Targeting the Vulnerable: A Review of the Necessity and Feasibility of Targeting Vulnerable Households

This article examines whether it is possible to target vulnerable households within a geographically defined area. It looks first at the justification for targeting and then reviews recent practical experience in actually trying to reach vulnerable groups. As complex emergencies increasingly last longer, strategies to target vulnerable households are common in the protracted phase of the emergency. While this is often necessary because of a decline in resources, it is not always justified by an improvement in nutritional status or food security of the beneficiary population.
Common target groups are the poor and the malnourished, but in complex emergencies these are not always the most vulnerable. Moreover, recent practical experience has shown considerable difficulties in targeting the poor. Methods to target the poor rely on community-based relief committees, whose priorities are not necessarily the same as those of external agencies. This paper gives examples of such targeted assistance programmes in Kenya, south Sudan and Tanzania. The paper concludes that situations where targeting vulnerable households is justified and feasible are extremely limited. It is suggested that if targeting has to be done because of scarce resources, this should be done on a geographical basis and on the basis of nutritional status. Case-study material shows that it is essential to understand the political determinants of vulnerability and to design methods that will reach the most vulnerable.     

Assessing the impact of the Indian Ocean tsunami on households: a modified domestic assets index approach

This paper offers a potential measurement solution for assessing disaster impacts and subsequent recovery at the household level by using a modified domestic assets index (MDAI) approach. Assessment of the utility of the domestic assets index first proposed by Bates, Killian and Peacock (1984) has been confined to earthquake areas in the Americas and southern Europe. This paper modifies and extends the approach to the Indian sub‐continent and to coastal surge hazards utilizing data collected from 1,000 households impacted by the Indian Ocean tsunami (2004) in the Nagapattinam district of south‐eastern India. The analyses suggest that the MDAI scale is a reliable and valid measure of household living conditions and is useful in assessing disaster impacts and tracking recovery efforts over time. It can facilitate longitudinal studies, encourage cross‐cultural, cross‐national comparisons of disaster impacts and inform national and international donors of the itemized monetary losses from disasters at the household level.     

Programmes in chronically vulnerable areas: challenges and lessons learned

In the 'chronically vulnerable areas' (CVAs) of East Africa a smooth linear transition away from emergency programming towards rehabilitation and long-term development is difficult, if not impossible. This makes uncritical application of the 'relief-to-development' continuum to programming unhelpful at best, and perhaps counter-productive. This paper is the result of CARE's efforts to review its own programmes--and those of some of its sister agencies--in chronically vulnerable areas in the East Africa region, to derive important lessons learned and to identify areas where improvements are needed. The paper focuses on strategic considerations and decision-making in relation to entry, programme design and strategies for transition and exit.     

家户水灾社会脆弱性的评估方法研究——以长沙地区为例

中国是洪水灾害发生频繁的国家之一，研究水灾脆弱性对中国的灾害风险管理有着极为重要的意义。但是，合理评估脆弱性尤其是社会脆弱性却面临着极大的挑战。利用Hoovering改进模式，选择湘江流域的长沙地区为研究区，对研究区内的家户进行了社会脆弱性评价。结果表明，长沙市区的5个区内，高脆弱性家户最多的是天心区，最少的是雨花区。而就社区而言，高脆弱性家户最多的足裕南街街道和桔子洲街道。该结果反映了长沙不同行政区、社区社会脆弱性的差别，可供确定受援地区和受援人群及开展援助活动，乃至灾后日常风险管理参考。     

Concerns and future preparedness plans of a vulnerable population in New Jersey following Hurricane Sandy

Knowing how people prepare for disasters is essential to developing resiliency strategies. This study examined recalled concerns, evacuation experiences, and the future preparedness plans of a vulnerable population in New Jersey, United States, following Hurricane Sandy in 2012. Understanding the responses of minority communities is key to protecting them during forthcoming disasters. Overall, 35 per cent of respondents were not going to prepare for an event. Intended future preparedness actions were unrelated to respondents' ratings of personal impact. More Blacks and Hispanics planned on preparing than Whites (68 versus 55 per cent), and more Hispanics planned on evacuating than did others who were interviewed. A higher percentage of respondents who had trouble getting to health centres were going to prepare than others. Respondents' concerns were connected to safety and survival, protecting family and friends, and having enough food and medicine, whereas future actions included evacuating earlier and buying sufficient supplies to shelter in place.     

Urban vulnerability and displacement: a review of current issues

Urban displacement is frequently portrayed as a new and unfamiliar dilemma for the humanitarian sector, yet broad awareness of its characteristics and challenges has been developing since the 1970s. In the past decade, however, there has been greater attention to, and recognition of, the implications of rapid urbanisation in the developing world. This has led to some policy development and a mounting body of NGO (non-governmental organisation) and think-tank literature on the topic. Assuming displacement to be a key lens on urban vulnerability more broadly, this paper presents an overview of the historical development of debates on urban displacement since the 1970s. Drawing examples from the contributions in this special issue of Disasters, as well as from other sources of information on recent humanitarian responses in various contexts, it assesses the ramifications of urban vulnerability for humanitarian practitioners. The paper contends that the humanitarian sector has failed to galvanise on the issue, and has struggled therefore to employ existing knowledge and to adapt practice.     

Mapping the public first-aid training landscape: a scoping review

While the public can play a vital role in saving lives during emergencies, intervention is only effective if people have the skills, confidence, and willingness to help. This review employs a five-stage framework to systematically analyse first aid and emergency helping literature from 22 countries (predominately in Asia, Australia, Europe, and the United States). The review covers 54 articles that investigate public first-aid knowledge and uptake of first-aid training (40); public confidence in first-aid skills and willingness to help during an emergency (21); and barriers to or enablers of learning first aid and delivering first aid in an emergency (25). The findings identify high levels of perceived knowledge, confidence, and willingness to help, supporting the contention that the public can play a vital role during an emergency. However, the findings also point to low uptake levels, low tested skill-specific knowledge, and barriers to learning first aid and helping, indicating that the first-aid training landscape is in need of improvement.     

The effectiveness of forecast-based humanitarian assistance in anticipation of extreme winters: a case study of vulnerable herders in Mongolia

This paper presents evidence relating to a forecast-based cash and non-food item distribution among vulnerable herder households during the 2017–18 dzud (extreme winter) season in Mongolia, and analyses the results of a quasi-experimental study evaluating its impacts. An innovative approach in disaster risk reduction, forecast-based financing (FbF) can have short- and long-term benefits to vulnerable households but remains understudied. The paper contributes information on a multimodal FbF programme offering one-off cash grants and in-kind veterinary kits. The data found significant effects of reduced mortality and increased offspring survival in some types of livestock, and that the timing of FbF assistance is crucial, as reported early assistance correlated to positive outcomes in terms of reduced animal mortality. These findings can be used to design more effective FbF interventions, to understand better the appropriateness of FbF designs, and to use early warnings and early actions to help people prepare and withstand disasters such as dzuds.     

The vulnerable do‐gooders: security strategies of German aid agencies

Humanitarian and development agencies have confronted growing insecurity in some of the regions in which they work over the course of the past decade. Consequently, aid agencies are changing their approach to security issues. Compared to aid agencies from other countries, especially the United Kingdom and the United States, German aid agencies have been relatively slow to adopt security measures. In addition, the security measures they have selected differ from one agency to another, even in comparable security contexts. The literature on organisational learning helps to explain these differences. The findings show that external and internal organisational factors influence an aid agency's choice of a particular security measure. The different responses of German aid agencies to the changing security environment demonstrate that security measures are not only influenced by an organisation's identity but also can be a way for them to demonstrate their identity and thereby distinguish themselves from other actors that deliver aid.     

HIV risk and prevention in emergency-affected populations: a review

While basic guidelines on HIV prevention in emergencies have been available for several years, international agencies involved in the provision of health services have not placed sufficient priority on the prevention of the human immune deficiency virus (HIV) and other sexually transmitted infections (STIs) in complex emergencies. This paper reviews the factors that may increase the risk of HIV transmission in populations affected by complex emergencies and outlines recommendations for research and programmes. Research into the most appropriate methods of carrying out HIV surveillance and interventions in these settings is needed. In the post-emergency phase programmes need to be far more extensive than those offered under the Minimal Initial Services Package (MISP). While the potential for stigmatization represents an important constraint, there is a need to prioritize HIV/STI interventions in order to prevent HIV transmission in emergency-affected populations themselves, as well as to contribute to regional control of the epidemic.     

The feasibility of concentrated rural settlement in a context of post‐disaster reconstruction: a study of China

There is growing appreciation of the use of concentrated rural settlement as an effective means of implementing infrastructure projects and helping to achieve sustainable development in rural areas. This occurs in China through the exchange of rural residential land for urban construction. However, this policy has not been effective under normal circumstances (called development‐driven conditions) as frequently farmers are reluctant to accept such an exchange. By contrast, in a time of disaster, such as after the 2008 earthquake in Sichuan Province, China, rural victims have accepted this policy of rural residential land exchange. Employing game theory, this paper identifies the reasons for the different outcomes and it contends that the implementation of concentrated rural settlement practice under disaster‐induced conditions is more effective than its introduction under development‐driven conditions. The results of the analysis indicate that, in China, concentrated rural settlement is feasible in a context of post‐disaster reconstruction.     

The 2011 flood event in the Mekong Delta: preparedness,response, damage and recovery of private households and small businesses

Floods frequently cause substantial economic and human losses, particularly in developing countries. For the development of sound flood risk management schemes that reduce flood consequences, detailed insights into the different components of the flood risk management cycle, such as preparedness, response, flood impact analyses and recovery, are needed. However, such detailed insights are often lacking: commonly, only (aggregated) data on direct flood damage are available. Other damage categories such as losses owing to the disruption of production processes are usually not considered, resulting in incomplete risk assessments and possibly inappropriate recommendations for risk management. In this paper, data from 858 face‐to‐face interviews among flood‐prone households and small businesses in Can Tho city in the Vietnamese Mekong Delta are presented to gain better insights into the damage caused by the 2011 flood event and its management by households and businesses.     

Getting the Scale Right: A Comparison of Analytical Methods for Vulnerability Assessment and Household-level Targeting

This paper introduces broad concepts of vulnerability, food security and famine. It argues that the concepts and theories driving development and implementation of vulnerability assessment tools are related to their utility. The review concludes that socio-geographic scale is a key issue, and challenge. It analyses three vulnerability assessment (VA) methods, using Ethiopia as a case study. Facing the challenges of vulnerability assessment and early warning requires providing accurate information at the required scale, useful for multiple decision-makers within realistic institutional capacities.     

Factors affecting the evacuation decisions of coastal households during Cyclone Aila in Bangladesh

Despite sincere efforts by concerned agencies and recent improvements in hazard warnings, thousands of at-risk people did not evacuate during Aila, a category-I tropical cyclone that struck southwestern coastal Bangladesh in 2009. This study investigated the responses of the people affected by Aila to cyclone warnings and associated evacuation orders, and unveiled behavioural aspects that explain why they did or did not comply with the evacuation orders. Utilising the primary data collected from 420 households living in the severely affected coastal sub-district Koyra, located in Khulna District, this study found that although more than 97% of the households had received cyclone warnings and evacuation orders before Aila's landfall, only around 26% had evacuated. We also examined this study's empirical findings for factors that had dissuaded people from complying with the evacuation orders. Relevant test statistics along with results from principal component analysis suggested that the significant and systematic absenteeism of households from disaster preparedness training appears to be one of the key determinants that affected their evacuation decisions, along with factors related to warning messages, the attributes of cyclone shelters, risk perception, and socioeconomic aspects. A number of recommendations are also presented in this study for people at risk to improve their evacuation rates in future emergencies, not only to save their own lives but also to save their livestock.     

Health effects of relocation following disaster: a systematic review of the literature

This paper reviews the literature on the effects of post-disaster relocation on physical and mental heath, and develops a conceptual framework to guide future research. Forty articles were selected for full-text review and incorporation into the conceptual framework. Twenty-four articles were reviewed for results and methodology. These overwhelmingly tracked mental health outcomes. Only four (16 per cent) focused on physical health. Eight of ten showed an association between relocation and psychological morbidity. Certain outcomes (such as mortality, injury and cardiovascular disease risk factors) revealed inconsistent results, but these were rarely studied. Despite the frequency of post-disaster relocation and evidence of its effect on psychological morbidity, there is a relative paucity of studies; the few examples in the literature reveal weak study designs, inconsistent results, and inattention to physical health impacts and the challenges facing vulnerable populations. Further research guided by theory is needed to inform emergency preparedness and recovery policy.     

The Incident Command System: a literature review

Given the foundational and the fundamental role that the Incident Command System (ICS) is intended to play in on‐scene response efforts across the United States, it is important to determine what is known about the system and how this is known. Accordingly, this study addresses the following research question: ‘How has research explored the ICS?’. To probe this question, a methodological review of the scant, but widening, pool of research literature directly related to the ICS was conducted. This paper reports on the findings of the analysis related to the focus, theoretical frameworks, population and sampling, methods, results, and conclusions of the existing research literature. While undertaken using different methodological approaches, the ICS research suggests that the system may be limited in its usefulness. In addition, the paper discusses the implications of the research for the state of knowledge of the system and for the direction of future research.     

我国泥石流危险度评价研究:回顾与展望

综述了自20世纪80年代末我国开展泥石流危险度评价研究以来,4个主要不同时期所用的评价方法及其发展过程,介绍了最新的单沟泥石流危险度评价技术及其改进的评价因子转换函数赋值新方法。首次提出了泥石流危险度评价的理论公式及其数值解,同时也指出了泥石流危险度理论研究方面所面临的困难。目前,现有的泥石流危险度评价方法是有效的和实用的,进一步的工作宜放在评价方法的可靠性研究上,同时要大力开展泥石流规模和发生频率相互关系的研究,以期达到最终用理论公式来评价泥石流危险度的目的,并实现现状评价和预测评价能同时进行的目标。     

Food Targeting in Darfur: Save the Children Fund's Programme in 1986*

Emergency food aid has usually, if at all, been targeted through feeding centres. In Darfur, Sudan, SCF targeted food aid to the population on the basis of comprehensive household data. The decision to use this approach was taken in 1986 following the failure of both feeding centres and general distribution to meet emergency needs in 1984/85. This report outlines the development of the food targeting system and the types of data used for making allocations. Further research is required in order to find solutions to questions raised by the experience, such as: How can NGOs and government authorities arrive at a definition of need which is acceptable to local government and donors?; What is the most practical method for implementing a targeted programme to a proportion of the population?; Should individuals be given assistance which will enable them to remain in non-productive areas?; and would direct market intervention, food for work, or cash distribution be a more effective and less disruptive form of emergency aid in famine areas?     

Targeting vulnerability after the 2005 earthquake: Pakistan's Livelihood Support Cash Grants programme

The 7.6 magnitude (Richter scale) earthquake that struck northern Pakistan on 8 October 2005 was devastating. This paper gauges success in targeting vulnerable families during the transition from relief to reconstruction through cash assistance provided by the Livelihood Support Cash Grants (LSCG) programme. Families without a male member, with a disabled male member aged between 18 and 60 years or with more than five children, defined as vulnerable, were provided with USD 50 per month for six months via a bank transfer. The LSCG scheme enrolled around 750,000 families and selected 267,402 vulnerable families to whom it disbursed a total of USD 86.95 million. Using a community‐based survey, this paper assesses leakage and under‐coverage (exclusion). Approximately 30 per cent of families received the cash grant. However, only one in two was eligible for the benefit, and one in two deserving families was excluded. This is a matter of grave concern.