OUT COLD OF THE. UNICEF Winterization Cash Transfer in Refugee Camps - Jordan. Post Distribution Monitoring Report

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1 OUT OF THE COLD UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Post Distribution Monitoring Report February 17

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3 UNICEF Winterization Cash Transfer in Refugee Camps: Post Distribution Monitoring Report Aristide Kielem, Jawad Aslam United Nations Children s Fund (UNICEF) Jordan Country Office February 17 Electronic version of the report can be downloaded from UNICEF_PDM_Report-WInterizationCashFeb17.pdf UNICEF Jordan Country Office amman@unicef.org Abdulqader Al Abed Street P.O. Box Amman 11821; Jordan Tel: (+962) Photo Credit: UNICEFJordan/Herwig

4 ii UNICEF Winterization Cash Transfer in Refugee Camps - Jordan ACKNOWLEDGEMENTS

5 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan iii The Post Distribution Monitoring (PDM) process for the UNICEF 16 Winterization Cash Transfer Programme in Azraq and Za atari Camps in Jordan was conducted between December 16 and February 17 and is the result of a multi-stakeholder collaboration. UNICEF would like to thank the 394 families from Azraq Camp and the 418 families from Za atari Camp who agreed to respond to the questions that informed the analysis in this report. This feedback has been crucial in increasing our knowledge of the programme s impact and to contribute to the process of continually improving UNICEF s humanitarian response for children. UNICEF is very grateful for the generous contributions from the United States Bureau of Population, Refugees, and Migration (PRM) and the Government of the Netherlands which have made it possible to improve children s resilience to cold winter weather in the camps through the winterization programme. UNICEF would like to also thank The Norwegian Refugee Council for their exceptionally effective role in the winterization cash distribution and to UNHCR and SRAD for their lead in camp coordination including issuance of permits. The coordination of this research would not have been possible without the hard work and dedication of the data collection team. We would like to thank REACH who led the data collection exercise in Za atari camp, in coordination with the Basic Needs and Livelihood Working Group. Special thanks goes to Diana Moulla, UNICEF Information Management Specialist, for her professionalism in managing the data collection process, as well as to Nadeen Al Hadidi, for the coordination of the enumerators in Azraq Camp and to Mays Albaddawi, Social Policy Assistant, for her effective administrative coordination of the programme. We would also like to thank the UNICEF volunteers (Alhan Almasri, Abdullah Al Omari, Fidaa Qawasmi, Nadean Bisharat, Yazeed Abu sunbul, Siwar Sattia, Maha Jawarneh and Amal Alshafie), Field Monitors (Rand Al Taher, Azza Marar, Hayat Al-Hadidi, Leena Adawiya, Reham Hzaineh and Tamara Alzaben) and district Field Assistants (Leen Bitar, Zaid Al Khairy, Ghufran Othman, Hani Najjar, Amal Alshafie) for their support during the implementation of the programme. Frank Roni, Child Protection Specialist and Ghaith AlJalabneh, Field support Officer, played instrumental roles in camp coordination, without which this monitoring exercise would not have been possible. We also thank all colleagues in UNICEF Jordan Country Office who supported in community outreach in the camps. We would finally like to thank Alison Hawes for her valuable support for the review and editing of this report.

6 iv UNICEF Winterization Cash Transfer in Refugee Camps - Jordan EXECUTIVE SUMMARY This report presents the findings of the Post Distribution Monitoring (PDM) of UNICEF Winterization Cash Transfer programme in Azraq and Za atari camps that took place from October 16 to January 17. The main objective of this programme was to increase children s preparedness for winter, and specifically, to decrease the adverse effects of the harsh cold weather on the health and wellbeing of children in the refugee camps. Between November and December 16, all children in Za atari and Azraq refugee camps received a oneoff unconditional and unrestricted cash transfer of JD (USD28) per child, with a maximum amount of JD 1 (USD17) for families with six or more children. The cash distribution was preceded by an intensive communication campaign to raise awareness on the cash transfer and its intended use. This campaign began a week before the cash distribution and continued throughout implementation, making use of multiple communication channels in the camps. The PDM process found that overall, the programme was successful in decreasing the adverse effects of the harsh winter on children in the camps. About 97 per cent of families in Za atari camp and 98 per cent in Azraq camp considered that their children were prepared for the winter following receipt of the winterization cash transfer. The main finding of this post distribution monitoring is that unconditional and unrestricted cash transfer is effective in improving children s wellbeing, including in camp settings, as long as the market is able to respond and communication campaign is conducted to raise awareness on the intended purpose of assistance. The report shows that in-kind assistance, which continues to be the main modality of assistance in humanitarian settings globally, is not refugees preferred mode of assistance. In addition to being the preferred modality of the refugees, cash transfer programmes also build local economies in the camps, empower beneficiaries to make choices based on their priorities, and result in the availability of quality goods at reasonable prices within the camps. Effectiveness of the cash distribution mechanism: The organization of the camp-wide distribution faced many logistical challenges. The main challenge noted by beneficiaries was the waiting time of more than an hour at the distribution point (noted by 49 per cent of those surveyed in Azraq and 7 per cent of those surveyed in Za atari). This long waiting time, especially in Za atari camp, was mainly due to people starting to queue up as early as at 4: AM for a distribution starting at 8:3 AM. In addition, with absence of ATM machines on the camps, the cash transfer programme had to be delivered hand to hand. Effectiveness of the winterization cash transfer programme: About 96 per cent of refugees in Za atari and 97 per cent in Azraq prefer cash to in-kind assistance or vouchers. In terms of the amount received, 68 per cent of the beneficiaries find it at least somewhat adequate to cover their children s winter needs in Za atari, while 7 per cent in Azraq found the amount at least fairly sufficient. The assessment also showed the importance of effective communication strategies to making cash transfer approaches successful. Through a proactive communication campaign, 98 per cent of those surveyed were aware of the programme, with 94 per cent in Azraq and 98 per cent in Za atari understanding the purpose of the cash transfer. As a result, 86 per cent of refugees in Za atari camp used the transfer to purchase winter items for their children. However, given the higher level of needs in Azraq, where many refugees had arrived during the year, fewer refugees (81 per cent) used the cash transfer primarily for its intended purpose. Additionally, 15 per cent of refugees were not able to cover the winter needs of all the children in their family with the amount received. Impact of the winterization cash transfer: The most important result of this analysis is evidence that the winterization cash transfer programme increased children s preparedness for winter. In fact, the proportion of beneficiaries who believed that their children were well prepared for the winter increased by 18 percentage points in Za atari and 72 points in Azraq after the distribution. This shows a positive impact of the programme on children s preparedness for winterization needs. In Za atari, only 7 per cent refugees declared that their children were still unprepared after benefiting from the programme. In Azraq, the proportion of families that felt that their children were unprepared for winter dropped from 65 to 2 per cent. In addition, there was no significant evidence that refugees diverted the received amount for other purposes such as tobacco or leisure activities as 8 percent of them primarily purchased winter items for their children. The PDM process found that overall, the programme was successful in decreasing the adverse effects of the harsh winter on children in the camps.

7 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan v The market response to the winterization cash distribution: Cash transfer programmes may have an impact on the quantities and prices of items in local markets. For UNICEF s winter cash distribution, 9 per cent of refugees in Azraq and 94 per cent in Za atari preferred buying children winter items in the local markets, as the supermarkets were perceived as expensive and lacking in quality items. Overall, a majority of beneficiaries were able to find quality items at a reasonable price in the local market and the supply adjusted to the increased demand induced by the cash distribution. However, given the increased demand, prices increased in Azraq markets according to 56 per cent of the surveyed refugees. Furthermore, the market observation revealed that new shops with winter items opened a few days before the start of the winterization cash transfer to refugees. In addition, there was an increased demand and supply patterns in market dynamics in both camps. Some shops that were supplying items on a monthly basis, started supplying them on daily basis due to the increased demand of the refugee families. Acronyms ATM CCG CFSME DFA JCO M&E MRO NFI NRC PDM PRM SRAD UNHCR UNICEF Automated Teller Machine Child Cash Grant Comprehensive Food Security Monitoring Exercise District Field Assistant Jordan Country Office Monitoring and Evaluation Market Research Organization Non-Food Items Norwegian Refugee Council Post Distribution Monitoring Unites States Bureau of Population, Refugees, and Migration Syrian Refugees Affairs Directorate Office of the United Nations High Commissioner for Refugees United Nations Children s Fund

8 TABLE OF CONTENTS Acknowledgements...ii Executive Summary...iv Acronyms...v 1. Background Syrian refugees situation in Jordan Za atari Camp Azraq Camp Overview of the winterization programme Post Distribution Monitoring Methodology Sampling Data collection Limitations Za atari Camp Post Distribution Monitoring Results Za atari sample characteristics Effectiveness of cash distribution mechanisms Awareness on the winterization cash transfer Impact of the winterization cash transfer Market response to the winterization cash distribution Azraq Camp Post Distribution Results Sample characteristics Source of income Effectiveness of cash distribution mechanisms Effectiveness of the winterization cash transfer Impact of the winterization cash transfer Market response to the winterization cash distribution Key Observations Conclusion...27

9 TABLE OF FIGURES Figure 1: Za atari camp map...3 Figure 2: Population share by age group (Za atari)...3 Figure 3: Azraq camp map...4 Figure 4: Population share by age group (Azraq)...4 Figure 5: Sample size by district (Za atari)...9 Figure 6: Number of children by family in Za atari...9 Figure 7: Waiting time at Za atari distribution point...9 Figure 8: Waiting time to collect the cash in Za atari... Figure 9: Preferred assistance modality by Za atari refugees... Figure : Opinion about the amount received in Za atari Figure 11: Percentage beneficiaries who want the process to be improved Figure 12: Main areas of improvement in Za atari Figure 13: Precentage Beneficiaries aware of the programme parameters in Za atari camp...12 Figure 14: Main source of information on the cash transfer programme in Za'atar...12 Figure 15: Preferred communication means in Za atari...14 Figure 16: Programme impact on children preparedness for winter in Za atari camp...14 Figure 17: Main use of the Winterization cash allowance by Za'atari Refugees...14 Figure 18: Main shopping place for children winter items in Za atari camp...15 Figure 19: Availability of desired children winter items in Za atari market...15 Figure : Sample distribution by villages in Azraq camp...17 Figure 21: Number of children by family in Azraq camp...17 Figure 22: Main source of income for Azraq refugees...18 Figure 23: Travel time to the distribution point in Azraq...18 Figure 24: Waiting time at the payment point in Azraq...18 Figure 25: Azraq refugees preferred assistance modality...19 Figure 26: Azraq refugees opinion on the amount received...19 Figure 27: Azraq refugees opinion on the maximum cap... Figure 28: Total amount received from UNICEF... Figure 29: Share of total amount received for winter that is for children... Figure 3: Awareness on programme parameters by Azraq refugees...21 Figure 31: Number of programme parameters known by refugees in Azraq...21 Figure 32: Percentage refugees reached through communication channels in Azraq...21 Figure 33: Programme impact on children preparedness for winter in Azraq camp...22 Figure 34: Caretakers perception on children preparedness for winter before and after the programme in Azraq Figure 35: Percentage families spending the cash benefit for all their children...23 Figure 36: Reasons for excluding children in intra household allocation of cash benefit...23 Figure 37: Main use of winterization cash assistance in Azraq camp...23 Figure 38: Shopping place vs preferred shopping place by Azraq refugees...24 Figure 39: Availability of winter items in Azraq camp...24 Figure 4: Prices evolution in Azraq camp...24

10 1 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 1. Background

11 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Syrian refugees situation in Jordan After six years of conflict, Syrian children are facing the world s most challenging humanitarian Crisis. Many have fled the country, finding refuge in the neighboring countries. Among its total population of 9.5 million people, Jordan hosts 2.5 million refugees, including 656,17 registered Syrian refugees (51.6 per cent children). Of the Syrian refugee population, four out of five people live out-side of the official camps, in Jordanian communities. Azraq and Za atari are the largest refugee camps hosting Syrian refugees in Jordan, among which 63,7 are children. Given the situation of children in the camps, especially during the harsh conditions of the winter months, additional support was required for refugees. This support included for winter clothes and shoes, repairs and upgrade of their shelter, and heating of their dwelling. During the winter of 16, UNICEF targeted over 154, of the most vulnerable children living in different settings, including refugee camps in Jordan, using a mixed strategy of cash support and in-kind distribution. In the Za atari and Azraq camps, all children were offered a one-off unconditional and unrestricted cash transfer of JD per child, with a maximum cap 1 of JD 1 for families with 6 or more children. The cash distribution was preceded by an intensive communication campaign to raise awareness on the cash transfer and its intended use. This campaign began a week before the cash distribution and continued for its duration, making use of different communication channels available in the camps. This report presents the findings of the post distribution monitoring of UNICEF Winterization Cash Transfer programme that took place from November to 1 December 16 in Za atari camp and from 5 to 14 December 16 in Azraq camp, as part of UNICEF commitment to assist the Syrian refugee children in need and increase their resilience during the harsh winter conditions. 1 The maximum cap was later on lifted for Za atari camp.

12 3 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 1.2. Za atari Camp Figure 2: Population Share by Age Group (Za atari) The Za atari refugee camp, the second largest in the world, is situated km east of Mafraq and 68km from Amman. UNICEF has been on the ground since Za atari Camp opened on 29 July 12. Since that time, approximately 43, refugees have passed through the camp. The population has remained relatively stable during the past year, with 8, refugees living in the camp, including 4, children (49 per cent girls). Za atari Camp has 12 districts with 2 market streets providing an adequate amount of goods and services Figure 1: Za atari Camp Map

13 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 4 1. Background 1.3. Azraq Camp Azraq refugee camp was built in 13 and is located about km from Azraq Town, 9km from the Jordanian- Syrian border and 96km from Amman. The camp capacity is 5, people but can be extended to 13,. As of December 16, Azraq camp population was estimated at 35,65 people (58 per cent of them being children). Due to the extreme deprivation they experienced prior arrival and the restricted mobility, refugees living in village five are particularly vulnerable. Figure 3: Azraq Camp Map Figure 4: Population Share by Age Group (Azraq)

14 5 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 1. Background 1.4 Overview of the winterization programme As part of its commitment to fulfil the rights of every child, UNICEF s winterization programme aims at providing children with the most suitable assistance to cope with the harsh winter conditions in Jordan. To reduce children vulnerability to winter, UNICEF provided assistance to those in need in the form of cash and in-kind assistance. Hence, UNICEF provided cash assistance to the most vulnerable Syrian refugee children living in host communities as well as to all children living in Za atari and Azraq camps. In addition where access to markets was challenging, in kind assistance was provided to the most vulnerable Jordanians and Syrians. Children living in Hadalat and Rukban borders as well as those living in Ruwaished have also been covered by in-kind winter kits. Interventions in Za atari and Azraq camps took the form of a cash assistance of JD (approximately USD 28) for all children under 18, with a maximum cap of JD 1 for families with 6 or more children 2. In Za atari Camp, the assistance was distributed from November to 1 December 16 at the NRC distribution centre. In Azraq camp, the cash distribution ran from 5 to 14 December 16 in two NRC distribution sites in Village 5 (for refugees living in the fenced area) and Village 6 (for all other refugees). In addition to the cash distribution, 7 in-kind 3 winter kits were provided to children in the Azraq reception area. The winterization cash distribution programme in camps consists of the following key components: A market assessment: With limited opportunities to leave the camp, and few shopping points, a market assessment was conducted in Azraq to analyze the suitability of a cash distribution and the capacity of the local market to respond to the increased demand expected to follow the cash distribution for winter clothes. For Za atari, given the larger market size and more robust local economy, the analysis was limited to a market observation and informal discussions with shop owners. A communication campaign: To ensure that all families were aware of the purpose, and process of the UNICEF winterization cash transfer, an outreach campaign was conducted with the support of UNICEF implementing partners 4, including a door-to-door campaign, community gatherings and information dissemination at mosques and service facilities. Ongoing awareness raising was conducted throughout the process. In addition text messages were disseminated to all camp residents about the cash transfer. A cash distribution phase: The cash distribution was done jointly with the UNHCR cash distribution for winter (JD for all camp residents in Azraq and JD per case 5 in Za atari). Cash was provided hand to hand to all caregivers. Exit interviews: Exit interviews were conducted to assess the process of the cash distribution. This was done jointly by UNICEF and NRC monitoring team. Post-distribution monitoring: Data was collected on the effectiveness of the programme and the use of the received amounts, which constitutes the main source of information for this report. 2 The maximum cap of JD was removed in Za atari camp due to the increased availability of funds. 3 In-kind assistance was not assessed in the present report. 4 Relief International, Mercy Corp, IMC, Save the Children Jordan, Save the Children International, ACTED, ACF and NRC. 5 Cases are the nuclear family unit registered by UNHCR in its registration database (family and case mean the same in this report). There may be several cases living in the same household, if the latter is taken to encompass, for instance, all persons living in the same apartment.

15 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 6 2. Post Distribution Monitoring Methodology

16 7 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 2. Post Distribution Monitoring Methodology This post-distribution monitoring (PDM) is intended to assess the effectiveness of UNICEF winterization cash assistance on children, as well as the markets response to the increase in cash availability in the camps. This PDM also provides evidence on the cash distribution operational process. The results will be used to draw lessons on best practices and areas for improvement for future winterization efforts, as well as for other humanitarian programmes in the camps Sampling The population of interest for the Post Distribution Monitoring sampling was all the cases (individual families) with children living in the camps, based on figures from UNHCR. The sample selection took into account the population size by district/village. Families were selected randomly in each district/village. A total of 394 families in Azraq Camp and 418 families in Za atari Camp have then been randomly selected, providing camp level representative samples with 95 per cent confidence intervals. In addition to the selected families, a number of additional families were randomly selected as replacements. Each enumerator was provided with a list of families to survey, and replacements were provided on a case-by-case basis. Basic family information, such as addresses and names, were treated with the utmost confidentiality to ensure the security and protection of the refugees Data collection Data collection in Azraq was led by UNICEF Social Inclusion volunteers and the field monitoring team. In Za atari camp, PDM data collection was a joint effort of a Task Force led by UNHCR/REACH under the Basic Needs and Livelihoods Working Group with the participation of NRC, Save the Children, IRD and other camp partners. Data was collected on various programmes, including UNICEF children winterization cash assistance (JD per child in the femily, up to JD 1); UNHCR cash for gas (heating and cooking) assistance (JD depending on family size); and UNHCR cash for shelter maintenance assistance (JD per family) Limitations It was not possible to apply the same post-distribution methodology in Azraq and Za atari camps. While the PDM in Azraq was completed and analyzed by UNICEF, it was not possible to complete a similarly comprehensive assessment in Za atari. The PDM in Za atari was a joint exercise covering three different distributions cycles as well as an assessment of the alternative collectors system. It was therefore not possible to collect detailed information on all the programmes on time. Challenging weather conditions, including, cold winds, rainfall and mud, as well as the long distances between villages in Azraq limited the mobility of the enumerators and slowed data collection.

17 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 8 3. Za atari Camp Post Distribution Monitoring Results

18 9 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 3.1. Za atari sample characteristics In Za atari, the total of 42,6 children residing in the camp have been covered by the cash transfer programmen. They appeared to be living in 13,441 families across the 12 districts. In order to assess the results of the winterization cash distribution in Za atari, 418 families with children were surveyed with 62 per cent of the respondents being females. The average age of the respondents was 34 years and the average household 6 size was 6.7 members, with an overall range from 2 to. Sampled families had on average 3.5 children with 54 per cent having three children or less and four per cent having more than six children. Figure 5: Sample Size by District (Za atari) Effectiveness of Cash Distribution Mechanisms D12 4 D11 28 D 32 D9 49 D8 45 D7 4 D6 33 D5 18 D4 D3 46 D2 35 D1 The distribution in Za atari Camp was done from the common distribution center, the only distribution facility available for the entire camp population. Even though a distribution schedule taking into account family sizes was communicated to the beneficiaries, overcrowding was common, especially during morning hours. Despite frequent messaging through multiple channels, more than half of the beneficiaries arrived at the distribution site very early in the morning, which resulted in an increased waiting time for a majority of recipients. Beneficiaries who came in the afternoon generally experienced shorter waiting times. Figure 6: Number of Children by Family in Za atari Figure 7: Waiting Time at Za atari Distribution Point < 3 minutes 3 min to 1 hour 1 to 2 hours > 2 hours Don't know 6 A household can be constituted of more than 1 case.

19 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 3. Za atari Camp Post Distribution Monitoring Results Figure 8: Waiting Time to Collect the Cash in Za atari No waiting time < min -15 min 15- min > min Don t know A vast majority (96 per cent) of the beneficiaries indicated a preference for cash over in-kind or voucher assistance for winter, despite the fact that some assistances (especially food based assistance) are still done through in-kind or through vouchers. A key issue when designing the cash assistance programme was determining the optimal amount of the benefit. A majority of beneficiaries found the total value of the cash transfer at least somewhat adequate to meet their children s winter needs. This was consistent with the market observation during the distribution, which showed that the price of most children winter items ranged between JD 1.5 and JD. Therefore, JD was sufficient to meet the minimum needs of children for the winter. Figure 9: Preferred Assistance Modality by Za atari Refugees While the beneficiary identification process was intended to be done through iris scan, the data entry team had to work manually, using registration and ration cards due to malfunctions in the iris scan system. In addition, beneficiaries received in-kind assistance alongside cash at the payment point. These factors slowed the payment process, and about 59 per cent of the beneficiaries had to wait more than two hours at the distribution center and half of the beneficiaries more than minutes at the payment desk to receive their benefit. 96 Cash In kind Voucher Don't know

20 11 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Figure : Opinion About the Amount Received in Za atari Figure 12: Main Areas of Improvement in Za atari Very inadequate Inadequate Somewhat adequate Adequate 6 Very adequate However, about 32 per cent of the beneficiaries reported not being able to cover their children s winter needs due to the amount of the cash transfers (especially for small families) or because the winter needs were too high to be covered by the amount received. This was a particular concern for families with older children for which winter clothes were more expensive. Shorter wait time 7 Closer distribution sites 3 2 More convenient distribution time Better processing and treatment by distribution staff Given the constraints that increased the wait time at the distribution center, 43 per cent of beneficiaries expressed the wish to see the distribution process improved. Among these, 77 per cent noted the 12 Other Figure 11: Percentage Beneficiaries Who Want the Process to Be Improved Don t know No Yes

21 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Za atari Camp Post Distribution Monitoring Results importance of reducing the wait time. Having distribution points closer to their residence, and more suitable distribution times, were also suggested as ways to improve the process Awareness on the winterization cash transfer Overall, an exceptionally high number of caregivers were aware of the UNICEF winterization cash transfer programme (purpose and total value of the cash transfer) as a result of the communication campaign. The PDM shows that 99 per cent of Za atari camp families with children benefited from UNICEF 16 winterization programme. All those who received the assistance were reached by the communication campaign and knew the amount and the intent of the transfer. Figure 13: Precentage Beneficiaries Aware of the Programme Parameters in Za atari Camp Figure 14: Main Source of Information on the Cash Transfer Programme in Za'atari 98 Aware of total amount Aware of intent of the money Aware of both Yes No Flyers and door to door 13 Word of mouth 1 Text message Other means The effectiveness of the communication component of the programme was a result of a multi-faceted approach. UNICEF worked with all its partners in Za atari camp, with community mobilizers visiting each caravan to explain the purpose and details of the programme. The outreach team distributed flyers to caravans, local markets and all facilities in the camp, including schools, hospitals and Makani Centers. In addition, text messages were sent to all beneficiaries. The PDM shows that 99 per cent of Za atari camp families with children benefited from UNICEF 16 winterization programme.

22 13 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan

23 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Za atari Camp Post Distribution Monitoring Results Figure 15: Preferred Communication Means in Za atari 6 Figure 16: Programme Impact on Children Preparedness for Winter in Za atari Camp Flyers Text Messages 1 Mosques 1 Community mobilizater/word of mouth 1 Other 4 Very prepared Prepared Before Somewhat Prepared After 7 3 Unprepared Very Unprepared Most refugees prefered communication channels such as flyers and text messages, with human-based information channels prefered by less than three per cent of the beneficiaries. While 49 per cent of beneficiaries would have prefered being reached through text messaging, almost none cited text messages as their main source of information for the winterization programme. This shows an underuse of text messaging as a tool for camp information, and signals a need to centralize the phone information of camp inhabitants for use as the primary communication channel in Za atari camp Impact of the winterization cash transfer The winterization programme was intended to allow families to better prepare their children to face often harsh winter conditions in Jordan. The impact of the programme on children s preparedness for winter was positive. The proportion of families that felt their children were not well-equipped for winter dropped from 13 to 7 per cent after the cash distribution. For those families that still feel unprepared for the winter, the amount received may have not been sufficient to cover the winter needs for all their children. One of the most common concerns about unrestricted and unconditional cash transfers is that beneficiaries might not use the cash for its intended purpose. However, during the winterization programme, despite competing priorities, a majority of refugees (79 per cent) put the transfer towards their winter needs, prioritizing children. Even for those who used most of the cash assistance for a more pressing family priority, refugees still spent some of the money on winter clothes for their children. Over 86 per cent of the respondents declared having bought winter items for their children. Adult winter clothes, shelter maintenance and heating gas were also key priorities for families during the winter. Figure 17: Main Use of the Winterization Cash Allowance by Za'atari Refugees Children Adult winter winter clothes clothes Shelter & gas Food Debts Others 5

24 15 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 3. Za atari Camp Post Distribution Monitoring Results Figure 18: Main Shopping Place for Children Winter Items in Za atari Camp Local Market 5 Outside the camps 1 Large formal supermarkets Other 3.5. Market response to the winterization cash distribution Za atari has a large well-functioning market with affordable items. Market observations prior to the implementation of the programme showed that the local market had enough capacity to supply an increased demand of winter items. Figure 19: Availability of Desired Children Winter Items in Za atari Market 2 The winter cash assistance was mainly spent in the market inside the camp (94 percent). Almost all those who bought winter items for their children were able to find the desired items in the market, showing that the Za atari market responded well to the increased demand for winter clothes. Large formal supermarkets had a negligible market share due to their slow responsiveness to the shift from vouchers to cash assistance; only five per cent of beneficiaries used the money outside the camp in total. No 98 Yes Almost all those who bought winter items for their children were able to find the desired items in the market, showing that the Za atari market responded well to the increased demand for winter clothes.

25 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Azraq Camp Post Distribution Results

26 17 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 4.1. Sample characteristics Figure 21: Number of Children by Family in Azraq Camp Azraq camp was host for 21,53 children. The winterization cash distribution programme in Azraq reached 21,54 children (98 per cent of the target) living in 6, families. To assess the effectiveness of the programme in Azraq, a representative sample of 394 families was randomly selected and surveyed with 66 per cent of the respondents being females and 56 per cent being the head of the family. The average family size was 5.65 members, ranging from 2 to 17 members. The average number of children in the sampled families was 3.7 with 46.8 per cent girls. Figure : Sample Distribution by Villages in Azraq Camp Village2 117 Village3 127 Village5 4 Village Source of income In Azraq camp, almost all refugees (96 per cent) rely on humanitarian assistance to meet their basic needs. However, humanitarian assistance appears not to be sufficient, with camp residents seeking out additional sources of income wherever possible. Seventeen per cent of the beneficiaries declared having additional income from paid labour and 4 per cent have small businesses. When not able to find an income generating activity, some refugees had to ask for money (4 per cent) or rely on remittances (3 per cent) to survive.

27 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Azraq Camp Post Distribution Results Figure 22: Main Source of Income for Azraq Refugees Figure 23: Travel Time to the Distribution Point in Azraq NGO/UN assistance only +Paid labor +Asking for money +Small business +Remittances Other sources < 15 minutes 15 to 3 minutes 3 to 45 minutes 45 min to 1 hour More than 1 hour Don't know 4.3. Effectiveness of Cash Distribution Mechanisms Azraq camp has relatively long distances between service points, increasing travel time within the camp, except for refugees living in Villages 5 and 6 who had a distribution point close to their places of residence. Sixty-two per cent of beneficiaries had to travel more than 15 minutes to reach the distribution point and about half of them had to travel between 15 and 3 minutes. Once at the distribution center, refugees waited a relatively long time to get to the payment point. Half of the beneficiaries had to wait more than two hours at the distribution point before receiving their money. Figure 24: Waiting Time at the Payment Point in Azraq < 3 minutes 3 min to 1 hour 1 to 2 hours > 2 hours Don't know

28 19 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Consistent with the market assessment and the results of the exit interviews, almost all refugees (97 per cent) prefer cash for winter assistance, despite sometimes receiving humanitarian assistance in-kind or through vouchers. Some refugees in Azraq camp are among the new arrivals to Jordan, meaning that they were benefiting from the winterization programme for the first time. The presence of shoeless and ill-clothed children in the camp was an indicator of how important winter assistance would be for refugees in the camp. Fifty per cent of beneficiaries reported that the amount they received was not sufficient or was only fairly sufficient to cover their children s winter needs, and only 17 per cent of beneficiaries considered that the benefit was absolutely sufficient. A maximum cap of JD 1 was set due to resource constraints and affected less than nine per cent of the beneficiary families living in Azraq camp. However 42 per cent of Azraq refugees perceived the cap as unfair. Figure 26: Azraq Refugees Opinion on the Amount Received Not sufficient Fairly sufficient Mostly sufficient Absolutely sufficient Don't know Figure 25: Azraq Refugees Preferred Assistance Modality Cash Vouchers In kind Don t Know

29 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 4. Azraq Camp Post Distribution Results Figure 27: Azraq Refugees Opinion on the Maximum Cap 4.4. Effectiveness of the winterization cash transfer The winterization cash distribution in Azraq camp reached 99 per cent of targeted beneficiaries. UNICEF assistance averaged 36 per cent of the total assistance received by refugees during the November distribution 7 and represents between 25 and 5 per cent of the total assistance received by 89 per cent of the beneficiaries. Figure 28: Total Amount Received from UNICEF Fair Unfair No opinion JD JD JD 4 JD 6 JD 8 JD JD 1 Figure 29: Share of Total Amount Received for Winter That is for Children This distribution also included UNHCR cash assistance for all cases living in the camp.

30 21 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan An intensive communication campaign aimed to inform all camp residents of the programme used multiple methods of communication. Through this campaign, 96 per cent of beneficiaries were aware of at least one key programme parameter (intent of the money and amount) before the distribution, while 2 per cent became aware of the programme parameters at the distribution point and only 2 per cent received their benefit before knowing its intended purpose and amount. Figure 3: Awareness on Programme Parameters by Azraq Refugees Banners and flyers were the primary sources of information for 69 per cent of beneficiaries. To ensure that those who had not been reached by the door-to-door campaign had the required information, text messages were sent to all the refugees in the camp. These text messages constituted the primary source of information for 22 per cent of recipients. Figure 32: Percentage Refugees Reached Through Communication Channels in Azraq Aware money is for children Aware of the benefit amount Aware of the maximum cap Banners/ flyers Text messages Family/ friends 8 6 Door Community to door gatherings 2 2 Did not hear Distribution point Figure 31: Number of Programme Parameters Known by Refugees in Azraq 73 Aware of none Aware of one Aware of 2 Aware of Impact of the winterization cash transfer The winterization programme was intended to allow families to better equip their children to face the harsh winter conditions, including ensuring they had adequate clothes and shoes to face the low temperatures. After receiving the cash assistance, 87 per cent of refugees acknowledged that their children were better prepared for the winter. Among them 59 per cent noticed a slight improvement 8 and 28 per cent who had poorly prepared children before the winterization programme considered them to be very-well prepared after the programme. Hence, more families feel that their children are very-well or fairly prepared after the programme than before, while the perception by caregivers of inadequate preparedness of their children dropped from 65 to two per cent due to the winterization programme. 8 Fairly improved preparedness means from badly to fairly equipped or from fairly to very well-prepared.

31 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Azraq Camp Post Distribution Results Figure 33: Programme Impact on Children Preparedness For Winter in Azraq Camp No change Slightly improved Greatly improved Figure 34: Caretakers Perception on Children Preparedness for Winter Before and After the Programme in Azraq Before the programme After the programme Once the caregivers received the winterization assistance, intra-household allocations depended on family priorities. About 85 per cent of families spent the received amount entirely on their children. Among the 14 per cent families in which some children did not benefit, 49 per cent had more pressing priorities which reduced their ability to spend the money on adequate winter items for all their children. In addition, some of these families (38 per cent) did not have enough money to face the overwhelming needs of their children. This calls into question the standardization of the benefits, as not all refugees have the same level of needs. In Azraq, the families that arrived in 16 are likely to have greater needs, due to the fact that many were forced to flee the conflict in Syria with few belongings. About 81 per cent of caretakers primarily bought children winter items, the remaining caretakers prioritizing other family items. Very good Fair Bad More families feel that their children are very-well or fairly prepared after the programme than before.

32 23 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Figure 35: Percentage Families Spending the Cash Benefit for All their Children All children in the household benefited 14 Some children did not benefit 1 Some children out of the household benefited Figure 36: Reasons for Excluding Children in Intra Household Allocation of Cash Benefit Market response to the winterization cash distribution The 16 winterization cash transfer was the first time UNICEF used a cash distribution modality to support families in Azraq Camp. There were numerous concerns about the efficacy of cash assistance in a camp with restricted markets and no mechanisms to ensure the responsiveness of the market. As such, UNICEF conducted a pre-cash transfer market assessment to understand the availability of children items in the market, and evaluate the capacity of the market to respond adequately. The PDM results show that the winterization cash transfer had a positive impact on the local market and economy in Azraq. The winterization cash transfer boosted the local economy and reduced rent capture by the large formal supermarkets that had taken advantage of their monopoly position during the previous winterization voucher distribution programme. The primary benefactors in the local economy from the winterization cash transfer were local market shop owners. During the 16 winterization programme, 9 per cent of the beneficiaries bought their children s winter items in the local markets, mainly situated in Villages 3 and 6. Less than two per cent shopped in the large formal supermarkets and 3 per cent outside the camp. The large formal supermarkets did not supply their stores with winter items on time; this, combined with the past experience of high prices and poor quality, resulted in a negligible market share for them. Amount not enouth No need of winter items More important priorities Others Figure 37: Main Use of Winetrization Cash Assistance in Azraq Camp Children winter items 5 Other children items 3 4 Food Other items Debts Other for the family 1 9

33 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan Azraq Camp Post Distribution Results Figure 38: Shopping Place VS Preferred Shopping Place by Azraq Refugees Figure 39: Availability of Winter Items in Azraq Camp Outside the camp Malls in the camps Local market Don't know 17 No winter items at time of shopping 11 Yes-Poor quality Yes-Good quality Shopping place during winterization Prefered place for shopping One concern during the planning of the winterization programme was that the local market would not be able to supply enough winter items for all beneficiary needs. Informal discussions with shop owners indicated that they would be able to adjust their stock to meet the increased demand. Some shop owners supplied up to 3 times their usual quantities of children s winter items during the distribution days. As a result, 83 per cent of the beneficiaries were able to find winter items they needed in the camp. Providing cash introduced competition in the local market. During the market observation, shop owners declared that they had to make available quality items at a good price and were ready to provide payment facilities to their customers. As a result, 72 per cent of the beneficiaries were able to find good quality items in the local market, while only 11 percent of the 15 in-kind winterization programme were satisfied of the jackets quality. Figure 4: Prices Evolution in Azraq Camp Increased No change Decreased Don't know One of the main challenges for those buying items in the local market was linked to prices. Demand increased, and despite the increased competition in the local market, 56 per cent of beneficiaries experienced an increase in prices. This increase in prices may not have affected only winter items, but also other items that are in high demand in the camp. This finding calls for more investigation into the market reaction for a more comprehensive set of goods and services. 4

34 25 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 5. Key Observations

35 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 26 Based on the PDM results along with the experience gained from implementing the winterization cash transfer programme in the camps, the following observations can be made: First, the shift from in-kind and voucher assistance to cash transfer in the camps has increased the effectiveness of winterization assistances in the sense that caretakers perception on their children preparedness is positive and their satisfaction is higher than in previous years when vouchers and in-kind were used as assistance modalities. In addition, cash transfer has increased refugees resilience and reduced their long-term dependence to humanitarian assistance while boosting the local camp economy and strengthening the local markets supply chains. This has provided an additional benefit to refugees operating small businesses in the camps. The shift to cash assistance will therefore facilitate the transition from a humanitarian response to the Syria refugee crisis to a long term resilience and development approach. Strengthening local markets and their supply chains, especially by facilitating access to the camps by external supplier and easy access to external markets by local Syrian shop owners, will further improve the local economies in the camps. As communication plays an instrumental role for behavior change, the most appropriate messages and channels of communication must be used to have the optimal outreach to the refugees in the camps. Text messages and flyers are the preferred and most effective communication means in the camps. However, many outreach campaign are still done door to door and can be perceived by refugees as intrusive. In addition, field experience has shown that some mobile numbers were incorrect or out of service. Up to date mobile contact information is then crucial to improve the effectiveness of SMS as a key communication channel. Cash transfer has appeared to be the preferred mode of assistance by the refugees. However cash distribution in camps is still done cash-in-hand, with a distribution team having to hand over bank notes to the refugees. This has caused long waiting time and some refugees had to carry large amounts of cash from the distribution points to their shelter. Lessons learnt from the cash transfer in the host communities call to exploring the possibility of installing ATM machines to increase cash transfer programmes effectiveness and efficiency in the camps. Inter-agency collaboration has been instrumental in increasing the effectiveness of the cash transfer as well as the accuracy of the monitoring process. Done jointly and in a coordinated manner, distributions and monitoring processes as well as market assessments will provide more accurate and comprehensive situation and socioeconomic dynamics in the camps. This will also help increase effectiveness of the assessments in the camps and reduce their frequency and cost.

36 27 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 6. Conclusion

37 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 28 The post distribution monitoring of the winterization cash transfer programme in Azraq and Za atari camps has shown positive impact on the capacity of families to prepare their children for winter. The first of its kind, the unconditional and unrestricted cash approach has shown its capacity to reach program objectives while providing positive spillover effects on the local market and refugees lives. The programme was able to reach 99 per cent of the targeted beneficiaries and the distribution process was successfully carried out without major hurdles. The findings clearly demonstrate that UNICEF s communication and awareness strategy was successful, given the high proportion of beneficiaries who were aware of the programme s purpose and effectively used the transfer to meet their children s needs in the winter season. The cash approach also allowed the refugees to fulfill other urgent needs above children s winter clothes. Meanwhile, there is no significant evidence that refugees diverted the received amount for unwanted purposes such as tobacco or leisure activities. It appeared that 8 per cent of the beneficiaries primarily used the received amount for their children winter needs. The remaining beneficiaries fulfilled other household priorities, including food, heating gas, other children winter needs and adult winter items. UNICEF s winterization programme has been largely effective, especially in Azraq Camp, where newer refugees with fewer resources and more limited access to markets and services were unprepared to face the oncoming the harsh winter weather.

38 29 UNICEF Winterization Cash Transfer in Refugee Camps - Jordan 6. Conclusion A lesson learnt from UNICEF winterization cash transfer programme is that vouchers used in previous winter programmes led to increased prices and families were forced to accept low quality items supplied by the large formal supermarkets. In addition, in-kind assistance often creates issues around the quality, gender-appropriateness and size of clothing items. Cash transfer, however, places the choice in the hands of the refugees themselves. In fact, it allows beneficiaries to choose the items that best suit their needs as well as to prioritize their expenditure according to their actual or anticipated needs. In comparison, in-kind assistance is often sold back by the beneficiaries below the market value and sometimes don t meet the size, quality or appropriateness expected by the beneficiaries. UNICEF cash transfer for winterization provided flexibility and choice for refugee families to buy their children winter items from local market instead of in existing large formal supermarkets that were perceived as too expansive and lacking quality of item in the camps. Overall, a majority of beneficiaries were able to find quality items at a reasonable price in the local market and the supply adjusted to the increased demand induced by the cash distribution. Furthermore, there was an increased demand and supply pattern in market dynamics in both camps. The availability of cash with the refugee families increased demand for winter items to which local market responded to make profits. This situation was particularly positive in Azraq camp where new shops were opened and refugees were provided with livelihood opportunities by being employed in the shops 9. Another lesson learnt is that the maximum cap is mostly not understood and considered as unfair by a majority of beneficiaries. Field experience has also demonstrated that this was the major subject of concern and complaints. While resource constraints may be the main reason for applying a maximum cap, this calls for its lift when possible, especially for one-off cash transfer programmes. 9 5 per cent of the shops in the local market are owned by Syrian refugees. The other half also employ some refugees living in the camp.