damage assessment). Reconstruction grant for a total of Restoration and strengthening grant for a total Grant Entitlement PKR 175,000 (US$2,9311) of PKR 100,000 (US$1,675) Reconstruction grant to be disbursed in 4 tranches, as follows: Restoration grant in 2 tranches, as follows: ■■ PKR 25,000 (US$419) temporary shelter support ■■ PKR 75,000 (US$1,256) mobilization grant released Disbursement PKR 25,000 (US$419) temporary shelter to affected households meeting eligibility criteria Schedule support ■■ PKR 25,000 (US$419) upon completion of house to PKR 75,000 (US$1,256) grant released to plinth level affected households meeting eligibility criteria ■■ PKR 50,000 (US$838) upon completion of house walls and roof (lintel level) 1 The PKR-US$ currency conversion rate of PKR 59.7 = US$1 (per the Technical Annex Document for Earthquake Emergency Recovery Credit, dated December 5, 2005) has been used for currency conversions in Table 4. During project implementation, the PKR-US$ conversion rate changed and was PKR 86.03=US$1 at Project Closing (May 31, 2011) making the Reconstruction Grant for fully destroyed houses (PKR 175,000) to be equivalent to US$2,034. 4 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Affected home-owner of a completely destroyed house. Reducing variation in purchasing for social protection, providing livelihood cash transfers power of grant to the most vulnerable affected population to support expenses during the recovery period. This program Since the Program beneficiaries were dispersed over remote areas, there was a significant risk that costs of focused especially on poor and vulnerable households, building materials would vary considerably, thus reducing and provided them with an additional source of funds the purchasing power of the grant for remotely located for their immediate needs. households. To counter this, and to ensure stable and predictable availability of necessary building materials, Supporting the principle of equity, the RHRP ensured a building materials supply chain was established with that tenants also received financial assistance and could the assistance of the private sector throughout the participate fully in the Program, even though it was affected area. Moreover, building materials hubs were described as an ‘owner-driven’ one. This was conditional set up throughout the Program area, reducing the upon the tenants obtaining a no-objection certificate price variability and risk of non-availability of essential (NOC) from the property owners to reconstruct houses building materials. More details on building materials on those locations. In most cases, the owners in return supply chain are provided in the relevant chapter. agreed to let the tenants continue to occupy those properties for a mutually agreed period of time without charging any rent. The Program was thus able to benefit Supporting the vulnerable: tenants, both tenants and owners through this arrangement. landless, and the poor The Program also ensured various kinds of vulnerabilities The Program also covered the issue of safe land for did not adversely influence the affected population’s reconstruction. The precondition of having a safe access to safe and adequate shelter. Female-headed and site to reconstruct a house became a barrier to some elderly-headed households were given special focus families who had lost both their house and land due to by the Program implementing agency, with expedited landslides triggered by the earthquake, or whose land processing of paperwork and technical assistance in safe was deemed too hazardous for reconstruction. They housing reconstruction. (For more details, see separate were assisted through a separate Landless Program chapter on Social Aspects.) that provided financial assistance to buy land at a safe site. This Program was managed by ERRA in close Parallel to the Housing Program, the government with coordination with the RHRP. (For more details, see the assistance of the World Bank, ran a separate program separate chapter on Social Aspects.) A Manual for Post-Disaster Housing Program Managers 5 The rugged Himalayan terrain of the affected area posed significant challenges of access and outreach. Chapter 2 Institutional Arrangements Why Needed? A key consequence of major disasters is that they tasks to be undertaken in ways that are not necessarily disrupt normal working and effectiveness, particularly the same as the normal processes of government of government and administration. The more severe and and public administration. Hence, purely relying on widespread the disaster, the greater is the disruption, and normal government structures and institutions to take the more urgent the need to have in place an effective these on is generally not the most effective option. For system for reconstruction planning and management. greater efficiency and effectiveness it is preferable that these tasks are circumscribed, and performed by an Moreover, planning and management of the organisation specifically established and designed to reconstruction effort is likely to require additional undertake them. Suggested Results Framework Component: Institutional Arrangements Intermediate Outcomes Intermediate Outcome Indicators Enabling legislation passed to create institutional mechanisms for implementing post-disaster reconstruction programs Establishing and capacitating dedicated reconstruction Dedicated agency established and capacitated for agencies, responsible for undertaking post-disaster implementing and managing post-disaster reconstruction reconstruction programs from strategy development to program implementation Linkages developed and formalized with national and international partners to support reconstruction program Institutional development for longer term disaster risk Institutional support provided for national level long term reduction on national level disaster risk reduction Achieving Program Results – reconstruction agency and the regular mainstream The Pakistan Experience government agencies. In the case of Pakistan, given the federal structure of the country, the institutional setup The most important institutional requirement for successful reconstruction is to have a responsive also had to take into account federal and provincial institutional mechanism with requisite authority needs and have clear articulation of responsibilities in place as quickly as possible, with a clearly laid between the different levels. The Pakistan RHRP greatly down mandate and the necessary resources. Equally benefited from early and strong political commitment important is to have clearly articulated and understood to establish requisite institutional arrangements for boundaries and complementarities between the disaster emergency response and reconstruction. A Manual for Post-Disaster Housing Program Managers 7 The Pakistan Context in its building code. Moreover, rural housing was not subject to enforcement of any building or planning codes. International Neither was there any institutional mandate or capacity The disaster occurred shortly after the adoption of the for rural settlement planning or building control. Hyogo Framework for Action 2005-2015 at the World Conference on Disaster Reduction. The recommendations Creation, strengthening and capacity in the Framework were based on global best practices building of dedicated reconstruction and lessons learned from decades of experience, and agencies constituted agreed priorities for action. The first priority Immediately after the earthquake, a Federal Relief was institutional strengthening to ensure that disaster Commission (FRC) was created which was the first risk reduction is on the national agenda. Among the key dedicated agency for disaster response in Pakistan. activities within this priority was the creation of national Within a month of the disaster, the Earthquake institutional and legislative frameworks. Reconstruction and Rehabilitation Agency (ERRA) was set up with a clear mandate to manage post-disaster National recovery and reconstruction across 12 sectors. Housing, Pakistan did not have a dedicated disaster management one of the 12 sectors, was divided into Rural and agency of any kind for disaster response and recovery Urban Housing. The FRC was later merged into ERRA, planning at the time of the 2005 earthquake, as the providing a clear exit strategy for the former. country had not experienced a disaster of such a scale in ERRA’s responsibilities included the development of recent years. The magnitude of the earthquake required sectoral reconstruction and recovery programs and that an appropriate structure be quickly established to cross-sectoral support including media, M&E, finance, ensure coherence of government response. and knowledge management. The agency coordinated all assistance through a ‘one-window’ mechanism. All Federal, provincial and state stakeholders of the RHRP were obliged to work through The earthquake affected areas included districts in KP it. In view of the federal nature of the country, the province and AJK state. AJK is a self-governing state Provincial and State Reconstruction and Rehabilitation under Pakistani control with its own elected president, Agencies (PERRA and SERRA) were set up in KP and prime minister, legislature and high court. The seat of AJK respectively as dedicated bodies for reconstruction the state government of AJK is Muzaffarabad which was in those areas. This was important for the RHRP as there close to the epicentre of the earthquake and suffered was no provincial or State line department responsible extensive damage. KP has distinct subdivisions, notably for private housing, especially in rural areas. Pashtu speaking areas in the west and Hindko speaking areas in the east (Hazara division). The seat of the The following table lists key responsibilities of the various provincial government is based in Pashtu speaking tiers of government, including ERRA, in reconstruction Peshawar, which was unaffected by the earthquake. management. Due to the federal nature of the country, various levels of autonomy were clearly provided. ERRA Council, the supreme body for post-earthquake Construction and housing sectors reconstruction-related policymaking, was headed by the In 2005, Pakistan did not have specific seismic provisions Prime Minister. 8 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Table 5: Responsibilities of Different Institutions Involved in Post-Earthquake Reconstruction Institution Responsibilities ■■ Major policy decisions ERRA Council + ERRA Board ■■ Annual Work Plan approvals ■■ Overall coordination ■■ Policy formulation ■■ Approval and project management of national-level projects ERRA ■■ Program monitoring and standard setting ■■ Financial management of funding ■■ Donor coordination ■■ Reporting to ERRA Council and Board ■■ Approval of annual reconstruction plans Provincial/State Steering Committee ■■ Reporting to ERRA (with respective line departments and ■■ Oversight of Reconstruction Agency ERRA represented) ■■ Approval of large projects (above certain threshold) ■■ Autonomous body Provincial/State Earthquake ■■ Reporting to Steering Committee and ERRA Reconstruction and Rehabilitation ■■ Preparing Annual Work Plans Agencies ■■ Implementing large contracts in coordination with line agencies ■■ Monitoring regional programs ■■ Preparing district reconstruction plans ■■ Implementing small contracts in coordination with District Governments/District District Reconstruction Units (DRUs) level line agencies ■■ Reporting to PERRA/SERRA ■■ Coordinating/Partnering with Partner Organizations (POs). Linkages with existing national-level time, due to their existing outreach and logistical institutions and partners capacity. PPAF took on full implementation of the The scale of the RHRP required ERRA to establish RHRP in 34 Union Councils (UCs) where it already partnerships with government and semi-government had an active presence. Other partner organizations agencies to enhance its technical and implementation assisted in delivering the cascaded program for training capacity. This was ensured through high level umbrella of craftsmen in seismic-resistant construction methods agreements. The Assistance and Inspection regime, as and details, as well as educating beneficiaries and affected well as training and capacity building, was outsourced to communities on them. These POs, along with the Pakistan Partner Organizations (POs) on the basis of their existing Military, also performed assistance and inspection presence and outreach at Union Council-level (the lowest duties, the latter for certifying status of completion and rung of administration) in the affected areas. The two compliance to seismic-resistant standards to enable largest POs were the Pakistan Military and the Pakistan Poverty Alleviation Fund (PPAF). release of the subsequent grant tranche. Finally, POs were also responsible for community mobilization and The Pakistan Army helped undertake the Detailed the creation of Village Reconstruction Committees, for Damage Assessment and Beneficiary Eligibility community participation in reconstruction, as well as Verification Survey across the affected area in record bulk procurement of materials and optimal use of labour. A Manual for Post-Disaster Housing Program Managers 9 An AI team member explaining program requirements to affectees. Crucial support for database management and building is institutional development. In Pakistan, the beneficiary verification was provided by the National reconstruction experience soon led the government Database and Registration Authority (NADRA), which to develop the National Disaster Management had a pre-existing database of all individuals in the Framework (NDMF), and establish the National country who had been issued with National Identity Disaster Management Authority (NDMA) as well as the Cards (NICs). NADRA played an important role in Provincial Disaster Management Authorities (PDMAs) various components of the program, especially those in all provinces across the country. involving compilation and analysis of data, including: beneficiary eligibility verification; grant payment NDMA has emerged as the key coordinator in subsequent verification; and reporting, monitoring, and evaluation post-disaster situations, which Pakistan has faced a of Program results. series of since 2005, particularly in the immediate relief and recovery phases. Moreover, NDMA is also working National institutions for longer-term with international partners to conduct a comprehensive disaster risk reduction multi-hazard risk mapping of the country, which will Globally, there is a critical need for countries prone holistically inform policy making for disaster risk to recurrent disasters to strengthen their response management and disaster mitigation. This is a long capacity as well as reduce their hazard vulnerability overdue step that will support and enhance the DRR to mitigate future losses. A key aspect of this capacity agenda in Pakistan. 10 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Lessons Learned – Considerations for Future Programs Lessons Learned Comment ERRA, as well as the reconstruction programs it undertook, enjoyed great political support at the outset. However, subsequent major events in Pakistan such as conflict, recurrent floods, and economic and political upheavals diluted the attention of the Political support critical at the start, political leadership and the media, and funding avenues also declined. drops over time Governments should take an early and active role in the response, showing political commitment. The absence of government leadership is one of the greatest risks in responses, at times bigger than resource deficiencies. The RHRP greatly benefited from the capacity of various partner organisations for implementation. However, this also posed risks when partners themselves faced Partner Organisations provide constraints. The Program design envisaged a more extensive role for NGOs, which complementarities, but also some risks did not materialize due to their capacity constraints, leading to reallocation of responsibilities. Reconstruction activities within 12 sectors were the responsibility of respective units Inter-sectoral synergies need focussed within the newly-created ERRA. This led to the creation of ‘silos’ looking at individual attention to be optimally used sectors with often weak synergy across them. Lessons learned from one sector were thus not automatically transmitted across all sector Programs. Early clarity on institutional roles and responsibilities greatly helped engagement Early decisions on clarity of institutional with various stakeholders, and accelerated decision making. This avoided the risk of responsibility critical institutional gaps leading to confusion, delays, loss of confidence and resources. It also helped capitalize on early funding. A Manual for Post-Disaster Housing Program Managers 11 Door to door detailed damage assessment and eligibility verification survey is underway. 12 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 3 Detailed Damage Assessment & Beneficiary Eligibility Verification Survey Why Needed? tion and rehabilitation standards and structural design solutions. Moreover, such a survey also helps identify It is critical for a post-disaster housing reconstruc- buildings that though damaged, are safe for occupation tion program that the potential beneficiaries are care- versus those that are not and could be a risk to life and fully identified, and their eligibility confirmed against assets unless repaired or demolished and reconstructed. transparent and uniform criteria. A Detailed Damage Assessment and Beneficiary Eligibility Verification Survey is required to ascertain the scope and extent of damage to the housing stock against uniformly applied Suggested Results Framework engineering criteria, and to validate the authenticity of A Results-based approach can be used to manage and beneficiaries. Such a survey is also extremely useful in monitor the damage assessment and beneficiary eligi- identifying frequent causes of building damage, which bility verification exercise. A suggested Results Frame- will become inputs into disaster-resistant reconstruc- work for this purpose is presented below. Component: Damage Assessment and Beneficiary Eligibility Verification Survey Intermediate Outcome Intermediate Outcome Indicator Rapid post-disaster preliminary damage Preliminary damage assessment by local administration completed immediately after and needs assessment to develop a disaster baseline for reconstruction programs Preliminary baseline of disaster-affected households and communities created Survey form developed and tested MoU developed- to be signed between beneficiary and survey team Formation, training, and mobilization % of affected area (in administrative units) where survey teams have visited within of survey teams across affected areas ‘x’ months after launch of survey to conduct damage assessment and beneficiary eligibility verification survey % of households visited considered eligible for reconstruction/repair grants % of households considered eligible for reconstruction/repair grants with which agreement/MoU signed outlining responsibilities of beneficiary and the government Setting up of central database of Setting up of centrally-managed eligible beneficiary database, linked to the national eligible beneficiaries along with unique identity database identification numbers Key beneficiary information input, based on survey data Training regime on assistance and inspection (AI) of seismic-resistant construction Transition of survey teams to Assistance developed to retrain survey teams into AI teams and Inspection (AI) teams for continuing Program implementation AI teams mobilized in all affected areas after disbursement of mobilization grant and commencement of reconstruction activity A Manual for Post-Disaster Housing Program Managers 13 Achieving Program Results – repair grants, and the division of responsibilities The Pakistan Experience between the government/ERRA and the beneficiaries. In the case of Pakistan, a comprehensive door-to- This section uses the Results Framework provided above door Detailed Damage Assessment and Beneficiary to elaborate on how the suggested results were achieved Verification Survey was launched in spring 2006, in the Pakistan post-earthquake context. There is special soon after the harsh winter that had rendered many emphasis on the processes and steps used to manage the of the affected areas inaccessible, was over. It was to process of seismic-resistant design solutions. serve the dual function of assessing damage to houses in the affected area, and establishing a comprehensive list of verified beneficiaries (households) that would Preliminary damage survey be eligible for the housing grants. The survey took immediately post-disaster approximately four months and resulted in the for baseline of future program creation of a database of beneficiary households, with Immediately after the disaster, the local-level corresponding levels of damage to their respective administration and provincial governments conducted a dwellings, as well as information on the most frequent rapid preliminary damage survey to assess damage and causes of building failure in the earthquake-affected gain a picture of support needs of affected households. area. This survey was the starting point of the entire The survey covered those living in camps as well as at RHRP, and was used as a basis on which the rest of the places of origin. The results from this preliminary survey Program was implemented. led to the creation of a baseline that was then used for the comprehensive survey at a later stage. It thus provided an Conducting the survey was a difficult exercise due important tool for the Program implementation team to to the harshness of the terrain and the vastness of organize their field level activities for the conduct of the the affected area, requiring high logistic capabilities. comprehensive survey. It also provided primary data that, Approximately 600 teams needed to be mobilized across once validated, became the basis of the DNA, and in turn the affected area. Capacities available in the market the commitments made at the Donors Conference. were found to be inadequate to undertake the survey immediately. After attempting to hire large engineering This rapid survey was also used to determine the firms without success, ERRA turned to the Pakistan households that qualified for a Temporary Shelter military for assistance. Their planning and logistic Support (TSS) grant of PKR 25,000 provided by the capacity and existing outreach to the most remote areas government. This grant was disbursed within a few made it possible for them to undertake the survey in months of the disaster, prior to the launch of RHRP, and an accelerated manner. Over 600 teams consisting of was used by households for both shelter and livelihood three members each conducted the assessment. Each support needs. Once the Program was launched, this team was led by a military engineer, and comprised a grant was considered to be the first of the four tranches representative of the local community and a government provided through the Program. The mobilization grant functionary such as a revenue official or a teacher. of PKR 75,000 after the conduct of the comprehensive damage assessment and beneficiary eligibility survey The survey was conducted in a participatory manner was thus named the ‘second’ grant. with full community involvement, ensured by the community representative on the survey teams. The government representative on each team helped in owner Formation, training, and mobilization verification through revenue records in cases of absence/ of survey teams for detailed damage loss of documents. Concurrently, the survey teams assessment and beneficiary eligibility signed Memoranda of Understanding (MoUs) with verification survey verified heads of beneficiary households. The MoUs The survey form and technical guidelines for the outlined the compliance and certification requirements Detailed Damage Assessment and Beneficiary Eligibility of the tranche-based program of reconstruction and Verification Survey were developed under the Rural 14 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Housing Reconstruction Program. While the Pakistan Rationale for Involvement of the Military undertook the survey in most of the affected Military area, the Pakistan Poverty Alleviation Fund (PPAF) The Pakistan Military was uniquely placed to play an agreed to take up 34 union councils in which they important role in this survey due to its pre-disaster already had a strong field presence through their partner presence and outreach across the affected area, its organisations (POs). Over 600 teams were formed, organizational and human resource capacity, as well trained on the appropriate and consistent application of as its strong reputation and credibility among the technical damage criteria, and mobilised. affected communities. These strengths became great advantages for the Program to have involved the Army These teams conducted comprehensive door-to-door as an important Partner Organization for the conduct visits in all administrative units of the earthquake- of the survey, and subsequently for the Assistance affected area over a four-month period to assess and and Inspection regime, seismic-resistant construction categorize damage, determine eligibility, and sign training regime, and data collection and management. MoUs. In essence, three separate activities were combined into one exercise to enhance efficiency: In view of concerns of development partners on funding financial remuneration of the military for Program ■■ comprehensive damage assessment, to determine implementation, the Army itself paid the salaries of nature of damage to each surveyed dwelling; military personnel involved in the Program, while ■■ beneficiary eligibility verification; project-related incremental costs were borne by the ■■ signing of MOUs (quasi-legal agreement) with the Program implementing agency. In total, the Pakistan verified beneficiaries. Army provided manpower for survey teams in 268 An affectee displaying beneficiary identification number in front of his damaged house. 15 affected Union Councils out of a total of approximately Creation of central database for 300, thus contributing significantly to the RHRP. beneficiary eligibility and grant payments following field survey Capacity building and training of As the survey was being conducted, information from survey teams all MoUs was collected at the field level, collated at The ‘Cascaded Training’ module, (refer to relevant formation level, and then sent to Program headquarters chapter) to create a critical mass of artisans and masons at the central level as well as to the National Database trained in seismic-resistant construction standards, was and Registration Authority (NADRA), the Program well integrated with this component. The survey teams information management partner. Here, this were given adequate training in technical capacity. information was converted into a centrally monitored Program partners trained a core team of master trainers and administered grant/beneficiary database, linked to who in turn provided training to the survey teams in the the National Identity Card (NIC) database. NADRA field. This ensured that the assessment criteria remained has the mandate for this database and therefore had uniform across the area. All teams were also issued an the requisite capacity for such tasks. As the Program instruction manual to guide them in damage assessment progressed, this database became a crucial link for and data recording. Program implementation. Composition of survey teams Transition of survey teams to assistance and inspection (ai) teams for The door-to-door survey teams comprised 3-5 members continuing program implementation including: Since the survey teams became well versed in technical 1. Federal government technical representative – Army matters related to the Program, once the comprehensive personnel or PPAF door-to-door survey was concluded, they were 2. Province or State representative – Local school transformed into the Assistance and Inspection (AI) teachers teams, underpinning the AI regime. These provided on- 3. District representative – Patwari (revenue officials) site assistance and advice to homeowners during various 4. Community representative – local Union Council stages of construction, and also certified adherence elected official to seismic-resistant standards at requisite stages of 5. Village representative – community notable or construction to enable subsequent grant tranches to be facilitator released. They conducted field visits on a continuous basis throughout Program implementation to deliver on The teams were fully empowered to assess the damage their mandate. They were provided with further training category of the house (repair or reconstruction) against by Program partners in technical inspection as well the laid down technical criteria, and sign an MoU with as assistance methods. Through the ‘cascade training’ the verified house owner or an authorized person. approach, these teams helped train master craftsmen, Community representation in the damage assessment masons, construction workers and homeowners at the and beneficiary eligibility verification exercise was field level on seismic-resistant construction techniques. crucial, facilitating: ■■ Verification of beneficiary eligibility (in the absence Schematic description of the survey of documentation) through community validation; The following diagram provides a layered picture of the ■■ On-the-spot and subsequent resolution of inter- flow of the comprehensive door-to-door survey process: household grant entitlement issues (implementing the one grant per roof principle); ■■ Resolution of owner-tenant issues. 16 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Figure 1: Damage Assessment and Beneficiary Eligibility Verification Survey Process Preliminary Damage Assessment Survey and Baseline Rapid preliminary damage survey immediately post-disaster by local administration. Development of Baseline for comprehensive survey using list of affected households provided Temporary Shelter Support grant of PKR 25,000 (to affectees living in relief camps and places of origin). Damage Assessment Guidelines Survey Form and Guidelines for detailed Damage Assessment and Beneficiary Eligibility Verification Survey developed Formation and Training of Survey Teams Over 600 teams from Pakistan Military and PPAF trained on use of form and application of technical criteria for damage assessment, dissemination of program information, as well as social mobilization. Survey Teams Mobilized in Affected Area Comprehensive door-to-door visits by survey teams over four-month period to assess and categorize damage, determine/verify eligibility, and sign MoUs. Community involvement in damage assessment and beneficiary eligibility determination. Creation of Grant + Beneficiary Database Information from all MoUs converted into grant/beneficiary database centrally monitored and administered by national-level ID registration authority. Post-Survey Follow-up Transition of survey teams into Assistance and Inspection (AI) teams to conduct regular visits to construction sites for assistance, inspection, and certification throughout Program duration. A Manual for Post-Disaster Housing Program Managers 17 Risks and Challenges Since the Detailed Damage Assessment and Beneficiary was done through certain mitigation tools built into the Eligibility Verification Survey was the first component design and implementation of this component. These are of the Program that required field implementation, there explained below: were significant risks that had to be accounted for. This Risk / Challenge Mitigation tool Scale and Speed: Program could not commence until the Survey was Large workforce mobilized having previous knowledge of the area, existing completed to confirm caseload and outreach, and strong logistical capacity. establish database of beneficiaries. Consistency: With 600+ teams assessing a ■■ Number of categories of damage simplified; range of buildings, consistency in damage ■■ Limited number of partners involved; criteria and decisions was critical to ensure ■■ Training of teams on damage criteria ensured; fairness. ■■ Strong oversight and quality assured. ■■ Teams comprised members who knew community well; Fraud: Risk that individual beneficiaries ■■ Unique national ID number and photograph of each MoU holder beneficiary will benefit from more than one grant. with his/her property on survey form to avoid duplication. ■■ Inclusive process for damage assessment, supported by strong Public Information Disputes and Discontent Campaigns; ■■ Basic training in negotiation and social mobilization skills to assessment teams. ■■ Resolution of grievances at field level as much as possible; Grievance Redressal ■■ Official cut-off date announcement and closure of damage assessment exercise; ■■ Establishment of complaints desk. ■■ Confirmation from community representatives on comprehensiveness of survey in each area; Exclusion of deserving beneficiaries ■■ On-going policy level dialogue on legal process involving land, property, and other issues; ■■ Complementary policy for the Landless. Lessons Learned – Considerations for Future Programs Comprehensive damage assessment should take place once, with clear criteria for Assessment should be clear and categorization of damage, and a formal closure date to allow next stage of activities to conclusive proceed. Moreover, damage assessment and eligibility verification should be carried out as a single exercise if possible, which accelerates the process and mitigates risk of error. Status and legal issues should be Issues of land, property, or tenure status which affect beneficiary eligibility need to be prioritized upfront identified early and corresponding policy decisions taken. Affected communities can play key roles such as in verification, negotiation, mobilization, and Community can play active role confirmation of completion. Moreover, participation in assessment provides on-job technical awareness regarding seismic vulnerability and safe construction practices. Photographs of damaged buildings with beneficiaries assist in monitoring, reduce risks of Use photographs duplication, and yield important technical data for developing engineering solutions. Assessment teams should be mandated to resolve disputes, unrest, and grievance at field Resolve Grievances at field level level. This may require degrees of flexibility to make informed decisions at field level. Engage limited number of Use of few partners with existing capacity and presence can ensure speed with consistency partners and streamlined coordination Engineering assessments are Engineering assessments, including analysis of local materials and construction methods, crucial should be carried out early to inform Program policy and strategy. NGOs will be reluctant to arbitrate over funding decisions for fear of severing ties with Limited role of Partner communities, and thus are less suited for an eligibility verification exercise. They are better Organizations / NGOs in survey suited for social mobilization support roles, a capacity that most technical institutions lack. 18 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Detailed Damage Assessment and Beneficiary Eligibility Verification Form Memorandum of Understanding signed between each beneficiary and ERRA A Manual for Post-Disaster Housing Program Managers 19 Ceremony commencing housing grant payments. 20 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 4 Grant Payment Mechanism Why Needed? Once beneficiary eligibility for housing grants has been construction is a pre-condition to receive grants. Here, determined, and decisions regarding key elements of the grant payment mechanism needs to be closely tied program design made, grant payments to beneficiary to beneficiary eligibility as well as the inspection and households need to begin. A mechanism needs to be certification regime. The process needs to be efficient created that supports the individual household-nature enough to cater to a large caseload of incremental of an Owner-Driven Program, in which grants need disbursements as houses are rebuilt step-by-step. to be disbursed to each household separately rather than to a collective entity such as a contractor or even a community organization. This mechanism also needs Suggested Results Framework to take into account potential leakages in the transfer of funds to a large caseload, and must ensure this is A Results-based approach can be used to manage and minimized. monitor this part of the Program. A suggested Results Framework is presented below. While this relates to A further layer of complexity that needs to be accounted a post-earthquake context, the Framework, and the for is the tranche-based nature of grant disbursements, concept in general, can be applied with equal validity to especially in such a Program where disaster-resistant other disaster contexts such as floods and tropical storms. Component: Grant Payment Mechanism Component Objective Component Outcome Indicator Successful disbursement of housing reconstruction/repair grant % of eligible beneficiaries receiving all tranches of restoration/ to all beneficiary households in tranches linked to certification reconstruction grants of seismic-compliant construction Documentation of economy and prevalence of bank-based % of beneficiaries regularly operating bank account outside of transactions outside of Program Program grants (such as to receive migrant worker remittances) Intermediate Outcome Intermediate Outcome Indicator % of eligible beneficiaries that opened bank account due to Program, out of those that did not have bank account pre- disaster % of eligible beneficiaries with functioning bank accounts or All beneficiaries able to receive housing grant in bank account formal savings/deposit mechanism ‘x’ months after start of or alternative savings/deposit mechanism (such as post office Program savings account) Financial MIS developed that is linked to beneficiary eligibility database and any available national identity database % of financial transactions involving Program grant disbursements completed via beneficiary bank accounts A Manual for Post-Disaster Housing Program Managers 21 Achieving Program Results – area to facilitate opening of the accounts. This post- The Pakistan Experience disaster grant payment mechanism set an important precedent in Pakistan, which has since been further Housing Grants Disbursements Directly refined. Following the conflict in Swat, and the massive to Beneficiary Bank Accounts 2010 and 2011 floods across the country, beneficiaries Beneficiary households were provided tranche-based were provided relief grants by the government through financial assistance at various stages of the Program, a centralized system of debit/ATM cards. dependent upon them meeting certain criteria for eligibility and seismic-resistant reconstruction agreed The Grant Payment mechanism was intimately tied to to in the MoU (signed at the time of the comprehensive the Assistance, Inspection, and Certification regime, damage assessment survey). as the inputs from the latter led to subsequent grant tranche releases. This required significant mobilization Each beneficiary household, once declared eligible, in the field of Assistance and Inspection (AI) teams was required to open a bank account to enable direct that visited each beneficiary dwelling multiple transfer of funds, thereby bypassing middle men and times over the course of the program (4 times for enhancing transparency. Opening of bank accounts for destroyed houses needing full reconstruction, 2 times beneficiaries living in inaccessible, remote, dispersed, for damaged houses needing repair). These teams rural areas required significant mobilization and certified the phased construction/repair of houses to support from partner banks and development finance seismic-resistant standards. Once this certification institutions, and represented a key achievement of the was processed by a centrally managed beneficiary Program. The central bank (State Bank of Pakistan) database, grant payments for that particular phase/ played a critical role by relaxing account opening tranche were released directly into beneficiary bank requirements in the affected areas and providing accounts. (Details on this mobilization effort for customised guidelines to commercial banks for them. Assistance, Inspection and Certification are presented The commercial banks in turn rose to the challenge, and in more detail in a separate chapter). A brief overview mobilised mobile banking outfits across the affected of this tranche-based assistance regime is given below: Table 6: RHRP Tranche-Based Financial Assistance Regime Fully Damaged / Destroyed Houses Cash Grant Payment Triggers Operational Procedures First Instalment PKR 25,000 Preliminary Housing Damage Preliminary Housing Damage Determination Determination by various government agencies Second Instalment PKR 75,000 Housing Damage Damage Assessment and Categorization & Beneficiary eligibility confirmation by Eligibility Verification Survey Team; Signing of MOU Third Instalment PKR 25,000 Completion of Plinth Technical Inspection Fourth Instalment PKR 50,000 Completion of wall and super Technical Inspection structure up to Lintel level Partly Damaged Houses Cash Grant Payment Triggers Operational Procedures First Instalment PKR 25,000 Preliminary Housing Damage Preliminary Housing Damage Determination Determination by various government agencies Second Instalment PKR 75,000 Housing Damage Damage Assessment and Categorization & Beneficiary eligibility confirmation by Eligibility Verification Survey Team, signing of MOU 22 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Schematic Description of Grant Payment mechanism The following figure provides a snapshot view of the including the use of the individual-level National various steps involved in the grant payment mechanism, Identity database and bank accounts. Fig. 2: RHRP Grant Payment Mechanism Damage Assessment Survey Inspection Beneficiary eligibility determined + MoU with beneficiary signed Beneficiary data entered into database Beneficiary Computerized National Identity number, bank account details, MoU details, damage criteria. Managed centrally. Release of second tranche into bank account Second of four tranches for reconstruction, Final tranche for repair. Inspection and certification of construction and seismic compliance at PLINTH level Conducted by Assistance and Inspection (AI) teams Plinth-level certification confirmation sent to database Sent by AI teams to centrally managed database, which then forwarded data to Program central administration and banks Release of third tranche into beneficiary household’s bank account Inspection and certification of construction and seismic compliance at LINTEL level Conducted by Assistance and Inspection (AI) teams Lintel-level certification confirmation sent to database Sent by AI teams to centrally managed database, which then forwarded data to Program central administration and banks Release of fourth and final tranche into beneficiary household’s bank account A Manual for Post-Disaster Housing Program Managers 23 Beneficiary receiving compliance certificate confirming adherence to seismic-resistant standards, following inspection by an AI team. 24 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Key Risks and Challenges Risks / Challenges Mitigation tools This risk was eliminated by the use of direct transfers to bank accounts of Risk of Leakage of grant funds intended beneficiaries; a significant effort was required to bring banking services to remote for beneficiaries rural areas outside the banking net. The Program central implementing agency worked with the Central Bank (State Opening of Bank accounts: Over 50% Bank of Pakistan) to relax account opening requirements for commercial banks and beneficiaries did not have existing bank development financing institutions in the earthquake affected areas. accounts and had to be brought into this Banks were encouraged to send mobile banking outfits to remote areas. Moreover, net to facilitate direct bank transfers of accounts in post office and national savings schemes in lieu of banks were also grants accepted. Accelerated effort was made to complete the eligibility survey within four months, Ensuring timely disbursements of financial and beneficiary database was created immediately after. All first tranche (temporary assistance for Program Credibility shelter support) payments were made by end-2005 and all second tranche (mobilization for construction) payments by end-2006. Lessons Learned – Considerations for Future Programs A comprehensive information management system based on the existing national Information and Data Management is Computerized National Identity Card database supported the implementation of critical the Program, which relied on a large volume of individual household data. Such information needs should be planned for at the outset of the Program. Despite the low rate of bank accounts in the affected area pre-disaster, the rural dispersed and isolated settlement patterns and low levels of literacy, over 611,000 Bank transfers are possible accounts (including 300,000 new ones) were successfully used for direct transfers of grants. This required planning with banks and resolution of many practical issues. Since financial assistance in such a Program will often be its key component and Link financial assistance with grievance incentive for the beneficiaries, robust grievance redressal mechanisms that are also redressal mechanisms able to deal with financial disbursement and eligibility matters on an expedited basis are critical. A Manual for Post-Disaster Housing Program Managers 25 Existing construction techniques made seismic-resistant through introduction of requisite structural elements. Chapter 5 Seismic-Resistant Structural Design Solutions Why Needed? Suggested Results Framework Natural disasters adversely impact on private housing A Results-based approach can be used to manage and the most – inevitable given that houses are the most monitor the development of a menu of hazard-resistant commonly prevalent structure. The design and materials structural design options, through a suggested Results used in construction can be a significant factor in Framework presented below. While this relates to determining the extent of damage caused by a disaster. seismic-resistant designs in a post-earthquake context, Post-disaster reconstruction provides an opportunity to the concept can be applied with equal validity to other ensure that optimal structural designs and materials are disaster contexts as well. used to minimize the risk of damage in the event of a future disaster. Component: Seismic-resistant Structural Design Solutions Intermediate Outcome Intermediate Outcome Indicator Review and assessment of prevalent materials and methods for seismic considerations, especially including documentation of common vulnerabilities such as faulty construction practices causing building Development of seismic-resistant structural design collapse/damage standards based on familiar materials and methods Development of affordable seismic-resistant structural standards based on global best practices Mechanism established for review and additions to menu of structural designs Training materials and curricula developed to educate master trainers, Concurrent development and implementation of field staff, artisans, and affectees on appropriate implementation of Cascaded Training for optimal results seismic-resistant structural design solutions Model houses and demonstration details constructed at field level to provide hands-on training and samples for reference. Menu of approved seismic-resistant structural designs consolidated in Compliance Catalogue developed catalogue form, along with solutions for common problems of non- compliance Data on non-compliant construction used to mobilize AI and training teams to areas with high rates of non-compliance Non-Compliance Referral System established Non-Compliance Referral System (NCRS) developed for recurrent cases of non-compliance providing detailed technical advice through trained engineering staff A Manual for Post-Disaster Housing Program Managers 27 Achieving Program Results – and ‘Bhatar’ technique, using wood bracing in walls of The Pakistan Experience stone masonry, was found to be adequately seismic- resistant. Bhattar was thus included in the menu of In rural areas in Pakistan housing was not subjected options. Lastly, for beneficiaries choosing to construct to any building control or technical supervision, but concrete roofs, a reinforced concrete frame structure built using prevalent methods and materials, which had was also provided as an option. limited ability to withstand extreme events. The massive loss of life and damage after the 2005 earthquake was This section uses the Results Framework provided above mainly due to these significant deficiencies in practices to elaborate on how the suggested results were achieved and flawed construction techniques. The area had in the Pakistan post-earthquake context. There is special known seismic activity before, though not on this scale. emphasis on the processes and steps used to manage the While traditional construction techniques catered for process of seismic-resistant design solutions. stability, over the years they had been given up for the sake of economy. The inhabitants of the region had been building their houses according to their needs Development of seismic-resistant and means, with little thought to safety. The trade-off standards based on conventional between more robust but expensive construction and technologies risk mitigation did not seem justified for most people The seismic-resistant structural design options and with limited means, and given there had been no recent standards were based on global best practices for history of a major earthquake. non-engineered construction. A key consideration in the design of these standards was to ensure their After the 2005 earthquake in Pakistan, there were calls to affordability, in view of the majority of the affected improve the quality of prevalent construction methods, population being the rural poor. not only from the development partners but also from the affectees themselves. While the calamity was major As a first step, extensive field assessments and desk it provided an excellent opportunity to apply lessons research was conducted to understand the prevalent and ‘build back better’. The prospect for providing local construction techniques, and how they behaved improved housing using requisite structural standards, during the earthquake. This led to an understanding and introducing materials and construction methods of causes of collapse including weak detailing, poor able to withstand hazard-risks needed to be exploited. workmanship, and lack of quality assurance in general, and absence of seismic-resistant features in particular. A two-pronged approach was developed for seismic- This led to the development of seismic-resistant resistant reconstruction: a) the development of structural design options and standards based on appropriate construction standards and structural materials that were locally familiar, but used in a manner design options using local materials and knowledge; that ensured higher safety standards. and b) large-scale training of a critical mass of masons and artisans as well as homeowners in the use of these During the implementation of the RHRP, more standards to enable them to reconstruct their houses in structural design options were added to the menu, taking a safer manner. Training is discussed in the next chapter. into account additional local preferences. The following steps were involved in the process of formally assessing With regard to designs, the RHRP enabled a wide range a range of local methods and materials for exclusion of construction choices balancing owner needs with a or inclusion in the menu of endorsed construction dynamic process of rigorous technical considerations standards: for seismic resistance. A menu of seismic resistant structural designs was developed, based on familiar ■■ Physical survey and documentation of housing materials already prevalent in the region. These included typologies, construction materials and methods; stone, brick, or concrete block masonry with seismic- ■■ Detailed physical and non-physical assessment of resistant structural elements for walls, and lightweight damaged buildings; wood and CGI sheet roofs. The traditional methods of ■■ Discussions with artisans and homeowners on range construction practiced in KP and AJK were also assessed 28 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience of practice in given typology and materials; involved. Moreover, actual reconstruction practice ■■ Basic engineering analysis of structural behaviour, in the field could deviate from ideal standards, with sharing of field information, and dialogue with homeowners and artisans introducing modifications engineering experts; and alterations that compromised the seismic-resistant ■■ Consolidated documentation and analysis of features of the houses. To counter these issues, a field information and reference material to Catalogue of Compliant Construction for Rural Houses establish engineering assessment and determine was published a couple of years into the Program, which recommended standards; served the following functions: ■■ Submission of draft standards and menu of structural design options for review and comment; ■■ Consolidating the menu of approved structural ■■ Approved standards and options disseminated to field designs and construction methods: The menu through training and information dissemination. of approved structural designs and construction Guidance materials communicated with theoretical methods had been undergoing revisions based and practical exercises and examples, including on feedback from the field and implementation demonstration/model houses; experiences. It was pertinent to consolidate all related information to avoid confusion or misunderstanding. ■■ Continued research carried out at field level to identify priority needs for information, emerging The issue of an incrementally expanded menu of issues and constraints to devise appropriate advice structural design options was cumbersome for and solutions. various stakeholders involved in implementing the RHRP. The Compliance Catalogue consolidated the The scale of the damage incurred by the earthquake approved standards into a single reference document. influenced the federal government to undertake a ■■ Providing solutions for non-compliant construction: seismic zoning of the entire country, and a review and The second objective of the Compliance Catalogue update of relevant building codes to account for seismic was to communicate remedial measures and advice risks. Moreover, elements of the training curriculum for for those homeowners who, due to lack of information seismic-resistant construction (discussed below and in or availability of requisite materials, had constructed separate chapter on training regime) were eventually structures that could not be certified as compliant to be incorporated at national level in technical and eligible for subsequent grant tranches. The Catalogue vocational training programs for the construction provided step-by-step graphics and explanations for sector. measures to be implemented for mistakes found to be recurrently made. This was also important in helping Concurrent development and provide systematic guidance on repair and retrofitting implementation of cascaded training of earthquake-affected houses to structurally for optimal results acceptable standards. After the establishment of seismic-resistant construction standards, a comprehensive Training Program was Establishment of non-compliance developed based on a ‘cascaded training’ model to referral system train master trainers, masons, and craftsmen in the use The RHRP needed to monitor and analyse seismic of these methods and standards in the field. (Refer to compliance on a vast scale in real time and to determine separate section on Training and Capacity Building for trends in non-compliance that could be systematically more details.) be responded to. A robust Reporting, Monitoring, and Evaluation (RME) system was established to achieve Development of compliance catalogue this, details of which can be found in a separate section. With a number of design options floating in the field, In the Pakistan context, the following two activities were there was a risk of confusion on the appropriateness of undertaken complementary to the RME system that each option; especially when an element of financial helped detect and correct the practice of non-compliant assistance based on the use of those options was construction. A Manual for Post-Disaster Housing Program Managers 29 Targeted Campaigns To Disseminate Remedial was to establish a Non-Compliant Referral System Measures: A couple of years into the implementation of (NCRS), where joint PO technical assessment teams the Program, the RME system was fully operationalised were constituted to inspect a caseload of over 8,000 (refer to separate section on RME), enabling houses. Wherever possible, decisions and advice were periodic reporting of levels of seismic compliance issued at site by the engineers on the teams. However, in reconstruction, segregated geographically. This where the defects were more complex, the detailed enabled the RHRP team to determine which areas were information was forwarded to senior engineering systematically weak in seismic compliance, allowing staff located centrally to provide appropriate solutions them to design targeted campaigns aimed at these where possible. Cases were compiled and shared with specific areas. Moreover, this information was fed all Housing Reconstruction Centres at the district back to the AI teams and PO field staff, enabling them level, as a process of continuous cross learning and to focus technical assistance on masons, craftsmen, consistent information sharing, including review of new and homeowners for achieving seismic compliance. construction problems, discussion of solutions, sharing This often took the shape of introducing remedial of best practices, and documentation. measures to already constructed buildings that were not in compliance with seismic standards, using the Compliance Catalogue. Concurrent and Complementary Program Aspects Non-Compliance Referral System: A high proportion While the steps and processes described above provide of non-compliant construction had similar and common a comprehensive picture of the development of hazard- defects, which could be rectified through consistently resistant structural design solutions, they must be applied remedial measures shared through the AI teams complemented by concurrent processes and activities and PO field staff. However, there were still a significant at a Program level to deepen and consolidate gains number of cases of non-standard construction, or from this component. Some of these components are with complex or compounded defects which required described in the table below. All of these are covered in customized assessment and advice beyond the technical separate chapters in this Toolkit, which can be referred capacity of the AI teams. The Program response to for further details. All standards and guidance were developed into training and information materials Concurrent preparation of communication for communication and dissemination with illustrations for clarity, and translation materials (refer to relevant chapter) into local language. Technical teams responsible ensured consistency. Since seismic-resistant reconstruction required availability of certain essential Development of building materials supply materials, it was necessary to ensure their adequate and timely supply and chain and hubs to ensure availability of continuing availability. construction material (refer to relevant chapter) ERRA helped establish private sector-led building materials supply chain and hubs to ensure availability with requisite quality. The ‘build back better’ strategy was ensured by the AI and training regimes to On-going inspection and enforcement ensure seismic compliance. of seismic-resistant standards (refer to relevant chapter) Absence of pre-earthquake enforcement mechanisms meant that a new system had to be devised to ensure adherence to given standards under the RHRP. 30 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Lessons Learned – Considerations for Future Programs Local construction methods were not previously well documented, and required time to analyse and improve for adequate seismic-resistance. The use of local methods and familiar materials in reconstruction was a success of the Program, but required effort and persistence. Local construction methods not well documented and difficult to scientifically test or endorse Further, even with field evidence, it is difficult to engage in engineering arguments based on code and precedent or numerical analysis, none of which are conducive to analysis of local materials and technologies. A peer review process or other system of engineering review should be established to determine who controls decision making on standards. Housing reconstruction starts earlier than other sectors and people commence work when they are ready and able to do so. It is important that policies, standards and support systems are devised and in place in time to ensure people are aware of terms and conditions of People build early, and policies financial support and can access technical advice in time to make use of it. and strategies are always catching up with them In Pakistan, the establishment of housing reconstruction centres (HRCs) in affected districts was limited for the first one year and could not address the need to disseminate advice and information to those households who started early. Since the case load was predominantly of Katcha houses that were deemed candidates for Early advice for repair and reconstruction, the RHRP focused on standards and specifications for new construction at the retrofitting is essential outset, and advice for appropriate repair and retrofitting commenced later. Technical advice for repair and retrofitting needed to be available as early as possible. The Program established a centralized role of approval of all technical standards, training Single source information, curricula and public information materials to be used or circulated by all implementing consistency and accuracy in partners. This was based at ERRA, the central implementing agency. This was critical to standards ensure information used in technical assistance and all information reaching beneficiaries was accurate and consistent. Instead of providing architectural designs, the Program provided a range of structural Optimised choice and design options and general guidelines for seismic resistance. This allowed for choice and introduction of safer practices interpretation according to site, budget and aspiration of households. Individual choice was optimized while safety standards were adhered to. A Manual for Post-Disaster Housing Program Managers 31 A cascaded training program ensured technical training of, and information sharing with, all relevant stakeholder groups. Chapter 6 Training and Capacity Building Why Needed? that pushes construction activity far above normal levels, and the livelihood opportunities thus generated Rural settings generally have minimal existing practice which attract migrant workers from other areas to take or culture of disaster-resistant construction; this can be a part in this construction activity. major cause of heavy destruction and damage to houses. In order to improve housing and living conditions compared In order to be effective, training needs to be provided to what they were before a disaster event, training – both to all stakeholder groups involved in the reconstruction in terms of skills upgradation and work practices – needs program. This includes the technical advisors and those to be provided to various stakeholders engaged in the responsible for supervising the Program; those involved process. Without this, it is highly likely that houses will be with various surveys and data collection processes of rebuilt more or less with the same materials and methods damage assessment; skilled and unskilled craftsmen as before. In particular, it is likely that the necessary (masons, carpenters, electricians, steel fixers, labourers) disaster resistant measures will not be incorporated into undertaking construction; down to the affected the structural details, leaving households vulnerable to households and communities themselves. Moreover, future disaster risks. very little of the training should be provided through formal classroom instruction; most will have to be on- Such a training regime is also needed because of the the-job hands-on training delivered in the field and at expected building boom in the disaster-affected areas the individual construction sites. Suggested Results Framework Component: Training and Capacity Building Intermediate Outcomes Intermediate Outcome Indicators Training materials and curricula for disaster-resistant design solutions developed for various Development of Training curricula tiers - master trainers, partner organisations’ staff, artisans and construction workers to implement adoption of disaster- resistant solutions Model houses and demonstration details constructed at field level to provide hands-on training and evidence of disaster-resistant solutions % of affected area where training in disaster-resistant construction techniques has been provided at field level to craftsmen and labourers Training of a critical mass of craftsmen and construction # of master trainers/trainer of trainers trained in disaster-resistant construction standards workers across disaster-affected area in disaster-resistant # of masons/artisans/craftsmen trained in key trades construction techniques Database created for trainings provided, and linked to other Program databases % of grant beneficiaries sensitized to disaster-resistant construction of houses Prevalent use of disaster-resistant construction standards in % of houses reconstructed/repaired using disaster-resistant standards (Rate of disaster reconstructed houses compliance) Institutionalized support for Introduction of disaster-resistant construction standards training in national or sub-national disaster-resistant construction in level vocational training programs disaster-affected areas and beyond A Manual for Post-Disaster Housing Program Managers 33 Achieving Program Results – trainers from Partner Organizations, who would in turn The Pakistan Experience train field mobile teams, who would finally train the masons and artisans. Once the training curriculum was The reconstruction and repair of around 600,000 designed, the implementation of the cascaded training houses in scattered rural communities across a difficult model could commence. mountainous terrain to seismic-resistant standards required a vast adequately skilled and trained workforce. Thus, during Program implementation, a ‘Cascaded Development of training curricula Training Regime’ was implemented throughout the to implement adoption of seismic- affected area to create a critical mass of artisans, masons, resistant solutions craftsmen, and construction workers skilled in seismic- At the central level, ERRA and its key partners resistant construction methods, and ensure that affected managed the development and approval of curricula for homeowners and communities were well informed training of various stakeholders to ensure consistency about it. in training. This curriculum was developed at the Program headquarters with extensive assistance from The ‘Cascade’ was envisaged to provide training to national and international partners, and with input master trainers, who would in turn train the technical from a range of technical experts. Once developed, this staff of Partner Organizations (POs) as field trainers, training curriculum was authorized by the Program who would then train artisans, masons, craftsmen management and implemented through the cascaded and the affected population in the widely scattered training approach. Agreed curricula at all levels and a communities of the affected area. Included in this centralized corps of master trainers as resource persons was the construction of model houses. Relevant staff ensured consistency across the program, and adherence of all Housing Reconstruction Centres (HRCs) at to the centrally approved structural standards of the district level, PO Program staff, and AI teams seismic-resistant construction. was trained in the approved standards and seismic- resistant construction methods. Refresher training Included in this training regime was the construction was provided at regular intervals to ensure consistency of model houses at field level to function as a practice in Program communication and execution. Standards and demonstration technique in seismic-resistant were promoted through principles and structural construction techniques. These houses were built at details rather than fixed architectural designs. Housing Reconstruction Centres at the district level, and used to provide trainings to masons and craftsmen. A large set of communications material was developed After the trainings concluded, these houses were left in to promote and explain the various seismic-resistant place for continuous demonstration. The masons and design solutions. This material presented structural craftsmen that underwent this training program were design options in a step-by-step manner that was simple certified, to provide assurance to homeowners about to understand. Extensive trainings were provided to the their suitability for the reconstruction and repair of technical staff belonging to Partner Organizations in the their houses. use and dissemination of these materials. (Also refer to separate chapter on Public Information Campaigns.) A schematic diagram below provides a summary of this ‘cascaded training’ model that helped build a critical The strategy used was to establish a corps of master mass of masons and construction workers trained in trainers to operate at the district level to train field-level seismic-resistant construction techniques. 34 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Figure 3: RHRP Cascaded Training Model Federal and Provincial/State Level Preparation of Common Curricula Program HQ and implementation partners Training of Training Co-ordinators (22) District Level Establishment of Housing Reconstruction Centers (HRCs) Training of Master Trainers (MTs) of Partner Organizations (POs) Union Council Level Training of Craftsmen and Beneficiaries; Community Mobilization of Partner Organizations (POs) Information Campaigns; Training of Mobile Training Teams Village Level Training of Craftsmen and Beneficiaries Field-level Mobile Training Teams Technical Assistance to Homeowners during Construction List of responsibilities for entities implementing partner is aware of and comfortable with involved in training them. In the case of RHRP, the Training and Capacity In a Program component that relies on a ‘cascade’ Building component relied on clearly-defined roles and approach for transfer of knowledge, it is essential responsibilities for smooth implementation by each that responsibilities are clear at each tier – and each entity/tier as provided below: Entity List of Responsibilities Program central implementing agency ■■ Overall coordination and program management; (Earthquake Reconstruction and ■■ Repository and Manager of overall information, including Training MIS Rehabilitation Authority) + Provincial/ ■■ Design and approval of centralized curricula for training of various stakeholders to State Reconstruction Authorities ensure consistency in training Housing Reconstruction Centres ■■ Training to Partner Organization (PO) Master Trainers in the District (HRCs) – at least one in each affected ■■ Quality control of training delivered by master trainers district; two in larger districts - 14 in ■■ Information Dissemination at District Level total ■■ Coordination across POs operating within District ■■ Point of technical support and reference for beneficiaries ■■ Training of craftsmen and homeowners at the Union Council and village levels Partner Organizations (POs) –27 POs through mobile training teams in 232 Union Councils. ■■ Technical advice to beneficiaries during reconstruction ■■ Social mobilization through community outreach teams and Village Reconstruction Committees Pakistan Army - as a PO for Training ■■ Training of artisans & homeowners at the Union Council and village levels through (as well as the Assistance & Inspection formation of mobile training teams (MTTs) (AI) and Detailed Damage Assessment ■■ Technical advice to beneficiaries during reconstruction through Progress Monitoring and Beneficiary Eligibility Survey) Teams (PMTs) and AI Teams ■■ Social Mobilization through MTTs and PMTs A Manual for Post-Disaster Housing Program Managers 35 Prevalence of seismic-resistant features component was designed to be part of a three-pronged in houses built outside rhrp strategy for information sharing, so the message would effectively reach affected communities. The other two A post-disaster reconstruction program that requires components of this strategy were a Public Information incorporation of disaster risk reduction features within and Behavioural Change campaign and direct assistance the reconstruction regime needs to also strive to translate to beneficiaries by the AI teams. In concert, these three such practices into the prevailing construction norms separate but complementary approaches combined of the affected area. A well designed and implemented to create a consistent and repetitive messaging to training component, which builds a critical mass beneficiaries on the importance of seismic-resistant of stakeholders well-versed in disaster-resilient reconstruction. construction, can help achieve this purpose. Its success will be evident if construction activity outside the scope Stakeholders and Nature of Trainings: Since the of the reconstruction program – with owners’ own training and capacity building component of the funding - also follows disaster-resilient construction Program relied on a large number of entities at various standards required by the Program. tiers, different kinds of training curricula were designed catering to the unique requirements of different This was an aim of the Rural Housing Reconstruction recipients of trainings as detailed below: Program as well. Significant efforts were made to ensure that the Training and Capacity Building a) Architects and Engineers were to function as a core component achieved strong results. Evidence suggests group of professionals who would support training that construction activity in the affected area during activities, as well as be a part of the Technical Advisory Program implementation, as well as after its completion group for ERRA. However, the majority of architects but outside its scope, also adhered to seismic-resistant and engineers had little previous experience in stone construction standards. Residents of the affected areas, or timber construction, heavily used in the affected when adding rooms to the core housing unit provided areas but not in the rest of the country. For them under RHRP from their own resources or building new practical training was declared mandatory. houses on their own, tended to mimic the structural design features and construction practices developed in b) Artisans and Craftsmen: These were required in the Program. very large numbers to support the reconstruction activity to required standards. Their trainings Key elements that contributed to a wider adoption were conducted in HRCs (District level), PO field of seismic-resistant standards included: the robust offices (at Union Council level) and in villages. communications program that educated communities Moreover, hands-on training was provided through on the risks of sub-standard building construction; the construction of model houses and structural details robust training regime that built a large cadre of masons in the communities. The trainees were paid a stipend and construction workers well-versed in these practices; to reduce the opportunity cost of attending training availability of requisite building materials at relatively (foregone income due to missed work), and ensure affordable prices due to the creation of a building materials attendance and interest. On successful completion, supply chain. Finally, the training curricula was adopted by the trainees were certified. national-level vocational and technical training institutes and thus institutionalized across the country. c) Community Representatives and Homeowners: These were required to attend half-day orientation sessions to introduce seismic-resistant techniques Three-pronged approach for and their benefits, and to encourage them to ensure Information Sharing and Training that artisans in their area adhered to these during In order to ensure the strength and consistency of the construction of their houses, as well as those of other messages on seismic-resistant construction, the Training community members. 36 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Course Correction and Modified role for Field Training and Inspection Responding to Emerging Teams: The initial strategy for the Program envisaged Challenges dual Training and AI roles for the PO mobile teams. However, this could not materialize due to capacity An important feature of the Program as a whole, that constraints of the POs. Therefore, very early in the played a key role in its remarkable success, was the focus implementation of the Program, the AI responsibilities on learning from experience during implementation, were handed over to mobile teams of the Pakistan and adjusting processes based on this. The Training and Military. These teams had already conducted the Capacity Building component was no different, and the Detailed Damage Assessment and Beneficiary Eligibility following course corrections were made to respond to Survey, and were familiar with the caseload. They now unexpected challenges or new developments: took over inspections of reconstruction sites, once the requisite construction stages had been reached and Low NGO Capacity in Affected Areas: The Training homeowners had made requests for certification to and Capacity Building Program was designed based on enable disbursement of the next grant tranches. These the assumption that NGOs would quickly mobilize in the teams also provided on-the-spot assistance and training field and transition from relief work to reconstruction. on seismic-resistant standards, if during an inspection However this did not happen extensively due to low visit the construction was found to be non-compliant. NGO capacity to impart trainings across the board to The regular trainings for masons and craftsmen were affected communities. Thus, where there was a gap in run separately as described in this section, with POs NGO presence, the Pakistan Military agreed to fill it and predominantly taking the lead. serve as a PO. Lessons Learned – Considerations for Future Programs Given the low understanding of seismic-resistant construction methods in Pakistan, the International experience in Program was fortuitous to benefit from a team of experts from Nepal (NSET) that provided training on seismic-resistant help from the onset in developing the curricula and training of the master trainers for the construction techniques proved Training Program. NSET’s rich previous experience proved invaluable in launching the training invaluable program on a sound footing. NGO capacity to act as Partner Organizations for the entire affected area as well as the NGO capacity can be limited in duration of the Program was over estimated. In reality NGOs were only able to cover 60% of the field, and inconsistent over the total affected Union Councils. Moreover, due to lack of experience, projections of their time, especially regarding ‘soft’ funding requirements and thus allocations, soon fell short and they struggled to increase components such as Training their portfolio of trainings. Long-term donor funding can be Since training is a less tangible part of the overall Program, it risks being underfunded and less certain for intangible, ‘soft’ under-coordinated. This can undermine overall Program objectives because the necessary components such as Training and push towards a seismic-resistant culture needs an institutionalized and far-reaching training Capacity Building program that is well-funded and consistently implemented. Migrant labour for construction Migrant labour posed somewhat of a challenge for the Training regime. Migrant labour activity may have interests began operating in the disaster-affected areas due to the construction boom, but migrant different from Program objectives artisans were less keen to adopt seismic-resistant construction standards. Post-disaster construction The construction boom in the affected areas attracted many unskilled individuals to the booms leads to unskilled, non- construction sector as a source of livelihood (both migrant and local). The trainings were experienced workers entering the initially not designed for completely unskilled labour. Thus they had to learn advanced workforce seismic-resistant skills during trainings, while learning basic construction skills on-the-job. A Manual for Post-Disaster Housing Program Managers 37 An AI team inspecting construction up to plinth level to determine eligibility for release of the next grant installment. 38 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 7 Assistance, Inspection, and Certification Why Needed? household-nature of an owner-driven Program, where reconstruction is the responsibility of the beneficiary. Once the Program has been set in motion and This mechanism needs to ensure that significant reconstruction activity begun, a regime of assistance, technical assistance is provided to enable households to inspection and certification needs to be instituted that implement disaster-resistant construction techniques. will ensure homeowners are using grant payments for This is particularly necessary when the Program relies the purposes intended i.e. to reconstruct houses to on tranche-based grant disbursements, and the release disaster-resistant construction standards. A mechanism of tranches is conditional upon meeting construction needs to be created that supports the individual standards that are independently certified and verified. Suggested Results Framework Component: Assistance and Inspection Regime Intermediate Outcomes Intermediate Outcome Indicators SOPs for AI regime developed for assisting, inspecting, and certifying seismic- Development of Standard Operating resistant construction Procedures and related Training curricula for implementation of Assistance and Inspection Training curricula developed and Training provided to AI teams on processes and (AI) regime criteria for assistance, inspection, and certification # of Assistance and Inspection teams trained and mobilized in affected areas Mobilization of Assistance and Inspection teams in the field across entire affected area % of affected Union Councils (or equivalent administrative units) with field for entire length of the Program presence of AI teams ‘x’ months after Program launch Data on construction and compliance updated in real-time after every AI team Synchronization of data streams from field visit to affected community Assistance and Inspection regime with Program database, for effective monitoring Average time in # of days, between AI visit and recording of certification/ and management inspection data in central database (per UC) Achieving Program Results – Program, and operated from AI hubs established at local The Pakistan Experience level by Partner Organizations including the Pakistan Military. The AI teams comprised of trained personnel The disbursement of subsequent grants was subject to who had taken part in the Detailed Damage Assessment verification by the Assistance and Inspection (AI) teams and Beneficiary Eligibility Verification Survey, and for physical progress and compliance with seismic- were thus well acquainted with local realities in the resistant standards. These AI teams were responsible affected areas. The AI regime was closely linked to the for conducting regular visits to affected communities Grant Payment mechanism as described in the separate and beneficiary households at various stages of the section on that topic. A Manual for Post-Disaster Housing Program Managers 39 SOPs and Training curricula for To the extent possible, AI teams should comprise implementation of AI regime the same individuals who earlier conducted the The first step in the AI process was development of comprehensive damage assessment and beneficiary technical reference materials enabling mobile field eligibility survey. This ensures that they are already teams to provide optimal assistance, inspection, trained on the caseload and become familiar with the and certification for the reconstruction of houses to affected areas as well as the communities. In the RHRP, adequate structural standards. The technical reference it was originally assumed that staff of NGOs working documents included structural designs and construction in the area would constitute the AI teams. However, guidelines, developed in consultation with national since PO capacity remained limited, the Pakistan Army and international partners, and technical Standard engineering personnel, who had already undertaken the Operating Procedures (SOPs) developed by the district- survey, were handed over the task. level Housing Reconstruction Centres (HRCs) run by POs. The next step was to train these teams on the use of these materials (see next chapter for details). Ensuring compliance Although AI teams conducted formal inspections at the request of beneficiary households after completion Mobilization of AI teams in the field of stages of construction, they also conducted regular In order to achieve effective mobilization across the periodic ‘assistance missions’ to monitor progress and affected area, Assistance and Inspection Hubs (AI quality of construction. This helped provide timely Hubs) were created at Union Council level where AI seismic-compliance advice on construction where teams were based. The processes of inspection and required, in collaboration with training POs. certification consisted primarily of three stages: Where construction was found to be non-compliant and a) The beneficiary households sent a ‘request for non-certifiable, the AI team advised the beneficiaries inspection’ after completion of construction up to on ways to rectify the defects and request re-inspection plinth or lintel level. Once a large enough number of beneficiaries in a community had completed after undertaking the suggested measures. In case construction to a level needing inspection and had beneficiaries were unable to independently rectify sent inspection requests, an AI team launched an defects, AI teams arranged for technical assistance to be inspection and certification visit to the community, provided to them by POs working in the area, and local thus ensuring optimal efficiency given resource and Village Reconstruction Committees. capacity constraints. b) On arrival in an affected community, the AI teams Synchronization of data streams for followed technical SOPs based on plinth and lintel effective monitoring & management level inspection forms, and also conducted other tasks Inspection and Certification visits by AI teams comprise including giving advice on accessing grievance redress a key data input for such a housing reconstruction system, identification/confirmation of hazard risks Program, as releases of tranched grants to beneficiary identified earlier, and SOPs for relocation/resettlement households depend on this process. It is thus critical that of houses located at hazardous sites. Compliant this data input is captured effectively and instantly by construction was certified, and homeowners given a the Program data management system, to ensure quick receipt, which when presented to their Bank branch and transparent disbursement of grants. Moreover, this would enable them to draw the next grant tranche. data is also critical for monitoring and analysing trends c) After inspection visits, the AI teams undertook in non-compliance, and can thus provide input at the comprehensive data input, and the information was right time to course correct and design customized sent to ERRA as well as the database management interventions for relevant geographical areas and agency (NADRA) for release of the next grant eligible Program components to improve rates of seismic tranches to each beneficiary account. compliance. 40 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience In the case of Pakistan, the National Database and This database relied on regular input from the AI Registration Authority (NADRA) was a federal agency teams after each visit to each reconstruction site. Data that already maintained a comprehensive individual- on construction and compliance at the beneficiary level database of Pakistani citizens to enable issuance household-level was forwarded up the chain of of Computerized National Identity Cards. NADRA command, to the Program headquarters and the database was tasked with centralized data management of the management authority where it was electronically beneficiary grant database, and helped the Program managed. Relevant information was then immediately in the development of software and MIS database for passed on to banks for grant disbursement, or Program entry, screening/correction, and preparation of all data teams for analysing trends in non-compliance. related to the Program. Lessons Learned – Considerations for Future Programs Training is critical for assistance, Training curricula and materials, and standard operating procedures were developed for the inspection and certification AI teams to enable them to carry out their roles effectively. personnel Many of the personnel who had been members of the survey teams carrying out the Use of the same individuals in Detailed Damage Assessment and Beneficiary Verification went on to be part of the AI Survey and AI teams can promote teams. This approach proved very effective as they were already familiar with the areas and effectiveness communities assigned to them. Along with inspection missions, AI teams also conducted regular periodic ‘assistance missions’ to monitor progress and quality of construction. This helped provide timely seismic- AI teams can play an important compliance advise where required. Where construction was found to be non-compliant and role in ensuring compliance potentially non-certifiable, the AI team advised on ways to rectify the defects and request inspection after implementing the suggested measures. Inspection and certification data The data entered by AI teams was critical since release of grant tranches was dependent input must be captured effectively on it. Moreover, it enabled monitoring and analysing trends in non-compliance, and thus and instantly by the Program data provided timely input to course correct and design customized interventions for relevant management system geographical areas and Program components to improve rates of seismic compliance. NADRA was tasked with centralized data management of the beneficiary grant database. AI data should be linked to Data from AI teams on construction and compliance at the beneficiary household-level was the main program beneficiary forwarded up the chain of command, to the Program headquarters and NADRA, where database it was electronically managed. Relevant information was then passed to banks for grant disbursement, and to program teams for analysis and action as needed. A Manual for Post-Disaster Housing Program Managers 41 42 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 43 44 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 45 46 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience The shape of the house affects how it behaves in earthquakes. Shape Eccentric shapes and unrestrained walls increase the stress on parts of the building. Plan to reduce the stress and distribute forces evenly. GENERAL GUIDELINES Max. unsupported length = 15 ft Max. unsupported length = 15 ft Max. 10 ft height 3 1 >3 1 Shape Proportion Cross walls Height Construct regular simple Construct regular simple Provide cross walls to Maintain equal wall shapes (e.g. rectangular; Avoid long and narrow strengthen the building. heights for all the walls. square). shapes. Make sure all walls are Avoid gable walls. Avoid L-shape, U-shape or The length of the house connected to each other. Limit all buildings to one more complex shapes. should not be more than Maximum reem size storey in high risk areas. 3 times the width. should be 15ft x 15ft. EXCEPTION 6� seismic gap Room size up to 16 x 16 is acceptable if all other requirements are fulfilled. A Manual for Post-Disaster Housing Program Managers 47 48 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 49 50 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 51 A massive billboard overlooking a crowded urban transport hub. 52 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 8 Public Information Campaigns Why Needed? process as an integral component, will avoid many problems and ensure smooth implementation. Most The key to the success of any such program is the ability to understand the needs of its beneficiaries as well as importantly, an effective communications mechanism for the beneficiaries to understand the program and will help reduce rumours and misinformation – how it operates, so that its impact and effectiveness is deliberate or accidental – that can often prove extremely maximised. Having a good communications system detrimental to an otherwise well-designed and well- in place right at the start, built into the reconstruction intentioned program. Suggested Results Framework Component: Public Information Campaign Intermediate Outcomes Intermediate Outcome Indicators Information seminars and events conducted on site in affected areas and displacement camps to spread Program basic information Development and dissemination Information material and content developed for, and aired on, local radio channels in of information materials for affected areas to spread Program information on basic as well as specific matters mass media to enhance Program knowledge and deliver key Information material and content developed for and presented in local print media to make messages to beneficiaries and specific announcements related to Program issues various stakeholders Localized traditional informal channels (mosques, markets, area notables, etc.) mobilized for spreading Program messages in affected areas Development and dissemination Technical information material on disaster-resistant construction using visual tools and in local of technical information materials languages developed and spread amongst key stakeholders such as POs, trainers, inspection/ for varied audiences and key certification teams, construction workers, beneficiary households. stakeholders outlining technical standards on disaster-resistant Trainings provided to inspection/certification teams, PO staff and other stakeholders on use construction of technical information materials. Achieving Program Results – In the Pakistan case, it is important to appreciate the The Pakistan Experience scale of the Program and associated communications needs: the Program involved individual agreements with A communication strategy needs to be designed to over 600,000 beneficiary families and implementation facilitate two-way communication and should be an support from over 60,000 masons, carpenters and steel integral component of the reconstruction process. The fixers as well as the support of 30 partner organisations strategy has to be carefully designed, taking into account and inspection teams with over 2,000 staff. All of these not just the language but also the culture and lifestyles stakeholders were new to this kind of owner-driven of the communities. Program, and new to hazard resistant construction. A Manual for Post-Disaster Housing Program Managers 53 On the level of affected households, the need for reliable outsourced to a professional communication company information in the aftermath of a disaster cannot be already engaged in other post-disaster sectors with over-stressed. People had experienced enormous loss, ERRA. This ensured consistency with overall Agency suffering and disruption to their lives. Uncertainty about identity and reconstruction strategies. their future was an additional burden and stress. In the absence of official information, the vacuum was filled by Mass media tools expectations, speculation and often misinformation. Radio was the most broadly used media channel for With this in mind, the Program team developed a the spread of key Program messages at various stages comprehensive public information campaign lasting of implementation, especially in remote areas. Almost the entire length of the Program that played a critical every village had radio coverage by a number of local role in disseminating messages to a dispersed set of stations. This assisted the Program to get messages beneficiaries and key stakeholders in communities. directly into households, including to women and to those who did not have a high level of literacy. Radio could get messages disseminated very quickly, as compared to print and distribution. Radio was used in a number of ways: ■■ Weekly Program • Format of the show was infotainment • Specialized characters were created that became popular in the affected area • Produced by Program partners alongside local communications company ■■ Public Service Announcements • To disseminate concise messages as urgent updates or key awareness messages • Helped keep safety high on the agenda instead of simply a focus on financial assistance Communication materials to deliver ■■ Interview Programs key messages • Used by staff at district-level PO-run Housing The Program established very strong systems of coor- Reconstruction Centers to discuss Program issues dination including an emphatic restriction on the dis- and answer queries. semination of information materials not authorized or ■■ Local announcements approved by Program headquarters. To help avoid con- fusion and in adherence to the common plan, all part- • Trainings, public meetings and demonstration ners respected this strategy. events Print Media was very important in the communication Program introductory campaign strategy of the Program, to explain and promote a range Since ERRA, the Program implementing agency at the of information to various target audiences accurately federal level, was a new organization, it had to disseminate and authoritatively. This included information on formal information about itself in order to build legitimacy. Program documents such as beneficiary MOUs, posters, Furthermore, it needed to provide information on the flyers, booklets and more substantial documents. Rural Housing Program to a widespread audience Following the introductory campaign, the development primarily including affected communities. The Program’s of materials was carried out by the Program technical mass information campaign for rural housing was support partners. 54 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Technical information materials ERRA tasked its Implementation Partners such as UN-HABITAT, NSET (Nepal), and SDC with the production of technical and Program information materials and activities. Materials developed included: ■■ A ‘10 Point poster’ summarizing approved seismic- resistant construction standards. ■■ Additional posters summarizing techniques of seismic-resistant construction based on the approved menu of methods and materials. ■■ Posters and booklets on remedial measures for retrofitting non-compliant construction. ■■ Catalogue of Compliant Construction: covering Program standards and technical guidance, this Most print materials, especially those to be provided evolved incrementally and in different formats. It to the community or masons involved in construction, compiled and standardised all Program approved were created in the local language. Moreover, visual designs as a single master reference and resource tools such as drawings and photographs were used document. (See chapter on Designing seismic- extensively and were considered quite popular resistant construction standards.) amongst the stakeholders. In fact, photographs of actual houses were considered more effective than Training of field teams in using technical drawings. communications materials Television was used for announcements on news Developing materials for homeowners would not be programs, including policy updates which needed to be effective unless the technical and social mobilization staff disseminated quickly and authoritatively, and in current were also fully educated. Keeping this in mind, basic training affairs and panel show programs discussing progress, was provided to them in the use of information materials challenges and again promoting policy updates. to ensure consistency of messages. These trainings were Television was not used for awareness promotion developed and delivered by Program technical partners because of the limited funding for development of at the HRCs in the early stages of the Program. communications materials and the high cost of airtime on those television channels that were generally watched in affected areas. Local and traditional channels of information, influence and communication were also used by the Program, including mosques and religious leaders, local politicians and government officials, market places, shopkeepers, building material merchants, schools and school teachers, public transport and transport terminals. These locations and actors played important roles in informing people of upcoming events such as training or inspection, new updates, or to promote and reinforce messages for safety. A Manual for Post-Disaster Housing Program Managers 55 Lessons Learned – Considerations for Future Programs In the absence of decisions on policies, procedures, and standards and their widespread communication, speculation, expectations, and misinformation abound. This has a negative impact on stakeholder relationships and reconstruction activity. Although ERRA policies were Information gaps can risk determined early on, their communication to the field was not as efficient as needed. It improved Program success gradually as systems were strengthened. Also, it should be expected that people will go ahead with reconstruction with or without information. Hence key information needs to be issued as early as possible and reach as broadly as possible. In most post-disaster scenarios there is a plethora of messages and information materials, often Information consistency inconsistent or confusing for beneficiaries. ERRA avoided this risk by early policy development is key and coordination of stakeholders, and by emphatic ownership of the approval process for communication. This was supported by good cooperation from partners. It is difficult to retrieve messages that have been disseminated. While strong measures for consistency were set in place, there was a chastising experience as well. In the first winter (2005/06) before the Housing policy was formalized, the Government of AJK issued reconstruction guidelines that came to be known as the ‘yellow poster’ (as they were set on Retrieving messages already yellow-colored paper). These guidelines were widely disseminated in some areas, and differed sent is very difficult from ERRA-approved standards subsequently disseminated. The proliferation of these guidelines made it very difficult for ERRA partners to promote officially endorsed standards. However, this experience also convinced partners of the need to have one consistent centralized message flowing across to the affected communities. The strongest feedback from the communities was the preference for photographs of real Photographs rather than buildings, instead of representational or engineering drawings for use in information materials on drawings technical standards. This opinion was shared by homeowners, masons, and trainers. It is difficult to explain technical information on topics such as seismic-resistant construction by Communicating radio or text alone. Step by step photographs, presentations, model construction, demonstrations construction standards (using buildings) and hands-on training are needed for people to see construction details requires hands-on training practically, and to be able to replicate the advice accurately. 56 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 57 58 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A Manual for Post-Disaster Housing Program Managers 59 Remote communities had to summon all possible means to transport construction materials to building sites. Chapter 9 Building Materials Supply Chain Why Needed? In a post-disaster context, construction activity can grant is provided to them by an official reconstruction often increase substantially as affected communities Program. begin to rebuild their lives and lost assets. While this is a testament to their resilience, it can also lead to a To account for this, it is important for any such Program shortage, and a consequent price increase, of requisite to plan for a consistent and reasonably priced supply building materials. For communities that are rural and/ of required building materials. Programs that rely on or remote, significant transportation costs can also be introducing disaster-resistant techniques need to be incurred as they begin their reconstruction activity. especially careful because some of the materials used in This leads to a decline in their purchasing power, approved disaster-resistant construction standards may especially in cases where a fixed, pre-determined cash not be easily available across the entire affected area. Suggested Results Framework Component: Building Materials Supply Chain and Hubs Intermediate Outcomes Intermediate Outcome Indicators % of affected area with operational building materials hubs ‘x’ months after Program Availability of required quantities of launch building materials ensured across affected area within affordable price Mechanism established to monitor prices of required building materials to report range. variances and inform interventions/actions Achieving Program Results – To reduce this vulnerability, a network of private sector The Pakistan Experience led building materials hubs was created to strengthen the supply chain of construction materials necessary In case of Pakistan, the vastness of the affected area and in this massive reconstruction undertaking. Moreover, the extremely difficult topographical conditions posed transporters were encouraged to provide logistical an unprecedented challenge in the transportation of support in ensuring availability of requisite materials materials. This was borne by the affected communities in ample quantities as reconstruction activity gained as they managed procurement and carriage of materials momentum. Within the first year, over 30 material hubs for housing to the reconstruction sites. The widely were established across the affected area to ensure access dispersed settlement pattern in a hazardous and fragile to key materials of Program-specified quality standards. environment represented further challenges to the The monitoring of quality of prescribed materials was sustainable provision of building materials. carried out by ERRA’s M&E teams. A Manual for Post-Disaster Housing Program Managers 61 Local governments were tasked with providing suitable sites for setting up local building material hubs. Their objective was to support and strengthen existing private sector businesses dealing in building materials instead of setting up a parallel system. Thus local businessmen already engaged in supply of building materials were asked to operate the materials hubs at given locations, to complement their existing businesses. Moreover, Partner Organizations (especially NGOs) active in micro-credit were encouraged to provide entrepreneurship training and funding to locals in the affected areas to set up shops in these hubs. The cost of various building materials at these hubs was not centrally fixed, but related to local market rates to avoid distorting the local economy. Price differences across the affected area were considered acceptable and inevitable. The effort to increase supply was the main purpose of the strategy and was considered an adequate measure to mitigate against inflation. 62 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience The local block-making industry benefitted from trainings aimed at improved block manufacturing, quality control, and testing. Lessons Learned – Considerations for Future Programs Transport costs can erode real Poor coverage and condition of roads in many affected areas significantly increased value of financial assistance; transportation costs and difficulties. Due to variation in local material costs plus the infrastructure deficit affects transportation factor, financial assistance was not worth the same to all households. This access to materials, labour, and distorted the policy of equitable financial assistance. increases costs of material. Facilitating building materials Building material hubs contributed towards ensuring availability, quality, and consistency of sector can only partially pricing of key materials, particularly those imported to the earthquake area like steel and mitigate issues of inflation and cement. But the distribution of hubs could not fully mitigate against the transportation costs inequity. for the most remote households. Private sector-led materials The creation of building materials hubs did not resolve the problem of limited supply in hubs are often created only secondary centres and remote areas. Hub operators concentrated where there was already a near existing markets. strong market. A Manual for Post-Disaster Housing Program Managers 63 64 District level Housing Reconstruction Centers were established and operated by various implementation partners. Chapter 10 Partnerships for Coordinated Implementation Why Needed? The task of reconstruction after disasters, especially after even without any request from, or reference to, the those that are major, widespread, or affect a large number government. While the government acting alone as of people, cannot be managed by governments acting well as non-government intervention will both be well alone. An effective response requires collaboration at meant, they can be more effective if such involvement local, national, and international levels between the is done in an orchestrated and coordinated manner, affected people and communities, government, non- so that wherever possible the response is coherent and government organisations, development partners, and consistent, and conflicts and overlaps are minimised. specialized organisations. More importantly, if properly organised in the form of In many instances a number of such actors and institutions partnerships, the impact of the reconstruction effort can will respond intuitively with help and assistance, be deepened and its implementation hastened. Suggested Results Framework Component: Partnership Models for Coordinated Implementation Intermediate Outcomes Intermediate Outcome Indicators Program partnership base broadened and diversified to include local, national, and international stakeholders Specialized skills and expertise of various partners utilized in All Program partners agree to implement Program components (training, technical all aspects and components assistance, A&I etc.) according to same standards and guidelines using uniform Program of Program, from strategic objectives underpinnings to design and field- level implementation % of affected areas with field-level presence of Partner Organizations during entire length of the Program Achieving Program Results – One of the key challenges in the Program was to ensure The Pakistan Experience the provision of consistent technical assistance to all households to maximize the investment made by the The Rural Housing Reconstruction Program needed to government. Moreover, at the time of the earthquake, there be implemented at a vast scale, with the already very was little capacity for earthquake-resistant construction in limited capacity available in the government at various Pakistan especially in private housing. The lack of expertise levels, further eroded by the disaster. It was therefore and experience among national and international non- essential to harness all available and appropriate human, governmental organisations in seismic-resistant housing financial, and technical resources through partnerships construction made it further difficult to identify suitable for efficient and effective Program implementation. The partners for the various stages of implementation. Program was therefore required to manage partnerships as an imperative to handling reconstruction. A Manual for Post-Disaster Housing Program Managers 65 Limited NGO capacity in housing sector donor experience in this area, lack of NGO experience, and high proportionate costs in personnel. The Program strategy was designed on the basis of complete coverage of all affected areas by partner As a result funding for technical assistance, particularly organisations providing technical support. In reality, there allocations by implementing partners, was low at the were insufficient NGOs willing or able to carry out this outset and then committed in an incremental and role. While a high proportion of NGOs was engaged in unpredictable manner. The absence of predictable emergency shelter activities as part of the overall emergency funding for an adequate duration was a severe constraint response, relatively few were interested, experienced, or on PO mobilization; organizations engaged in technical skilled to engage in housing reconstruction, and fewer still assistance were unable to plan or implement strategically. could take up a facilitating role in housing reconstruction. The shortfall in technical assistance funding for the first building season after the disaster meant that in many areas Low funding for technical assistance people started reconstruction without adequate access to hampering program Program information on standards, advice, or training. While the cost of operating as a partner organisation was This resulted in a high proportion of non-compliant relatively low and very cost effective compared to a direct construction in the more remote areas. The situation implementation role, there was low interest or support improved when technical assistance was scaled up in the from the donor community for a technical assistance role next year. The non-compliant houses had to be retro-fitted in housing. The reasons included lack of visibility, lack of using Program guidelines on compliance and repairs. Summary of Partnership Arrangements for Each Program Component Table 7 sums up various partnership arrangements at different stages of the Rural Housing Reconstruction Program. Table 7: RHRP Partnership Arrangements Task / Component Responsible Entity / Partner Nature of Responsibility ■■ World Bank Development of menu ■■ National Society of Earthquake Seismic-resistant structural design solutions developed, based on of Seismic-Resistant Technology (NSET), Nepal international best practices. design solutions ■■ NESPAK Local technologies adapted, where found appropriate. ■■ UN-HABITAT Detailed Damage Required massive logistical capacity which only the Military was able ■■ Pakistan Military with support Assessment and to provide in the vast mountainous affected areas. from local governments and Beneficiary Eligibility Completed in 4 months with carpet coverage, enabling creation of Verification Survey community representatives comprehensive beneficiary database. NADRA already had individual-level Computerised National Identity Creation and ■■ National Database and Card (CNIC) database from across the country. The beneficiary Management of Beneficiary Database Registration Authority (NADRA) database developed after completion of the damage assessment survey was linked to this for beneficiary verification. ERRA requested the State Bank to relax account opening conditions ■■ State Bank of Pakistan (central for beneficiaries in affected areas. Opening of Beneficiary bank) NADRA sent mobile teams across affected area to issue CNICs to Bank Accounts across ■■ Commercial Banks beneficiaries to enable account opening Affected Areas ■■ Development Finance Institutions Banks sent mobile teams across the affected area to open bank accounts in an expeditious manner Development of NSET-Nepal took the lead with its expertise and significant Technical Training ■■ NSET, Nepal experience in training on seismic-resistant construction standards in curricula on Seismic- mountainous areas, and familiarity with the South Asian context Resistant reconstruction ■■ Strengthening Participatory Development of This was a continuous process throughout Program implementation. Organization (SPO) – local NGO Community and Social Training was provided to staff of Partner Organizations who worked ■■ Network of Rural Support Mobilization Training in the field with communities on technical matters. Programs – local NGOs continues 66 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Table 7: RHRP Partnership Arrangements (continuation) Task / Component Responsible Entity / Partner Nature of Responsibility ■■ NSET, Nepal This was undertaken in phases during the first half of Program Training of Master implementation. Trainers in Technical ■■ Pakistan Military Issues Master trainers included staff from Partner Organizations who in ■■ UN-HABITAT turn trained the HRC Trainers Partner Organizations (POs) including: ■■ Pakistan Military This was a continuous process throughout Program implementation. Training of Craftsmen PPAF Training included construction of demonstration houses and and Homeowners ■■ structural details and played a major role in ensuring the inculcation in Seismic-Resistant ■■ UN-HABITAT of seismic-resistant construction at field level. Reconstruction ■■ Bilaterals Outputs were fed into Training MIS monitored centrally at ERRA. ■■ Local and International NGOs ■■ Pakistan Military This was a continuous process throughout Program implementation. Assistance, Inspection, ■■ PPAF It involved visiting each reconstruction site to inspect and certify and Certification ■■ UN-HABITAT (in the last year of seismic compliant construction up to a certain stage. Program implementation) Output was fed into Housing MIS monitored centrally at ERRA. Development of Housing MIS and Financial MIS ■■ ERRA This was housed centrally at ERRA with access to stakeholders on to monitor physical demand. ■■ NADRA and financial progress, It was used to produce periodic reports for analysis and to monitor including seismic household-level activity compliance ■■ PPAF HRCs served as hubs for POs to conduct trainings on seismic Management of ■■ UN-HABITAT compliant reconstruction; coordinate with all POs operating in the District-level Housing District, and monitor local level activity including market trends such Reconstruction Centres ■■ SDC ■■ GTZ as availability and prices of building materials. ERRA with contributions from: Development of Compliance Catalogue ■ ■ World Bank The Compliance Catalogue consolidated the menu of construction to provide Guidance ■■ PPAF standards approved at different times. and Remedial Measures ■■ NESPAK It also provided possible remedial measures for retrofitting non- for Non-compliant ■■ UN-HABITAT compliant construction Construction ■■ SDC Lessons Learned – Considerations for Future Programs The original RHRP strategy relied on use of NGOs/CSOs to act as partner Finding suitable partners to support organizations and provide technical support for reconstruction. But there was a housing reconstruction can be difficult shortage of suitable NGOs to carry out this task. Donors provided ready funds for the housing reconstruction grants, but proved less willing to fund technical assistance by partner organizations. What funding did Donor organizations can be less willing come was incremental and unpredictable. The long-term impact of this was that to fund technical assistance than housing some households commenced reconstruction without having received guidance on reconstruction this, and had to subsequently undertake costly retrofitting to make their houses compliant with seismic-resistance standards. ERRA was the focal agency for all stakeholders engaged in the housing Lead reconstruction agency should reconstruction program. Everything was managed centrally through ERRA, thereby agree with partners on parameters of ensuring consistency in interventions and coordination of the overall reconstruction involvement; registration process for NGOs/ effort. ERRA developed systems in collaboration with partner organizations, CSOs; coordination mechanisms; reporting affected communities and levels of government (as relevant) to manage these procedure; and monitoring benchmarks partnerships. Housing Reconstruction Centres served as places to conduct trainings, allow Local level hubs can facilitate coordination coordination, and nurture exchanges between partner organizations. AI hubs played a similar role in facilitating effective deployment of AI teams. A Manual for Post-Disaster Housing Program Managers 67 A social mobilizer training members of a Village Reconstruction Committee. Chapter 11 Community and Social Mobilization Why Needed? It is now widely recognised that community participation understanding and propagating the program principles is a necessary and integral component of development, and ensuring sustainability of program objectives. and housing reconstruction after a disaster is no exception. This will be especially important for hazard-resistant Housing in particular relates to the community’s needs construction, which may be a new tool being introduced and is about providing and securing private assets that to the communities, and thus requiring significant will be used, managed, and maintained by the community mobilization as well as training and capacity building. with little or no long-term intervention by government. It is thus critical that a reconstruction program Even in cases where a reconstruction program follows an systematically plans and implements strategies for owner-driven approach and puts individual households community and social mobilization at the level of at the centre of reconstruction, strong and continuous affected communities, even if the program benefits are community and social mobilization will be needed individual household-focused, and the program itself to harness the collective strengths of communities in homeowner-driven. Suggested Results Framework Component: Community and Social mobilization Intermediate Outcomes Intermediate Outcome Indicators Social mobilization training for field-level staff of Partner Organizations developed and Institutionalization delivered centrally of community-based approaches towards % of affected villages where Village Reconstruction Committees established with assistance implementing key Program from Partner Organizations aspects, through creation and capacity building of Synergies developed with other Partner Organization community-level activities such as village-level committees trainings on disaster-resistant reconstruction Achieving Program Results – local NGOs, often had prior experience with this nature of The Pakistan Experience work and thus provided valuable expertise in community mobilization. The Program strategy provided consistent Institutionalization of community- messages and outlined common outputs for social driven approach mobilization, leaving Partner Organizations to achieve In the Pakistan earthquake experience, ERRA tasked them using their own best practices and approaches. Partner Organizations (which were also responsible for training and capacity building at field level on seismic- The nature and kinds of activities conducted for the resistant reconstruction) with social mobilization purpose of social and community mobilization were as activities in affected villages. These organizations, mainly follows: A Manual for Post-Disaster Housing Program Managers 69 A community based promotional activity underway. ■■ Conducted by national-level NGO at Program commencement Development and delivery of initial ■■ Trained all social mobilization staff of institutional partners and POs based on Program training on social mobilization strategy ■■ Comprehensive training curricula, resources and reference materials were developed and delivered to all social mobilization staff of POs expanding on the range of topics Enhanced training for social and skills, and preparing them for a wider range of field activities. mobilisation teams ■■ Trainings developed and conducted by national-level NGO and the network of National Rural Support Programs ■■ Social mobilization teams engaged in formation of Village Reconstruction Committees (VRCs) and their training in all villages across affected districts ■■ VRC responsibilities included: • Coordination with POs for communication of Program policies, standards, updates. Village level mobilization – • Organisation of community for orientation and briefing sessions creation of Village Reconstruction Committees (VRCs) • Identification of artisans and skilled labour, and support to organise practical training on safer construction • Coordination with AI teams for inspection, sharing of information on houses ready for inspection, and communication of visit timetables • Advice for grievance cases ■■ Technical support and awareness activities were organised at community level, Community based promotional including training and information sessions, demonstration and model buildings, activities remedial measure promotion, and other activities ■■ Community organization and liaison helped to ensure planning and implementation of Support for Assistance and the Inspection regime was efficient, including: Inspection/Certification regime, • compiling lists of houses ready for inspection queries and grievance redress • informing communities of inspection schedules • collecting, reporting, or answering queries and resolving grievance cases 70 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Challenges in Social Mobilization The Village Reconstruction Committees (VRCs) played a facilitation role but had no formal power or authority to influence households. This was because formal agreements in the Program were between the lead agency (ERRA, representing the government) and the homeowners as signatories of the MoUs, and thus the VRC had no de jure authority over them. This reduced the effectiveness and long term sustainability of VRCs, which in some cases only existed on paper. Moreover, in some earthquake affected areas pre-disaster social cohesion was weak, making it difficult to bring the community together for a shared purpose. Existing social hierarchies also came in the way of an equitable process. Lessons Learned – Considerations for Future Programs Community participation was integral to RHRP, and hence considerable effort was Social mobilization is critical to program put into social mobilization. Community involvement was promoted in relation success to verification of beneficiaries; use of seismic-resistant construction techniques; resolution of disputes over land; support for vulnerable groups; etc. Use of NGOs/CSOs engaged in training to RHRP made use of partner organizations already engaged in provision of technical carry out social mobilization as well can be training to local artisans to carry out social mobilization activities. This streamlined effective interventions and enhanced efficiency and consistency of messages. A national level NGO provided the ‘top tier’ training in social mobilization. This Training is required for social mobilization then cascaded down through partner organizations to social mobilization teams on ground. Specific training curricula and materials were developed for the purpose. Key messages should be consistent, but ERRA controlled the messages in all public information campaigns, including methods and approaches taken to social social mobilization. But partner organizations were given the flexibility to choose mobilization can be flexible whichever mobilization methods and practices suited them best. Village Reconstruction Committees were set up to support the housing reconstruction program, including organizing communities for briefings, inspection Incentives and authority influence the role visits, and supporting training. However, unlike POs which had contractual different entities play in social mobilization obligations to ERRA to perform their assigned roles, the VRCs had no legal authority and thus had only limited effectiveness. Some only existed on paper. In some areas there was little social cohesion among communities because of Social cohesion cannot be assumed remote locations and dispersal over wide areas. A related challenge was posed by the existence of social hierarchies and, in some cases, tensions within communities. A Manual for Post-Disaster Housing Program Managers 71 A widowed home-owner receives dedicated technical assistance. 72 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 12 Social Aspects in Program Design and Implementation Why Needed? Each post-disaster reconstruction program is unique associated program for landless households was because each operates in its own context. It is therefore developed by ERRA under the ambit of its social critical to understand the social dynamics in post- protection activities. It was estimated that over 10,000 disaster settings and account for these, so as to ensure families lost land on which they originally had their that the program does not exacerbate existing social homes and therefore had nowhere to rebuild their inequities. In an ideal setting, the program should be houses. In some other cases, land had become extremely empowering in nature, helping alleviate social tensions hazardous and was considered unsafe for habitation. and catering to the needs of vulnerable segments of the disaster-affected population. At the very least, the The Landless Program, launched more than a year after program should ensure that it is not leaving vulnerable the disaster, provided financial assistance to households groups even more disadvantaged. to enable them to access and purchase new land to reconstruct their homes. At a later stage, this Program also included households which were ‘virtually landless’ The Pakistan Experience - those living on highly hazardous land requiring new In the Pakistan case, a number of specific issues related land to build a safe house. Families who lost land due to the social context arose which the Rural Housing to the earthquake, or whose land was rendered unsafe, Reconstruction Program had to account for. These were given financial assistance of PKR 75,000 to purchase included: land. This was over and above the housing reconstruction grants that they were eligible for. ■■ Ensuring equity for landless households; ■■ Cases of multiple families living under one roof; In order to facilitate and expedite the process of land ■■ Focusing especially on women and orphans for transactions, the Government set up Land Verification Program assistance. Units (LVUs) at the local level. These functioned as one-window operations to process landless cases. Legal, administrative, and financial transactions were processed Policy for landless households through formal mechanisms, accelerated processes, and The Rural Housing Reconstruction Program included binding agreements. LVUs and one-window operations a caseload of eligible households who had either lost were extremely efficient: the land mutation process which land due to the earthquake, or owned land which was normally took weeks was completed in a single day, with highly hazardous for residential use. As safe land was significantly reduced costs as well. In total, 48,000 cases a precondition for reconstruction, these families were were considered, leading to 14,000 families receiving land precluded from starting reconstruction until and unless purchase grants. Out of these, 15 percent were extremely they resolved the issue of a safe site. A separate but vulnerable families. A Manual for Post-Disaster Housing Program Managers 73 Dealing with extended families under one roof During the policy development phase, it was decided that the housing reconstruction grant would be provided on the basis of houses and not households. Thus, if more than one family was residing under one roof, reconstruction/repair tranches were given to the household which was the owner of the house under question. An undertaking (akin to a no-objection certificate) was obtained from other residents/ households – usually relatives such as brothers or sons – that they had no objection to the subsidy being given to one person who would build the house on behalf of all households. In cases where such agreements were not reached during the comprehensive damage assessment and beneficiary eligibility survey (when MoUs were signed), no assistance was given until the extended family was able to sort out their differences amongst themselves and request re-inspection. Focusing on women and orphans In Pakistan, it is customary for male heads of household to manage all financial and legal matters, leaving households with no men at risk of vulnerability. The Rural Housing Reconstruction Program facilitated households ERRA also established a gender unit within the without adult male members to process MoUs and access organization to ensure a gender lens on all strategies, financial assistance through legal protection measures and collected data disaggregated by gender. securing their property rights. This ensured that women- headed households and orphan households also received In cases where there was no adult male or female due assistance. surviving to sign the MoU agreement with the Program, the surviving underage beneficiaries were still eligible A large number of women were new widows whose to receive the grant for reconstruction/repair. This was husbands had died in the earthquake. As a policy, the managed through the legal nomination of guardians Program transferred the housing reconstruction grant for the orphans, and the disbursement of financial MoU to the wife. In addition there were pre-existing assistance to the account of those guardians. The widow- and women-headed households which needed guardians undertook to ensure the reconstruction of to access assistance. In total over 42,000 MoUs were the house, and compliance with Program terms and issued in the name of women as heads of household. conditions on behalf of their charges. 74 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Reconstructing their own houses helped home-owners transcend their trauma and grief. Lessons Learned – Considerations for Future Programs Understanding of the social dynamics RHRP made particular efforts to reach vulnerable groups and ensure that is essential. Social inequities should be they were not further disadvantaged. It focused on the landless, widows and addressed or, at a minimum, not exacerbated orphans. ERRA developed a special policy for landless people, with different provisions Special policies and measures are needed for to that for housing reconstruction. The establishment of Land Verification landless people Units greatly facilitated processes of land transfer and resolution of land disputes. Despite the affected area being very conservative, ERRA was able to provide Support can be provided even to groups that housing reconstruction support to women-headed households, and even to are socially very disadvantaged orphans. The latter was done through signing of MoUs with the children’s guardians. By signing MoUs for housing reconstruction with women, RHRP contributed Social empowerment is possible to the empowerment of women in a traditionally conservative and male- dominated society. A Manual for Post-Disaster Housing Program Managers 75 A sub-district level Grievance Committee for complaint registration and resolution. 76 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 13 Grievance Redressal Mechanisms Why Needed? In order to ensure the principle of equity in the mechanism will also provide an important quality operation of a reconstruction program involving a control function for the reconstruction program; by large number of affected households, and enhance the gaining feedback directly from program beneficiaries, legitimacy of the program for its beneficiaries, a formal and by enabling program managers and authorities to mechanism needs to be developed that streamlines the continually improve the program’s design, operations, handling and resolution of complaints and grievances and implementation. faced by beneficiaries. Such a formal grievance redress Suggested Results Framework Component: Grievance Redressal Mechanism Intermediate Outcome Intermediate Outcome Indicator Formal grievance redressal mechanism created and made accessible to all eligible households within ‘x’ months of Program launch Creation of a formal mechanism to streamline handling and resolution of % of accepted grievances successfully resolved by formal grievance redressal complaints and grievances of Program mechanism beneficiaries, to enhance principles of equity and Program legitimacy Average # of days taken to successfully resolve a grievance once it enters the Grievance Mechanism MIS Achieving Program Results – which enabled the Program implementing agency to The Pakistan Experience perform these functions efficiently and effectively. GRM to streamline handling and A formalized GRM was launched more than a year resolution of complaints after the Program commenced. This was a simple, low- The Program focused on developing a Grievance cost, and automated system and was based on four Redressal Mechanism (GRM) to streamline the tiers – village/community, where it was informal and handling and resolution of complaints and grievances fast-track; tehsil (sub-district), which was formal in faced by beneficiaries. This mechanism relied on both nature; and district, which was also formal in nature and informal, field-level dynamics as well as a formal and where appeals to decisions at the sub-district level were institutionalized system, monitored at the top by the heard. At the final level, the Program implementing Program central management to determine results, agency centrally tracked data on complaints redressal outputs, and trends. This formal system fed into a to determine trends and problems. Figure 4 provides a management information system developed centrally, snapshot of the tiers of the system. A Manual for Post-Disaster Housing Program Managers 77 Figure 4: RHRP Grievance Redress System ■■ Informal and fast tracked Community ■■ Run by Partner Organizations - especially NGOs providing technical training level ■■ Formation of Tehsil (sub-district) Grievance Committee Sub-district ■■ Tehsil Grievance Committee composition: Representatives from government, level Army Engineers, PO (NGO), political figure/VRC ■■ Each complaint recorded in writing and given reference number ■■ Formation of District Grievance Committee Appeal at ■■ District Grievance Committee composition: Representatives from government, district level Army engineers, PO (NGO), political figure ■■ Decisions taken at District level final All grievance decisions sent to Central Program HQs, which conducted periodic reviews to determine: ■■ trends or biases emerging in Grievance Redress committee decisions Central ■■ timely resolution of grievances program level ■■ consistent resolution of grievances across various Committees ■■ whether certain steps in the Program were causing high number of grievances ■■ progress towards achieving GRM targets and expected outcomes 78 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience A number of district-level Data Resource Centers The creation of these DRCs was a response to manual (DRCs) were also established in the affected areas to deal operations and data processing of complaints at field with certain kinds of complaints and grievances related to level that were slow, and were leading to a significant personal and financial data. These DRCs were run by the backlog of unresolved grievances. National Database and Registration Authority (NADRA) that was running the main MIS for the Program, and Another key feature of the Program GRM was the thus had complete data on beneficiaries and financial creation and continuous operation of a centralized disbursements linked to its central national-level ID Call Centre established within ERRA. This Call Centre system. These DRCs handled grievances related to: was available nationally, and was able to respond to complaints and grievances on the phone, recording ■■ incorrect ID card information them for necessary action and follow-up. ■■ missing bank account information ■■ bank account information duplication ■■ missing records Lessons Learned – Considerations for Future Programs RHRP established a grievance redress mechanism to deal with any complaints in A robust grievance redress mechanism relation to the housing reconstruction program, and ensure that these were addressed is essential eficiently. To promote this, the mechanism comprised four tiers, the first of which at community level was informal and fast-track. Higher tiers were formal. Tehsil and District level Grievance Committees, set up as part of the RHRP grievance Involvement of different stakeholder redress mechanism, had representation of partner organizations, government, army, groups enhances effectiveness and local politicians. An effective grievance redress Complaints received under RHRP were centrally monitored, and served as a source mechanism can provide useful inputs of feedback from beneficiaries and communities about the program, in turn helping for monitoring and evaluation inform course corrections and modifications. A number of district-level Data Resource Centers (DRCs) were established to deal with certain kinds of complaints and grievances related to personal and financial Different mechanisms can be useful for data. These were run by NADRA, and handled grievances related to registration and different kinds of complaints banking details – already being managed by NADRA. The DRCs reduced the backlog of unresolved grievances at field level. A Manual for Post-Disaster Housing Program Managers 79 Panoramic view of newly constructed seismic-resistant houses. 80 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 14 Reporting, Monitoring, and Evaluation Why Needed? Having an outcomes-based information management technologies (ICT) can help ensure that field information system can play a central role in the overall management is systematically processed to track progress, and and implementation of a post-disaster reconstruction ensure that policymakers can make the program a program. A focus on timely monitoring of progress in dynamic, field-driven model to ensure desired levels of the program can help ensure that all inputs and activities transparency and accountability. are concentrated on achieving results and adjusted accordingly. Moreover, all activities are measured in Combining the functions of reporting, monitoring, terms of delivering safe reconstruction, which should and evaluation (RME) can ensure that a post-disaster be a pillar of any such program. reconstruction program is dynamic in its scope and responsive to emerging needs in the field. Regular The nature of a reconstruction program is such that a and structured flow of information to policymakers, robust system is often needed to manage the scale of based on key program indicators and desired construction activity, information flows, and financial outcomes, can result in faster decision making which resources. Reporting, monitoring, and evaluation improves the chances of successful achievement of systems built on information and communication program objectives. Suggested Results Framework Component: Reporting, Monitoring and Evaluation Intermediate Outcomes Intermediate Outcome Indicator Creation of an RME system to Forms and methodologies devised to manage information on reconstruction progress, standardise and compile all data compliance and non-compliance, financial disbursement, and training and capacity building streams including reconstruction progress, seismic compliance, Database developed with transparent, reliable, and up to date information on all Program and technical support activities, beneficiary households and use tools to make information available to a range Consolidated and summarised information on key trends (seismic compliance and non- of stakeholders for Program compliance, physical reconstruction, financial disbursement) produced periodically for key analysis and planning. stakeholders Achieving Program Results – and pace, as well as the adherence to policy objectives, The Pakistan Experience relied on access to and analysis of timely and accurate data from the field to report, monitor, and evaluate Creation of RME system to standardise reconstruction progress, seismic compliance and non- and compile all data streams compliance and financial disbursement. Household- In Pakistan, the management of the post-disaster Rural level inspection and certification of each beneficiary Housing Reconstruction Program at such a vast scale house and linked tranche-based grant disbursements A Manual for Post-Disaster Housing Program Managers 81 put monitoring at the centre of the Program for all gain a closer and more insightful look at key aspects, stakeholders and especially each household, holding especially related to compliance on seismic-resistant them accountable for the MoU signed at the start, and construction. It also helped the Program management keeping safety as the priority criteria for the Program. produce very useful knowledge products for policy analysis and operational policy revisions. Figure 5 The Program developed a comprehensive RME system outlines the key functions provided by the system for to function as a coordinated system for all data streams Reporting, Monitoring, and Evaluation purposes. from various stakeholders to be compiled centrally. This provided reporting on a disaggregated level on key Figure 5: Key Functions of RME System program outcomes. Reporting ■■ Generates disaggregated periodic reports on: How the RME was developed ■■ Physical Progress The RME system development tried to use data sources ■■ Number of houses under construction out of those related to individual Program components that were visited by AI teams already functioning, and also developed new data ■■ Stages of construction reached by beneficiaries in % streams specifically for RME that captured more results- terms, and rate of physical progress on a time scale ■■ Financial Progress oriented information. • # and % of beneficiaries having received various grant instalments The following databases existed under individual Pro- • Total amount disbursed to beneficiaries against gram components which were consolidated into the various grant instalments RME system: • Rates of tranche disbursement on a timescale ■■ Beneficiary eligibility database ■■ Grant disbursement database Monitoring ■■ Training and capacity building database ■■ Plinth and Lintel-Level Inspection/Certification ■■ Periodic monitoring of rates of seismic compliance on disaggregated basis Forms ■■ Correlating rates of seismic compliance with: ■■ Since the existing databases were not capturing all • Coverage and output of training Program aspects of the required data, more streamlined data • Reasons for non-compliance flows were created with a focus on results-based • Any other available quantitative and qualitative reporting and monitoring: parameters, such as availability of materials, adequacy of designs, consistency of AI regime, ■■ Physical progress – number, type, and percentage of etc. houses at various stages of reconstruction ■■ Helps identify problem locations and devise ■■ Interim data on seismic compliance – by number, appropriate interventions, thus promoting informed percentage, and type of houses at various levels of decision making. reconstruction Functions of RME Evaluation The RME system helped consolidate all existing data ■■ Furnishing readily available disaggregated data for streams, and developed new ones, to help report on third-party evaluations, especially for facilitating and monitor required Program outcomes. It served sample size determination and targeting. numerous functions that helped the Program managers 82 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Flow of information and data from Lessons Learned – Considerations field to management for Future Programs Figure 6 illustrates how data and information flowed A key principle in the Program was from the field to the central Program management via Standardized equity and consistency in both financial the RME system and its associated data streams: and centralized and technical assistance. All forms and systems ensure methodologies were standardised, Program making processing and compilation efficiency, easier. The lead implementing agency Figure 6: Flow of Data from Field to RHRP Management transparency, and – ERRA, retained centralised control consistency providing accountability and reducing confusion or parallel systems. The Program greatly benefited from the experience and expertise of institutional and implementing partners working RME physical data Partnering with collaboratively to develop systems. first compiled at Assistance and expertise reduces It was not necessary for the central ■■ Collected by AI Inspection hubs teams through burdens on the implementing agency to develop site inspection / Program capacity in-house; rather it was more certification visits efficient and cost-effective to establish partnership agreements with agencies which could provide a range of services. RME physical data This was a technical Program with sent to NADRA/HQs considerable needs for process for entry in databases engineering and field information in the form of images. However, these Images were not used in an optimal manner. provide great Greater planning and budgeting for documentation Usual data streams: the collection, use, and management ■■ 2nd Grant MoUs signed of GPS data, GIS, and particularly Regular database and tranche disbursed digital photographs could have further update on Financial ■■ 3rd Grant Certifications strengthened the Program considerably. Progress processed and tranche disbursed There was a lack of robust pre-disaster ■■ 4th Grant Certifications data on private and rural housing, processed and tranche particularly qualitative information disbursed Baseline data in such as prevalence of construction housing is often types, which would have been useful in unavailable reconstruction. This made it difficult to ■■ # of houses inspected measure the impact of reconstruction New data streams for RME ■■ # of houses commenced construction against pre-disaster conditions. ■■ # and classification of compliant and In general, the success of the Program non-compliant houses was primarily based on housing completion, compliance, and financial Indicators disbursement. These were formal determine indicators measured against set targets. monitoring Several other aspects of reconstruction, Central RME system priorities such as household sanitation, cost of ■■ Located at Program HQ construction, and awareness of risk were formally tracked only retroactively to inform policy development. While the Program monitoring involved comprehensive systems to track financial disbursement, other aspects of the economics of reconstruction were Need to monitor not formally monitored or evaluated. the economics of These included cost and availability of reconstruction materials, impact of location, access and transport, savings, loans, remittances, migration and livelihoods, or the cost and benefit of various activities in technical support. A Manual for Post-Disaster Housing Program Managers 83 Back to the idyllic routine of life with homes, lives and livelihoods fully restored. 84 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Chapter 15 Post-Script: An Emerging Culture of Disaster Risk Reduction The ambitious scale and scope, as well as the long duration houses. Moreover, the government also suggested of the Rural Housing Reconstruction Program, meant that changes to the various Building Codes on a provincial some of its interventions and approaches outlasted the level to incorporate seismic-risk considerations, based on Program itself, and became mainstreamed. These include division of the country into various seismic risk zones. support for disaster risk reduction and transparent payment systems for program grant beneficiaries. Creation of Institutions for Disaster Management Introduction of Multi-hazard Risk There is a critical need for countries prone to recurrent Mapping and Improvements in disasters to strengthen their response capacity as well as Building Codes reduce their hazard vulnerability to mitigate future losses. Multi-hazard risk mapping enhances the effectiveness A key aspect of this capacity building is institutional of post-disaster reconstruction and is also an essential development. In Pakistan the reconstruction experience step for disaster risk reduction in the future. In Pakistan, soon led the government to establish the National such an exercise was envisaged to be conducted Disaster Management Authority (NDMA), as well concurrently with the Rural Housing Reconstruction as Provincial Disaster Management Authorities Program. However, this did not happen for numerous (PDMAs) in all provinces. This was in addition to the reasons. Instead, after the Program finished and establishment and operationalisation of the Program following the creation of an institutional mechanism for implementing agency, the Earthquake Rehabilitation disaster management in Pakistan, this task is now being and Reconstruction Authority (ERRA). taken up with the support of international partners. An important lesson learned is that having such an NDMA has emerged as the key coordinator in post- assessment done in concert with a similar program will disaster situations in Pakistan – which has faced a add tremendous synergy, and contribute greatly to the series of disaster events since 2005 – particularly in the disaster risk reduction agenda on a national level. immediate relief and recovery phases. NDMA is also actively promoting the disaster risk reduction agenda in While a comprehensive risk mapping exercise was Pakistan. not conducted, the government was able to conduct a seismic risk assessment of the affected region in parallel to the Program. This was done using existing, in-house Trained Personnel for Seismic- capacity, and it informed key aspects of the Program. Resistant Construction and Houses that were identified as being located in high risk Continued Use of Good Practices zones were barred from reconstruction in-situ as the site The Program aimed to develop a culture of seismic- was declared dangerous, and the affected households resistant construction in the affected area, and continued were compensated via a Landless Grant program to allow use of these techniques even after its completion. A them to purchase new land to rebuild their destroyed significant effort was thus made to ensure that a large A Manual for Post-Disaster Housing Program Managers 85 force of masons, craftsmen, artisans and construction Transparent Grant Payment workers from the affected area and beyond were trained Mechanism in relevant skills. A critical mass of trained personnel A major achievement of the Program was the was thus developed. Anecdotal evidence suggests that development of a system to transfer grant payments houses outside the Program’s scope, or additions to core directly into beneficiary bank accounts, and the linking units funded by owners themselves, were also being up of that system with a pre-existing national-level built to seismic-resistant construction standards. citizen identification database. This required significant mobilization in a large, dispersed, and remote affected Moreover, this training process in seismic-resistant area to ensure all beneficiaries had bank accounts or construction techniques was institutionalized at the alternative savings mechanisms. This process greatly country level, and training curricula developed by the reduced the risk of leakages of grant payments by cutting Program were adopted by national-level vocational out middlemen. In the intervening years, this post- and technical training institutes for their courses and disaster grant payment mechanism has set a positive certifications, thereby expanding the scope of Program precedent in Pakistan, and has been further developed benefits outside the disaster affected area. since the Program. Following the 2010 and 2011 floods, beneficiaries received compensation grants through a centralized system of debit/ATM cards that were linked with the national-level citizen identification database. 86 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Consolidated Rhrp Results Framework Program Goal / Desired Impact Provide financial and technical assistance to disaster-affected home owners in reconstructing or rehabilitating their damaged houses to disaster-resistant standards, using a home-owner driven, but assisted and inspected construction regime. Inculcate a culture of voluntary compliance in the affected area by inducing a behavioral change and culture of compliance to disaster- resistant standards. % homeowners found well versed in seismic-resistant construction principles % homeowners extending their core housing unit in accordance with seismic-resistant construction principles Program Outcome Indicators Evidence of non-Program houses in affected area being constructed to seismic-resistant standards Evidence of seismic-resistant construction guidelines being replicated across the country % of eligible beneficiaries receiving restoration/reconstruction grants % houses reconstructed/repaired using seismic-resistant standards (Rate of seismic Intermediate Outcome Indicators compliance) Introduction of seismic-resistant construction standards training in national building code Component: Institutional Arrangements Intermediate Outcomes Intermediate Outcome Indicators Establishing and capacitating Enabling legislation passed to create institutional mechanisms for implementing post- dedicated reconstruction agencies, disaster reconstruction programs responsible for undertaking post- Dedicated agency established and capacitated for implementing and managing post- disaster reconstruction programs disaster reconstruction program from strategy development to Linkages developed and formalized with national and international partners to support implementation reconstruction program Institutional development for longer term disaster risk reduction on Institutional support provided for national level long term disaster risk reduction national level Component: Damage Assessment and Beneficiary Eligibility Verification Survey Intermediate Outcome Intermediate Outcome Indicator Rapid post-disaster preliminary Preliminary damage assessment by local administration completed immediately after damage and needs assessment disaster to develop a baseline for reconstruction programs Preliminary baseline of disaster-affected households and communities created Survey form developed and tested Formation, training, and MoU developed- to be signed between beneficiary and survey team mobilization of survey teams % of affected area (in administrative units) where survey teams have visited within ‘x’ across affected areas to conduct months after launch of survey damage assessment and beneficiary % of households visited considered eligible for reconstruction/repair grants eligibility verification survey % of households considered eligible for reconstruction/repair grants with which agreement/MoU signed outlining responsibilities of beneficiary and the government Setting up of central database of Setting up of centrally-managed eligible beneficiary database, linked to the national eligible beneficiaries along with identity database unique identification numbers Key beneficiary information input, based on survey data Transition of survey teams to Training regime on assistance and inspection (AI) of seismic-resistant construction Assistance and Inspection (AI) developed to retrain survey teams into AI teams teams for continuing Program AI teams mobilized in all affected areas after disbursement of mobilization grant and implementation commencement of reconstruction activity continues A Manual for Post-Disaster Housing Program Managers 87 Component: Grant Payment Mechanism Component Objective Component Outcome Indicator Successful disbursement of housing reconstruction/repair grant to all beneficiary households in tranches % of eligible beneficiaries receiving all tranches of restoration/reconstruction grants linked to certification of seismic- compliant construction Documentation of economy and % of beneficiaries regularly operating bank accounts outside of Program grants (such prevalence of bank-based transactions as to receive migrant worker remittances etc.) outside of Program Intermediate Outcome Intermediate Outcome Indicator % of eligible beneficiaries that opened bank account due to Program, out of those that did not have bank account pre-disaster All beneficiaries able to receive housing % of eligible beneficiaries with functioning bank accounts or formal savings/deposit grant in bank account or alternative mechanism ‘x’ months after start of Program savings/deposit mechanism (such as Financial MIS developed that is linked to beneficiary eligibility database and any post office savings account) available national identity database % of financial transactions involving Program grant disbursements completed via beneficiary bank accounts Component: Seismic-Resistant Structural Design Solutions Intermediate Outcome Intermediate Outcome Indicator Review and assessment of prevalent materials and methods for seismic considerations, especially including documentation of common vulnerabilities such as faulty Development of seismic-resistant construction practices causing building collapse/damage structural design standards based on Development of affordable seismic-resistant structural standards based on global best familiar materials and methods practices Mechanism established for review and additions to menu of structural designs Training materials and curricula developed to educate master trainers, field staff, Concurrent development and artisans, and affectees on appropriate implementation of seismic-resistant structural implementation of Cascade of Training design solutions for optimal results Model houses and demonstration details constructed at field level to provide hands-on training and samples for reference. Menu of approved seismic-resistant structural designs consolidated in catalogue form, Compliance Catalogue developed along with solutions for common problems of non- compliance Data on non-compliant construction used to mobilize Assistance and Inspection (AI) Non-Compliance Referral System and training teams to areas with high rates of non-compliance established Non-Compliance Referral System (NCRS) developed for recurrent cases of non- compliance providing detailed technical advice through trained engineering staff Component: Training and Capacity Building Intermediate Outcomes Intermediate Outcome Indicators Training materials and curricula for disaster-resistant design solutions developed for various tiers - master trainers, partner organisations’ staff, artisans and construction Development of Training curricula to workers implement adoption of disaster-resistant solutions Model houses and demonstration details constructed at field level to provide hands- on training and evidence of disaster-resistant solutions continues 88 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Component: Training and Capacity Building Intermediate Outcomes Intermediate Outcome Indicators % of affected area where training on disaster-resistant construction techniques has been provided at field-level to craftsmen and labourers Training of a critical mass of craftsmen and construction workers across # of master trainers/trainer of trainers trained in earthquake-resistant construction earthquake-affected area in disaster- standards resistant construction techniques # of masons/artisans/craftsmen trained in key trades Database of trainings provided created and linked with other Program databases Prevalent use of disaster-resistant % of grant beneficiaries sensitized to earthquake-resistant construction of houses construction standards in reconstructed % of houses reconstructed/repaired using disaster-resistant standards (Rate of disaster houses compliance) Institutionalized support for disaster- Introduction of disaster-resistant construction standards training in national or sub- resistant construction in earthquake- national level vocational training programs affected areas and beyond Component: Assistance and Inspection Regime Intermediate Outcomes Intermediate Outcome Indicators Development of Standard Operating SOPs for AI regime developed for assisting, inspecting, and certifying seismic-resistant Procedures and related Training curricula construction for implementation of Assistance and Training curricula developed and Training provided to AI teams on processes and Inspection (AI) regime criteria for assistance, inspection, and certification Mobilization of Assistance and # of Assistance and Inspection teams trained and mobilized in affected areas Inspection teams in the field across entire affected area for entire length of % of affected Union Councils (or equivalent administrative units) with field presence the Program of AI teams ‘x’ months after Program launch Synchronization of data streams from Data on construction and compliance updated in real-time after every AI team field Assistance and Inspection regime visit to affected community with Program database, for effective Average time in # of days, between AI visit and recording of certification/inspection monitoring and management data in central database (per UC) Component: Public Information Campaign Intermediate Outcomes Intermediate Outcome Indicators Information seminars and events conducted on site in affected areas and displacement camps to spread Program basic information Development and dissemination of Information material and content developed for, and aired on, local radio channels in information materials for mass media affected areas to spread Program information on basic as well as specific matters to enhance Program knowledge and deliver key messages to beneficiaries Information material and content developed for and presented in local print media to and various stakeholders make specific announcements related to Program issues Localized traditional informal channels (mosques, markets, area notables etc.) mobilized for spreading Program messages in affected areas Development and dissemination of Technical information material on disaster-resistant construction using visual tools technical information materials for and in local languages developed and spread amongst key stakeholders such as POs, varied audiences and key stakeholders trainers, inspection/certification teams, construction workers, beneficiary households. outlining technical standards on Trainings provided to inspection/certification teams, PO staff and other stakeholders disaster-resistant construction on use of technical information materials. Component: Building Materials Supply Chain and Hubs Intermediate Outcomes Intermediate Outcome Indicators Availability of required quantities of % of affected area with operational building materials hubs ‘x’ months after Program building materials ensured across launch affected area within affordable price Mechanism established to monitor prices of required building materials to report range. variances and inform interventions/actions continues A Manual for Post-Disaster Housing Program Managers 89 Component: Partnership Models for Coordinated Implementation Intermediate Outcomes Intermediate Outcome Indicators Program partnership base broadened and diversified to include local, national, and Specialized skills and expertise of various international stakeholders partners utilized in all aspects and All Program partners agree to implement Program components (training, technical components of Program, from strategic assistance, A&I, etc.) according to same standards and guidelines using uniform underpinnings to design and field-level Program objectives implementation % of affected areas with field-level presence of Partner Organizations during entire length of the Program Component: Community and Social mobilization Intermediate Outcomes Intermediate Outcome Indicators Social mobilization training for field-level staff of Partner Organizations developed Institutionalization of community-based and delivered centrally approach towards implementing key % of affected villages where Village Reconstruction Committees established with Program aspects, through creation assistance from Partner Organizations and capacity building of village-level committees Synergies developed with other Partner Organization community-level activities such as trainings on disaster-resistant reconstruction Component: Grievance Redress Mechanism Intermediate Outcome Intermediate Outcome Indicator Formal grievance redress mechanism created and made accessible to all beneficiary Creation of formal mechanism to households within ‘x’ months of Program launch streamline handling and resolution of % of accepted grievances successfully resolved by formal grievance redress complaints and grievances of Program mechanism beneficiaries, to enhance principles of equity and Program legitimacy Average # of days to successfully resolve a grievance once it enters the Grievance Mechanism MIS Component: Reporting, Monitoring and Evaluation Intermediate Outcomes Intermediate Outcome Indicator Forms and methodologies devised to manage information on reconstruction status, Creation of RME system to standardise compliance and non-compliance, financial disbursement and training and capacity and compile all data streams including building reconstruction data, seismic compliance, Database developed with transparent, reliable and up to date information (personal technical support activities and use tools details, physical reconstruction and financial disbursement status, etc.) on all to make information available to range Program beneficiary households of stakeholders for Program analysis and Consolidated, summary information on key trends (seismic compliance and non- planning. compliance, physical reconstruction, financial disbursement) produced periodically for key stakeholders 90 Rural Housing Reconstruction Program Post-2005 Earthquake: Learning from the Pakistan Experience Learning from the Pakistan Experience: Rural Housing Reconstruction Post-2005 Earthquake The October 2005 earthquake in northern Pakistan caused massive loss of life and assets, with an estimated 73,000 people killed and more than 2.8 million left in need of shelter. In response the Government of Pakistan, in collaboration with international partners, launched the Rural Housing Reconstruction Program (RHRP) which scored many firsts and is today regarded as an international best practice. Pakistan’s experience with post-earthquake housing reconstruction showcases a model of effective design and implementation of an ambitious program targeting 600,000 units spread across a vast, inhospitable mountainous terrain. It taught numerous lessons, many beyond a post-disaster response. This Manual is meant to be a guide for decision makers and managers tasked with the design and implementation of a housing reconstruction program, in the aftermath of a major disaster. It describes the key principles, strategies, components, processes, tasks, and interventions involved in the design, management, and execution of such programs, using Pakistan’s post-earthquake Rural Housing Reconstruction Program as a case study to draw on its experience and lessons. The Manual also provides a strong results-based outlook through a results framework that links desired impacts, program level and intermediate outcomes, and outputs into a coherent whole. Global Facility for Disaster Reduction and Recovery 1818 H Street, NW Washington, DC 20433, USA Telephone: 202-458-0268 Facsimile: 202-522-3227 Web site: www.gfdrr.org