US embassy cable - 05ISLAMABAD18328

UNCLAS SECTION 01 OF 08 ISLAMABAD 018328 
 
SIPDIS 
 
STATE ALSO PASS TO USAID 
USAID/W FOR A/AID ANDREW NATSIOS, JBRAUSE 
DCHA/OFDA GGOTTLIEB, MMARX, RTHAYER, BDEEMER 
AID/W FOR DCHA/OFDA 
SOUTH ASIA RESPONSE MANAGEMENT TEAM 
SOUTH ASIA EARTHQUAKE TASK FORCE 
DCHA/FFP FOR JONATHAN DWORKEN 
ANE DEPUTY ASSISTANT ADMINISTRATOR MARK WARD 
BANGKOK FOR OFDA SENIOR REGIONAL ADVISOR TOM DOLAN 
KATHMANDU FOR OFDA REGIONAL ADVISOR WILLIAM BERGER 
ROME PASS FODAG 
GENEVA FOR RMA AND NKYLOH 
NSC FOR JMELINE 
EUCOM FOR POLA/J3/J4/J5 
BRUSSELS FOR USAID PLERNER 
NEW YORK FOR TMALY 
SECDEF FOR SOLIC/PKHA, USDP/J3 
JOINT STAFF WASH DC FOR J3/J4/J5 
HQ USEUCOM VAIHINGEN GE FOR J3/J5 
 
E.O. 12958: N/A 
TAGS: EAID, AEMR, ASEC, MASS, ECON, KMDR, KPAO, OIIP, OPRC, PGOV, PREL, PK, Earthquake 
SUBJECT: PAKISTAN - EARTHQUAKE: USAID/DART BOLSTERS SHELTER 
WINTERIZATION EFFORTS 
 
REF: Islamabad 16345 
 
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SUMMARY 
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1. The rapid onset of the Himalayan winter has brought 
greater urgency to efforts to winterize shelters of 
earthquake-affected populations.  Agencies are stepping up 
efforts to ensure that families receive adequate 
winterization materials and tools, including blankets and 
plastic sheeting to reinforce non-winterized tents.  The 
USAID Disaster Assistance Response Team (DART) is strongly 
advocating for shelter needs to receive higher priority 
through the Shelter Cluster mechanism-an interagency working 
group chaired by IOM comprised of GOP officials, UN 
representatives, NGOs, and donors.  The USAID/DART is also 
working closely with the US Embassy and Departments of State 
and Defense to reinforce this message with GOP officials. 
Further, USAID is airlifting an additional 6,000 sheets of 
tarpaulin and 2,500 blankets that can be used to insulate 
the walls and floors of tents or shelters.  In coordination 
with the Shelter Cluster, the USAID/DART is also exploring 
other winterization options in order to rapidly address 
immediate shelter needs.  End Summary. 
 
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Coordinating the Race for Thermal Protection 
-------------------------------------------- 
 
2. The USAID/DART Shelter and Settlements Advisor (SSA) 
reports that there has not been a significant increase in 
the population requiring shelter assistance as estimated 
soon after the earthquake of October 8, 2005.  What has 
changed, however, is the worsening of conditions due to the 
onset of the Himalayan winter.  As a result, winterization 
of current shelters has become increasingly urgent. 
 
3. At present, the number of people requiring shelter 
assistance remains imprecise, with agencies using a range of 
planning figures.  Per reftel, the USAID/DART estimates that 
400,000 households or 2.8 million people have shelter needs 
as a result of the earthquake.  The International 
Organization for Migration's (IOM) planning figure for a 
worst-case scenario is 3.2 million homeless. 
 
4. The number of remaining shelter needs is also ambiguous. 
According to the GOP's Federal Relief Commission (FRC), 
shelter needs have largely been met, particularly for 
residents at the 5,000 feet elevation, above which people 
are particularly at risk due to extreme cold and lack of 
access during the winter months.  IOM staff in Islamabad 
also reported that 100 percent of people still living above 
5,000 feet will have received shelter assistance by December 
10. 
 
5. (Comment: These assertions of 100 percent shelter 
coverage are widely disputed by USAID/DART field staff, 
NGOs, and IOM staff in the field, all of whom argue that the 
level of shelter assistance achieved thus far falls far 
short of 100 percent.  At a December 8 Cluster Meeting, NGOs 
even disagreed with an estimate that 80 percent of shelter 
needs had been met, indicating that the coverage was even 
lower in areas where they were working.  In its latest draft 
of the winterization strategy, IOM reduced the 100 percent 
estimate to 90 percent and, in light of the discussion at 
the December 8 meeting, may reduce it even further.  In 
addition, IOM clarified that the 100 percent figure refers 
to the actual distribution of shelter materials.  However, 
residents may not have used the materials for shelter 
construction. 
 
6. Comment continued: Local commanders responsible for 
populations in Azad Jammu and Kashmir (AJK) and Northwest 
Frontier Province (NWFP) are taking two approaches to 
meeting shelter needs.  In AJK, there is a strategy to 
shelter people in place, outside of camps, whereas in NWFP, 
the GOP has encouraged camp settlements.  The disconnect in 
how to best address shelter needs stems in part from the 
fact that initially the GOP position on shelter was to 
encourage all affected populations to migrate to camps and 
in part from the fact that AJK has relatively few sites 
suitable for camps and NWFP has many. End comment.) 
 
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Shifting Priorities 
------------------- 
 
7. In light of rapidly approaching winter conditions when 
access to populations requiring shelter assistance will be 
restricted, the percentage of shelter materials presently 
carried by helicopters should receive higher priority.  One 
reason for urgency is that shelters cannot be built once 
snow is on the ground. 
 
8. Due to concerted efforts by donors, the UN World Food 
Program (WFP), and the GOP, the food supply in high altitude 
areas is generally considered within the humanitarian 
community to be adequate, with a healthy pipeline of food 
though the winter.  In addition, there is locally-produced 
food available from this year's harvest. 
 
9. As a result, USAID/DART field staff and NGO partners 
report that at present, shelter is the primary concern of 
affected populations remaining in or near their homes.  The 
GOP and WFP recently redistributed geographic 
responsibilities to manage the effective distribution of 
food commodities, with WFP covering the most difficult areas 
to access.  As of December 1, WFP began to move its 
operations from main population centers to Allai, Kaghan, 
Neelum, Lipa and other high elevation valleys.  These areas 
are unlikely to be served by the market because of snowfall, 
landslides, or the fact that normal harvest and trading 
patterns were interrupted by the effects of the earthquake. 
 Further, the USAID/DART Food for Peace Officer is currently 
in Mansehra to assess food needs and explore options for 
food relief at a later date should the situation change and 
pockets of needs emerge. 
 
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Delays in Transportation of Shelter Supplies 
-------------------------------------------- 
 
10. One reason for delays in the delivery of shelter 
materials is the inexperience of some NGOs with logistical 
operations.  For example, the UN Joint Logistics Center 
(UNJLC) has cited cases of improperly packaged shelter 
materials and instances when NGOs have not followed 
established channels to request air support from UNJLC.  As 
a result, at times helicopters have been ready to pick up 
NGO shelter commodities but could not transport them as 
scheduled. 
 
11. Further complicating the timely provision of shelter 
assistance are some GOP restrictions on the importation of 
commodities, which have caused long sourcing and procurement 
delays.  For example, corrugated galvanized iron (CGI) 
sheets, manufactured in India but purchased in Dubai, have 
been stalled in customs for nearly three weeks.  To date, 
waivers appear to have been granted on case-by-case basis, 
and the humanitarian community has requested a blanket 
waiver from the FRC to facilitate relief efforts.  There is 
some speculation that delays are due to market protection 
issues; however, this has not been confirmed.  In an effort 
to take immediate corrective action, the USAID/DART is 
pursuing the possibility of establishing a joint commodity 
warehouse, likely in tandem with the UK's Department for 
International Development (DFID), where commodities would be 
collectively warehoused and made available to the 
humanitarian community as needed. 
 
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USG Efforts Regarding Urgency of Shelter Needs 
--------------------------------------------- - 
 
12. At this time, the USAID/DART's strategy reflects an 
emphasis on expedited shelter relief to the high altitude 
affected region.  It is anticipated this will be the case 
for the next several weeks, with the main objective being to 
meet critical shelter requirements while there is access to 
these elevations and needs persist.  The bulk of relief 
commodities transported during this time will consist of CGI 
sheets, plastic sheeting and blankets.  Based on 
recommendations from USAID/DART's SSA, further commodities 
for shelter kits, such as nails, screws, rope and sand bags, 
are being considered.  A "Special Standards Task Force" was 
also established as of December 4 at the Forward Operating 
Base in Muzaffarabad to ensure quality control and 
consistency in shelter supplies.  In addition to the 
attention to high elevation areas, the USAID/DART will be 
closely tracking shelter requirements below 5,000 feet, 
especially in organized and spontaneous camps and congested 
urban settings.  In this regard the USAID/DART strategy 
entails diligent oversight of humanitarian relief in the 
areas of health, and water and sanitation needs. 
 
13. With the situation becoming more critical, the 
USAID/DART has undertaken the following actions in recent 
days to raise awareness regarding the urgency of shelter 
needs: 
 
14. Encouraged agencies to take immediate action to 
transport a greater percentage of shelter materials to 
affected areas, and to increase emphasis on meeting shelter 
needs.  The priority should be providing more emphasis on 
shelter needs, rather than discussion leading to consensus 
on what percentage of shelter needs remained to be met. 
 
15. Advocated with the FRC to prioritize the immediate 
shelter needs of affected populations, especially located in 
hard to reach areas above 5,000 feet.  With the deadline for 
intervention December 15 to 20, the USAID/DART advocated a 
shift to shelter rather than continued emphasis on food. 
With food largely available in Mansehra and Muzaffarbad, 
according to USAID/DART field assessments, and the fact that 
food aid can be transported after winter sets in; the 
provision of shelter assistance to those without should be 
prioritized. 
 
16. Refocused dialogue at Shelter Cluster meetings at the 
Islamabad and field levels in Mansehra and Muzaffarabad to 
ensure that shelter needs receive appropriate attention. 
USAID/DART staff reported a continued disconnect between the 
field staff and the agencies in Islamabad. 
 
17. Engaged multi-agency efforts, including DOD, UNJLC, and 
WFP to ensure that movements of shelter commodities are most 
effectively transported.  On December 9, DOD Disaster 
Assistance Center (DAC) staff attended an NGO meeting to 
provide training and guidance on the proper procedures for 
requesting air support and the appropriate packaging and off- 
loading of relief materials. 
 
18. The USAID/DART is in discussions with DFID, regarding 
joint support of a commodities warehouse with resource 
materials purchased locally or within the region for NGOs to 
access easily, compared to the current bureaucratic system 
that is subject to significant delays. 
 
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Assistance Efforts to Date 
-------------------------- 
 
19. USAID: In support of the overall shelter strategy, USAID 
has provided 66,500 sheets of tarpaulin, 45,000 blankets, 
1,570 winterized tents, and 455 tents since the beginning of 
the emergency.  In addition, USAID funded eight NGO partners 
to provide shelter assistance to approximately 75,500 
households.  As agencies step up winterization efforts, 
USAID is airlifting an additional 6,000 sheets of tarpaulin 
and 2,500 blankets that can be used to insulate the walls 
and floors of tents or shelters.      In addition, the 
USAID/DART is conducting field assessments to gauge the 
capacity of implementing partners to scale up current 
operations in light of winterization needs. 
 
20. DOD: Through the Joint Operations Center (JOC), the US 
military is working with the UNJLC and the GOP Military to 
develop a "smart pull" or requirements based strategy to 
appropriately distribute relief supplies.  Instead of 
instituting a set percentage of the type of commodities that 
are delivered across the board, the shipments are determined 
by the end point receivers to "pull" the most-needed 
commodities to the field.  In addition, as of December 7, 
DOD had provided 4,602 tents, 250 rolls of plastic sheeting, 
232,092 blankets, and 600 heaters.  Additionally, DOD 
provided air support to transport shelter commodities. 
 
21. Multi-agency efforts: The Shelter Cluster is 
coordinating the multi-agency winterization and shelter 
efforts.  On December 5, the Shelter Cluster reported that 
approximately 35,000 self-help shelter kits have been 
distributed and the GOP military has built an estimated 
40,000 transitional shelters.  In addition, the 
international humanitarian community and the GOP military 
have distributed more than 612,562 tents and more than 4.1 
million blankets.  By December 10, the Shelter Cluster 
estimates that agencies will have distributed 174,000 sheets 
of CGI. 
 
CROCKER