Rapid Early Recovery Assessment – Aden, Yemen
Rapid Early Recovery
Needs Assessment
For displaced population and host communities in Aden, Yemen
March 2012
|1
Rapid Early Recovery Assessment – Aden, Yemen
Rapid Early Recovery Needs Assessment
For displaced population and host communities in Aden
March 2012
Cover Photo: A displaced woman in a Sheikh Othman district school who is selling sweets to displaced
children, resembling the entrepreneurial spirit and a strong dedication to economic recovery and selfrestoration of livelihoods.
Photos’ Credits: Khaled SUFIAN - SMEPS
Assessment Team:
Raidan Al-Saqqaf
Aleen Hamza
Yahia Al-Amdi
Lina ShamsAldin
AbdulKarim Thabit
Faizah Sulaimani
Safa Al-Hibshi
AbdulAziz Saeed
Moneer Saif
Special Thanks to:
Gustavo Gonzales, Senior Country Director, UNDP/Yemen
Randa AboulHosn, Country Director, UNDP/Yemen
Yazan Al-Saghiri, Communications Officer, UNDP/Yemen
Alissar Chaker, CPR Practice leader, UNDP Regional Center for Arab States
Acknowledgement:
The assessment team would like to pay tribute to the high spirits of the interviewed displaced
population, and to the courtesy of local community members who have enabled the undertaking of this
assessment, including the governorate and local councils of Aden.
This assessment was undertaken in partnership with the Small and
Medium Enterprise Promotion Service (SMEPS) – a subsidiary of
the social fund for development.
March 2012
|2
Rapid Early Recovery Assessment – Aden, Yemen
Forwards
Gustavo Gonzalez
Senior Country Director
UNDP/Yemen
2011 was a difficult year for Yemen. Popular discontent, political tensions, and armed violence
have dominated the national scene. This is particularly true for the southern region where the
crisis has had a profound impact on the livelihoods, social cohesion, and survival capacity of the
conflict-affected, reversing developmental efforts and all progress made towards improving
quality of life and improving economic sustainability in the south.
Following the signing of the GCC agreement and as the country transits towards stability, this
rapid assessment intends to shed some light on some of the key grievances related to the crisis
setting, with a view to advising the United Nations, relief and development partners, and other
stakeholders on early recovery programming and addressing the needs of the crisis-affected
communities. Such programming is critical for the success of Yemen’s transition towards
stability, and works in support of government and other partners’ efforts in addressing
grievances specific to the south.
This reports hopes to encourage actionable measures towards accelerating the recovery of the
crisis-affected populations in the south, particularly towards tailoring workable solutions that
address the priorities highlighted, while focusing on strengthening resilience, reducing
vulnerability and dependency on aid, and working to build a better tomorrow and a more
promising future for this part of the country.
UNDP/Yemen intends to marshal capacities and partnerships towards supporting this measure,
and we open our hands to all partners in working together to facilitate a smooth and safe
transition to the post-crisis rebuilding and development setting in the south.
March 2012
|3
Rapid Early Recovery Assessment – Aden, Yemen
Executive Summary
The aftermath of conflict and associated damage to infrastructure, livelihoods, and wellbeing in the
south remains a critical issue facing Yemen’s political transition. Mounting social tensions were noted
mount among various displaced population groups as well as host communities, particularly as the
prolonged displacement continues to tax the capacity to mitigate instability and tensions given a history
of prior conflict and the deterioration in service delivery, welfare and protection networks in the south.
With that in mind, this rapid assessment focused on understanding the recovery needs for host
community and the Internally Displaced Persons (IDPs), while understanding the causes for, actors
engaged in, and capacities for early recovery and social cohesion in the south, thereby enabling early
recovery programming with a view to bridging the ongoing humanitarian operation with medium-term
recovery and development programming in the south.
This assessment took place in January 2012, collecting primary data through 896 interviews from key
stakeholder groups, host communities, as well as IDPs in Aden. The data collection process was designed
to capture information and observations relating to early recovery priorities, livelihood-specific needs,
grievances and social cohesion, as well as a number of other relevant and cross-cutting issues.
Initial findings highlighted a significant impact on livelihoods and economic survival of the IDPs and the
need to provide a more durable shelter within host communities. Specific needs continued to surface
highlighting the economic vulnerability and stress experiences given the lack of income-generation
opportunities while life-saving humanitarian support dwindles and increasingly intermittent.
Further analysis has unveiled several inherent vulnerabilities and chronic issues building from previous
conflicts and historic tensions, chronic underdevelopment and governance failures have played a role in
augmenting the size of the crisis and limiting the preparedness capacity for the crisis situation. This calls
for devising a holistic approach in the early recovery response that focuses on inclusiveness,
preparedness, and supporting local capacities for recovery and conflict mitigation.
The proposed recommendations revolve around three pillars, the first is on the reconstruction of
conflict-affected areas, including the physical reconstruction as well as the revival of governance and
service-delivery systems. The second is livelihood-centric with a medium-term framework to support the
immediate economic survival as well as the sustainability of livelihood opportunities for the conflictaffected population, while the third recommendation focuses on building the systems and capacity for
conflict-mitigations, including empowering civil society and community organizations to engage in
constructive conflict resolution, strengthening social cohesion, and instilling the mechanisms for
preparedness and recovery support in the respective areas.
March 2012
|4
Rapid Early Recovery Assessment – Aden, Yemen
March 2012
Victims of conflict: a displaced child in
a Dar Sa’ad school who fled the conflict
area with a neighboring family.
|5
Rapid Early Recovery Assessment – Aden, Yemen
Background:
Context Description:
The demonstrations and protests occurring in the Arab world known as the “Arab Spring” have reshaped
Yemen’s future in more than one way; and can be seen as both a refreshing change on the political
front, as well as a severe economic downturn and increased hardships for the population. Nonetheless,
the outfalls of the Arab Spring on Yemen as indicated in the roadmap of the GCC agreement1 and the
associated support for Yemen’s transition towards stabilization through a revised governance structure
and a new social contract that addresses the peoples’ needs and priorities.
Apart from the national context, the geo-politics in the southern
governorates add a number of layers of complexity to the situation,
revolving around injustices and grievances that give rise to conflict.
The actors who influence the political landscape include secessionist
factions, Islamic insurgents, in addition to other groups with varying
political agendas and relationships to the national context and
regional influences.
The geo-politics in the
southern governorates add
a number of layers of
complexity to the situation,
revolving around perceived
injustices and grievances
that give rise to conflict.
Since the declaration of the secessionist movement in 2007, known
as Hirak, tensions between the movement and the authorities has
steadily increased towards violent clashes between the armed forces
and the Hirak guerillas, in their stronghold in Radfan mountains and parts of Lahej and Dale’e
governorates continued to destabilize the region, while pro-Hirak demonstrations and popular support
became increasingly vocal particularly in Aden, led by frustrated and disenfranchised urban youth whose
grievances revolve around a declining socio-economic status and limited opportunities for economic
viability.
Among alarming developments in 2011 is the complete collapse of central government authority in
Abyan governorate, following rounds of violent confrontations with Islamic insurgents. The
confrontations didn’t result in mass scale destruction and displacement only, but also the declaration of
a number of Islamic mini-states led by extremist groups expanding into Shabwa, Lahej, and more
recently Al-Baidah governorates in a seemingly organized fashion.
The clashes in Abyan governorate has resulted in a steady increase in the numbers of Internally
Displaced Persons (IDPs), reaching to 144,000 IDPs2 hosted in mainly in Aden and Lahej governorates.
This displacement has caused a serious strain over host communities survival capacity and well-being as
well as public service infrastructure, particularly on the educational system and schooling premises.
Compounded with the generic underdevelopment, this has resulted in increased pressures over local
governments to resolve the arising grievances over the needs’ of the IDPs and host communities.
The volatility of the situation across the southern governorates is particularly alarming given the little
capacity on the part of the central and local governments, civil society, and other organized structures in
the southern governorates to mitigate any additional instability. The continued presence of armed
groups throughout the region, the state-building exercise led by the Islamic extremists, as well as the
population’s frustration with the incapacity of government is among the major concerns.
1
Political Agreement brokered by the Gulf Cooperative Council to end the 2011 political turmoil.
2
Yemen Humanitarian Emergency Situation Report No. 10, 2 November 2011
March 2012
|6
Rapid Early Recovery Assessment – Aden, Yemen
Factors contributing to Instability
The south has had a history of recurrent crisis, the effects of which are still evident in the current crisis.
Besetting the conflicts of 1967, 1972, 1978, 1986, 1994, 2000, 2007, and 2011, the society in various
parts of the south have been affected by the turmoil of the conflict in varying degrees as will be
explained in due course within this assessment. However it is equally critical to review a number of
factors that influence instability in the south thereby creating a snowballing effect on the crisis situation,
those factors include the following:
Changes within the socio-economic construct
The rise of the people’s democratic republic of Yemen (PDRY) in the south and its adoption of a Marxist
agenda have threatened the predating social constructs, including the abolishment of the pyramid
structures across the south, such as sultanate families, ruling classes, and tribal configurations governing
the federation of southern Arabia under the British protectorate. The socialist regime also confiscated
private property and repeatedly used brute force in suppressing any societal organization or collective
actions outside the agenda of the ruling Yemeni Socialist Party. Following unification, attempts to
reverse these actions have opened up spaces for social frictions among various groups of society,
competing to regain or maintain their influence, thereby effectively initiating a new era of social
tensions and reducing communities’ collective resilience to shocks.
Extent of external influences
The support of communist powers to the socialist regime in southern Yemen has prompted a proxy coldwar in the region, with regional and global players working to establish networks of influence among the
regimes and powers in northern and southern Yemen. Following unification, external influences
maintained networks of patronage among political and social leaders, advancing specific political,
ideological, and/or countering the rise of other agendas in the country thereby playing a destabilizing
role within the country.
Crisis in the Horn of Africa
The influx of Somali refugees, African migrants, and other asylum seekers contributes to instability in the
country through straining the already fragile coping capacity particularly during crisis situation. The
concerns associated with the refugees extend beyond socio-economic needs and stressing the alreadylimited resources and services to political and security issues, particularly in the recent years as concerns
of extremism increase.
Extremism and Terrorism
The rise of Extremism peaked in 1998 with the declaration of the Aden-Abyan Islamic army, expressing
support for an Islamic state and overthrowing the regime, while undertaking attacks on American
interests, including the attack on the USS Cole in 2000 in the Gulf of Aden. Extremists groups continued
to regroup and remerge as Al-Qaeda in the Arabian Peninsula, Ansaar Al-Shar’eah. 2011 witnessed a
new rise of extremists, with control spanning across three governorates and evident engagement in
policing, service-delivery, and partial state-building activities in Abyan governorate.
March 2012
|7
Rapid Early Recovery Assessment – Aden, Yemen
Review of available information and information gaps:
There is little information on the baseline for early recovery and social cohesion issues for the displaced
population and host communities in the south. It was until the Mid-term review of the 2011
humanitarian response plan has shed light on the concerning developments in the south in relation to
the national unrest as well as displacement resulting from armed conflict in Abyan governorate.
In November 2011, the 2012 Yemen Humanitarian Response plan has
identified five strategic objectives for humanitarian/recovery
response in the country to guide humanitarian action across the
country. With respect to the southern region, YHRP has identified the
need for providing emergency livelihood opportunities and other
livelihood-related support with a view to decrease dependence on
humanitarian relief while encouraging sustainable coping mechanism
to decrease the vulnerability of the crisis-affected populations.
The 2012 Yemen
Humanitarian Response
Plan cites negative coping
mechanisms as a key
obstacle to recovery and
the increasing reliance on
life-saving humanitarian
support, reaching up to
90% of the displaced
population in Aden.
Key assessments of the situation were undertaken, including
assessments led by UNICEF, UNHCR, WFP, and the protection cluster
which have identified the primary needs of the displaced population, focusing on life-saving support,
food, and non-food items. ADRA, IOM, and INTERSOS have undertaken a focused assessment on shelter
issues including options for alternative shelter recommendations.
The assessments has focused on the plight of IDPs in accessing life-saving support, as well as provided a
first-hand account of the situation to marshal further support and work with the local government and
humanitarian partners such as ICRC and MSF to provide urgent support to the IDPs. However given the
life-saving nature of the humanitarian operation, little emphasis was given to the issues of social
cohesion and early recovery.
Nonetheless, the limited information available has indicated very little opportunities for income
generation, particularly given the low skill base of wage earners making them non-competitive in the job
market at areas of displacement. This is further complicated by the lack of productivity tools, such as
cooking utensils which can help displaced families generate some income as a result of food selling,
however related issues have surfaced such as increasing tensions between host communities and the
displaced population over resources, where attempts for IDPs to join day markets were seen as
competition and were met with hostility from resident merchants.
While the risk of mines, explosive remnants of war, and unidentified explosive devices remain valid
given the conflict in the south, particularly for the communities remaining in the conflict zones. This
issue was raised time and again given the uncertainty about plans to clear the conflict areas and
facilitate the return of the displaced population.
March 2012
|8
Rapid Early Recovery Assessment – Aden, Yemen
Guiding conclusions:
In response to the situational needs and gaps in information, the
focus of this assessment is derived from the need to advice the
operations of humanitarian agencies and development partners to
support the gradual move from life-saving humanitarian support
towards recovery and stabilization. This advisory and guidance
support can be achieved via strengthening the information base and
coordination in the implementation of Early Recovery programming,
working with the sub-clusters in the south and the UN Humanitarian
Country team feeding into response plans in the south.
In Principle, Early Recovery
intends to support the
phasing-out of emergency
life-saving interventions,
restoring livelihoods,
infrastructure, social
services, and basic
governance and community
organization capacities.
Emphasis on early recovery is critical as it represents the bridge between the immediate humanitarian
support, and the sustainable recovery and nominalization operations, thereby acting as an exit strategy
for humanitarian life-saving support while establishing the floor for recovery. This is becoming
increasingly critical given that Early Recovery funding in the 2011 Humanitarian response plan stood at
4%, thereby effectively maintaining the dependency of the crisis-affected population on the
humanitarian operation.
This assessment will focus on needs and priorities for early recovery, as well as focus on systemically
decreasing tensions and building social cohesion among the displaced population, host community, as
well as other groups.
March 2012
|9
Rapid Early Recovery Assessment – Aden, Yemen
Assessment Intent and Methodology:
Assessment Intent:
Reversing the repercussions of the crisis and conflicts in the southern governorates of Yemen requires
an insightful understanding of the related dynamics, and a careful study of the grievances and behaviors
of various groups, paying particular attention to the motivations to cause unrest or to engage in
constructive peace building and recovery processes. Therefore, following a series of consultations and
field visits to affected areas, UNDP/Yemen’s Crisis Prevention and Recovery Team has decided to
undertake a multilayered rapid assessment on Early Recovery and Social Cohesion geographically limited
to the governorate of Aden.
The governorate of Aden was chosen given the continued references to grievances’ dating back to
previous conflicts in 1986 and 1994 in the south left unresolved, where Aden was the clearing house3 for
grievances often through violent means. Following a series of stakeholder analysis involving the parties
involved in the conflict, as well and focus group discussions with the conflict-affected population; The
CPR team hypothesized that stability and cohesion among the populations in Aden was a proxy indicator
to the overall stability and cohesion in the southern governorates, thereby exploring the underlying
causes and dynamics that affect social cohesion in Aden would result in insightful notions for peace
building and early recovery across the region.
Assessment Objectives:
Through this assessment, the following objectives are anticipated:
 Provide prioritized programmatic recommendations for informed engagement in early recovery
and social cohesion in the southern governorates.
 Establish a baseline understanding on key grievances and underlying causes of instability and
parties to the conflict in the region, and the capacities for conflict and conflict transformation.
 Highlights areas of specific interest on issues relating to Early Recovery among various
population groups with varying political and social agendas and motivations.
Methodology:
This rapid assessment’s methodology is based on the recommendations of the IASC CWGER4 guidance
notes for local-level rapid early recovery assessments. In addition to its inherent focus on early recovery
needs within a sustainable livelihoods focus, the methodology was further adjusted to capture specific
indicators on conflict dynamics and social cohesion.
3
Note: During the assessment planning phase, the assessment team has undertaken a range of consultations with
field partners and local experts to advise on the viability of this approach and the validity of the assumption on
using data derived from undertaking this assessment in Aden as a proxy for the region. Therefore the conclusions
of this exercise are not representative but are a proxy to indicate the key issues as derived.
4
Inter-Agency Standing Committee Cluster Working Group on Early Recovery, 2008.
March 2012
|10
Rapid Early Recovery Assessment – Aden, Yemen
In a pioneering approach, the execution of the assessment followed the grounded theory5 principles
that enabled an uninhibited bottom-up feed of primary information of relevance to the purposes of the
assessment in the areas of early recovery and social cohesion. Through the use of open-ended questions
in the tools’ design and enabling open spaces for expression for the participants in the assessment,
thereby removing any restrictions on the nature of the data and issues raised to advise the development
of conflict prevention and social cohesion theories of change. This methodology will support the
development of grounded programmatic recommendations for conflict prevention and recovery that
considers local grievances, motivations, and needs.
Data Collection Strategy:
In accordance to the information needs identified via means of the YHRP and the stakeholder analysis
exercise, this assessment has used a range of five tailored tools for primary data collection, these tools
are:
- Tool 1: Sub-district key informants structured interviews
- Tool 2: Expert interviews
- Tool 3: IDPs focus groups
- Tool 4: Skill development needs
- Tool 5: Observation reports.
The sampling strategy was driven by the reviewing reports on the situation of IDPs groups across the
eight districts of Aden governorate, as accessed from the UNHCR/IDPs executive committee registration
reports. Consequently, three teams comprising of 18 data collectors were trained on the use of the
various tools and were asked to engage in the data collection exercise in accordance to a convenience
sampling strategy for informants and a division of labour plan. Daily debriefs and coaching sessions took
place with the data collection team, as well as mid-process technical debriefing and a final debriefing
report. The primary data collection results were the following:
348
Sub-district key informants structured interviews
41
Expert Interviews
22
IDPs focus groups
467
Skill development needs’ questionnaires
18
Observation Reports
The sub-district key informant interviews were as follows:
AlBuraiqeh AlMansoura AlMualla
AlShiekh
AlTawahi
Othman
17
54
38
57
41
Crater
Dar Sa’ad
43
50
Khour
Maksar
48
5
Grounded Theory is a systematic social research method that enabled capturing conflict-related indicators
outside of the traditional parameters of the Needs Analysis Framework.
March 2012
|11
Rapid Early Recovery Assessment – Aden, Yemen
Analysis and Sectoral Scoping:
Through the five data collection tools, the assessment focused on deriving multiple data from the
community level, focusing on parameters affecting four main focus areas, namely: livelihoods and
economic survival; social services sector; social cohesion; as well as cross-cutting issues. The
methodology adopted a weighted significance analysis of the various issues according to the
respondents’ priorities in a point-scale, reflected in the primary data to develop a prioritized scale of
programmatic recommendations.
The data analysis presented is a consolidation of the observations, findings, and recommendations of
the assessment team. The analysis methodology has built on the approaches of the Sustainable
Livelihoods Framework; the Needs Analysis Framework; and the Conflict Analysis Framework. This
analysis supported understanding the causes, actors, and capacities for early recovery and conflict
transformation from the derived data.
The presentation of the programmatic recommendations intends to feed into the framework for
transition to present the grounded theories of change derived from the assessment’s data. The
transitional results framework was selected given its multi layered focus on conflict prevention as well
as early recovery, putting the groundwork for comprehensive recovery planning and development. An
added advantage of the transitional results framework is its ability to highlight indisputable targets of
opportunity where a delayed intervention increases the prospects for destabilization and conflict in the
target areas.
The assessment team included specific expertise on undertaking field research, as well as specific
expertise on crisis prevention, humanitarian response, and early recovery. The team also included
experts on microeconomics as well as conflict analysis.
Assessment constraints
Among the limitations of this assessment is the geographic focus, as although it addresses the needs of
the displaced population in Aden governorate as well as host communities, the results of this
assessment do not indicate full coverage over the southern governorates affected by the conflict given
limitations of access and security particularly in Abyan governorate.
The primary data collection focused on a holistic coverage of perceptions of host communities as well as
the displaced population hosted, however it must be noted that some IDPs faced difficulty contributing
to the assessment and providing the primary data needed, requiring the assessment team to repeatedly
trigger follow-up questions and seeking clarification to help them articulate and spell-out their
respective specificities and varying needs, concerns, and priorities.
Furthermore, this assessment is by no means a comprehensive survey on the household level that
enables the reliable use of quantitative data. The quantitative data presented herein is indicative of the
perceptions of the individuals whom, with informed consent, chose to participate in this assessment.
March 2012
|12
Rapid Early Recovery Assessment – Aden, Yemen
March 2012
Several Humanitarian Agencies have
|13
installed similar facilities to make clean
drinking water available to the
displaced population.
Rapid Early Recovery Assessment – Aden, Yemen
Early Recovery Needs and Priorities:
Overview:
Through the use of the various tools in this participatory rapid assessment, a wide range of issues were
highlighted revolving around the two focus areas of this assessment, particularly Early Recovery and
Social Cohesion. The evidence generated as a result of this exercise has emphasized a range of issues
classified into four categories, namely livelihoods and economic survival, social sector, social cohesion,
and cross cutting issues.
The evidence also reflects the prioritization of needs from the perspectives of both the host
communities as well as the displaced population, towards helping both groups increase stability,
reestablish a sense of normality and move towards overcoming the challenges of displacement and
helping the conflict-affected population rebuild their lives.
The common concern raised was heightened sense of urgency
requiring prompt responses to the issues raised towards a sustainable
solution, this is particularly important for host communities which are
suffering increasing fatigue and becoming less tolerant of the
displaced population.
... humanitarian operation
would give us a meal today,
and then we will have to
wait for a month’s time to
get the next meal!
- IDP respondent
Summary of Findings:
The evidence generated from this report identified a number of key
issues that are elaborated in detail in four categories, namely Livelihoods and Economic Survival; Revival
of Social Services; Social Cohesion; and cross cutting issues. However, the following specific issues are
particularly important according to the weighted criticality of the needs derived from the assessment
results for early recovery. These issues are:
-
Relocation / Return of IDPs: Measures need to be put in place to facilitate and accelerate the
repatriation of IDPs, including a political solution to the ongoing conflict and the provision of
direct incentives for repatriation such as reconstruction and recovery schemes in areas of origin.
Clearance of the battlefield and conflict areas of Mines, UXOs, and other explosive risks also
take the highest priority to facilitate the return of the IDPs.
-
Alternative Shelters: Primarily targeting IDPs hosted in schools and other public premises, for
relocation to adequate shelter facilities until a more durable solution is agreed on in consensus
with host communities.
-
Social Services: Specific support towards restoring the social service facilities, primary schools,
as well as healthcare, water systems, and social protection networks which have been strained
in support of the IDPs at the expense of disenfranchised segments of host communities.
March 2012
|14
Rapid Early Recovery Assessment – Aden, Yemen
-
Life-saving Support: Citing primarily direct support to the displaced population, including food
rations, water, bedding, and other non-food items in support the phasing out of emergency lifesaving interventions.
-
Security: The rise of organized criminal activities as well as petty theft has raised concerns
among host community members, while IDPs primarily cited targeted violence against them
from host community members.
-
Economic Support: Referring specifically to supporting vulnerable segments of both host
communities as well as IDPs for access to opportunities in the informal economy and
unorganized sector, as well as Small and Micro Enterprises.
-
Others: These issues include a wide range of situation-specific concerns, including
environmental concerns, social and cultural issues, and other grievances.
2%
15%
Graph 1:
Representing
prioritized needs of
host communities.
22%
Repatriation of IDPs
Alternative Shelter
7%
Social Service Revival
Security
Economic Support
Other
20%
34%
5%
Graph 2:
Representing
prioritized needs of
the displaced
population.
8%
3%
Repatriation of IDPs
Social service Revival
27%
22%
Life-saving relief
Alternative Shelter
Security
Economic Support
4%
Other
31%
March 2012
|15
Rapid Early Recovery Assessment – Aden, Yemen
Livelihoods and Economic Survival:
Although the immediate effect of the conflict and subsequent displacement required urgent life-saving
humanitarian support, the humanitarian crisis was compounded by the loss of livelihoods, diminishing
prospects for economic survival and sustainability, and the increasing dependency on humanitarian
support for sustenance. This issue is particularly important given the pre-conflict underdevelopment of
the displaced population, where 51.3% of the population in Abyan was food insecure6, and 70.8% of the
population had no coping strategy to shocks7.
The pre-conflict nature of livelihoods, as indicated in the 2005 household budget survey, revolve largely
around two prime sources of income, the first is variable income derived from economic activity within
the agricultural sector, and the second is dependent on income from government salaries, welfare, and
remittances, where 37% of respondents reported access to a fixed income either via government and
military salaries or social welfare payments.
The evidence from this assessment has identified three areas of concern affecting the population’s
livelihoods and economic survival capacities, namely; loss of income from agriculture; economic
infrastructure damage; and loss of productivity assets and tools.
Loss of Income from Agriculture:
Given the fertile nature and the population concentration around the Abyan Delta area, a significant
number of the displaced population had access to income derived from Agriculture and livestock,
working in the production, cultivation, and sale of a wide array of agricultural produce, ranging from
Bananas and Papaya to Cotton and groundnuts. A significant number of households had also owned
livestock, engaged in horticulture activities and also raised chickens for self-consumption. Access to the
farmlands is also hindered by the Risk of Mines and UXOs.
However, given the displacement, this population has not only lost
access to their farmlands and income derived from agriculture, but
has also lost their means of sustenance through the agricultural yields
and livestock they had owned or left behind.
Some IDPs have brought
their sheep and goats with
them to Aden - as their
most prized possessions,
and are now raising them
inside the school premises.
Furthermore the skill level of the displaced population is irrelevant to
the demand for labor in the host community, given that their skill
- Community Volunteer
base is focused around the agricultural sector and related activity
which has no place or appreciation in Aden. Evidently, families dependent on income from the
agricultural sector are found to be the most vulnerable prior to the conflict given the limited returns.
6
7
2010 Comprehensive Food Security Survey (CFSS), WFP/Yemen.
According to 2010 CFSS Coping strategy index as percent of households.
March 2012
|16
Rapid Early Recovery Assessment – Aden, Yemen
Economic Infrastructure Damage:
The conflict has had a prime impact on public infrastructure across the major urban centers of the
governorate. There is no electricity in large parts of the governorate, market places have been
destroyed, private sector establishments have ceased operation, while government agencies are no
longer operating in the governorate.
The damage of economic infrastructure had forced many Small and Medium Enterprises out of business,
for instances the losses associated with physical damage as a result of the 3-way violent armed
confrontations and the bombardment of towns and urban centers has had been cited as the major
concern for the revival of economic activity and livelihood recovery. The governorate’s capital and the
largest city, Zinjubar, had been described as a ghost town with many ruined buildings, no electricity or
water, no transport services or shops open, and no civilian presence.
The interviewed displaced population has further voiced their frustrations given the damage to
economic infrastructure in the governorate across the board, citing that their repatriation is unlikely to
take place prior to a full reconstruction and recovery process for all damaged infrastructure, including
their homes, farms and shops, as well as public services.
Loss of Productivity Assets and Tools:
A paramount grievance was centered on the loss of productivity assets and tools, particularly for
entrepreneurs and Small and Micro Enterprise (SME) owners who had been displaced as a result of the
conflict. Livelihoods derived from economic activity such as retail, transportation, social and support
services in addition to daily workers in the informal economy are dependent on the recovery of their
respective productivity assets and tools.
According to the Yemen Microfinance Network, a vibrant SME sector was growing rapidly in the
governorate and providing many employment opportunities, however immediately following the
beginning of the conflict the default rate on microfinance loans jumped to 88%8 citing reasons of
economic inactivity and subsequent bankruptcy, loss of the SME assets and productivity tools, and
liquidating their assets to facilitate their displacement out of the conflict area.
Nonetheless, the evidence suggested that displaced wage-earners with somewhat competitive skill sets
and productivity assets were able to find employment prospects in Aden, citing examples of displaced
persons using their private vehicles as Taxis, and casual work opportunities such as handymen given the
sudden influx of the displaced population into the governorate and the growth of the overall market
size. Such opportunities were facilitated via family ties and companionate selectivity on the part of
employers with the displaced population, and do facilitate self-recovery endeavors for such less
vulnerable segments of the displaced population, while giving consideration to the needs of host
community members and not negatively effecting the labor dynamics of the resident workforce.
8
As of June 2011, jumping from single-digit default rate in February 2011.
March 2012
|17
Rapid Early Recovery Assessment – Aden, Yemen
Social Services Sector:
The strain on social services in the host community is a critical issue of concern to host communities,
with particular reference to the primary and secondary educational systems. An estimated 100,000
pupils have experienced disturbance in schooling, reducing the schooling hours by around 80% per week
using time-share and varying shifts. This disturbance is reflected in the 76% of concerns relating to the
repatriation of the IDPs, relocating them out of the schools, and the rehabilitation of the educational
premises and revival of the schooling process for pupils across the affected region.
Indeed, the influx of IDPs has strained community infrastructure and social services beyond the
educational system, as respondents have also cited issues in relation to the quality and availability of
healthcare services, specifically the availability of medication and limited professional capacity on the
ground. IDPs have noted some inconsistency in receiving social support referring particularly to the
quantity of soap detergent and frequency of receiving it.
A further specific concern was the ability of the healthcare system to respond to specific illnesses and
disease outbreaks particularly among children. Examples of this include diarrhea and digestive issues
among children, for which no healthcare services were provided. Other cited issues include
unavailability of clean drinking water, poor hygiene practices, and exposure to communicative diseases.
Emergency Education and Remedial
Education programs decreased
vulnerability of children.
March 2012
|18
Rapid Early Recovery Assessment – Aden, Yemen
Limited Accommodation Spaces:
The disorganized fashion in which the displaced persons have accessed the schools have resulted in
reduced efficiency in the distribution of the displaced population, particularly given the various waves of
displaced persons coming into the governorate. It was noted that early IDPs had less complaints on
space issues compared to the latter displaced persons who were
Suddenly we have a large
forced to compete over limited spaces available in the schools, or
number of children playing
resort to accommodation in mosques and temporary tents and
in and around the building
shelters.
and destroying property,
there needs to be some
The host community also has raised a number of issues in relation to
places where these children
the ability to host their family members and relatives who were
can spend their time
displaced from Abyan. These issues where not only raised by
instead of here.
immediate families hosting IDPs but also neighbors who have grown
agitated with the increasing number of residents, IDPs and their
children, creating tensions among host community members as well.
- Host Community
Respondent
Social Welfare
Issues relating to social welfare were also noted, particularly that the existing social welfare support
system was directed away from the traditional beneficiaries of welfare who include vulnerable segments
from the host communities, in favor of the IDP population. This shift in direction has resulted in
increased hardships among the original beneficiaries, who are now forced to compete with the IDPs for
charity and social welfare within faith-based and informal networks.
In response to the displacement, it was also noted that a number of community volunteers and youth
activists have taken the initiative and marshaled support from the community and the private sector for
the displaced population, focusing on providing urgent food, water, bedding, and non-food items for the
IDPs. This has expanded the informal social support and welfare network, and contributed to bridging
the immediate needs for the IDPs. However with the intervention of organized humanitarian relief work
the imprint of such community initiatives has faded out.
Social Violence against Women
Seemingly systemic violence against women was reported recurrently through the assessment.
Manifestations of this violence range from disallowing girls to join educational facilities, to physical
violence against women and girls that include abuse and sexual violence. Strong evidence suggests that
the displaced women and girls were subjected to specific social and cultural cruelty from their own
families, motivated by attempts to protect their families increased vulnerability as a result of the
displacement and the associated social stigmas families fear. This is evident in the rise in number of child
marriages were families marry-off their daughters to reduce the household needs while subjecting the
daughter to the risks of an early marriage. There were also reports of honor killings cited in two expert
interviews during the course of the assessment.
March 2012
|19
Rapid Early Recovery Assessment – Aden, Yemen
Social Cohesion:
The contextual analysis of the status of social cohesion in the south has identified a number of alarming
issues pertaining to current and previous conflicts and associated with multi-layered grievances that
affect the society at large. In fact the conflict and displacement has triggered a resurgence of older
grievances among the local populations in the south augmented by the 2011 crisis and calls for regime
change, feeding into a more complex array of socio-economic and cultural issues affecting the region.
IDPs relations with host community
According to the data collected, the community response towards the displaced population was found
favorable through the provision of direct support from the community in the immediate aftermath of
the displaced arrival to Aden; however this support started to wind down as the influx of displaced
population increased, and with that the increase in total needs and demand for community support.
As a result of having significant family and social ties with the host community in Aden, the relationship
between the IDPs and their hosts remained peaceful and positive despite a number of isolated
confrontations and incidents involving IDP and host community youth. Evidence that the social ties has
created a layer of social protection for the IDPs that has reduced the level of hardships faced by them,
while compelling the host community to endure supporting the influx of IDPs at the expense of the
community’s own welfare. This is increasingly causing new and additional tensions as the period of
displacement extends.
Historic Grievances
The issue of previous conflicts and historic grievances keeps on recurring when exploring the issue of
social cohesion in the south, with specific reference to the 1986 and 1994 armed conflicts, both resulting
in displacements and unsettled grievances against different groups of the society, which have resurfaced
during the ongoing displacement. An example of these grievances are the social stigmas against the
people of Abyan, whose 1986 conflict has resulted in their displacement into the north, only to return in
the south following the 1994 civil war with a perception of extended influence given their association
with the victorious party to the civil war. The history of violence in the south contributes to the social
tensions in Aden, particularly given the resurgence of Islamic fundamentalists groups reminding the
population of the atrocities of the Aden-Abyan Islamic Army in the
There is a significant risk of
1997/98 period.
violence and instability
once the current stream of
Conflicts Associated with Humanitarian Assistance Gaps
humanitarian support to
A Key concern was raised in relation to the continuation of
the IDPs in Aden stops,
humanitarian support to the IDP community, where fluctuations in
particularly if there is no
the timeliness and quantity of support received resulted in additional
recovery programming in
worries among the IDPs in camps. Similar concerns were also raised
place.
by host communities where the humanitarian assistance raised and
distributed by the society was diverted away from targeting the
underprivileged parts of the society to the IDPs.
March 2012
- Insaf Mayo, Member of
Parliament, Aden
|20
Rapid Early Recovery Assessment – Aden, Yemen
Security Issues
Among the key concerns for the host communities was the security issue, where the influx of
unscreened and voluntarily registered people into the governorate from the conflict area has resulted in
serious security issues. This is a key concern where 7% of host community respondents cited an increase
in security-related incidents, including the mention of car bombs, improvised explosive devices, and the
existence of mines and other hazards particularly in Abyan.
The police system has also found itself challenged with the political instability, with no additional
capacity to secure the governorate. This issue is further compounded by complaints on the rise of
organized criminal activity, engaging in burglary, assault and armed violence, according to the
respondents. The correlation between the rise of organized criminal activity and the influx of IDPs
reinforces the perception that the IDPs are engaged in such activities.
Furthermore, the IDPs have also cited targeted violence against them from the host community
members, specifically the youth. This includes recurrent verbal violence and preventing IDP youth of
taking part in social and sporting activities organized by host communities, extending to the occasional
physical abuses to drive IDP youth out of host community facilities, usually associated with accusations
of theft and scoping targets for burglary.
The area elder (Sheikh-AlHarra) demands YR3000 to
Lack of Engagement of Local Authorities
give you a paper
Although the local councils has formed dedicated committees to
confirming you are a
address the issues associated with IDPs, ranging from the voluntary
displaced family in Aden, if
registration exercise to arranging housing in public premises and
you can’t afford this paper
coordinating relief support, the host community has expressed grave
then you can’t get
disappointment with the preparedness capacity of local authorities,
registered to receive food
referring to the initial denial of strain on the community, towards the
support
poor response rate and the very limited preparedness capacity on the
part of the governorate to manage and coordinate the influx of IDPs.
- IDP in Mansoura
Despite the existence of a crisis preparedness committee chaired by the governor and the chief of civil
defense in the governorate, the crisis committee has not met in its capacity to address the IDPs issue,
while the IDPs executive committee has established presence in Aden two months after the first wave of
IDPs, with the purpose of engaging international and local partners in the relief operation.
IDP-related Violence
The displacement has evidently taken its toll on the relationship among the IDP population, resulting in
competition over space, resources, and relief allocations. Such conflicts prompted the formation of IDP
management committees formed among IDP groups at schools and other public premises at the
demand of relief partners. However, accusations of corruption relating to the committee listing of
additional names of non-present IDPs and diverting received relief items away from the IDPs resulted in
new confrontations among the IDPs.
March 2012
|21
Rapid Early Recovery Assessment – Aden, Yemen
Cross-cutting issues:
The evidence in this assessment has highlighted a number of cross-cutting issues as a result from the
conflict situation and displacement. These issues affect host communities as well as the IDPs, and have a
profound impact on social cohesion and the recovery scene. These issues include:
Food Insecurity:
A common concern among the displaced population was the continued need for food and nutritional
support covering the IDPs as well as host communities. Several respondents have cited that the food
basket was not sufficient given that the IDPs living with host communities have to share their rations
with host communities as a contribution to the household, especially if the host family is surviving on a
limited income and is suffering from under nutrition given the recent increases in the prices of foodstuff
in the months prior to the crisis.
There were also concerns around the consistency and variety in the food basket delivered to the IDPs.
Issues were raised on the fit of the food basket to the dietary habits of the displaced population,
particularly given the number of children and infants among the IDPs requiring additional nutritional
support. There are also several citations of heads of households liquidating food support and selling the
food rations among other non-food items provided to the IDPs for cash.
We were three families,
Psycho-Social Needs:
fleeing by boat to Aden.
The trauma of the conflict and the displacement has evidently caused
We saw the army ship
a number of psychological needs particularly among families which
shooting rockets over our
have been exposed to first-hand violence, forcing their displacement
heads into the city
during the conflict into neighboring areas, usually under hardship
[Zinjubar]; we were
circumstances and enduring stressful events. Those issues are also
horrified expecting the boat
linked to dignity and socio-cultural stigmas affecting the displaced
to shoot at us as well.
populations, resulting from having a number of families living in the
same quarters and their need for the charity and support of host
- A displaced woman
communities at the expense of confidence, self-esteem, and psychosocial wellbeing. Support is further needed to help IDP families who
have lost loved ones during the conflict, to help facilitate grievance, easing and helping the displaced
population come to terms with their new realities and provide psycho-social services for the affected
population.
Environmental Issues:
The influx of IDPs has had a number of negative spillover effects on the environment in Aden
governorate, primarily straining the waste disposal system, which does not have the capacity to cater
for an additional IDP population in the governorate. Furthermore, issues pertaining to cleanliness and
hygiene within the schools and public premises hosting IDPs were also cited, where the lack of sufficient
latrines and waste management systems within these premises have resulted in environmental concerns
for the surrounding communities.
March 2012
|22
Rapid Early Recovery Assessment – Aden, Yemen
March 2012
|23
Three generations of one family:
leaving their lives, homes, lands, and
livestock behind to be displaced in
Rapid Early Recovery Assessment – Aden, Yemen
Aden.
March 2012
|24
Rapid Early Recovery Assessment – Aden, Yemen
Programmatic Recommendations:
Speaking of over 60,000 displaced persons in Aden governorate alone, coupled with a large number of
host community members who were affected by the conflict and had to endure hosting the displaced
population; the recovery floor refers to the starting point for early recovery, varying with different
groups as the existing capacities and opportunities for recovery that can be capitalized on vary. For
instance, although 48% of the adult IDPs did completed secondary education, they do have the generic
understanding that their current levels of technical competency and skill is different from the needs
within host communities, representing an opportunity for their engagement in skill rehabilitation
schemes that can improve their self-dependency and economic resilience in the medium-term.
In response to the early recovery and social cohesion concerns raised, a number of programmatic
recommendations have been devised by the assessment team to help guide responses to the situation
in facilitating the transition from the emergency setting to the recovery and post-crisis situation. The
programmatic recommendations are described under a 3-pillar package of interventions, building on the
available information on the recovery floor in the area of the assessment, namely: a. Accelerated
Community-Driven Early Recovery approach; b. post-conflict Reconstruction and Livelihood Revival; and
c. Strengthening Resilience and Social Cohesion.
Accelerated community-driven early recovery
The focus on supporting recovery initiatives at the community level is justified on the basis of inclusive
recovery that addresses the needs of the displaced population as well as other groups affected by the
conflict, including the non-displaced and host communities. An accelerated community-driven early
recovery approach focuses on the demand for stabilization, growth, and sustainable development in the
targeted communities. This approach refers to a holistic cross-sectoral package of interventions that
aims at reviving basic social services and facilitates medium-term socio-economic wellbeing at the
community level.
This approach focuses on capacity building initiatives for the local population to reestablish local
resource9 management and governance systems for inclusive participatory decision making to guide the
community’s recovery efforts; namely identifying local priorities, designing, implementing, and
monitoring their own recovery efforts in a bottom-up approach with the technical and financial support
of recovery partners.
The envisioned modality for community-driven programming would rely on technical advisory services
for early recovery supporting the various communities in this process, providing the capacity
development, technical know-how, as well as the organizational support for communal early recovery
initiatives, thereby facilitating communities access to a recovery funding mechanism that would give
grants for specific interventions per the request of communities, working with and through communitybased organizations for the implementation and oversight of such recovery undertakings.
9
Referring to common agricultural, infrastructure, and environmental resources at the disposal of communities.
March 2012
|25
Rapid Early Recovery Assessment – Aden, Yemen
Post-conflict Reconstruction
The magnitude of the crisis and the conflict is largely manifested in the destruction of homes, public and
private premises, as well as infrastructure systems across the conflict-affected area, requiring clear and
visible initiatives for the reconstruction, rehabilitation, and renovation of the vital infrastructure for the
populations’ resettlement and recovery efforts.
Environmental concerns in
Addressing reconstruction needs is indeed a demanding and complex
conflict-affected areas will
undertaking, requiring significant surveying and assessment efforts to
require specific attention,
support the government in systemically mapping the actual damages
particularly to address
and identifying reconstruction priorities and approach. This
public health risks and
necessitates full access to the conflict area on the bases of a cessation
extending to addressing the
of conflict and a political settlement that can facilitate such
concerns indicated by the
comprehensive planning for post-conflict reconstruction that includes
host communities, fulfilling
the physical reconstruction as well as providing the software and the
the notion of build-back
system to revive the delivery of social services.
better.
Partnerships are the approach of choice for the reconstruction of physical infrastructure, where working
with respective government agencies, development partners, and donors to coordinate programming
and support thereby meeting the recovery needs of the communities in a holistic manner. Yemen has
two previous experiences in setting up post-crisis reconstruction efforts, namely in Hadramout following
the 2008 floods, and in Sa’ada following the six rounds of conflict in the governorate. UNDP has been
engaged closely with both reconstruction funds.
Livelihood-Centric Revival
Among the key issues highlighted through the assessment is the lack of cash resources for the crisisaffected population to meet its basic needs, giving unequivocal importance to the issue of livelihood
revival through an urgent cash-for-work scheme targeting primarily wage earners from the displaced
population with a view to creating income and economic viability.
An integrated approach linking regional economic development and private sector is critical for the
success of livelihoods revival, where rehabilitation of skills and facilitating reintegration into the labour
market should be planned in accordance to the forecasted needs for skills in the region. An emphasis on
creating sustainable livelihoods in both areas of origin as well as within the host communities should
also include supporting entrepreneurship initiative and self-enterprising particularly for adolescent
youth and working age adults.
The proposed modality can extend beyond the traditional cash-for-work schemes to an extensive skill
rehabilitation, SME support, and economic empowerment program that take into account the local
needs of the labour market and growth prospects.
March 2012
|26
Rapid Early Recovery Assessment – Aden, Yemen
Strengthening Community Resilience and Social Cohesion
A cross-cutting emphasis is to help the crisis-affected communities strengthen their resilience to shocks
via means of reinforcing the social protection networks and preparedness capacity for protracted crisis
situations. This can be reinforced via working with and building the capacity of civil society
organizations, community organizations, and local volunteer initiatives.
This is particularly important given the number of social tensions flagged through the assessment among
various social groups as well as within different segments of society. Tailored responses need to be
planned and mainstreamed within the various early recovery initiatives to help strengthen community
resilience and social cohesion. Emphasis should be given to providing Psycho-social support to the
populations affected by the crisis, especially the most vulnerable segments among the IDP groups, such
as children, women, persons with disabilities, as well as at-risk youth.
Recommendations Matrix
In response to the three priority areas identified within the programmatic recommendations, this
proposed implementation framework hopes to lay the food for thought with regards to the
implementation approach and the operational aspects of implementation. This matrix recommends a
range of activities that were highlighted through the assessment exercise.
Needs Highlighted
Proposed Responses
Alternative Shelters
Social Service Revival
Life-saving support
Accelerated community-driven early recovery
programming in areas of origin; livelihood-centric
revival
Post-Conflict Reconstruction
Post-Conflict Reconstruction
Humanitarian Response Plan
Security concerns
Social Cohesion Programming
Economic Support
Livelihood-Centric revival
Relocation / Return of IDPs
March 2012
|27
Rapid Early Recovery Assessment – Aden, Yemen
March 2012
Rapid Early Recovery
Needs Assessment
For displaced population and host communities in Aden, Yemen
March 2012
|28