By George Wrondimi and Vincent PyattiSeptember 2012, Port Moresby, Papua New Guinea.

ADB has piloted fragilityassessments in selected urbansettlements in the Pacific using acommunity-based approach andfocusing on the impact of fragilityon the delivery of basic services.

The fragility assessment aims toascertain if the living conditionsin an urban settlement community isa reflection of the overall nationaldevelopment strategies on thepatterns of development in PortMoresby, and in Papua New Guinea asa whole, and how fragile communitiescan be further assisted and empowered to improve their quality oflife in the medium and long term.

The assessment findings should assist the Government of Papua NewGuinea’s Office of Urbanization in finding the right balance betweenurban development and people’s welfare, especially in the fragilecommunities such as the Joyce Bay urban settlement in Port Moresby,which was a case study for this assessment.

CONTENTS

Key Drivers of Fragility --------------------- 2Livelihood ----------------------------

The pilot fragility assessment in Port Moresby, Papua New Guinea is part of the regional technical assistance Supporting ADB’s Engagement in Fragile Situations (RETA 7269). ADB social

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----------- 3Service Delivery ------------------------------- 3Urban Land Use and Management-------- 5Societal Relationships ----------------------- 6

Mitigating Fragility --------------------------- 8

Fragility AssessmentMethodology ------8Approaches Used in the Study-------------9Lessons Learned-------------------------------9

AppendixesFragility Assessment Tool------------------10Inclusive Development Plan---------------15

development specialist Sakiko Tanaka, and consultants Vincent Pyati and George Wrondimi conducted the fragilityassessment, under the guidance of ADB’sfocal point for fragile situations Patrick Safran. This publication was prepared with technical inputs from Jacques Jeugmans and design and editorial inputs from consultant Cyrel San Gabriel.

For more information regarding ADB’s engagement in fragile and conflict-affected situations, visit www.adb.org/fragile-situations

Key Drivers of Fragility

Livelihood

According to the 2000 national census, the population of Papua NewGuinea was a little more than 5 million. Of these, about 87% live inthe rural areas and 13% live in the urban centers. The 2011 nationalcensus, which is not yet officially released at the time of thestudy, records the country’s population as 7.1 million. Ruralpopulation is now recorded as 84% (6.3 million) and urban populationis about 16% (800,000).

The rural population depends mostly on land for basic needs such asfood, clothing, water, and shelter for their survival. Most peopleare engaged in subsistence agriculture for their own livelihood andoften sell surplus to make money to buy other wants. They are notdeeply into cash economy and need money rarely. There are some

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commercial farms owned and operated by foreigners in some parts ofthe country. The mineral industry is booming and it is alsoproviding job opportunities for all classes of people. However,most of the jobs require skilled people and these are employed fromoverseas. The few local laborers are underpaid and could not supporttheir family’s daily expenses.

Most of the urban population lives in squatter settlements. In PortMoresby, the total population is estimated to be 650,000 basing onthe 2000 census but must have reached 800,000 in the 2011 censuswhich is yet to be released. Port Moresby is home to about 61% ofthe urban population in Papua New Guinea. According to 2010 PortMoresby Urban Profile, settlement population is estimated to be morethan 50% of the total population in the city. Most of thesesettlement dwellers are engaged in the informal sector. They aremostly venders in the public markets, streets, Public Motor Vehicles(PMV) stops, and other busy areas.

Box 1: Day to Day Survival in the Streets

The market venders sell fresh food brought in by producers from theoutskirts of Port Moresby. The vendors buy them bags in wholesaleand sell them at retail price. It is their everyday life and mostlywomen are engaged. The street venders sell betel nut and cigarettes.They either follow the customers or sell their goods along thestreets, PMV stops, and other public places. Some street venderssell cheap products from Asian stores on the streets.

A youth leader relates “Three of us, young boys, have decided tosell mutrus (cigarette), betel nut, and fried sausage. I am sellingcigarette, my other friend is selling betel nut, and the third oneis selling fried sausage. This is what we could do to survive.”

The National Capital District Commission treats all street vendingas illegal and uses security force to arrest street venders. Whilevending, the venders always watch out for the security guards. Ifthey are caught, they are likely to go to imprisonment or pay a highpenalty.

The most common jobs available to Joyce Bay dwellers are securityguards and shop assistants. Young girls are engaged as shopassistants; while males, regardless of their age, are engaged assecurity guards. There are a handful of skilled people such as

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carpenters, plumbers, and painters who are engaged on ad hoccontracts. Regardless of their tireless efforts, they are paid lessthan the minimum wage. The responsible government officers hardlyinvestigate the companies to make them comply with the set minimumwage. Loan schemes are not available in village, and loans for houseconstruction are difficult to secure. Work stations are some twokilometers away from the settlement.

Service Delivery

Delivery of basic services is challenged by lack of financial andmanpower resources, logistical problems, and rough geography inPapua New Guinea. In the provincial headquarters, most basicservices are regarded as satisfactory, but in the districts and basecamps, service delivery is fast deteriorating and the authorities incharge do not make any attempt to maintain them.

In Port Moresby, public and private sectors, churches, and NGOsprovide services to the general public. Water is provided by a semi-government agency known as Enda Ranu. It supplies water to all theplanned parts of the city. Some settlements have common water tapswhile others don’t have any. Water PNG, a statutory authority,provides water to other towns and cities in the country.

Electricity is provided by PNG Power, a statutory authority in theentire country that is solely performing the tasks of powergeneration, distribution, and regulation. It has several powergeneration stations in the country and supply power to respectiveregions.

Education and health services are provided by the government,churches, and the private sector. The churches provide health andeducation services in the remote parts of the country. In terms ofquality, churches are known for providing higher quality servicesthan that of the government. Education and health services withinthe cities and towns are also regarded as satisfactory.

Poor quality service delivery by the government is mainly attributedto insufficient funds and lack of skilled manpower. The governmenthas prepared plans and policies at the national level to improveservice delivery, but the issues in funding and manpower made itdifficult to implement them at the provincial and local level.

Most basic services are yet to reach the remote areas where thereare no church services. Those that were established during thecolonial era have deteriorated over time. Demand for basic services

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is very high in these areas but there is less attention from thegovernment.

Services within Port Moresby are accessible by the entire citypopulation. They are strategically located within the city. However,the existing workforce, especially in the health sector, isinsufficient to meet the demands. Patients sometimes wait for up to12 hours to be treated at the Port Moresby General Hospital.

Box 2: The Challenges of Access to Basic Services

Sanitation. There is no sewerage system built in Joyce Bay urbansettlement. The residents use pit toilets that sting and producehorrible smells during dry seasons when the sun heats up the excretain the shallow pits. During rainy seasons, sediments and othersubstances carried by floods fill up the pit toilets and exposeexcreta to the surface. This is unhygienic for the residents and mostof them are affected by waterborne and airborne diseases. Residentshave also no proper bathrooms. The city authority does not collectsolid waste regularly and most of it is thrown into the drains whichcauses drain blockages every rainy season.

Make up bathroom and kitchen sink

Electricity. PNG Power is the main supplier of electricity in thecountry. Main power lines are available and connection is done uponindividual request. Those who can afford to pay have powerconnection. PNG Power has also a policy to connect electricity tohouses that are approved by National Capital District CommissionBuilding Board. Since most houses are built without the NCDC BuildingBoard approval, power connection becomes difficult for the residents.However, PNG Power employees do side deals to illegally connect powerto such houses.

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Health. Joyce Bay has a health clinic run by a church. It is withinwalking distance and all the residents have access to it. The cliniccharges affordable fees to the residents. Serious cases are referredto the Port Moresby General Hospital which is a few kilometers away.A shortage of health workers in the clinic creates unnecessarydisturbances to the efficient delivery of health services to thevillage.

Education. A secondary school and a primary school are located withinJoyce Bay. The secondary school is situated in the eastern tip of thesettlement and it serves the whole suburb of Sabama. The primaryschool is situated in the northern tip that is within walkingdistance for all residents. It serves the school age children of thesettlement and a neighboring traditional village. There are otherelementary schools located within the settlement but not properlyorganized due to space limitation. Since most of the residents couldnot afford the tuition fees, the incumbent government has introduceda free education policy.

Transport. Travelling within the settlement is mainly by road. Thereis a road network connecting all the zones but is of low quality.Some parts of the roads are deteriorating, and during rainy seasons,zones 3 and 4 are hardly passable. The Public Motor Vehicles (PMV)route is toward northeast of the settlement. It is within walkingdistance that is about 2 kilometers away from main PMV stop. Theexisting PMVs serving this route are inadequate to meet the publicdemands. At times, people compete for the limited seats available inthe PMVs by jumping in through the windows. They charge a reasonablefee of K1.00 per trip. Transporting of store goods and private goodsare done by private arrangements. There are no sidewalks built alongthe streets but there are pathways to the central locations withinshort distances.

Sports, Leisure, and Recreation. The community has two oval fieldsfor recreational activities, mostly for games—one oval field in thesecondary school and another one at the back of the primary schooland the clinic—that are readily available for community use at anytime. The community organizes sports and cultural activities.However, both fields are close to septic tanks that produce horriblesmell. The field courts are also in bad condition and need urgentupgrading and maintenance.

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Water. Enda Ranu, a semi-governmentagency, supplies water in Port Moresbyand to some parts of Joyce Bay.According to Enda Ranu, there are mainpipes in Joyce Bay but since it is notan economic zone, the water pressure iscontrolled. Though water supply is ofhigh quality, it is available from 6:00p.m. to 9:00 p.m. only. Residents ofzones 1, 2, and 5 enjoy free watersupply, while residents of some partsof zones 3 and 4 have no water supply.

Water supply in zone 4 comes from the main pipes built by the water company.The pressure is low and residents could not access water from their houses.

Urban Land Use and Management

About 97% of land in Papua New Guinea is customary owned and 3% isalienated. The cities and towns are sitting on this alienated land.In most towns and cities, landowners are claiming compensation overlands that were bought by the colonial administration. In somecases, traditional land owners are encroaching on state land byforce because of known payment of compensation.

Land compensation is very common in the country. Landowners claimcompensation even on landslides due to road construction. Peoplevalue land as their lifeline because it provides all their basicneeds.

In the city of Port Moresby, most land is owned by the state, thoughsome pockets of customary land are within the city boundaries. TheNational Capital District Commission has an urban development planin place. Within its framework, it has 14 local development plans.Within the context of the local development plans, detailed land useplans are done. This land use plans guide development in the city.

The land on which Port Moresby is sitting was bought by thecolonizers from the Motu/Koitabu people who are the nativelandowners of Port Moresby. They live within the urban boundary inpockets of customary land. Their village setting is more traditionaland they have a strong custom based urban village life.

Customary land is governed by customary laws, and the Land Act of1996 applies only to alienated state land. Alienated lands in the

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country are leased out to the general public. The Department ofLands and Physical Planning, the state agency responsible for landmatters, maintains a central land title registry system.

In a recent land reform program by the national government, a newdivision was created under Lands and Physical Planning Departmentheaded by a deputy secretary. Two legislations were enacted, namely,Incorporated Land Group Act 2009 and Customary Land Registration Act2009. Both Acts are currently operational and customary landregistration is in progress. Pockets of customary land within theurban areas, including Port Moresby, will be registered under theseActs to give legal recognition.

All land in the country is subject to Physical Planning Act of 1989,but it is very difficult to implement it on customary land. This isbecause the customary land owners lack in-depth understanding onland tenure and land use. Though they own the land, the citygovernment provides amenities to create value and has the totalpower to dictate the use of land.

Fast increasing urban population in Port Moresby is putting pressureon the limited housing stock and available land. Migrants from otherprovinces are buying customary land cheaply regardless of their longheld view of customary ownership.

Box 3: Vulnerabilities of Living in Joyce Bay

The Joyce Bay urban settlement, formerly known as Horse Campsettlement, is located in the Port Moresby South Electorate of theNational Capital District, and is one of the oldest settlementcommunities in Port Moresby.

The community is comprised of 12 ethnic groups from throughout PapuaNew Guinea with a total estimated population of more than 10,000people. The rapid increase in the population from about 7,000 in theyear 2000 is caused by both natural growth and influx of migrants fromrural to urban areas seeking employment opportunities, access toimproved health and education services, and entertainment and othersocial activities.

Impacts of climate change are a threat to the settlement because ofits location on a low lying valley just next to the coast line. It isvulnerable to floods during rainy period. It had already haveexperiences of flooding and is usually on alarm during rainy seasons.Erosion from developments uphill increases the amount of sediment

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which fills up pit toilets and blocks drains.

Most parts of the settlement are serviced but do not have properhouses. In 2004, the total number of houses in Joyce Bay was 542, butin 2012, it has increased to more than 700. Most houses seem temporalas no proper materials are used. Many people interviewed revealed thatthey do not have money to buy housing materials to build properhouses. More than 15 people are living in a single house of 60 squaremeters.

Individuals who have thefinancial capacity build extrahouses and make extensions totheir existing houses and rentthem out. A good number(about 60%) of the populationlives in rented houses. Mostof the settlers do not haveland title but individuals aregradually getting titles andthey are hoping that titleswill be issued for all plannedallotments in the near future.Less than 5% of the population lives on customary land and they do nothave any secured title. They are vulnerable to eviction by thecustomary land owners if there are any projects of economic importancein the area.

Societal Relationships

Papua New Guinea is composed of different ethnic groups. It has morethan 800 languages and each has its own ethnic and culturalidentity. These different cultural groups, especially theuneducated, have difficulties in mingling together. In the highlandsof Papua New Guinea, clan and tribal war is common. It was practicedby the ancestors using bows and arrows. Warring clans and tribes arenow using high powered guns such as M16 and SLR, and lives andproperties worth millions are lost in a matter of an hour. In thecoastal regions, such tribal wars are rare.

As a Melanesian country, family, clan, and tribe relation is intactbetween different societies. In times of need, people trace their

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kinship ties to seek assistance. Societal relationship is highlyvalued in Papua New Guinea, both in rural and urban areas.

Women in most parts of the country are yet to be on equal footingwith men. The perception of women playing a supportive role in thefamily, clan, or tribe that existed in the traditional society isstill prevalent today. However, in the 2012 national election, threewomen were elected into the male dominated parliament.

Civil societies in the country are unable to influence governmentpolicy because they lack resources. Only when opposition supportsthe civil societies by some form of resources, they are able toinfluence government policy.

Joyce Bay was the first low cost housing settlement established inPort Moresby in the 1950s by colonizers. After the Second World War,people were brought in from a neighboring Gulf province to work inPort Moresby. Since central Port Moresby was occupied by colonizer sthis settlement, which located some 5 kilometers away, wasestablished for the local labours who were mostly domestic servantsto live in. It was then known as the Horse Camp. This generation isthird of the Gulf people who accounts for a significant portion ofthe population. Over the years, people from other provinces havegradually moved in; and now there is a mixture of different ethnicgroups from different provinces living in the settlement. At times,there used to be conflicts between different ethnic groups butresolution mechanisms, such as mediation, are used to resolveconflicts. Violence mostly originates from alcohol and drug abuse.

The ethnic groups do not practice their cultures in the settlementregularly. They only practice their cultures once a year duringindependence day. Most people have lost their cultural identitiesover time. The urban governance structure is not extended down tothe settlement level. The councilors are appointed annually and theyhappened to be the supporters of the city governor. The councilorsdo not have much influence at the highest decision making body whichis the city commission. They worked under the justification of theirrespective communities.

Box 4: The Role of Mediation in Conflict Resolution

In Port Moresby and other cities and towns, ethnic clash is verycommon. Most of these involve people from the highlands region. Thekinship bond that exists in the village is prevalent in the cities andtowns. They gain support from their affiliation to a clan, tribe, or asettlement area, and fight with others. In such clashes, lives are

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lost, properties worth thousands of kina are destroyed, and the socialrelationship within the neighborhood is affected.

As a Melanesian custom, reconciliation and peace creating involvescompensation of death victims and properties with pigs and money. Itis very common both in the urban and rural areas. Once compensated,normalcy returns and life becomes usual. Village mediators andcouncilors are key people in reconciling warring clans.

The formal legal system is mostly used by the working class to resolveissues. It is actually the most favored, but ordinary people could notafford the cost of hiring lawyers.

Joyce Bay has a settlement court which deals with all legal cases. Themost serious cases are referred to the district and national courts.Violence of all types is common in the settlement and the mediatorshave weekly sessions to address them. The cost for mediation is notthat high and many people can afford it. However, one area of concernis the lack of response by the law enforcement authorities, such asthe police force, when leaders and victims of law breakers reportvarious cases of violence and other law and order situations.

Mitigating Fragility

Joyce Bay is not isolated from the general trend of deterioratingliving conditions, especially in terms of poor or lack of basicservices, social exclusion, economic barriers, and increasinginequality throughout the country.

Regardless of the appalling conditions of the infrastructure andbasic services in the settlement, the people have adopted a habit ofcoping with the situation by making the best use of whatever isavailable to make a living in a harsh urban environment. The people,especially the youth, want to do jobs that can earn them regularincome to meet their basic needs.

Many of the settlers in Joyce Bay are the third and fourthgeneration who have lost or are gradually losing their ethnicidentity and have no form of social protection through thetraditional social safety nets. A government sanction NationalTaskforce on Social Protection has just submitted its report on apossible model of formal social protection model for this country

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which is likely to be in place in the next few years. It is one ofthe priority agenda of the current government.

There has been a general breakdown in the provision ofinfrastructure and basic services throughout the country sinceindependence and Joyce Bay is no exception. Developmentinterventions will be a timely relief for the people in thatcommunity.

A follow-up project must be implemented for the settlement as itwill add value to this study. The people expressed negative feelingstoward a similar study conducted by JAICA in 2005 because there wereno development projects done after that study. (Appendix 1 presentsthe Inclusive Development Plan that has been prepared inconsultation with the Joyce Bay community.)

Similar studies can be conducted in other settlements as this studycannot be generalized. Each settlement has its own challenges andproblems.

The findings of this study are linked to the current measures of thegovernment to address the issues of urbanization and urban growth.Recently, a national conference on urbanization was held wherein thePrime Minister was the guest speaker. In his closing remarks, hemade mention of the impacts of urbanization on the lives of peopleand the need for appropriate data which can be used to mitigateimpacts of urbanization and urban development on the poorer segmentsof the urban communities such as Joyce Bay.

Fragility Assessment Methodology

Approaches Used in the Study

Focus group discussion. Five focus groups were consulted and theyinclude the women’s group, the youth group, the church group, JoyceBay court officials, and the settlement committee members. Thesewere the main impact groups in Joyce Bay community whose roles andresponsibilities are being respected and their decisions are adheredto by the community members. These groups are comprised of themembers of the community themselves and therefore their decisionsand authority are respected and abided by the general community.

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In-depth interview with key informants. Individual Interviews wereconducted with persons representing the five focus groups: the youthleader, the settlement leader, the village/settlement courtmagistrate, the church leader, our initial contact person who was awomen’s leader and the owner of a private elementary school.

Site visit and observation. Topics on livelihood, service delivery,urban land use and management, and societal relationships guided thesite visit and observation. With these topics in perspective, lifein the settlement was closely studied, observing and examining thedaily activities of an individual in the settlement. Informal talkswith the residents were done as situation calls for. Briefinterviews were held with groups of women and children who fetchwater from a run-down community water facility that is 200 metersaway from their houses. The informal talks and brief interviews withthe ordinary residents were used to validate the informationgathered from focus groups and in-depth interviews. Photographs thatwere of interest to the study were also taken.

Desk review. Related literatures and reports were reviewed prior tothe conduct of the fragility assessment, including the 2005 JAICAsummary report on Rapid Social Survey done in Savaka, Gorobe, andJoyce Bay, by Marie Balil and her team from the Port Moresby YoungWomen Christian Association (YWCA), and ADB’s Peacebuilding Tool for aConflict Sensitive Approach to Development, which was piloted in Nepal. Thepeace-building tool matrix was modified to fit the fragility contextof the urban settlement (See Appendix 2).

Participatory community mapping. A participatory community mappingwas done to define the project areas and the different zones of thearea. The youth leader and other residents helped in identifying theboundaries of the zones and location of different services.

Lessons Learned

The peacebuilding tool was found to be irrelevant for the Joyce Baysettlement community as there was no war or post-war conflict amongthe settlers. However, a modified version of it became useful inconducting a thorough analysis of fragility in the community. In thecontext of Papua New Guinea, the peacebuilding tool should beapplied in the rural areas where there are tribal fights. On theother hand, the fragility assessment tool (in Appendix 2) should be

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used to assess the settlement’s living conditions which can make orbreak peace in the community.

Wide consultation and gathering views from various interest groupsbuild a sense of ownership in the community, which in turn willinglyparticipated in the fragility assessment. Creating opportunity forthe people to talk about their own problems and suggest ways toaddress those leads to gaining cooperation.

Leaders and people in the community are very cooperative and theyfully participated in this study. However, they are doubtful of thetangible benefits that this fragility assessment could bring intothe community due to their past experience of a similar study thathas brought no tangible results on the ground after theyparticipated in the study to raise their issues and needs.

The community who willingly participated in the study should beassured that development interventions will follow, such as thoseidentified in the inclusive plan (improvement of drainage system andwater supply, helping curb violence and ethnic clashes, and creationof business and job opportunities). They have expressed their desireto be part of these development processes to realize tangiblebenefits for the community.

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Appendix 1: Inclusive Development Plan for Joyce Bay Urban Settlement

This inclusive plan is based on the discussions, observations, and site visits in the Joyce Bay urban settlement wherein the community members were given the opportunity to discuss a wide range of pressingissues and concerns.

Needs and Issues Identified

The need for early childhood learning programs and facilities Inadequate supply of treated water for the whole community Irregular garbage collection schedule Overflow in the pit toilets when the place is flooded during wet

season Insufficient supply of electricity, especially street lighting Lack of maintenance of roads within the settlement Lack of maintenance of drainage system, which gets blocked and

overflows during wet season Absence of community meeting facility, thus community people

resort to meeting in private homes Only one health center is serving a population of more than

30,000 people, including three traditional urban villages Many people die of HIV/AIDS and tuberculosis Fear of Stigma and Discrimination associated with HIV/AIDS caused

many people to die from TB as they do not want to get medical attention.

Family violence is very common in the community, especially husband/wife bashing

Alcohol and drug related violence and assaults are high, especially among the youth

Policing is a problem as the police are very slow to respond to law and order situations when called

There is space shortage due to growing population in the settlement and household size is affected with 3 families or about 15 people living in one house..

Insufficient business and job opportunities for the largely unemployed population

Four Priorities for Immediate Intervention

Improve the drainage system to mitigate flooding situations Provide additional water supply facilities accessible by the

whole community

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Determine appropriate and sustainable programs and services and empower the community to curb violence and ethnic clashes

Identify, and where possible, facilitate the growth of local business activities which will in turn create employment opportunities

Expected Outcomes

Improved quality of life of people through upgraded physical infrastructure, amenities, and basic services

Reduced number of people infected by waterborne diseases brought about by poor sewerage and sanitation

Improved general health condition of the community, including reduction in deaths related to curable diseases such as tuberculosis

Decreased situations of violence and ethnic clashes in the community

Increased employment opportunities for the unemployed population Reduced petty crimes and ensured safety of women and children,

especially at nights due to improved street lighting Improved drainage and sanitation systems to prevent the overflow

of pit latrines during wet seasons The overall improvement in the social infrastructure and

community facilities will also improve the comparative image of the community as well and moral of the people

Potential Key Players

Leaders and people of the Joyce Bay settlement community Joyce Bay Settlement Committee National Capital District Commission Office of Urbanization and Settlements Port Moresby South Electoral Office Enda Ranu PNG Water Board National Capital District Police Community Justice and Liaison Unit (Department of Justice and

Attorney General) Department of Commerce and Industry Department of Labor and Industrial Relations Department of Lands and Physical Planning PNG Power Department for Religion, Youth and Community Development Village Court Secretariat

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Implementation Plan

Objectives Current Status Activities Agencies Involved Time Frame

Estimated Cost

Improvement of drainage system to mitigate flooding situations

Lack of maintenance and low water-loggedareas

Clean up drains and fix damaged part of the drains

ADB, National Capital District Commission, Officeof Urbanization and Settlements, Enda Ranu

One month K99,400

Improvement of water supply system

Inadequate supply oftreated water for the whole community (Main pipes are available in the area but water pressure is controlled by Enda Ranu (water supplier) since the settlement is a non-revenue zone

Set up tapes Provide income opportunities for residents toenable them to generate revenueand pay their bills

ADB, National Capital District Commission, Officeof Urbanization and Settlements, Enda Ranu

Two weeks K25,000

Curbingviolence and ethnic clashes

Violence within the family is common,especially

Initiate awareness program

Establish disput

ADB; National CapitalDistrict Commission; Office

One year

K130,000

husband/wife bashing. Alcoholand drug relatedviolenc

e resolution mechanisms

Organize sportsactivi

of Urbanization and Settlements; NCD Police;Joyce

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e and assaults are very high, especially among the youth that led to ethnic clashesin the past

ties Initiate socialintegration programs such as forming associations

Conduct capacity building formagistrates

Set upmini policepost

Bay Settlement Committee; Joyce Bay villagecourt officials; Department forReligion, Youth and Community Development; Community Justiceand LiaisonUnit ofthe Department of Justice

and Attorney General; VillageCourt Secretariat

Creation of business and job opportunities

There is a large number of unemployed in the settlement

Construct a common local market

Provide livelihood skills, suchas fishing,baking,

National CapitalDistrict Commission, Office of Urbanization and Settlements, Joyce Bay Settlement Committee, Department of

One year

K170,000

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sewing, businessskills, and other vocational skills

Commerce and Industry, Department of Labor and Industrial Relations

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Appendix 2: Fragility Assessment Tool forInformal Urban Settlement

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

Physical CharacteristicsIs thesettlement proneto any naturaldisasters suchas typhoon,earthquakes, andtsunamis?Are there anylocation riskssuch as floods,landslides,coastal surge,and erosion?Is there anyenvironmentalrisk such as

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

landfill, highwater table, andwater pollution(both ground andsurface)?Is there anyarterial roadnetwork withinor near thesettlement?Is there airpollution in thesettlement?Economic CharacteristicsWhat are theincomegeneratingopportunitiesavailable in the

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

settlement?What specialskills can thesettlers use togenerate income?How many peoplewithin thesettlement areemployed and howmany are not?What are theincomegeneratingopportunitiesthat needsupport from theurban locallevelgovernment?

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

What are thepredominant jobsin thesettlement?How many peoplefrom thesettlement areengaged inbusiness?How far are thejob/economiccenters from thesettlement?Is there anyloan schemeavailable to thesettlers?How easy is itto trade goods

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

at the localmarket?Is there anynon-casheconomy?Social CharacteristicsDemographyWhat is thetotal populationof thesettlement?What is thepopulationgrowth rate?How is thepopulationcomposition(old/young,male/female)?

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

What is theaveragehousehold size?HousingWhat is thehousing densityper person?How is thequality and typeof construction?What are some ofthe rentingarrangements inplace?Who owns theland?Do the settlershave securedtitle?

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

Are the housesconducive forhuman survival?Access toServicesWaterAre water supplyand sanitationavailable in thesettlement?Who provideswater andsanitationservices?(Public,private,informal)If it isprovided outside

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

of thesettlement, howfar is it(distance)?What can you sayabout itsquality?What time of theday is watersupply availableand how manyhours?What is theprice as apercentage ofmonthlyhouseholdincome?Sanitation

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

DistanceAvailabilityQualityPrice as percentage of monthly incomeElectricityPrice as percentage of monthly household incomeType of provider(public, private, informal)AvailabilityIs there electricity consumption when

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

cooking ?HealthType of provider(public, private, informal)QualityDistancePrice as percentage of monthly household incomeAccessibility (language, culture, and norms)EducationType of provider(public,

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

private, informal)QualityDistancePrice as percentage of monthly household incomeAccessibility (language, culture, and norms)TransportType of provider(public, private, informal)Type of transport

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

Distance (to public transportnode)Price as of monthly household income?Frequency of service?Access to roads (proximity and quality)Street (quality)Sidewalks or pathwaysRecreational and Public ServicesQualityDistance

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

TypeAccessibility (language, culture, and norms)Institutional ServicesDistanceAccessibility (language, culture, and norms)Cost/FeesAccess to informationAre there any social institutions in or near the

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

settlement?ChurchesWomen groupsNGOsSports associationsYouth groupsPrevious experience with government/donor/NGO projectsCulture and HistoryGeographical background of householdCultural background of householdAge of the

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Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

settlementOwnership of overall settlement landDensity of settlementLanguages spokenby households inthe settlementEthnic groups inthe settlementTraditions observed in the settlementMeans of conflict resolutionSource of socialtensions

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

Past and recent conflicts affecting ethnicgroups of householdsCrime rates/unreportedviolenceType of crime/violenceSources of violenceMost frequent type of violenceUrban GovernancePolitical representation of settlement and ethnic

27

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

groups in formalinstitutions

- Local- Provincial- National- Business

Associations

- Church- Profession

al Institutions

Presence of formal institutions in the settlements

- Administration

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

- Judicial- Electoral- Business

Associations

Level of participation bythe settlement dwellers in decision making

- High- Moderate- Low

Other InterventionsGovernmentNGOsChurchDevelopment partners

28

Questions

Risks to project associated with settlement situation

Possibleopportunities for improvement

Recommended adjustments to project

Private sectorCommunity initiatives

29