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in

UNIT 11 TEMPORARY SHELTER,

WAREHOUSING AND STOCKPILING
Structure
11.0 Learning Outcome
11.1 Introduction
11.2 Requirements in Shelter Provision
11.3 Requirements in Warehousing and Stockpiling
11.4 Conclusion
11.5 Key Concepts
11.6 References and Further Reading
11.7 Activities

11.0 LEARNING OUTCOME

After studying this Unit, you should be able to:
z Examine the concerns and issues related to temporary shelter and discuss the
importance of community partnership while building shelters; and
z Analyse various types of measures that are required to be taken for maintaining
effective and efficient warehousing and stockpiling facilities during disaster and non-
disaster times.

11.1 INTRODUCTION
Disaster preparedness involves arranging for logistics and supply of essential commodities
during times of crises. Temporary shelter provision is necessary to evacuate people to safe
sites from disaster ravaged areas. Essential items include medical supplies apart from food
and clothing, as disease outbreaks are very probable in the aftermath of disasters. Apart
from physical illnesses that result from diseases like dengue, cholera, dysentery, respiratory
infections and malaria, as these have been found to be most common, psychological
shock also has to be dealt with. Shelter provision is both a response and a mitigation
effort. For example, after the Orissa super cyclone, it was realised that concrete structures
served as emergency shelter during the cyclone. Therefore, after the cyclone, once the
immediate repair and restoration of thousands of damaged schools had been completed,
steps were taken to undertake construction of newly designed school buildings in existing
premises with a view to providing additional classroom space as well as making these
structures double up as emergency community shelters during floods and cyclones in the
coastal areas. Post-disaster situations also provide opportunities for addressing many long-
standing needs and demands of the people and to pay attention to unfinished developmental
tasks. For example, after the super cyclone in Orissa, about ninety go-downs were
constructed for storing food grains in areas highly vulnerable to cyclones and floods. This
was long over due, but their completion after the 1999 cyclone ensured that these were
put to best use during the 2001 floods. This initiative was further amplified by building
small go-downs at the gram ‘panchayat’ level. Again, this came in very handy during the
2003 floods. Pre-positioning of food-grains at district, block and gram ‘panchayat’ levels
ensured timely relief during floods.
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Temporary Shelter, Warehousing and Stockpiling 223

11.2 REQUIREMENTS IN SHELTER PROVISION

11.2.1 Temporary Shelter
Shelter means interim housing to meet basic immediate needs of disaster victims, through
provision of tents or quickly assembled houses made of a range of materials including
wood, plastic, tin, etc. It is the primary component of post-disaster rehabilitation.
Designated Shelters is another important term used, which means public building utilisation
and use of any other existing safe facilities before or during disasters to protect people
from destructive forces. These are also called community shelters.
The objective of a temporary shelter is to assure necessary shelter for families in order
to safeguard peoples’ lives from exposure and further sufferings when once a devastating
disaster has snatched their homes from them.
Shelter is also a major requirement during major disaster situations such as wars or
famines which create/exacerbate the refugee problem in significantly large proportions. The
Asian Disaster Preparedness Centre (ADPC) has produced tools and resources for post
disaster relief. As per ADPC, shelter provision has to cater to the following requirements:
PREVENTIVE SITE AND SHELTER MANAGEMENT GUIDELINES

PROBLEM PREDICTIVE PREVENTIVE STRATEGY

INDICATORS

Overcrowding High rate of influx into For contingency planning,

confined area. negotiate suitable sites with
government before influx occurs or
at early stage of refugee situation if
possible, should have potential for
expansion in order to avoid
relocation or increased population
density.

Exposure • Historic or standard • Provision of suitable shelter

weather patterns of rainy for example insulated or heat-
or cold periods. able tents or other structures;
also distribute stoves,
• Lightweight tents or other mattresses, warm clothing,
un insulated structures in blankets or sleeping bags
areas in area with seasonal
cold patterns • Stockpile additional blankets
• Insufficient • Purchase additional
heaters/stoves/fuels heaters/stoves.
• Fuel distribution system
• Fuel stockpile, and/or consider
alternative fuel sources to
bridge gap.
• Relocation of population to
better-sheltered or warmer
areas.

Contd...
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224 Disaster Management

Domestic • Overcrowding • Meet minimum space

violence/Social standards for site area and
disturbances • Lack of privacy shelter, space requirements.
• Provide at least visual privacy,
especially for populations
sheltered in communal
buildings.

Fire • Overcrowding • Provide adequate fire breaks

between structures.
• Site area too small for
number of tents/structures, • Provide fire extinguishers in
shelters are very close strategic locations, for
together or are touching example stores/warehouses,
admin, buildings etc.
• Dry windy weather
conditions • Space structures apart to
reduce risk of spread of fire
• Dry combustible shelter
materials and individual • Public awareness campaign
open flame heating or
cooking stoves or areas. • Establish fire brigade
• If possible, stoves/cooking
areas should be protected from
the wind (wind shields). This
will also reduce amount of fuel
required.
• Indoor cooking/heating only
with suitable heaters, open
fires are to be avoided.
• Organise and promote planting
of trees and hedges to reduce
wind spreed. Also helps
reduce dust and wind spread.

Mud/Standing • Pattern of rainy weather • Select site with slight slope (2

Water percent) if possible, regardless
• Flat low lying site of climate, rainy or arid.
• Flood plain location • Use culverts for drainage if
• No other existing roads are improved by raising
structures in fixed assets the road surface.
in the area. • Include drainage plan and
ditching in initial site layout.
• Special attention must be paid
to drainage around water
points.

Source: Compiled by DMC, 1992, UNHCR Emergency Tools Series draft#2, 1992, in ADPC, 2000.
The crux is that shelter rehabilitation concerns spread across the following aspects:
z Socio-economic
Shelter is meant for people. This fact governs the principle that shelter should be designed
to meet the requirements of people without any detrimental impacts on their health, socio-
economic status and lifestyles. This in turn requires that planning and implementation
processes for shelter programmes should be participatory in nature. Participation does not
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Temporary Shelter, Warehousing and Stockpiling 225

mean consent; rather it means consultation. Specific issues that need attention are,
beneficiary participation, spatial relationships between families, involvement of women, and
common activity spaces.
z Physical and environmental
Post-disaster shelter reconstruction is a particularly sensitive area of work, since it is
usually carried out under severe time pressure, not providing/allowing enough room for
normal planning processes to take shape. It therefore becomes more important to pay
extra attention to physical impacts, both on the community as well as on the environment.
Issues requiring attention are; relocation decisions, personal open spaces, infrastructure,
and local environment.
z Technical and Structural
Structural compliance according to local hazards is of paramount importance for ensuring
future safety of re-built houses. Poor construction or hazardous location can put people
in such temporary shelter to risk of another disaster. Though this objective is given due
importance in most shelter reconstruction programmes, the means are often not sensitive
enough to the socio-economic and environmental concerns discussed above. Therefore,
technical interpretations, adaptations, and translations gain critical importance. Specific
issues of concern are structural safety, site and services planning, activity space planning,
thermal comfort, protection, and socio-cultural compliance.
z Shelter Location
The first question that arises in a shelter reconstruction programme after a disaster is
whether to rebuild at the same location or to relocate. This is an issue with not just
physical, but also social and economic implications. A number of options have been tried
in the past, and each one of them has its own merits and demerits. The three basic
options are:
1) Rebuilding at the Same Location
This seems to have the greatest advantage. It does not involve issues of land acquisition,
or of conflicts between relocated communities and host communities. Much of the rubble
can also be recycled and used in the reconstruction work, saving on material costs,
transportation costs, and time. This option cannot work when the land or resources at the
original location are damaged or contaminated beyond repair, or if the original location has
proved too vulnerable.
2) Relocating the Entire Settlement
Relocation of a settlement is usually a time consuming process involving land acquisition.
If the community whose land is acquired is unhappy with the situation, it could turn
hostile. While relocating, the entire settlement has to be planned from scratch, since similar
other local sensitivities are involved such as local superstitions and religious/cultural
proclivities. Relocation is a last resort option, and is best avoided as far as possible.
However, if it has to be resorted to, it can provide an opportunity to fill those service
gaps that existed in the old settlement.
An additional issue in relocation is, what happens to the original settlement. Many times
it has been seen that the community continues to occupy and live in the old settlement.
They patch up their damaged houses and live in them, while the new houses
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226 Disaster Management

are used for storage. This is highly undesirable because it not only leads to a wastage
of resources, but also leaves the community still living in vulnerable shelters.
3) Relocating Part of the Settlement
The worst of the options, it has often been exercised when opinion within the community
has been divided on the relocation issue. In one sweep, it destroys the social fabric built
over generations. If the community is fractured, the issue first needs to be addressed
through better engagement rather than breaking apart the community.
Ten-point Guideline for Shelter Provision
Numerous agencies are working in the affected areas for shelter provision. Different
approaches are being adopted in different areas, with varying materials, sizes and
processes. A ten-point guideline on temporary shelter provision prepared in the aftermath
of the Kashmir Earthquake of 2005 by Prof. Ian Davis is as follows:
1) Monitor what is going on
Use this disaster to inform the coordination agencies about what goes on in this sector,
at micro and macro levels, such as, who is deciding on shelter approaches; where is the
expertise; what the popular wisdom on shelter is; what are the dilemmas and conflicts?
etc.
2) Tents
The likelihood is that a wide variety of tents, with varied specifications will arrive, some
very appropriate, while others are hopelessly unsuited for the climate or cultural conditions.
Who adopts what specifications and, is there any quality control or standardised
specification? If families tear their allocated tent to use the canvas in creative ways this
can be highly effective, yet in some contexts, some ‘tidy minded’ officials have been
known to banned this adaptive process.
3) Standards
Minimum standards of shelter provision are given under the Sphere Project, and are
accepted around the world. These should be adhered to, and adapted where there is a
need for modifications. The basic principles of the standards should be ensured in all
temporary shelter programmes.
4) Location of Tents
Where possible, families should be allowed to take a tent and put it near their house
rather than on a centralised campsite. Reasons for this are obvious; it would provide for
better care of domestic animals in rural settings, protection of household belongings that
may remain within their ruined dwellings and maintenance or recovery of livelihoods that
may be linked to the home.
5) Shelter Materials
Probably, one of the best policies is to distribute shelter materials, such as blankets,
roofing, sheeting, plastic sheeting, lengths of planed timber, building tools, wire, rope, nails,
etc. Where possible, these can be sold where people have money to avoid dependency,
but where people do not have resources, they can be donated. If the materials for
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Temporary Shelter, Warehousing and Stockpiling 227

roofing, sheeting, etc., can come with expertise and the support of skilled volunteers to
assist in building, this will enhance the process.
6) Shelter for Families with Damaged Dwellings
Aftershocks can bring down damaged, but standing houses. Therefore, such families need
to be advised to sleep outside their homes in tents or improvised shelters even if they
spend time in the day in their homes. The risks are very high when they are lying flat,
sleeping and a damaged structure collapses. Rapid damage surveys need to check on
this issue as a vital measure to avoid further losses of lives from aftershocks.
7) Local Advice Centres
Repairs begin immediately, regardless of whether or not the government seeks to stop the
process until structural safety surveys have been undertaken. Small teams can be
assembled, comprising volunteer engineers/ architects/ builders who can be assigned
different areas to offer advice concerning shelters and repair and rebuilding options.
8) Transition Housing
An effective strategy is to seek to help families to create a transitional dwelling that will
eventually develop into a permanent dwelling. This is a preferable approach to providing
expensive rehabs that will later be replaced by another permanent home (In effect this a
wasteful double reconstruction approach). The aim is to use the sheltering process to
accomplish three things: provide shelter, strengthen local livelihoods and aid the psychosocial
recovery process.
9) Debris
In many disaster situations there is often large-scale destruction of building debris during
the clearing and recovery process. Vital timber and masonry debris is destroyed in the
process. It is essential to collect useful building debris for recycling purposes.
10) Shelter Units
Each disaster will attract a community of intrepid inventors or commercial opportunists
who seek to convince officials to place big orders for their novel creations made of
cardboard, plastic, polyurethane, etc. Such designs are essentially innovative answers
seeking a problem. They often cost far more than tents and shelter materials; they can
be culturally and climatically inappropriate and can take ages to deliver. There are better
alternatives available as noted above.

11.2.2 Community Participation

For an economically well-established person, it is obvious that he will get an architect to
design her/his house as per her/his needs and lifestyle. However, for the poor, particularly
in the aftermath of a disaster, this is usually not an option. Since the government or a
donor agency is providing for him, he must accept whatever is handed out. This is why
the rehabilitated arena is dotted with row housing schemes constructed as per a template
designed by a far-away urban architect or designer. There are numerous examples where
beneficiary communities refused to live in such houses provided to them.
Recent improvements in the process have been that the team does a survey and then
designs a few alternate plans, which the community as a group is asked to choose from.
This is still not good enough. Consultations have to go beyond consent.
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228 Disaster Management

It must be appreciated that the families receiving assistance still do have a right to decide
what their house should be like, within the given resource constraints. The shelter
provider’s job is to ensure that the new houses and settlements are adequately disaster
resistant.
True consultation often throws up those very small and basic needs that are often
overlooked by remote designers. Though a qualified architect or engineer is surely
competent to create a physically compliant shelter, these small local community based
aspects of shelter are the ones that make it socially compliant.
The inference is that a shelter design is good only if it is acceptable to the families it is
meant for. The way to ensure its acceptability is to design it with the community. There
have been various well-documented examples of this, the world over. Action planning for
housing is an accepted good practice, wherein community groups take part in needs
assessments, prioritisation, consensus building, design, budget analysis, constraint based
design modifications, construction planning, implementation and monitoring.
Participatory design process can be very effective. The role of the qualified designer is
one of facilitation, while the community leads the process. It works well even with illiterate
groups, using symbols, models and articles, around which group discussions and activities
are organised.
As brought out in the World Disasters Report of 2002, people in southern Sri Lanka
fought drought with self-help mitigation measures with assistance from an NGO. For two
years, southern Sri Lanka suffered the worst drought in half a century. Crops failed for
five consecutive seasons. Livestock died, water in wells dropped to dangerously low
levels. Malnutrition rose to dangerous levels, school attendance dropped. An estimated 1.6
million people were affected. The drought-stricken community of Muthukandiya approached
a local NGO about the problem. A mitigation initiative was launched, based on low-cost
“rainwater harvesting” technology, which uses tanks to collect rain channeled by gutters
and pipes as it runs off the roofs of houses. Villagers participated throughout the planning
process. Two local masons received on-the-job training in building the 5,000-litre
household storage tanks. Each system cost US$ 195, equivalent to a month’s family
income. The community, in the form of materials and unskilled labour, provided half the
cost. The NGO contributed the rest. Households learned how to maintain the tanks, and
the whole community was trained to keep domestic water supplies clean. A village
rainwater harvesting society was set up to run the project. Evaluations clearly show that
the 37 households with storage tanks have considerably more water for domestic needs
than households relying on wells and ponds and up to twice as much during the driest
months.

11.2.3 Requirement of Dovetailing Response with Risk Reduction

It should be realised however that temporary arrangements like shelter provision, stockpiling
or warehousing have limited utility if not integrated with the larger/more essential goal of
risk reduction. As rightly articulated in the World Disasters Report of 2002, risk-blind
development is one factor in increasing vulnerability. Another is the absence of effective
disaster preparedness and mitigation measures (for example, flood-proof embankments,
early warning systems, evacuation routes, shelters, relief stockpiles, disaster response
teams, public awareness). Below are some of the barriers to more effective risk reduction,
as brought out in the World Disaster Report of 2002:
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Temporary Shelter, Warehousing and Stockpiling 229

z Geopolitics: conflicts of the 1990s dominated the humanitarian agenda, pushing aside
the problem of vulnerability to natural hazards.
z No coherent risk reduction “community”: professionals trying to mitigate disaster
impacts are fragmented along institutional boundaries.
z Risk reduction is seen as a separate sector, when it should be mainstreamed
into development and humanitarian programming. As a result, risk reduction concerns
are marginalised or forgotten.
z Risk reduction is viewed as a technical problem with technical solutions. But the
underlying factors that compel people to live in insecure conditions are rarely
addressed.
z Lack of resources: donors dedicate far fewer resources to risk reduction than to
relief. The European Community’s Humanitarian Office (ECHO), for example, spent
just 1.5 per cent of its aid budget on disaster preparedness on an average.
z Invisibility of risk reduction spending: development programmes may include
mitigation, but it is rarely reported in donor accounts (Twigg and Ariyabandu, 2002).

11.2.4 Environment and Infrastructure

Sustainable development refers to the Green Agenda and the Brown Agenda. Green
agenda deals with environmental issues related to clean air and water, a healthy and
natural environment. Brown agenda deals with provision of services including water
supply, sanitation, drainage and solid waste disposal.
Rehabilitation shelter needs to be brown and green too. While browning apparently
happens well with most construction programmes visible in ensuring taps and toilets and
drains, many rehabilitated villages look like models made of concrete blocks, with not a
single tree or green patch in sight. Clean looking paved surfaces replace the earthy ground
with grassy patches and the shade giving trees. The dying village pond finally gives way
to the overpowering overhead water tank. Ambient temperature rises, and cool breezes
turn hot. Things are definitely not green. Greening is the least expensive of the shelter
construction components. Usually, it requires almost no expenditure.
It is said that the brown agenda also needs careful adaptation. Many a times it is seen
that utilities and services are cut and paste from an urban setting. In such cases, users
may not take to the technologies offered, or pour-flush systems may be too water
intensive and unviable, or drainage systems may have too less water for self-cleansing
velocity. While planning for utilities and services, it is important to use technologies
appropriate to local environmental conditions. It is equally important to do a reality check
with socio-cultural practices and acceptability. Sometimes, technical interventions may
require a long run-up of social mobilisation and education.
The initiation of this entire process can happen from some universal principles laid down.
The SPHERE project standards are for humanitarian assistance given for minimum
standards of basic infrastructure provision, including those needed under various shelter
programmes. Other factors can be taken from similar sources, or derived empirically.
One more consideration that can be kept in mind while doing this is incorporating disaster
mitigation and preparedness aspects. Shelter and site planning components in themselves
should be based on sound principles of structural mitigation. From this can emerge non-
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230 Disaster Management

structural mitigation elements such as selection and placement of infrastructure and furniture
etc. The green agenda can incorporate elements of nature in ways that ensure sustainable
and safe habitat.

11.3 REQUIREMENTS IN WAREHOUSING AND

STOCKPILING
For effective relief distribution, it is essential that the relief material is procured, transported,
stored and distributed efficiently. Based on the experience with the December 2004
tsunami in Thailand, the USAID recommended the use of strategic transit points as the
Uttapao air base in Thailand for stockpiling of relief material. The USAID however
criticised the government’s decision to source needed supplies such as tents, blankets and
high protein biscuits from existing aid stockpiles in Europe and the Middle East. Local on
-demand purchase of these items would have been timelier. Most relief agencies have tie-
ups with supply companies in this regard, which makes stockpiling redundant. However,
certain goods are not easily transportable, like tarpaulins and tents; besides communication
is disrupted which reiterates the benefit of stockpiling of certain goods (The Economist,
2005). Therefore, warehousing and stockpiling form a very important component during
the relief phase.
Planning Stockpiling and Warehouse Requirements
Stockpiling and warehouse requirements should be worked out in detail and preferably in
advance so that these can be adhered to right from the beginning. It is more difficult to
organise a warehouse once the material has been dumped in it.
z A warehouse must provide proper secure storage in terms of capacity and the
preservation of the quality and quantity of the items stores. Cool, dry storage facilities
are optimal. Warmth and dampness encourage infestation and growth of microorganisms.
Every effort should be made to prevent supplies from being exposed to sun, rain,
humidity or high temperature.
z Open storage areas should not be used, except for very short periods for goods that
will not be affected by exposure.
z The necessary capacity for a proposed warehouse depends upon the number of
beneficiaries to be served and the quantity of goods to be stored and distributed.
Make provision for anticipated reserve and buffer stocks, but avoid ordering and
holding contingency supplies for indeterminate future needs. Consider consumption
rates and shelf life, and request supplies in manageable quantities.
z Warehouse buildings should be conveniently located and provided protection from
rain, flash floods, dampness, solar heating, rodents, insects and birds. A single large
building is better than several small ones. The warehouse must be secure against
theft, with adequate fencing, lighting, and security personnel. The area surrounding the
warehouse should be cleared and made to provide good drainage and easy access.
Provide a special storage area for small, high-value items, with parking and loading/
unloading area adjacent to the warehouse.
Stockpiling Facilities
Storage facilities are located at key points. Significant losses can materialise due to poor
planning. Most of the following damages can be minimised by proper storage:
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Temporary Shelter, Warehousing and Stockpiling 231

z Spoilage caused by inadequate protection during inclement weather;

z Stockpiling at wrong locations, which also leads to loss of time in delivery;
z Poor warehousing practices and facilities;
z Lack of proper security and supervision; or
z Prolonged warehousing supplies.
Stockpiling Practices
Stockpiling is a scientific process. Best stockpiling practices are based on scientific
principles that help in increasing the life of the material and in easier and more efficient
handling:
z Each stockpiling facility requires a stockpiling plan to allocate sufficient space for
goods before a consignment arrives. Ideally the floor of the warehouse is laid out in
a painted grid pattern, and each item marked in chalk to designate the area for
each stack. In addition, a chart is maintained of the stockpiling plan, to identify
available space at a glance and to locate stored supplies and their date of receipt
easily.
z Goods should never be stored directly against walls; pipes, pillars, roof trusses or
partitions because stacks place unacceptable stress on them, become inaccessible and
subject to dampness. Stacks should be separated using straight aisles, at least one
meter wide, to provide access for inspection, cleaning and loading. Foodstuffs should
be well separated from other supplies to avoid damage from contamination. Fuels,
lubricants and other hazardous substances should be stored in a separate building or
a designated, protected area outside the main warehouse.
z A cleaning plan for the warehouse should be prepared, laying down the tasks, timing
and assigned duties of the staff. Specific cleaning duties should be included in the job
description for each warehouse staff member, and follow ups should be done to
ensure that the work is done thoroughly, as scheduled. All the dirt should be
removed daily.
z Supplies and food commodities should be neatly piled on pallets placed on a clean
floor. Pallets should never project beyond the bottoms of the stack. Different items,
different packages and consignments arriving at different times should be kept in
different stacks. Stacks should be built carefully to ensure stability, maximise available
space and facilitate stocktaking. With rectangular bags or boxes, the simplest method
to pile the stock is to orient layers in different directions. This will prevent the stack
from falling over.
z Goods must be issued in the order in which they were received. This should be kept
in mind when planning the stack layout, so that stacks placed earlier at the rear of
the warehouse are easily accessible when the time comes to issue them.
z Stacks should be positioned so as to benefit them most form available light and
ventilation. Good, natural or electrical lighting will make inspection easier. Ventilation
and good air circulation is best for quality preservation, in hot, dry climates.
Ventilators should not be obstructed.
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232 Disaster Management

z Stack height should be limited to prevent excessive floor loading or pressure damage
to the packing or the contents. Packages can be crushed or split by compacting
caused by the weight piled above.
z Individual stack dimensions at the floor should not exceed 6 mt. x 6 mt., to facilitate
inspection and cleaning.
z Packages should be piled in their upright position.
z Damaged goods should be piled separately. Different types of damaged goods should
not be stacked together. Repairing or repacking should be done if possible. These
repacked or repaired goods should be issued first if they are usable.
z In tents or improvised shelters, stacks should never be allowed to touch the fabric
of the tent or the walls or roof of the shelter. In open areas, stacks should be kept
away from the perimeter fence.
Suitability of Available Warehouse
Warehouses are often not easily available in post -disaster situations. Many times, make-
shift arrangements have to be made in existing buildings such as schools or in the open
or under tents if no suitable building can be found. The following conditions need to be
kept in mind while identifying a warehouse:
z Easy access by road, rail, or water to facilitate receiving and issuing supplies.
z Sufficient capacity to meet forecast requirements for temporary or transit storage,
reserve and buffer stocks.
z Sufficient floor area to permit easy stock handling and access to all stacks for
inspection, stocktaking and pest control.
z Sound construction and dry and well ventilated building. The construction should be
leak proof and there should be no broken windows. Doors should close securely
with no gaps. Walls should be clean and whitewashed.
z Office space for warehouse supervisor, staff and warehouse records.
z Garbage disposal facilities.
z Lighting inside and outside the building; and making security fence necessary, if
isolated.
Receiving, Handling and Issuing Stocks
The process of receiving, handling and issuing material at a warehouse location is a
complex one as it involves different processes and different personnel. If the warehouse
itself is the location of distribution, the issuing stocks also involve the arrival of a large
number of people who are not aware of the warehouse processes. The following aspects
need to be kept in mind in such a situation:
z Ideally, larger warehouses should have separate doors and work areas for receiving
and issuing supplies. This arrangement will eliminate any confusion and potential
scheduling problems when these activities occur simultaneously.
z Every consignment arriving at the warehouse must be counted and inspected carefully
as the goods are being unloaded. Damaged packaging or commodities, should be
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Temporary Shelter, Warehousing and Stockpiling 233

checked for:
z Packs with holes, or split bags
z Broken or partially open crates
z Dented, buckled or leaking drums or cans
z Signs of wetness or stains on the surface of bags or cartons
z Signs of insect infestation or decay
z The quantities received should match with those listed on the waybill, stores
requisition or packing list. Where tampering is evident, carefully check the contents
of packages for missing items. Sample bags should be weighed of bulk commodities
to confirm unit weights. Random samples of commodities should be taken to check
for quality, when appropriate.
z The number of units/weight of the goods received and any amount, which has been
damaged or lost, should be recorded. Consignment receiving reports should be
submitted to the appropriate authority or agent, noting damage, shortage, excess or
non-conformance, quantities, conditions and any extenuating circumstances. Insurance
claims and follow up on claims documentation should be initiated where necessary.
z Proper instruction should be given and timely supervision of the porters handling
goods in the warehouse should be done, to ensure that the goods are moved and
stored efficiently with minimum damage. Loading or unloading should never be done
in the rain. Provision of suitable equipment should be made with trained operators,
for large or heavy consignments. Use of trolleys should be made if these are
available. Goods must not be dragged along the floor, dropped or thrown. Porters
should not be permitted to use hooks which damage packaging and bags.
z Only authorised officials may sign a written release order to issue supplies from
storage. On receipt of a release order, the chief storekeeper confirms that the
supplies are on-hand and supervises their turnover to the receiver’s agent taking
delivery. Stored goods are issued on a first in first out (FIFO) basis, that is, the
stores received first are issued first because they have been stored for the longest
period. This rule is applied consistently, except for usable damaged goods, which are
always issued first, regardless when they arrived. The issue is recorded in the
warehouse records.
z A Store Requisition/Issue Voucher is prepared in three copies for each release order,
with the receiver’s agent signing to acknowledge receipt of the goods. Two copies
accompany the issued consignment to their destination, while the original is filed with
the release order. The receiver’s agent obtains the signature of the receiver at the
destination, returning one copy to the warehouse for matching with the original Stores
Requisition/Issue voucher to confirm final delivery.
z In long-term warehouses, periodic physical inventory of all supplies and food aid
should be conducted to verify that the quantities on hand agree with the quantities
shown on the Store Card and Stack Record Cards. Any shortages should be
reported to the senior official responsible for warehouse operations, and investigation
for the reasons for these shortages should be carried out. Quantities from the store’s
records should not be deleted without proper authorities to do so.
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234 Disaster Management

Fire Protection and Safety

Proper fire protection measures should be taken up in the warehouse complex to ensure
safety from possible fire accidents. The following tips may be adopted:
z Define in advance the responsibilities and actions to be taken by individual personnel
in case of a fire outbreak.
z Ensure that fire-fighting equipment is readily accessible both inside and outside the
building and also that these are in working condition.
z Provide water and sand buckets, plus foam extinguishers if fuel and oils are present.
Instruct personnel in the use of extinguishers.
z Strictly control smoking by all personnel whenever they are in the warehouse
premises.
z Never store flammable material in the main place. All combustible waste should be
discarded in metal bins and they should be cleared out regularly.
z Insure the warehouse against possible fire outbreak.
z Ensure good electrical wiring within and outside the warehouse.
Recommended Warehouse Cleaning Plan
Cleaning of the warehouse is very important to maintain hygiene and to keep the material
from being wasted due to decay or pest infestation.
Before using the warehouse:
z Thorough cleaning of floors, walls, ceilings partitions, support beams, windows, doors
and frames should be done. Treatment with insecticide is advised.
z Clearing of weeds and rubbish in the area surroundings the warehouse building
should be done, to remove potential food sources for rodents and to eliminate places
where insects may breed.
z Prompt cleaning of any spillage, especially foodstuffs and oil is needed.
z Each day, sweeping of the floor and disposal of the sweepings should be done.
z At the end of each week, cleaning of the building walls and the sides of each stack
should be done. Cleaning up of weeds and rubbish in the area surrounding the
warehouse should also be done.
z In case of long term warehousing, at the end of each month cleaning of the entire
warehouse thoroughly, from top to bottom, should be done.
Periodic cleaning can be scheduled for:
z Sweeping the walls, stacks, and floor, wall/floor joints and all corners
z Cleaning of the roof beams and tops of the walls
z Cleaning of doors, frames and door channels
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Temporary Shelter, Warehousing and Stockpiling 235

z Cleaning in sequences, from top to bottom, and from the farthest point inside the
warehouse towards the door(s)
z A logbook should be maintained for the periodic maintenance and cleaning activities.
Record Keeping Procedures
Since large volumes of material are being handled and many personnel may be involved
in the process, good record keeping procedures are important for maintaining accountability
and for efficiency in ensuring that stocks are available when required. The following
procedures are advised:
z Use of Stock Control Ledgers, Store Cards and Stack Record Cards.
z Recording all receipts, issues and balance on hand. Retaining a copy of the receipt/
issue voucher or waybill for verification.
z Recording all inspections and pest control treatments.
z Verifying records by conducting a physical stock count periodically.
z For any stocked item lost or disposed of, recording the quantity, and an explanation
of the loss or the reasons for disposal and the method.
z Submitting a periodic summary to the senior official responsible for warehouse
operations.
Stores Inspections: What to look for
Stores inspection is an important task for ensuring that systems are being followed and
there are no losses or risks of losses to the material being stored. The following
inspections should be carried out:
Building and Area Inspection, comprising;
z Roof leakage or signs of flooding
z Broken windows or ventilators
z Badly fitted or damaged doors
z Cracked walls or floors
z Dirty or dusty interior
z Signs of rodent entry
z Damaged fences
z Broken or burnt out lights
z Inoperative or missing equipment
z Presence of garbage, discarded items
Stores Inspection Activities
z Checking for spilled commodities;
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236 Disaster Management

z Inspection between bags or packages in the stack, along seams, for signs of insects
(webs, cocoons, etc.) or rodent damage;
z Looking around the stack base and under pallets for signs of insects (webs, cocoons,
etc.) or rodent damage;
z Looking around the stack base and under pallets for signs of insects or rodents (for
example, nests, droppings);
z Looking for water damage, fungus, caking, discoloration, stained bags or packaging
leaks;
z Examination of stacks for damaged items mixed in with regular stock. Checking that
damaged goods are stacked separately in the warehouse;
z Checking expiry dates on items with limited shelf life;
z In stored grain stacks, by lifting the top bag and feeling the bag underneath for
heating, which can indicate germination/infestation in the stacks;
z Looking for swelling or rusting cans;
z Looking for flying insects that are usually a sign of heavy infestation;
z Watching for signs of theft;
z Checking in dark places using a good flashlight.

11.4 CONCLUSION
While building temporary shelters, along with the expertise from specialised agencies, local
wisdom and traditional coping mechanisms should be considered while planning for
temporary shelters. It is quite probable that traditional systems for temporary shelters are
available in the area. Also, using the traditional system will be cheaper than an external
design altogether. In any case, it will be useful to consult the community.
For warehousing and stockpiling, proper selection, supervision and control of warehouse
and storage facilities cannot be left to the storekeeper alone. All officials in the field or
attached to the operation must assume an active role to ensure that the supplies stored
are adequately protected until they reach the beneficiaries. Warehouse protocols should be
scientifically laid down and implemented.

11.5 KEY CONCEPTS

Temporary Shelter : In the immediate aftermath of a disaster, it may not
be possible to evacuate people immediately to officially
designated shelters since road communications may be
severely disrupted, as during floods, cyclones and
earthquakes. Temporary shelters have to be set up, in
the form of tents. Since stockpiling may not be
available, food and medical supplies are airdropped in
case of events such as landslides.
Designated Shelter : Many existing structures at safe sites or otherwise
well constructed structures such as schools, religious
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Temporary Shelter, Warehousing and Stockpiling 237

institutions, and hospitals, etc. can double up as

designated shelters. Using hazard maps, official shelters
are also created as part of disaster prevention on safe
sites, which could be at some distance from the
hazard site. All essential requirements are provisioned
at such shelters.
Warehouse : Warehouse refers to a large building where materials
can be stored. The Indian equivalent of a warehouse
is a ‘go-down.’ Both, however, mean the same.
Stockpile : Stockpile refers to the stock of essential commodities,
comprising perishable and non-perishable items which
are needed using an emergency. Though stockpiling
is indispensable; alternate arrangements are being
worked out, such as, companies and non-profit
organisations engaged in disaster response in contract
with suppliers who ensure timely delivery at call.
Protocol : Protocol refers to the formal procedure or the rules
and regulations that govern daily administration of an
organisation. Breach of protocol results in bad
precedents and hence, undermining of the organisation
itself.
Inspection : Inspections have to be carried out periodically
regarding stockpiling in warehouses to check for safe
practices. Perishable items should be replaced on time
and fresh supplies requisitioned.

11.6 REFERENCES AND FURTHER READING

Manual on Disaster Response, a Handbook for Emergencies, Church’s Auxiliary for
Social Action (CASA) at http://www.christian-aid.org.uk/indepth/0307stor/
04stormappendices.pdf
Ten-point guideline for shelter provision by Prof. Ian Davis, prepared in the aftermath of
the Kashmir earthquake, 2005.
Twigg and Ariyabandu, 2002, World Disasters Report, International Red Cross and Red
Crescent Societies, John Twigg and Madhavi Ariyabandu (Intermediate Technology
Development Group, South Asia).
UNHCR Handout, “Tools and Resources for Post Disaster Relief”, reproduced by Asian
Disaster Preparedness Centre, 2000, at, http://www.adpc.at.in
World Disasters Report, 2002, Chapter 1- Principal contributors: John Twigg (Honorary
Research Fellow, Benfield Greig Hazard Research Centre, University College London)
and Charlotte Benson, an economist specialized in the economic aspects of natural
disasters.
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238 Disaster Management

11.7 ACTIVITIES
1) Contact organisations or government departments who are key players for relief
operations during any emergency in your area. Study their mechanisms of stock piling
and warehousing. Make a visit to the warehouse and interview the in charge.
Compile your observations and prepare a report. If there is no disaster warehouse
in your area, you can visit any large material storage facility and compare their
systems with those discussed in this unit.
2) Make a list of facilities and items a family like yours will need if it has to live in a
temporary shelter away from home for a few days. Make sure you include items of
need for each family member. Identify special need items for children, old people and
women.