Developing Zaatari by Vanessa Rutgers

Developing Zaatari

Table of contents Foreword Executive summary

5 9

1. Introduction 2. Context 3. Regional scenarios 4. Camp development 5. Basic services

15 19 25 53 67

Colophon 76

Foreword The first time I visited the Zaatari refugee camp in Jordan was in Sep-

This is why the Dutch Ministry of Foreign Affairs decided to join forces

tember 2013. I wanted to see for myself what was being done to host,

with the International Cooperation Agency of Netherlands Municipalities

house and care for Syrian refugees. A year after it opened, Zaatari had

(VNG International), the City of Amsterdam, UNHCR Jordan and the Jor-

become home to more than 120,000 people. Initially, frustrations were

danian Ministry of Interior to set up a joint project to provide internatio-

running high: security was deteriorating, tensions between refugees

nal municipal assistance for the Zaatari refugee camp and local

and their Jordanian hosts were rising and pressure on infrastructure

governments in Al Mafraq Governorate. This city-to-city partnership be-

was at breaking point. The situation turned a corner when communica-

tween Zaatari and Amsterdam was the kind of progressive, empowering

tion between refugees, aid workers and Jordanian security forces im-

and sustainable model of aid that we had been looking for. It allowed

proved. But it was clear that the traditional approach of emergency aid

the needs of both Syrian refugees and host communities to be met in

was no longer meeting the growing needs of both Zaatari camp inhabi-

the long term, creating business opportunities, providing guidance and

tants and Jordanian host communities. What struck me was that the is-

tackling infrastructural problems.

sues Zaatari was facing were the same as those confronting cities the

world over.

In the middle: Lilianne Ploumen, Minister for Foreign Trade and Development Cooperation 5

My second trip to Zaatari camp took place in March 2015. It was encou-

The Netherlands is committed to supporting not only Syrian refugees

raging to see the changes brought about in just one year. People are now

but also the Jordanian host communities who have done their utmost to

given the time and space they require to go about their daily lives. In-

welcome them. It is vital that we recognise the burden placed on these

stead of receiving standard food packages they are handed vouchers,

communities. Communities adjacent to the camp report increasing

enabling them to choose what to eat. They are also opening businesses

pressure on infrastructure, decreasing water supplies, higher rents and

and engaging in other forms of enterprise. I visited a bike shop, a bar-

children facing larger class sizes and reduced hours in school. This is

bershop and beauty salon, and spoke with the owners about their old

why the project has extended its reach beyond the inhabitants of Zaatari

lives in Syria and how they are making a new start in Jordan, one step

camp to host communities in surrounding municipalities. At my meeting

at a time. Teaming up their determination and resilience with our assi-

with their mayors, it became clear how important it is that we find a ba-

stance has made the Zaatari camp a more liveable place. The City of Am-

lance between providing services for refugees and for their Jordanian

sterdam also donated bicycles, which we had the pleasure of

hosts. Our project is therefore focused on enhancing social and econo-

distributing amongst aid workers to increase their mobility. The refu-

mic development in the region by stimulating urban agriculture and

gees â&#x20AC;&#x201C; and their Jordanian host communities in Mafraq and Zaatari â&#x20AC;&#x201C;

local food production, and improving existing water supply, waste and

also benefit, using spare parts to build rickshaws and set up taxi busi-

drainage systems. Focusing on host communities, improving infrastruc-

nesses. I am convinced that this innovative way of providing aid is what

ture and assisting local authorities will have a positive impact on social

we should focus on in the future.

cohesion between host communities and Syrian refugees in the longer term. The strength of this project is its commitment to integrating these elements, as opposed to addressing them separately.

In conclusion, I would like to say how inspiring it is to be part of a project that allows us to empower people, creating self-reliance and resilience. It is with great pride that I present to you the final publication, detailing major achievements and positive changes. I would like to express my deepest thanks to everyone involved, and hope that this project and publication will inspire you as it has inspired me.

Lilianne Ploumen

Minister for Foreign Trade and Development Cooperation

Executive summary Starting in 2013, a strong working relationship has developed between the UNHCR camp management of Zaatari and the governments of Jordan and the Netherlands. At the invitation of Minister Ploumen, VNG International and the City of Amsterdam have been participating in the ‘International Municipal Assistance to Al Zaatari Refugee Camp and Local Governments in Al Mafraq Governorate’ project since March 2014. This project has been succeeded by the Jordan country programme of VNG International's 'Local Government Resilience Programme' (LOGOReP) since September 2015.

Assignment Minister Ploumen’s policy is aimed at improving the efficiency of humanitarian operations of which the project in Zaatari camp serves as an example. She asked the Dutch partners to offer advice on how the camp can develop from purely providing emergency shelter to an efficiently arranged location that can, in time, represent a sustainable added value for Jordan. Our core expertise concentrates on six themes: integral planning, water, transportation, ambulance services, waste and governance. Between 2013 and 2015, experts from Amsterdam visited the Mafraq region and Zaatari camp several times and offered advice to the UNHCR and the Jordanian government on the development strategy and the six themes listed above. On some occasions practical assistance was also provided. This publication is a provisional and concise report on the research performed in the years 2013-2015. The document is drafted for the UNHCR camp management, the NGOs involved and the local authorities.

• Due to the complex situation in Syria, the future of camp Zaatari remains uncertain • Zaatari’s population size is highly dynamic, but roughly equals an average Jordanian city • The influx of refugees causes considerable stress on the local hostcommunities • Many refugees are highly self-reliant and enterprising

General strategy The Jordanian Mafraq region borders Syria in the north, where a grave humanitarian crisis has been unfolding since the outbreak of the civil war in Syria in 2011. According to the authorities, Jordan currently hosts approximately 1.4 million Syrians (of which 639,704 people are actually registered as refugee) equalling 20% of Jordan’s population. The lack of stability in the region prohibits any accurate estimation of how long the shelter provided will continue to be needed. Zaatari camp was established as a temporary emergency shelter, but the future of the camp is highly unpredictable. That makes it necessary to thoroughly consider the investments in infrastructure, the spatial organisation and the camp facilities. Those have to be aimed at a sustainable development that leaves room for a future variety of purposes for the site, thus creating end value. This end value can be found in a spatial structure that can either accommodate residential life, facilities, commercial or agricultural development. In this regard, it might be possible to utilise the talents and entrepreneurial skills of the refugees as well. To create end value, our advice is to not develop traditional blueprint plans, but to work instead with a flexible development plan, that will mainly invest in a robust spatial structure and adequate utility services. Within this main framework the further elaboration can remain flexible and adaptable. 9

Zaatari camp and the region • In scenario planning stakeholders together identify risks, opportunities, roles and responsibilities • Therefore scenarios are a tool for risk management • Each scenario leads to its own specific set of options. Some scenarios share ‘no regret’ measures • No regret measures for Mafraq are: investments in robust infrastructure and regional services • No regret measures for Zaatari are: investments in a sustainable structure with end value

The northern region of Mafraq borders Syria. The spatial, social and economic development of the region therefore depends in part on developments in neighbouring Syria, where the future is extremely uncertain. It is therefore unwise to work with a blueprint plan for the social and economic development of the Mafraq region and Zaatari camp. In the case of an uncertain future, it is better to work with scenario planning. Taking various future scenarios into account can also be seen as a form of risk management. For the time being, the future of the Mafraq region depends mainly on two variables: the economic situation in Jordan and the region, and the war in Syria. These two variables can be plotted in the form of two intersecting axes, with four scenarios emerging in each of the resulting quadrants. A closer analysis reveals that each scenario is associated with robust measures and options that can steer developments in a positive direction. Moreover, it becomes clear that there are specific ‘no regret measures’ that make sense in all scenarios, such as investing in infrastructure (traffic, pipelines/cables, water, power) between Mafraq and Zaatari camp, regional services, and proactive investments in water, food supply and housing. In scenario planning, the process of creating scenarios is at least as important as the result. Elaborating the scenarios presents an opportunity to bring together all stakeholders to think about regional developments, risks and opportunities. Stakeholders are not just public authorities but also entrepreneurs, local residents, utility services, aid organisations and community institutions. And then there are the camp inhabitants as a vital stakeholder. Refugees are not just people that need help, but among them are many individuals with essential skills and economic potential. It is important to activate this potential, in order to generate more dynamic and development opportunities.

Camp development It is uncertain how long Zaatari will evolve as a camp, but in a worst-case scenario, the current configuration of cabins, tents and other constructions within the existing street profile would ‘petrify’. The camp would then suffocate itself, physically and economically, since the buildings and plots are not adequate to adapt to new purposes in the future and most of the streets are too narrow to construct a proper infrastructure. In short, the location would develop permanent ‘grid lock’, making a sustainable development of the camp impossible. For Jordan and the Mafraq region, it is instead important that the camp develops in a flexible manner through which it can fulfil various functions in due time: as a residential suburb, as an industrial park, as a military complex, as an agrarian industry, or whatever else. For this to happen we propose the following steps: 1. Define a hierarchy within the existing grid and decide which streets will become the main grid; 2. Make sure that the size of blocks and areas within the main grid is sufficient for a variety of future developments and land uses; 3. Make sure that the main grid will function as planned, with ample space for traffic, parking and public transport, commercial and public services. In the main grid the transverse street profile should be designed carefully with strictly defined dimensions; 4. Create underground infrastructure (electricity, sewerage, water) only in parts of the grid that correspond with the desired future block sizes; 5. Reserve zones adjacent to the main grid for future additions, which can be linked to the main grid like plug-ins. These could consist of a bus station, a clinic, a secondary school et cetera.

• A larger grid than the current one, with modern infrastructure, will ensure multifunctional end value • Enforce a functional hierarchy of roads, with matching traffic types and street profiles • Reserve zones and spaces in the main grid for future services • Allow for spontaneous micro development within the main grid • Apply principles of ‘place-making’ to enhance a sense of identity, home and community

Refugees are more than just crowds and numbers: they are also individuals with normal social and emotional needs. It therefore contributes to social stability if the camp inhabitants – despite their situation – can also feel ‘at home’ there, with a new sense of identity, as part of a new social fabric. Taking these needs into account in spatial planning is referred to as community building or ‘place making’: • Plan social spaces, such as the mosque or market, directly adjacent to the main structure; • Copy the urban atmosphere of the homeland in Zaatari, where possible with traditional designs, techniques and materials; • Reuse temporary camp facilities, such as NGO facilities, for future central provisions; • Reserve the inner courtyards of street blocks for the communities to develop and use.

Basic services Sustainable infrastructure and utility services require considerable initial investments, but deliver cost savings and social added value in time, provided they are solidly constructed and integrally implemented. In doing so, it is important to treat each investment as a separate financial business case. Who will make the investment? What are the management costs, also in the long run? Who will benefit from the investment, and who will pay for its use? Will there be a break-even moment? Additionally, there is a potential for synergy between the services internally, between the services and infrastructure, and between the services and local stakeholders. This approach can help boost the cost-efficiency of investments tremendously.

• Services can benefit both Zaatari camp and surrounding communities • Sewerage and drinking water pipelines require an integrated plan with profile drawings • Features of a robust integral design: fewer streets with pipelines, less asphalt required, fewer pipelines running under plots and fewer pipelines crossing each other • A robust strategy leads to more cost-efficient management and operations, and a higher end value of the camp

The main infrastructure is moreover an effective instrument with which to manage and facilitate the spatial development of Zaatari camp. By building the main infrastructure only in crucial zones where other services will also be realised, the development of the camp is steered in the right direction, without requiring any forceful interventions.

1. Introduction

Introduction 1.1 Jordan-Netherlands connection There are strong ties between the Netherlands and Jordan. Ministers of the two countries regularly visit each other, and the royal families of the two nations enjoy a close relationship. In September 2013, the Dutch Minister for Foreign Trade and Development Cooperation, Lilianne Ploumen, paid a working visit to Jordan and to the Zaatari refugee camp, near the border with Syria. The humanitarian crisis in Syria had erupted fully in 2012, and Jordan received tens of thousands of refugees at Zaatari camp, initially in tents and under very difficult conditions. During the Minister’s visit in 2013, she immediately promised financial support. However, the Minister also felt that it was important to not only offer direct emergency assistance, but to pursue a sustainable spatial development of the camp. This resulted in the City of Amsterdam and VNG International offering their help in October 2013 as ‘hands-on’ advisers to the Jordanian government, the UNHCR, various NGOs and the camp management.

1.2 Scope of the cooperation In recent years, the Netherlands has reviewed and refined its policies in emergency aid and development cooperation. The aid provided to Zaatari camp concentrates on three major challenges: • Jordan must currently cope with an excessive physical, economic and social strain, as a result of receiving millions of refugees from the surrounding region. Development cooperation concentrates on alleviating the problems this is causing;

• In line with current UNHCR policy, emergency aid must support a sustainable development that benefits the host country; • The Netherlands seeks to improve the efficiency of humanitarian aid operations and development cooperation. The cooperation between the Jordanian government, the Zaatari camp management and the project team in the Netherlands took shape against this background in 2014. It was agreed that the cooperation would initially focus on the following topics: 1. Regional development: studying the socio-economic development of the Mafraq region in relation to the development of Zaatari camp; 2. Urban planning: a sustainable vision for the steadily developing camp; 3. Basic services: an Integrated plan for water (WASH), transportation, waste and ambulance services; 4. Governance: advice on decentralisation, inter-municipal cooperation and citizens participation. The year 2014 was mainly devoted to getting to know the camp, building a network of good local contacts, collecting information and filling a Geographic Information System (GIS). These activities resulted in the first instalments of advice for the Jordanian government and camp management in 2015. This investment is likely to culminate in the opening of a front office with our local partners in Mafraq, so that the ‘hands-on’ support for Zaatari can take on a very concrete and ‘day-today’ form.

Minister Ploumen and the Dutch ambassador visiting camp Zaatari 15

1.3 Purpose of this book A lot of work was carried out between the end of 2013 and 2016, recorded in a great amount of texts, figures and map materials. All this material represents a wealth of knowledge and insight, but what was lacking so far was an easily accessible and summarising book to present the key information. This book was compiled so that the Jordanian government, local partners and interested parties can quickly see and understand the main results and conclusions of the JordanNetherlands cooperation so far. It is emphatically not our intention to present a blueprint â&#x20AC;&#x2DC;master planâ&#x20AC;&#x2122; for Zaatari camp. This book mainly offers principles, scenarios, possible approaches and a small number of practical tools.

Our advisory approach is based on the premise that spatial scale levels influence each other, and therefore require an integral approach. Zaatari camp consists of four scale levels funnelling down from coarse-mesh to fine-mesh: from Jordan to the province of Mafraq, to Zaatari camp, and finally to the level of technical engineering and utility services. The structure of the book follows the same order, with chapters forming an interrelated whole.

1. Introduction

1.4 Navigation for reading

Chapter 2 sketches the global context of the book, describing the refugee problem in Jordan, some introductory information about Zaatari camp in the Mafraq region, and the organisational setting of our work. Chapters 3 to 5 address, respectively, the regional scale level, the spatial development of the camp, and finally the basic utility services within the camp. Each chapter begins with a few summarising highlights for the reader.

The Netherlands has long been a densely populated country, perpetually battling against an excess of water. This has driven the growth of extensive expertise in the area of spatial planning, utility services and ways of working cooperatively with diverse stakeholders 17

2. Context

Context • Due to the complex situation in Syria, the future of camp Zaatari remains uncertain • Zaatari’s population size is highly dynamic, but roughly equals an average Jordanian city • The influx of refugees puts considerable stress on the local host communities • Many refugees are highly self-reliant and entrepeneurial

2.1 Jordan and refugees Jordan borders countries beset by grave and enduring humanitarian problems. As a consequence of several crises, in the past decades millions of people have fled to Jordan, especially from Syria, Palestine and Iraq. On average, 10% of refugees live in refugee camps, while the majority is absorbed into the cities, formally and informally. Life in the city is by no means easy for them: around 83% live below the poverty level. On a total population of 9,5 million people, the influx of refugees poses a serious challenge in different respects: socially, economically and physically. Jordan therefore receives practical and financial support from the UN, numerous donor countries and dozens of NGOs.

2.2 The Mafraq region Mafraq is a large province to the north-east of the capital Amman, bordering Syria and Iraq. It is also one of the least populated regions of Jordan, with a population

Camp Zaatari with Al Za’atari village in front

of a little over 300,000. It has an arid climate. Economically, Mafraq depends on growing fruits and vegetables, on a number of gas fields, and on the presence of military bases. Its capital, also called Mafraq, has around 130,000 inhabitants.

2.3 Zaatari refugee camp Zaatari refugee camp is located 12 kilometres from the Syrian border. It was established in the summer of 2012, when masses of refugees crossed the border. The refugees mainly originate from the cities of Daraa, Homs and (the vicinity of) Damascus. The number of camp inhabitants fluctuates significantly. In April 2013 it was home to 202,000 people, declining ever since to a current number of around 80,000 inhabitants. Just after it was established, refugees were housed in tents. These have now largely been replaced by 24,000 cabins and other types of shelters. There is no end in sight to the crisis in Syria so the near future remains highly uncertain. For that reason it is impossible to predict how long Zaatari camp will continue to exist, or in what form and with what size.

â&#x20AC;¢ Refugee concentration and camps (source: UNHCR)

2. Context

2.4 Organisational context The role of our project in Zaatari camp is that of a researcher/adviser only, yet the organisational context is nevertheless complex. We need to work with various national authorities and international organisations that are each running a wide range of programmes and projects. Our work in Jordan is officially referred to as ‘International Municipal Assistance to Al Zaa’tari Refugee Camp and Local Mafraq Governorate’ and since September 2015 the 'Local Governance Resilience Programme (LOGOREP). The project has found a natural counterpart at central government level with the Ministry of Interior (MoI) and the Ministry of Municipal Affairs. These Ministries are key institutions involved in various aspects of the project’s intervention areas and specifically in the project’s work in the Al Mafraq region. The project has been operating in close alignment with with the National Resilience Program (NRP), the Refugee Response Program (RRP), and the Regional Refugee and Resilience Plan (3RP).

Jordan

Al Mafraq region with Al Zaatari Refugee camp

Al Zaatari Refugee camp

Other important collaborative partners are UNHCR and various organisations supporting refugee or host communities. A more or less complete list of partners and parties is as follows:

• Growth of Zaatari Camp, northern Jordan, 2012-2015 © UNITAR-UNOSAT

• Jordanian Ministry of the Interior (MoI) • Jordanian Ministry of Planning and International Cooperation (MOPIC) • Jordanian Ministry of Municipal Affairs (MoMA) • Jordanian Ministry of Water and Irrigation (MoWI) • Syrian Refugees Affairs Directorate (SRAD) • Governorate of Mafraq • United Nations High Commissioner for Refugees (UNHCR) • UNHCR Geneva, Amman and Zaatari • UNICEF and the United Nations Development Programme (UNDP) • Non Governmental Organizations (NGO’s), ACTED, Oxfam, ILO • Host Communities Support Platform (HCSP) • Aid projects managed by the European Union and other countries • Office for the Coordination of Humanitarian Affairs (OCHA) • World Bank • Royal Netherlands Embassy

Map of Zaatari Camp with districts •

Distribution pattern of tents and cabins in 2014, in high densities near the main entrance and shops (Shams) concentrated along the road from the entrance. In 2016 dwellings are distributed more evenly over the whole area and shops are relocated to the centre

2. Context 23

3. Regional scenarios

Regional scenarios • In scenario planning stakeholders together identify risks, opportunities, roles and responsibilities • Therefore scenarios are a tool for risk management • Each scenario leads to its own specific set of options. Some scenarios share ‘no regret’ measures • No regret measures for Mafraq are: investments in robust infrastructure and regional services • No regret measures for Zaatari are: investments in a sustainable structure with end value

3.1 Socio-economic development

3.2 Scenario planning

The reception of large groups of refugees has a major impact on the (already overstretched) facilities and resources of Jordan in general and of the Mafraq region in particular. The Jordanian government has therefore expressed interest in a planning tool to more effectively align the regional spatial planning, infrastructure and resources, economy and social facilities with the influx of refugees. In 2014, a socio-economic plan for the Mafraq region initially seemed a suitable means to this end.

Scenario planning is a strategic planning method to make flexible long-term plans. The concept originally derives from game theory and is used by multinational companies, governments, military strategists and scientists. The method consists of four steps:

However, the future of Mafraq is tied to large-scale developments surrounding Jordan: political, military, humanitarian and economic developments that are difficult to predict. Ultimately, therefore, a socio-economic plan did not seem an adequate planning tool, leading us to select the scenario planning approach instead.

2. Uncertainties and risks: each variable can be formulated in two directions, with a positive and a negative outcome. For example, the crisis in Syria might end within a few years, or remain unresolved. In this step, the dominant variables are plotted in coordinate axes;

1. Dominant variables: the Jordan response to the refugee crisis is challenged by a range of possible events (variables) that could affect Northern Jordan. Which variables are crucial? In paragraph 3.3 we identify two important variables;

3. Scenarios: the confrontation of dominant variables along two axes produces four extreme future scenarios. These scenarios are not described as desirable end situations, but as possible outcomes; 4. Strategy: each scenario is associated with specific risks, opportunities and possible (counter) measures. Moreover, the scenarios are associated with ‘no regret’ measures that are always beneficial, no matter which scenario gets the upper hand. This information is vital for decision-making and strategic investments.

Risk management In other words, working with spatial and socio-economic scenarios is not a method to predict the future, but a form of risk management. The aim is to compile a toolbox to prepare the region for any future developments. It must be said that the exercise in scenario planning described above has only been performed in a limited circle so far. The goal was to demonstrate how the method works and what it can do. We would recommend repeating the exercise of drawing up such scenarios, but this time together with all relevant stakeholders in Mafraq and Zaatari.

3.3 Scenarios for Mafraq

Identifying dominant variables

Identifying uncertainties and risks

Developing possible future scenarios

Discussing effects and anticipating strategies

The path is the goal Each scenario has certain consequences for people, communities, businesses, public authorities and other organisations. It is important to involve these stakeholders in drawing up the regional scenarios. They can contribute valuable knowledge and information in elaborating each scenario. Discussions about the scenarios need not necessarily lead to consensus, but can contribute to greater mutual understanding regarding each other’s position and role if one of the scenarios occurs. This may be even more important than the actual description of the scenarios.

In 2014 we performed a first analysis of future scenarios with spatial, economic and social components for the Mafraq region and possible consequences for Zaatari camp. For the time being, the near future in the Mafraq region depends mainly on two variables: the economic situation in Jordania and the region, and the war in Syria. These two variables can be set out as coordinate axes, producing four scenarios in the quadrants:

The horizontal axis denotes the economic situation, with complete stagnation versus vibrant growth as extremes. The vertical axis denotes the crisis in Syria, with a return to safe stability versus a further escalation of the humanitarian crisis as extremes These four scenarios are discussed in the following pages. It will emerge that each scenario is associated with robust measures that can steer the development in a positive direction. It will also become clear that there are ‘no regret’ measures that will be beneficial in all scenarios.

3. Regional scenarios

STABILITY

Scenario 1:

Scenario 2:

Repatriation of Syrian refugees and rapid regional

Partial repatriation of Syrian refugees and regional

development. Mafraq city becomes an important

economic stagnation.

(inter)regional logistics centre. Zaatari camp is re-

Zaatari camp solidifies into a new function while

purposed.

Mafraq city deteriorates.

Scenario 4:

Scenario 3:

Continued influx of Syrian refugees and rapid re-

Continued influx of Syrian refugees and regional

gional economic development. Urban expansion

economic stagnation. Expansion of Zaatari camp

between Mafraq city and Zaatari camp, creating a

while Mafraq city deteriorates. City and camp re-

network city (urban absorption).

main isolated from each other.

geopolitical stability & economic stagnation

geopolitical crisis & economic growth

STAGNATION

GROWTH

geopolitical stability & economic growth

geopolitical crisis & economic stagnation

CRISIS 27

Scenario 1

geopolitical stability & economic growth

Large scale repatriation of Syrian refugees and rapid regional development. Following increasing (inter)national demand and supply, Mafraq city becomes an important regional logistics centre. Zaatari camp is repurposed for new high-end uses.

Food: The end of the war in Syria and increasing stability enhances food production in Syria. Good food import possibilities from the North cater for the flourishing regional economy.

Infrastructure: Rising demand for (inter)national connections, collective and individual transport. The distribution network is increasingly supported by rail. Mafraq becomes an important transport hub.

3. Regional scenarios

Population: Population decreases because of empowerment and repatriation of Syrians. The remaining population lives in the form of harmonious coexisting communities.

Water: Economic growth increases water demand, but more resources become available through investments, greater efficiency and innovation.

Program: Housing demand and production rises. Economic activities like manufacturing and distribution and other forms of enterprise concentrate along main roads.

Scenario 1: Development options for Zaatari Camp

1A Camp Zaatari as small scale manufacture center

1B Zaatari as agricultural irrigation area

• Development of dwellings for accommodation of specialized (Syrian) workforce;

• Reuse of infrastructure and water management systems for irrigation;

• Economic activities along the main roads and commercial program between Zaatari and Mafraq city;

• Stimulation of (inter)national food production;

• Increasing demand for education and participation.

• Commercial activities between Zaatari and Mafraq city.

3. Regional scenarios

1C Zaatari touristic program â&#x20AC;˘ Development of leisure and commercial programs; â&#x20AC;˘ Rise of commercial activities in Mafraq city, along the main roads and between Zaatari and Mafraq.

Scenario 1: Opportunities and risks Opportunities in scenario 1

Risks in scenario 1

Regional:

• High degree of self-reliance

• Water shortage

• Stabile situation, growing economy and willing investors

• Workforce shortage

• Economic activities in construction, food and logistics for rebuilding Syria (and Iraq)

• Traffic congestion in the city of Mafraq • Deterioration of infrastructure

• Open borders and international cooperation

• Inadequate supply of housing, health care, education • Solid waste disposal issues • Disturbed Syrian-Jordan relations

Scenario 1: Robust investments The specific risks and opportunities of this scenario guide us towards the following desirable and robust investments: • Investments in all types of infrastructure; • The spatial reservation of and pre-investment in strategic areas, including strips along main roads; • Investments in the housing sector in Mafraq and Zaatari; • Investments in water management systems, efficiency, desalination and water transport; • Acknowledgement of human resources. 32

3. Regional scenarios 33

Scenario 2

geopolitical stability & economic stagnation

Following increased safety in the region, but due to a declining economic situation, only a portion of the Syrian refugees repatriate and gradually start to rebuild their homeland. Zaatari camp solidifies into a new low-end function while Mafraq city dilutes and deteriorates.

Food: The end of the war in Syria and increasing stability improves food import possibilities from the North, but the economic stagnation reduces food demand in the region.

Infrastructure: Rising demand for (inter)national connections, collective and individual transport. The highway distribution network is increasingly supported by rail.

3. Regional scenarios

Population: Population decreases because of (partial) repatriation of Syrians. Remaining population faces growing tensions in host communities because of economic decline, with an increasing risk of interregional migration.

Water: Economic decline reduces water demand, but due to lack of investments local water resources remain under stress.

Program: Economic activities like manufacturing and distribution and other forms of enterprise concentrate along main roads, but are very limited and develop slowly.

Scenario 2: Development options for Zaatari Camp

2A Zaatari as village

2B Zaatari as military compound

• Development of a low-density residential area;

• Development for military use;

• Development of commercial activities between Zaatari and Mafraq city.

• No urban or economic activities.

3. Regional scenarios

2C Zaatari as a logistic center

2D Zaatari as an agricultural area

• Reuse of infrastructure for a distribution center;

• Reuse of infrastructure and water management systems for irrigation;

• Economic activities around Zaatari.

• Stimulation of local food production; • Commercial activities in Mafraq city.

Scenario 2: Opportunities and risks Opportunities in scenario 2

Risks in scenario 2

Regional:

• Open borders and international cooperation

• Social tensions

• Self-reliance

• Interregional migration

• Construction-, food- and logistic demands for rebuilding Syria (and Iraq)

• Unemployment and poverty • Disturbed Syrian-Jordan relations • Deterioration of infrastructure • Zaatari develops negative end value

Scenario 2: Robust investments The specific risks and opportunities of this scenario guide us towards the following desirable and robust investments: • Investments in (all sorts of) infrastructure • Investments in water (and irrigation) management systems • Acknowledgement of human resources

3. Regional scenarios 39

Scenario 3

geopolitical crisis & economic stagnation

The influx of Syrian refugees continues. Stagnation of the regional economy with high dependency on donor aid. Zaatari camp expands to the South with high densities of residences. In the meantime Mafraq city deteriorates. The city and camp remain isolated from each other.

Food: Due to the economic decline and continuing crisis in Syria, regional production of food decreases. At the same time there is an increasing demand for food in the growing refugee camp and Mafraq as a whole. Demand for food import rises.

Infrastructure: Investments in infrastructure decline, but there remains a demand for efficient interregional connections and improved routes for collective transport and distribution.

3. Regional scenarios

Population: Population increases because of the continuing Syrian crisis and influx of refugees. Growing social tensions between refugees and host communities are exacerbated by the poor economic situation.

Water: Due to increasing demand for water and overexploitation of groundwater resources, water use for agriculture becomes restricted, and there are no investments or innovations in water management.

Program: Apart from the growing Zaatari camp there is no significant development programme. Due to the large influx of refugees, some new commercial activity arises along the roads between Mafraq city and camp Zaatari.

Scenario 3: Development options for Zaatari Camp

3A Waste water treatment plant for agriculture • Camp expansion to the south and development of regional waste water treatment plant;

3B Establishment of a second camp, waste water treatment plant and food production

• Agriculture using a system of irrigated fields;

• Establishment of a second camp and development of regional water treatment plant;

• Facilitation of (regional) irrigated fields by water treatment plant;

• Agriculture using a system of irrigated fields;

• Local food production;

• Facilitation of (regional) irrigated fields by water treatment plant;

• Stimulation of local and regional economy through creation of jobs;

• Local food production;

• Commercial activities in Mafraq city and along the main roads;

• Stimulation of local and regional economy through creation of jobs;

• Improvement of connections Mafraq Zaatari.

• Commercial activities in Mafraq city and along the main roads; • Improvement of connections Mafraq Zaatari.

3. Regional scenarios

3C Replacement of the camp by a Jordanian (military) compound

3D Zaatari as irrigation zone

• Replacement of the refugee camp;

• Replacement of the refugee camp (Azraq);

• Reuse of infrastructure for establishment of Jordanian compound/military base;

• Reuse of infrastructure and water systems for irrigation;

• No commercial activity growth.

• Local food production.

Scenario 3: Opportunities and risks Opportunities in scenario 3

Risks in scenario 3

Regional:

• Increasing international donations and aid

• Deterioration of infrastructure

• A higher priority on the international agenda

• Water deterioration risks and shortage

• A large and growing pool of Syrian human resources for work

• Food shortage • Solid waste disposal issues • Disturbed Syrian-Jordan relations • Social tensions between communities

Scenario 3: Robust investments The specific risks and opportunities of this scenario guide us towards the following desirable and robust investments: • Investments in (all sorts of) infrastructure (e.g. schools, hospital, roads, services) • Investments in water management and rainwater catchment systems • Investments to improve use of water and resources in the agricultural sector • Acknowledgement of human resources

3. Regional scenarios 45

Scenario 4

geopolitical crisis & economic growth

The influx of Syrian refugees continues. Zaatari camp remains dependent upon donor aid. The rapid regional development causes urban expansion between Mafraq city and Zaatari camp, creating a network city, with economic development along the main roads and urban absorption of the camp.

Food: Due to the continuing crisis in Syria and the flourishing economy, both causing a sharp increase in food demand, the regional food production falls short. The region becomes more dependent upon import and aid.

Infrastructure: Rising demand for interregional connections, distribution, collective and individual transport. Mafraq becomes a destination.

3. Regional scenarios

Water: Economic growth and expanding population increases demand for water. More resources become available and water efficiency improves through investments and innovation. Nevertheless water demand is higher than the natural recharge. The resulting stress on groundwater causes restrictions on agricultural use.

Program: Housing demand and production increase. Economic activities like manufacturing, distribution and other forms of enterprise concentrate in Mafraq city and along main roads.

Scenario 4: Development options for Zaatari Camp

4A Mafraq ‘free zone’

4B Zaatari as residential area

• Free zone development at the King Hussein Bin Talal Development Area (KHBTDA);

• Establishment of Zaatari residential area, with mainly a Syrian workforce;

• Camp expansion to the south side;

• Economic activities in the city and along the main road between Zaatari and Mafraq city;

• Acknowledgement of Syrian human resources for workforce;

• Increasing demand for education and participation.

• Stimulation of local and regional economy through creation of jobs; • Commercial activities in Mafraq city and along the road between Zaatari and Mafraq city. 48

3. Regional scenarios 49

Scenario 4: Opportunities and risks Opportunities in scenario 4

Risks in scenario 4

Regional:

• Stabile situation, growing economy and investments

• Water shortage

• Increasing international donations and aid

• Food shortage

• More priority on the international agenda

• Traffic congestion in the city of Mafraq

• Large and growing Syrian human resources for work

• Deterioration of infrastructure • Workforce shortages • Inadequate supply of housing, health care, education • Solid waste disposal issues

Scenario 4: Robust investments The specific risks and opportunities of this scenario guide us towards the following desirable and robust investments: • Investments in all sorts of infrastructure (e.g. schools, hospital, roads, services) • Reservation of, and pre-investment in, strategic areas including strips along main roads • Investment in rainwater catchment and water management to balance resource and demand • Investments in the housing sector • Invest in (future) Jordanian-Syrian relations and acknowledgement of human resources 50

3. Regional scenarios

Working with scenarios concludes with an integrating step: the identification of ‘no regret’ measures. These are measures that make sense, no matter which scenario the future holds in store. From the four scenarios described before, we can derive three important no regret measures: 1. Infrastructure: give priority to robust investments in the regional infrastructure, like: • Good traffic- and transport connections between Mafraq city and Zaatari camp and invest in the national highways; • Services (utility, social, health, education) that serve both Mafraq city and Zaatari camp; • Water supply, food production and housing.

2. Regional economy: investigate whether the potential of Syrian refugees can be utilised to activate the local and regional economy. Refugees are not merely consumers, but can also contribute to the economy with knowledge, skills and experience, entrepreneurship and sometimes also personal financial reserves. 3. End value: look beyond the solutions, costs and returns of tomorrow, but invest in the creation of economic end value for the long term. Investing in end value carries higher costs initially but yields sustainable returns, not only financially but in social terms as well. More on that in Chapter 4.

4. Camp development

Camp development • Larger grid than the current one, with modern infrastructure, will ensure multifunctional end value • Enforce a functional hierarchy of roads, with matching traffic types and street profiles • Reserve zones and spaces in the main grid for future services • Allow for spontaneous micro development within the main grid • Apply principles of ‘place-making’ to enhance a sense of identity, home and community

We saw in Chapter 3 how the spatial development of the Mafraq region is not served with a traditional blueprint plan because the future is too uncertain, with a wide range of potential outcomes. In such a situation we prefer to work with scenarios and the subsequently defined ‘no regret’ measures. The same line of reasoning can be applied to Zaatari camp. The camp is meant to be a temporary phenomenon, but we know that the future is unpredictable. The camp may make way for other purposes, but it may also solidify into a (semi-) permanent settlement. In the development strategy for the camp, we attempt to take the various potential futures into account so that investments will in any case prove profitable and sustainable.

4.1 Camp Zaatari today Zaatari opened in July 2012, when massive numbers of Syrian refugees started to cross the border into Jordan. According to a census conducted in early December 2015, the camp is now home to around 80,000 people, across 12 districts.

They are accommodated in a dense grid of some 24,000 cabins, trailers and tents. Zaatari camp has now evolved into a medium-size settlement, with facilities that include: • 2 supermarkets; • kitchens; • WASH blocks; • mosques; • 5 primary schools; • 27 community centres; • 7 playgrounds/sports courts; • 2 small field hospitals; • 2,500 refugee-operated businesses. The basic facilities are spread evenly across the districts. Central facilities and informal businesses are mainly found lining the ring road and main axes

4.2 Creating end value The current layout of the camp was developed according to the UNHCR handbook for refugee camps. This approach worked well in the phase when lots of people needed to be accommodated quickly. A fine-mesh layout has emerged, in which the size of the plots is still determined by the original structure of the tented camp. Zaatari camp has now developed into an urban community, along with the maintenance issues of a large city. The camp costs around $500,000 per day to run and a key question is what these investments will ultimately deliver for the future. What will Zaatari camp contribute to the Kingdom of Jordan if, one day, it acquires a different purpose or gains a permanent status as an urban settlement? What will its end value be in economic, ecological, technical and social respects? This end value is mainly determined by the quality and functionality of the spatial layout that is taking form today. If we opt for a spacious and adaptable layout, with a modern main infrastructure of roads, cables and pipelines, then a sustainable site may emerge that Jordan can eventually use for a variety of purposes, such as for high-tech agriculture or industries, a science campus, logistics centre, village or town, military compound, and so on. If we do not make this choice now, then chances are that the camp will solidify in its current form, as has happened previously with the older Palestinian camps. The dense ‘tented camp’ structure of roads and building blocks may then frustrate every form of development, and even basic utilities like water, sewerage and electricity will be expensive to provide. This can result in an overpopulated, poorly functioning and unsafe city, without economic value and lacking any real perspective. The goal is to prevent this ‘default development’ from occurring in Zaatari. The challenge is therefore to apply a spatial strategy that will generate a maximum end value, in spatial, economic, ecological, technical and social respects. In this chapter we examine how urban planning can contribute to that end value.

A robust main structure of streets and (underground) utilities is able to accommodate a wide variety of end uses 54

4. Camp development

â&#x20AC;˘

value Z not tents infras

End value of Zaâ&#x20AC;&#x2122;atari is not the tents or caravans but the infrastructure of the camp

4.3 Thinking in layers Traditional urban planning prefers to work with a blueprint plan, where streets and squares, living, working and social services are designated with the precision of an inch. This can be useful when the future is largely predictable, but doesn’t leave any room for spontaneous and unexpected developments. Blueprint planning does not make sense in the case of a refugee camp such as Zaatari, where the size of the camp can fluctuate tremendously and the future purpose of the site cannot be predetermined. Yet there is one urban planning principle that can be applied fruitfully here, namely the layer approach. From an urban planning perspective, the camp consists of ‘hard’ and ‘soft’ layers that are hierarchically arranged and both determine how the camp operates: • Hard layers are the infrastructural frameworks of the camp. They require large investments to create and are difficult to modify in a later stage; • Soft layers are the dynamic contents within the frameworks. They are flexible and can be adjusted more easily to a changing context.

Refugee camp Baqaa, Amman 1968

Investing to achieve a high end value mainly requires investing in hard layers. With regard to Zaatari camp, it is therefore important to invest in a less dense but higher quality structure of streets, plots and pipelines. This improved grid will become a hard layer that is difficult to modify at a later stage. But it will make Zaatari less expensive to operate, and will prove to be a strong determinant of the site’s end value.

Urbanization of refugee camp Baqaa based on the orginal fine camp structure

4. Camp development

Max

• Camp integral existing structures

Soft structures • Amenities (retail, social structures)

Adaptivity

• Shelters and tents

• Facilities (Ngo’s)

Soft or ‘dynamic’ structures

• Grid

• Roads

Min

• Boundary, Landscape

Hard structures Hard or ‘static’ structures

4.4 Grid as key factor From the perspective of the layers approach, it is important that the original grid of Zaatari camp is optimised in the near future. The standard UNHCR camp layout consists of a dense tissue of perpendicular narrow streets. As described in paragraph 4.2, there is a risk that this current dense grid will â&#x20AC;&#x2DC;petrifyâ&#x20AC;&#x2122; into a permanent mesh of streets, alleys and blocks. Therefore, the main intervention that we propose consists of the following steps: 1. Define a hierarchy within the existing grid and decide which streets will become the main grid; 2. Make sure that the size of blocks and areas within the main grid is sufficient for a variety of future developments and land uses; 3. Make sure that the main grid will function as planned, with ample space for traffic, parking and public transport, commercial and public services. In the main grid the transverse street profile should be designed carefully with strictly defined dimensions; 4. Create underground infrastructure (electricity, sewerage, water) only in parts of the grid that correspond with the desired future block sizes; 5. Reserve zones adjacent to the main grid for future additions, which can be linked to the main grid like plug-ins. These could consist of a bus station, a clinic, a secondary school et cetera. The grid determines the development The main grid can be compared to a system of blood vessels that supplies the surrounding tissue with oxygen and nutrition. Within this main structure we find the main facilities, such as shops and medical care. The major pipelines for water, sewerage and electricity are also built here. The consequence will be that the surrounding fields will orient themselves on this main structure, so that the pervasive fine-mesh grid will gradually dissolve and make way for a new spatial arrangement within larger-sized blocks. 58

The interior of these blocks can be designed and developed mainly by the inhabitants. The new larger-sized fields provide room for own initiative, co-creation and spontaneous development at the micro-level. A strict main structure is not a planning straitjacket, therefore, but a means to facilitate the campâ&#x20AC;&#x2122;s further development.

4. Camp development

â&#x20AC;˘ Camp grid

Shelters layout

New block structure (maximalized 70x210)

Low density block

High density block

Existing block structure (maximalized 40x210) Secondary streets

The original grid is based on UNHCR design guidelines for tent settlements. A more sustainable structure is based on a larger grid and block size. This is a transition process in which streets and utilities are placed in a new hierarchical order. A larger block (the â&#x20AC;&#x2DC;cellâ&#x20AC;&#x2122; in the grid) provide better opportunities for clustering tents and cabins, fitting the lifestyle of the local community. It also improves the possibility of growth and change within the grid. A large grid improves spatial efficiency: less space needed for infrastructure, more space available for dwellings

Main roads 59

• Existing grid

• Proposed grid

The philosophy behind a hierarchy of streets is that a certain street design allows for certain kinds of traffic. Some are fit for car traffic, some for pedestrians (like the market street). In the current transition of the camp, making a sewerage and drinking water network also determines the function of a street, because the infrastructure requires a certain minimum width of the street

Public space / street zone

Building line

Asphalt

• Public space / street zone

Pedestrian zone

Building line

Pedestrian zone

6m 16 m

Corridors services 3m

4. Camp development

4.5 Transport services With an estimated 80,000 inhabitants, Zaatari camp has a considerable potential transportation demand. Transportation is now predominantly pedestrian, with some additional private minivans and taxis. The transport services need upgrading in the near future. Roads inside the camp are not safe for pedestrians. In case of emergencies, ambulances need to come all the way from Mafraq. And due to the lack of an affordable public transport service, some inhabitants improperly use ambulances as a ‘taxi service’. Some suggestions to improve the transportation services: • Bus: create a bus station at the main gate, with a simple bus routing through the camp, connecting people to schools, hospitals, supermarkets, mosques, police stations, activity centres; • Ambulance: create an ambulance post inside the camp; • Bicycle: stimulate the use of bicycles. Amsterdam has already donated 500 bicycles to Zaatari;

Example network with busstops

• Pedestrians: create low-traffic routes, safe for pedestrians and bicycles; • Street: apply certain minimum measurements to street profiles to prevent traffic congestion.

Bicycle project

â&#x20AC;˘ Facilities (November 2015)

“....I mean the Syrians, for their wellbeing, they need a fountain and a birdcage and a plant and they need to sit next to the fountain to drink tea. That's their expression of home. So everybody at Zaatari was building fountains (…). Because when you arrive at a camp you have basically been stripped naked and lost everything that has to do with your identity. And in a camp you are treated the same as everyone else, you are supposed to eat the same, drink the same, you get the same clothes. That's the humanitarian standard....”

with local stakeholders. In this way, solutions to a spatial problem will simultaneously contribute to the local community, and vice versa. Below are some examples of places that can contribute to place-making in Zaatari camp.

4. Camp development

4.6 Building a community

Kilian Kleinschmidt (camp manager 2012-2014) The grid described in paragraph 4.4 is part of the physical hardware component of spatial system, along with the transportation routes and utility services. There is a second organising principle, however: the human component, or the software of a camp. People feel a need for attachment to where they live, and to imbue it with their own identity, meaning and values. Social communities arise from that need, in which people relate to each other as well as to their physical environment. This we may term the ecology of a city, village or camp like Zaatari. Place-making The human component seems to develop as a spontaneous process, but that is only partly true. Spatial planning can steer or facilitate social bonds and community building. This is also referred to as ‘place-making’. Recent examples in Zaatari camp are the planning of children’s playgrounds, community centres and the social re-positioning of tents and cabins. Place-making in Zaatari camp can serve an important goal: the transition from an emergency facility into an intermediate living environment, where community building is actively encouraged. The strategy should be seeking synergy between spatial locations, functional sites for certain purposes, social bonds and economic aspects. This search process is not only performed at the drawing board, but also

Creating communal spaces 63

Structural places With structural places we mean easily recognisable sites that define the structure and hierarchy of the camp. Such sites include the entry points, the broad WASH corridors and important places along the roads. These are often centrally located, easily accessible places that can be kept safe, and can therefore serve very well to accommodate cash machines, schools, information centres, and other public services. The maps in this chapter show several possibilities for structural places, for instance: • Future community facilities for health care, education, sports and greenery. Current (temporary) locations of NGO’s can be reused for this purpose as well; • Sites for commercial functions, for instance the shops along the main routes and access roads; • Locations that might in the future give more direct access to the central part of the camp. Additionally, access gates at exit roads from the ring road, that can make the districts more easily recognisable;

• Connect to existing initiatives and add something. For example, demand for ATMs in the districts offers opportunities to create a multi-functional community place; • Use left-over spaces for permanent or temporary communal gardens or meeting places; • Repurpose former WASH blocks areas for e.g. urban farming or recreational greenery. Target groups and themes Certain groups require specific places that can sometimes be combined. Think, for instance, of women’s centres combined with children’s playgrounds and laundry facilities, or sports grounds combined with schools. The same applies to community places created around a certain theme, like agriculture centres for testing and information, computer training facilities and business development centres.

• Wadi’s that are able to collect rainwater, and sites usable for agriculture; • Reserve areas between Zaatari camp and its surroundings, that can accommodate a future regional programme for health care, education, social facilities and agrarian production. Community places With community places we mean locations that are suitable to be given collective significance for large parts of the camp. It can be a centrally located open area, but can also be a new function or further development of a current public function. This could be, for example, a market at the site of a former field hospital or bus station (as in Baqaa), or a street with market stalls that develops into a real Souk. Spatial interventions can be: • Per district, identify obvious sites for community places, for instance at main intersections, squares, parks and important functions;

Copy-adapt-paste? The building and decorating of dwellings and community places offers an obvious opportunity for participation by camp residents. Such participation increases the likelihood of successful place-making and a socially strong community. One good method is e.g. to work with design workshops in which residents contribute ideas and even labour to build new community places. Such workshops provide an opportunity to develop the kinds of places that residents remember from home, through decoration, atmosphere, social function and architecture. This is also known as the ‘copy-adapt-paste’ principle.

Spatial reservation and zoning makes it possible to immediately accommodate unexpected aid by donor countries. These zones have a logical relationship with the hierarchy of streets, the routing of public transport, streets for car traffic, streets for shopping and streets for pedestrians

Surrounding Urban settlements Asphalt roads Agriculture Creek

4. Camp development

â&#x20AC;˘ Zoning map Zaatari camp

Camp structure Main asphalt roads Secondary streets Asphalt pedestrian streets Available camp area 06 Districts numbers Spatial reservation Main road connections (I, II, III...) Transfer location(s) Common zone Local and regional facilities Local and regional services Agriculture Structural places Central facilities Commercial program Facilities

5. Basic services

Basic services • Services can benefit both Zaatari camp and surrounding communities • Sewerage and drinking water pipelines require an integral plan with profile drawings • Features of a robust integral design: fewer streets with pipelines, less asphalt required, fewer pipelines running under plots and fewer pipelines crossing each other • A robust strategy leads to cost-efficient management, operation and a higher end value

5.1 Upgrading utilities

Zaatari utilities in 2015 Communal WASH blocks (10 x 10 metres) are spread evenly throughout the camp. A large number of households have built private WASH facilities

UNHCR has good technical handbooks on how to build WASH (Water, Sanitation, Hygiene) services in a refugee camp, but these are based on the idea of basic facilities that can be built rapidly. Thus, drinking water and wastewater are brought in and taken out, respectively, by means of lorries, and sanitation facilities are housed in communal WASH blocks.

WASH layout

Drinking water

3 wells produce 3.4 million litres water/day, which is distributed daily by lorries

An upgrading process has been taking place in Zaatari camp for some time now, so that the water supply will eventually run via pipelines and a sewerage system will be constructed. The collective WASH blocks will gradually be replaced by sanitation facilities at the household level. The table and chart indicate the current situation. This upgrading process will eventually result in a more effective use of resources – particularly in terms of drinking water – and reduced soil pollution. As a consequence, the sustainability of the utility services will improve.

Wastewater

Is transported by lorries to a newly built containerised treatment plant at Zaatari camp

Solid waste

About 60 lorry loads (750 cubic metres) are transported to an external dumping site daily

Electricity

Recently all 12 districts have gained access to low-cost electricity, from 7 pm to 3 am. The intention is to increase the availability of solar energy

â&#x20AC;˘ Water and sewerage network

Engineering draft of the proposed water and sewerage network. Spatial elements are grouped in every street, both underground as on the surface

and carefully mapped. And last but not least, the corridor allows for replacing a pipeline without the need to remove other pipelines first.

1. In fully occupied streets and roads, urban planning adopts the existing situation. The underground pipelines are constructed within the existing boundaries of the road, dwellings and electricity poles;

Drinking water and sewerage networks Zaatari is one of the largest refugee camps in the world, in one of the most waterscarce areas on earth. Since its establishment in July 2012, drinking water has been delivered to communal WASH blocks and tap points across the camp by lorries. Wastewater has been transported out from these WASH blocks and from unregulated, self-constructed wastewater storages next to family households. Water and sewerage networks with household connections are currently under construction. This will improve long-term sustainability in terms of equal water and sanitation access, public health, environmental impact and operational costs.

2. Along many dirt roads it is not exactly defined yet where the roadsides are. Existing dwellings seem loosely scattered along both sides of the road. In those cases urban planning can define the future situation. A carefully chosen location (strip) for the underground pipelines will become the new reference point for both the road and the buildings. Buildings will, by nature, align themselves along the position of the new infrastructure. Underground layout and corridors The camp’s main structure will need to accommodate both water and sewerage pipelines. In the relatively narrow streets of Zaatari camp, an asymmetrical positioning of the two pipelines forms the best solution to fitting both systems in the limited underground space and to avoid contamination of the drinking water. Currently extensive drawing board work is being done on underground ‘infra corridors’ throughout the camp. In general a corridor is about 3 metres wide and 2 meters deep. Contractors who dig the corridor can use existing lines of electricity poles as a reliable point of reference where to start digging. Pipelines for sewerage and drinking water are subsequently placed on different levels of depth (see cross section drawing). The sewerage pipeline occupies the lowest level, in order to prevent drinking water contamination in case of leakage. In a number of roads we propose a second infra corridor on the other side of the road. This corridor acts as a reservation for future expansions of pipelines and cables.

5. Basic services

Integral approach For the upgrading process we advocate an integral approach of urban planning and pipelines:

• Design of the main drinking water transport system The water transport system is the backbone that transports water from the boreholes to eight district reservoirs (source: OXFAM)

Working with infra corridors has several sustainable advantages. The infrastructure is tightly packed together under narrow strips of land, thus making efficient use of the available space. The standard dimensions of the corridors help prevent damage to the pipelines, because all pipelines are situated on predictable levels 69

Since 2014, Amsterdam has been offering advice on these water and sewerage networks in the camp: selecting a technical concept, the design and implementation of the network, and operation and maintenance. It is important for the camp development to integrate these networks in the spatial planning. Water and wastewater are services that are less visible to the eye, but have a considerable impact on the spatial development of the camp.

â&#x20AC;˘ Program, principles, dimensions of infrastructure of services in street section

5. Basic services

• Guideline reference point and position infrastructure corridor

• Guideline development program of components street section (in phases)

• Example of guideline principle dimensioning street section with infrastructure corridor

â&#x20AC;˘ Simplified development scheme of sewerage lines in the camp Proposition for IWWN in regard tot steel tanks at wash centers

Sewerage lines are not constructed in all streets, but the infrastructure is robust. The total pipeline lengths are kept relatively short in order to minimise the investment costs

5. Basic services

5.2 Solid waste Since 2012-2013, the collection of solid waste has been well organised in Zaatari camp. The waste is concentrated with collection equipment and transported to a large dumping site outside the camp. The situation is not sustainable, however, due to the increasing volumes, low availability of collection equipment, and the huge risk of the dumping site eventually contaminating the underground water aquifer. Building a modern recycling and incineration plant is possible in theory, but extremely expensive. This solid waste issue definitely requires further study. In the meantime, these are strategic notes: • Sustainable landfill: it is an urgent matter to develop the uncontrolled and unmonitored dumping site into a sustainable landfill. Advanced waste recycling and waste-to-energy technology is an issue for the long term; • Separating waste: start separate waste collections inside the camp: textiles, paper, plastics, metals, glass, bio-waste, chemicals. This is a low-cost quick-win, especially when organised together with Mafraq and neighbouring settlements (economy of scale);

Collecting the waste for transport to dumping site

• Composting: launch an experiment that supplies home bio-composting kits inside the camp. Many households have small home gardens where they can use compost as fertilizer; • Repair: stimulate and facilitate the emergence of local repair shops, which will reduce the amount of waste.

Dumping site outside Zaatari camp

5.4 Investment strategy The UNHCR management of camp Zaatari has to make numerous investment decisions, almost on a daily basis. Investments in housing, hardware and services with a lifetime of maybe one year, three or longer. Developing the main urban structure and upgrading the basic services, as described in Chapters 4 and 5, also requires substantial investments. Fortunately, the support of a large number of donor countries and organisations are making these investments possible. But the recurrent questions are, what investments are responsible, given the uncertain future of the camp? And what is a sensible strategy? We recognise two variables that can help make investment decisions:

1. Recoupment term The recoupment term refers to the moment when the costs of an investment have been recouped in the form of lower operational costs. Such an investment can be an effective means of achieving cost-savings in the longer term. The motivation to save costs is the fear, or expectation, that donor contributions to the structural costs of the camp will eventually no longer suffice. Working with the recoupment term is elaborated schematically in the graph below, in which the water supply of camp Zaatari is taken as an example. The graph shows that the operational costs of distributing drinking water by trucks

2. End value effect The future end value of the site is also an important factor to consider in investment decisions. Building sustainable utility services, a robust main grid and proper infrastructure are expensive, but in the long term profitable if they establish the conditions for a high-end use in the future â&#x20AC;&#x201C; as either an urban settlement or for some other special purpose. The same applies for investments in facilities for

â&#x20AC;˘ Zaatari long term donor aid, operational costs development, and return on investments

Value

rv nt se e m lop deve

ices

water purification and waste processing. This is relevant for the Jordanian government, because in the long run they will inherit the infrastructure in and around camp Zaatari, that is currently being built by donor money. Will they inherit a sustainable infrastructure with economic end value, or a set of makeshift and low quality solutions?

5. Basic services

are quite low in the beginning, but will increase year by year until they become a huge financial burden. Alternatively, building a robust drinking water network might feel expensive in the beginning, but reaches a break-even point on mid term.

In short, it is advisable to approach investment decisions for every utility service as a separate business case. What are the required investments, the costs and the returns? What is the profit model and when will the break-even point occur? And how will the investment contribute to the end value in the long term?

This schematic graph illustrates differences between emergency operations (gray) and utility development (beige) evaluated in costs (required investments) and value (return of investment) through time. Emergency operations (for example distribution of water tanks) require relatively lower investment costs in the first 3 years but itâ&#x20AC;&#x2122;s operational costs rise in time and result in a low or negative end value. Utility development (for example integrated water network) instead require high investment costs in the first years but its operational costs decrease in time and have a break even on emergency operational costs roughly after 3 years. Furthermore utility development adds end value on the long run and can bring even revenue or return on investment (for example trough billing system).

time

Costs

emergenc y services

year a year b year c

year n 75

Colophon Published by:

City of Amsterdam and VNG International

Content:

Planning and Sustainability Amsterdam

Editor:

Woordkracht 10 | Endre Timรกr

Translation:

EdenFrost Communications

Lay-out:

WisselWerking | Vanessa Rutgers

Photos a.o.:

Thijs Heslenfeld: page 8, 11/1, 12, 24, 52, 66, 73/1, 74, 78/1, back cover Chris de Bode: page 78/2 Mirande Phernambucq: page 16-17

Contact:

City of Amsterdam jordan@amsterdam.nl VNG International elger.vermeer@vng.nl

Juni 2016

Project Team Jordan

Project Director Amsterdam

Water and Sewerage (Waternet)

VNG International

Pierre van Rossum

Alex van der Helm

Elger Vermeer

Wilco Koning

Boudewijn Cnossen

Otto Ferf Jentink

Arne Musch

André Struker

Lassaad Messaadi

Deler Abdulkarim

Baker al-Hiyari

Project Management Henk van Veldhuizen Pauline Flu Martha Persoon International Relations Marleen de Groot Planning and Sustainability Hans van der Made Joan Stegenga-Rydlewska Jaap Gräber Bengin Dawod Economy / Amsterdam Economic Board Edwin Oskam Annelies in ’t Veld Nesrine Bouhab Engineering Ad Salvador Elbert Achterstraat Harold Hazeleger

Mohamed Boughlala Mohamed Hakiki Waste and Energy (AEB Amsterdam) Sietse Agema Solid Waste (City Districts) Mark Nijman Aart Bastmeijer Riny de Jonge Constance Steenmann Ambulance Amsterdam Peter Duijf Thijs Gras Transport Ton Buffing Rob van den Ban