Commodity Distribution

Transcription

1 Commodity Distribution Distribution The hand over of commodities to the intended beneficiaries, fairy, according to specified rations, seection criteria and priorities. Provisiona version UNHCR Division of Operationa Support June 1997 Purpose of this guide and how to use it Purpose This guide outines procedures to assist UNHCR Fied staff and operationa partners in the design and impementation of systems for commodity distribution. Needs assessment, the panning of rations and the management of the ogistics chain, up to the distribution site, are not covered. Assistance operations rarey fit textbook modes. Though there may be broad agreement on what the response shoud be, there are aways factors which stand in the way of the idea. Probems are often situation specific so, it is ony through Fied eve intersectoria cooperation that an agreed appreciation of the constraints can be buit up and optima compromises found. Therefore this guide does not provide simpe prescriptive recipes which can be used in a situations, but rather a framework for making the right decision in each situation. How to use this guide This guide wi hep you by pointing out issues which are important. It offers techniques and ideas based on best current practice which must be adapted to the particuar circumstances of your operation. It does not present a set of rues and procedures which must be foowed, except in the case of the reporting requirements. As soon as possibe, you shoud read through the entire guide in order to become famiiar with the ideas and experience it presents. However, to use it in any refugee situation, you shoud read: Key points (p.7) Choosing a system (p. 21 ) This guide shoud be read in conjunction with other UNHCR poicy papers, guideines and manuas which impact on the area of distribution management. Of particuar importance are the UNHCR/WFP

2 Memorandum of Understanding on the Joint Working Arrangements for Refugee, Returnee and Internay Dispaced Persons Feeding Operations, Geneva March 1997, Registration - a practica guide for fied staff, UNHCR Geneva 1994, UNHCR Poicy on Refugee Women, UNHCR Geneva and Refugee Chidren, Guideines on Protection and Care, UNHCR, Geneva Pease refer to the bibiography in Annex 6. This guide was produced through a process of consutation with organisations directy invoved in commodity distribution, principay WFP the Red Cross and Red Crescent movement and NGO impementing partners of UNHCR. The inputs of these organisations are gratefuy acknowedged. In using this guide those actuay invoved in commodity distribution wi see ways to improve it based on fied experience. Suggestions for improvements to this guide based on this wi be wecomed and can be incorporated into the revision panned for Suggestions shoud be addressed to the Head of the Food and Statistics Unit, PCS, Division of Operationa Support, UNHCR, Geneva, e-mai hqcs00@unhcr.ch. Tabe of Contents Gossary Acronyms Key Points I. OVERVIEW 1.1 Definition of distribution 1.2 The main actors and their roes in commodity distribution 1.3 Food and non-food items 1.4 Programme panning questions II. GETTING STARTED 2.1 To whom 2.2 Numbers, how to ive with uncertainty 2.3 Beneficiary ration/registration cards/kits 2.4 By whom 2.5 Where - How many distribution points, their ocation 2.6 When to start, how often to distribute 2.7 Equipment for distribution III. HOW TO CHOOSE AND SET UP A SYSTEM 3.1 The framework - an overview 3.2 Advantages and disadvantages of the three categories of distribution 3.3 Choosing the system 3.4 How to distribute through the eadership 3.5 How to distribute through groups of heads of famiy 3.6 How to distribute through individua heads of famiy IV. INVOLVING THOSE CONCERNED 4.1 Refugee participation 4.2 The eadership may not truy represent the refugees 4.3 Refugee committees 4.4 The roe of refugee women 4.5 Information to a the beneficiaries, the crucia factor. V. MANAGEMENT

3 5.1 Coordination 5.2 Monitoring and reporting VI. SPECIAL ISSUES 6.1 Common questions 6.2 How much to distribute when numbers are not agreed 6.3 When you do not have enough to go around 6.4 Trading rations 6.5 Crowd contro 6.6 Payment in kind 6.7 Retroactive distribution 6.8 Sacks and empty containers Annex 1 - Reporting on food distribution Form for Food Distribution Monitoring Report Expanatory Notes Annex 2 - Reporting on Non-Food Items Distribution Form for Non-food Distribution monitoring Report Expanatory Notes Annex 3 - Reporting on Food Distribution Worksheet for On Site Food Distribution Monitoring Report Expanatory Notes Annex 4 - Househod Monitoring Report Annex 5 - Post Distribution Monitoring Market Survey Report Form for Market Survey Report Annex 6 - Bibiography Index (not avaiabe) Gossary Commodity Distribution Cyce Famiy Househod Head of Famiy This term covers both food and non-food items given in mass distribution to the refugees. The time period between reguar distributions. A group of peope iving together, reated by bood or otherwise and recognised by the society as a famiy. A group of peope iving together who poo their resources. They may or may not be members of the same famiy. The person accepted by the famiy and by the society as representing that famiy within the society. The head of famiy can be femae or mae.

4 Head of househod Ration Shop Refugee Registration Card Scooping or Tipping Vunerabe The person accepted by the househod and by the society as representing that househod within the society. The head of househod can be femae or mae. A form of distribution to individua heads of famiy. The word "Refugee" is used throughout this guide when referring to beneficiaries. However the principes outined can be appied to returnees, internay dispaced peope and others of concern to the High Commissioner and therefore targeted in UNHCR assistance programmes. A standard forgery-proof card to be issued to a heads of househod/famiies. The uniquey numbered card aows for easy identification as we as for the distribution of food and non-food items and can be procured through UNHCR/STS in Geneva. A method of approximating a given weight of food by the voume of a container. Individuas or groups who have particuar probems with fair access to commodity distribution by virtue of their physica or socia status and the norms with which the refugee community treat that status. Acronyms BO UNHCR Branch Office DOS Division of Operationa Support, UNHCR EDP Extended Deivery Point EPRS Emergency Preparedness and Response Section, UNHCR FBARS UNHCR s Fied Based Registration System FMIS UNHCR s Financia Management Information System FSU Food and Statistica Unit, UNHCR Geneva GSS Genera Services Section, UNHCR Geneva HQs UNHCR Headquarters, Geneva ICSS Information and Communication Systems Section, UNHCR Geneva KCa Unit for energy produced by food LOI UNHCR Letter of Instruction MOU Memorandum of Understanding between UNHCR and WFP, March 1997 NFI Non-Food Items PA Pubic Address system PCS Programme Coordination Section, UNHCR Geneva POP Peope Oriented Panning PTSS Programme and Technica Support Section, UNHCR Geneva SFP Suppementary Feeding Programme STS Suppy and Transport Section, UNHCR TFP Therapeutic Feeding Programme WFP Word Food Programme Key Points The Idea Distribution System shoud be safe and easiy accessibe to the intended

5 beneficiaries. Safe: Organised in such a way that the system is free of threat to a who use it, with particuar attention to women and the vunerabe. Accessibe: Distribution points are cose to where peope ive and are ocated in paces which do not restrict the access of particuar groups. The timing of distributions shoud suit the intended beneficiaries. Inform the refugees. They must know what they shoud receive, how much, when and how. The refugees themseves can be the best monitors and controers of the distribution process. Refugees shoud be abe to see the distribution process for themseves. Invove them directy, don't et information on the distribution process come to them ony through their eadership. Ensure the participation of the refugees (women and men) at a eves of the distribution process. In the eary stages of an emergency there wi probaby be a period when it wi not be possibe to register or issue ration cards. However, you wi have to distribute commodities in that period. Effective distribution is possibe without ration cards. The provision of pastic sheeting, tents and other sheter materia is very important for the structuring of refugee sites. The distribution of sheter materia reduces the fuidity of the popuation. Once it is issued, the popuation can sette. The famiy, as a natura unit, is the target of distribution. This appies to food and non-food items. However this does not mean that you aways have to hand the ration to each famiy directy, in some situations this can aso be done more effectivey through groups of famiies or other community structures. Irreguarities in the distribution cyce undermine the confidence of the beneficiaries and increase their need to circumvent the system. In camps, aim to have at east 1 distribution site per 20,000 refugees. You shoud aim to have a distribution system which aows beneficiaries to coect rations cose to where they ive and at reguar intervas of about one month. For dispersed popuations refugees shoud not have to trave more than 5 to 10 km to distribution sites. In camps, refugees shoud not have to trave far to the distribution sites. Depending on the situation, and having met site seection criteria, the centre shoud be ocated as cose as possibe to the beneficiaries, and not more than 5 km away. Distribution of dry uncooked rations in buk is usuay the most desirabe. Avoid mass cooked food distribution for the genera ration. In your distribution system pan to have a minimum of 2 staff per 1,000 beneficiaries. Avoid payment in kind for distribution workers. It makes monitoring difficut. In times of shortages, vunerabe peope may be deprived of the commodities in order to pay staff. In the eary stages of a new programme, particuary in arge emergencies, effective contro over distribution may not be possibe. However, from the start, each action you take shoud contribute to a process whereby stabe contro is progressivey estabished. I. OVERVIEW Definition of distribution

6 The main actors and their roes in commodity distribution Food and non-food items Programme panning questions 1.1 Definition of distribution Distribution is the hand-over of commodities to the intended beneficiaries, fairy, according to specified rations, seection criteria and priorities. Distribution is the process during which contro over the commodity passes to the intended beneficiaries. For the purposes of this guide the term distribution does NOT incude the process by which commodities are procured, nor the process of transportation, storage and handing, except at the fina handover point. The objective of UNHCR distribution systems is to provide materia assistance to and through famiies, respecting the guiding principes of humanitarian action. Thus, the distribution system shoud aim to support the famiy as the most effective coping structure. Ony in exceptiona circumstances, and for short periods, shoud the focus of assistance move from the famiy eve to individuas within the famiy. Distribution shoud enabe famiies to function as the basic socia unit. Persons outside famiies must, of course, aso be assisted through the distribution system. This group often incudes unaccompanied minors, singe women, unsupported edery and young men. Often, efforts are made to buid househod groups from these individuas to faciitate the provision of sheter and other services and commodity distribution itsef. The famiy is the basic socia unit in amost a societies. It pays a key roe in meeting basic needs and soving the probems of individuas. Strengthening famiies wi improve the abiity of refugees to take care of themseves. From Refugee Emergencies A community-based approach, UNHCR Geneva 1996 Getting the commodities to famiies does not necessariy mean handing the commodities directy to the head of the famiy. You may decide to channe the commodities through existing community structures, eaders etc, or structures which you hep to create; groups of famiies, women famiy representatives etc. 1.2 The main actors and their roes in commodity distribution It is important to know and appreciate the roes and responsibiities of the main actors invoved at various stages of commodity distribution. For detais of the respective roes of UNHCR and WFP in reation to food aid see the Memorandum of Understanding on the Joint Working Arrangements for Refugee, Returnee and Internay Dispaced Persons Feeding Operations, March The Main actors are: Host Governments Refugees UNHCR WFP Impementing Partners The main roes and responsibiities of the key actors in distribution for refugee programmes incude: HOST GOVERNMENT Security. Registration of beneficiaries. Free and safe access of reief personne and commodities to beneficiaries.

7 Free access for monitoring. REFUGEES Assistance in commodity distribution (off-oading, scooping/tipping, contro etc.) Assistance in the identification of peope at risk. Ensure setting up of committees with adequate representation of women. Information sharing on the specific concerns of different groups of refugees. Dissemination of information on the commodities and the distribution system. Crowd contro at the distribution site. UNHCR Determining the number of refugees and their registration (together with the host government). Distribution of food and non-food items (usuay through impementing partners). Estabishing and monitoring the nutritiona status of refugees. Faciitating refugee participation, ensuring the representation of women and/or marginaised groups. Monitoring the distribution programme and reporting to donors and governments. Dissemination of information to refugee popuation. WFP Mobiising basic food commodities and the resources to deiver them. Deivery to the EDPs. Management of the EDPs. Mobiising the resources for miing and providing miing faciities to the beneficiaries when necessary. Monitoring the food pipeine and reguary informing UNHCR. UNHCR & WFP Contingency panning. Joint pans of action. Estabishment of the number of food aid beneficiaries, in consutation with the host Government. Assessment of food aid needs (in consutation with the host Government). Estabishment of the food basket. Designation of the impementing partner responsibe for food distribution. Estabishment of effective food aid coordination mechanisms. Monitoring and reporting on distribution of a food aid commodities. Working out joint workpans under the MOU framework. Promotion of sef reiance. UNHCR IMPLEMENTING PARTNERS Management and equitabe distribution of reief commodities using the appropriate distribution system. Dissemination of information to refugee popuation. Ensuring maximum refugee participation. Reporting to UNHCR (and simutaneousy to WFP, in the case of food distribution) on quaity, quantity and impact of commodity distributions. The specific reporting requirements for each operation wi be specified in agreements with the impementing partner. 1.3 Food and Non-Food Items Integration of Food and Non-food distribution systems Where possibe, there shoud be an integrated distribution system for Food and Non-Food Items (NFI). The systems described in these guideines appy equay to NFI as we as food commodities; specia arrangements may be needed for some NFI commodities under some circumstances, but these shoud be designed into a common system rather than require a parae system. The ayout of the physica distribution system and the documents used for contro and reporting shoud be simiar for food and NFI distribution. Non-Food Items

8 Non-food items can be cassified into two main groups: 1. Routine consumabes e.g. soap, firewood, fue, sanitary suppies, heath suppies, condoms, education suppies. 2. Non-consumabes, onger ife items e.g. mattresses, bankets, pastic sheeting, tents, buiding materias, kitchen sets, jerrycans, seeping mats, farming toos. There are three types of NFI distribution: 1. Initia new arrivas, first time distribution. 2. Routine repacement consumabes and non-consumabes, foowing routine wear and tear. 3. Specia circumstances foowing disasters, (storm, fire etc), to vunerabe groups, upon repatriation or departure. Frequency of NFI repacement The frequency of NFI distribution wi depend on each situation. As it is ikey to be irreguar, specific advance information to the beneficiaries is essentia. There are no universa standards for the repacement of NFI and each situation must be judged on its own merits. 1.4 Programme panning questions Do you know the needs? Before designing your distribution system it is assumed that a needs assessment has taken pace, that you have decided which food and non-food items wi be distributed, in what quantity and to whom. The assessment shoud consider the needs of the specific groups within the popuation (women, at risk groups) as we as of the popuation as a whoe. For exampe, the physica dangers that the coection of firewood sometimes invoves for women shoud be taken into consideration in prioritising the commodities. The needs, and your assessment of them, wi change with time, but at any given time it is assumed that you wi have reached a consensus with key partners as to what they are. 1(1) Do you know the refugees? Each refugee group has its own characteristics. Experience shows that it is essentia to find out specific information concerning every distinct refugee group in order to provide appropriate services efficienty. Before designing a distribution system you must have specific information on the refugees, incuding on the popuation composition, gender and age, division of abour, access to and contro of resources. Remember that the roe of chidren may aso have changed as a resut of fight. A good framework for this, and for programme panning in genera, is provided in the UNHCR POP Handbook 2(2). UNHCR recognises that women have a key roe in the heath and we-being of their famiies and that distribution systems shoud support rather than undermine that roe by ensuring their equitabe access to reief commodities. Whie such access may be ensured, in some circumstances, by women receiving the commodities directy or being responsibe for the actua distribution, this must be verified, not assumed Do you know the host government's poicy?

9 It is important to know the poicy of the host government regarding refugees. For exampe, and use, type of settement, oca economy, job opportunities and other reated issues may infuence the type of distribution system and seection of commodities Do you know UNHCR's poicy? The commodity distribution systems and seected commodities shoud be in ine with the genera programming poicies of UNHCR in the host country and for the particuar group or refugees. The Country Operation Pan shoud provide a guide to country specific poicies. In addition to this, severa key documents outine UNHCR s genera poicies. (See Bibiography, Annex 6) How much do you communicate with the beneficiaries? Experience has shown that in order to provide a sound basis for a distribution system, it is essentia that the beneficiaries know what are their entitements and know how the distribution system is supposed to work. Normay there wi be many times more beneficiaries than UNHCR or distribution agency staff, and the beneficiaries have the capacity to be extremey effective monitors of the distribution system. However they can ony do this if they are we informed. Any we designed distribution system must provide a way to keep refugees continuousy and directy informed (i.e. not just through the refugee eadership). II. GETTING STARTED 2.1 To whom To design your distribution system you must have defined target groups. To whom Numbers, how to ive with uncertainty Beneficiary ration/registration cards/kits By whom Where - How many distribution points, their ocation When to start, how often to distribute Equipment for distribution Targeting of assistance may have to reconcie a mix of objectives. Targeting for distribution must be in ine with the targeting of the assistance programme as a whoe. 2.2 Numbers, how to ive with uncertainty Refugee situations evove. At the time of the initia infux there is usuay great uncertainty about numbers. As initia popuation estimations are made the uncertainty starts to be reduced. Then comes registration, when numbers become known more accuratey 3(3). As time goes on, the initia registration becomes unreiabe because of births, deaths and popuation movement. Uncertainties about numbers again arise. The issue of popuation numbers is one inked to power and perspective. Refugees, authorities, NGOs, UN agencies can a have differing (sometimes conficting) approaches to defining a popuation figure. At periods of uncertainty these differences can undermine the reationship between the actors. In the idea case, popuation registration wi have taken pace and there wi be a system to periodicay update these figures. This wi reduce the difficuty of panning and impementing a distribution system. In practice, commodity distribution wi probaby be necessary before the beneficiaries are propery identified. You wi be required to distribute at times of great uncertainty regarding the size of the beneficiary popuation, often before registration has taken pace. Agreement on a popuation figure is essentia

10 A panning figure for the popuation in need of assistance is essentia in order to impement any commodity distribution. Ideay, the number in need of assistance shoud be known and agreed to by a key partners (government, WFP, NGOs, donors and refugees). It is important that a understand that, whie exact popuation figures wi not aways be avaiabe, the assistance programme must continue for an agreed number of beneficiaries. At the same time, steps shoud be taken, through registration and monitoring, to improve the accuracy of the popuation figure. It is critica to the cost-effectiveness and credibiity of an assistance programme that the panning figures used for distribution are reaistic. Your distribution strategy shoud be based on these agreed assumptions, rather than on an ad hoc basis. As the programme deveops and more information is avaiabe, assumptions wi change and distributions wi more cosey aign with the verified needs. Where a satisfactory registration has not been possibe within three months, UNHCR and WFP wi jointy determine the number of beneficiaries in need of food assistance. Shoud there be disagreement between the country offices of UNHCR and WFP on the number of beneficiaries, the probem sha be referred to the headquarters eve for resoution. Pending such resoution, WFP wi provide food to the number of beneficiaries it estimates are in need of assistance. 2.3 Beneficiary ration/registration cards/kits 4(4) Ration cards are a key too in the provision of assistance. However, in new situations, particuary in emergency situations, you may need to begin distributions before ration cards have been issued. Registration and issue of ration cards requires considerabe resources of time, peope and security. u u u Registration estabishes an agreed number of beneficiaries. Registration aso provides the profie of the refugee popuation, making it easier to target specia groups. Ration cards identify the beneficiaries and make monitoring and contro easier. The use of standard UNHCR registration software (Fied Based Registration System - FBARS) makes it easy to produce printed ists and cards from registration data. Obtaining registration/ration cards Standard UNHCR Registration cards, which can aso be used as ration cards, are contained in UNHCR registration kits. Each kit contains a the items (wristbands, forms, tokens, cards, etc.) needed for registration of 30,000 peope (10,000 famiies). The kit incudes 10,000 temporary ration/registration cards and 10,000 permanent ration/registration cards. (1 card per famiy). If the whoe kit is not needed, registration cards, and/or other specific items, can be ordered separatey. It takes the suppier in Geneva 17 working days to produce and deiver these separate orders. So add transportation time from Geneva to your ocation to estimate how ong a separate order might take to arrive. How to obtain registration kits Registration kits are stockpied at UNHCR Headquarters in Geneva by GSS. Requests for kits shoud be addressed to the Desk, whie the Food and Statistica Unit of PCS authorises their depoyment. GSS depoy the kits on the basis of a purchase authorisation (PA) raised by the Desk. Each kit comes in two boxes measuring 112 x 52 x 53 cm each and weighing a tota of 400kg per compete kit of two boxes. Each kit costs US$ 9,000 (in mid-1997) and the cost of the kit, pus transportation, usuay by air, must be charged to the reevant operationa project; provision must be made in your budget for this. How to use the registration cards as ration cards Both the temporary registration card and the permanent registration card from the kit have been designed for distribution purposes. They both have numbers printed around the edge which shoud be punched to record each distribution. A bock of numbers in the midde of the card shoud be punched to indicate famiy size. Numbers 1 through 30 shoud be used to record food distributions and 31 through

11 36 for non-food items. See the instructions with the kit and the registration guide. 2.4 By whom Distribution of food and non-food assistance is a UNHCR responsibiity UNHCR normay discharges this responsibiity through an impementing partner. To seect impementing partners you must have the information which can guide you in that process 5(5). For genera food distribution, the designation of the agency shoud be jointy agreed by UNHCR and WFP. The responsibiities of this agency shoud be set out in a short tripartite agreement UNHCR/WFP/Impementing Partner, separate from any UNHCR impementing partner sub-agreement. Information needed for the seection of a distribution agency: u u u u u u Their past experience in reief operations, especiay in refugee/returnee/idps situations, and distribution. Their previous experience in the country or ocation of operation. Their capacity to contribute their own resources to the programme. The acceptabiity of the agency by the host government. Their readiness and abiity to respect UNHCR s poicies, and in particuar their abiity to incorporate the needs of women into their distribution project impementation. Their time frame for mobiisation, especiay in an emergency situation. 2.5 Where - how many distribution points, their ocation As a genera rue, it is best to have the distribution points cose to the beneficiaries and ocated in such a way as to minimise the numbers of peope who attend any one distribution point at any one time. This makes it easier for them to carry the commodities home (a typica one month food ration for a famiy of 5 can weigh 75kg), reduces their exposure to theft and harassment and minimises the time spent away from home - a particuary important consideration in femae headed househods. For dispersed popuations, refugees shoud not have to trave more than a maximum of 10km to distribution points. In seecting distribution points, factors affecting women s access shoud be taken into consideration, e.g. physica security of women may be threatened if they have to pass through a miitary/poice camp; traveing a ong distance may aso be threatening, especiay if women have to trave whie it is dark. Minimising the number of beneficiaries at any one distribution point is important for crowd contro reasons. Fewer peope aso heps to ensure fairness in the distribution - everyone can see what everyone ese is getting. For camp situations you shoud aim to have at east 1 distribution site per 20,000 peope. Organise the distributions so that the number attending the site at any given time is as ow as possibe. The eariest possibe distribution of sheter materia wi hep to organise the popuation The provision of pastic sheeting, tents and other sheter materias is very important for the structuring of refugee sites. The distribution of sheter materia reduces the movement of the popuation. Once sheter materia has been issued the popuation can sette. Even if fu scae site panning is not yet possibe

12 you can use the distribution of sheter materia to begin a rough ay-out of the site, organising refugees into bocks and using this as an incentive for peope to move from areas which coud be used for distributions. Keep in mind that popuations can increase and it is wise to pan for more distribution sites than are currenty needed to aow for increases. In situations where peope have moved on to a site in an unpanned way, it is better to re-arrange them without deay if they are occupying areas which are needed for distribution. This wi create short term probems, but the aternative might be ong-term probems and asting inefficiencies. Few or many distribution sites? The foowing tabe summarises the main considerations Few distribution points Many distribution points Advantages Need ess staff Less infrastructure, sites, distribution structures, roads Less transport required for distribution Fewer crowd contro probems Easier access for women Shorter journeys home Beneficiaries can see the distribution taking pace, sef-poicing more faciitated Disadvantages Specia arrangements easier Longer journeys to the househod Potentia crowd probems Difficut for beneficiaries to see the distribution, ack of sef-poicing More staff and transportation needed More structures, roads, access, ceared sites needed for distribution Difficut access for weaker groups 2.6 When to start, how often to distribute There is usuay a degree of uncertainty when panning distributions. Ideay, distribution of commodities shoud start ony after a fu needs assessment has taken pace and when the size of the beneficiary popuation is accuratey known. However, the reaity of amost a emergency programmes is that distributions must start prior to these idea conditions being reached. Try not to start distribution unti you have in pace at east a minimum framework to buid upon, and a pan as to how subsequent distributions wi be improved. How often, distribution cyces There is usuay a singe distribution of the main non-food items, e.g. sheter materia, kitchen sets, bankets. Timing of the distribution cyce is dependent on food distributions for which there is, normay, a continuing need. The distribution cyce shoud be: 1. Predictabe and known to the refugees. 2. Set so as to ensure simutaneous distribution in neighbouring

13 camps/communities. Irreguarities in the distribution cyce undermines the confidence of the beneficiaries and increases their need to circumvent the system. Shorter intervas between distributions aows greater fexibiity in adjusting the ration size to compensate for deayed deiveries/shipments. Scarce commodities can be incuded periodicay in more frequenty distributed smaer rations, rather than waiting unti enough is on hand for arger, ess frequent, distribution. Smaer quantities take ess time to distribute and are easier to carry home. Low buk items such as sugar or sat might be distributed ess frequenty. Longer intervas between distribution frequenty ead to greater deays, as more commodities must be pre-positioned prior to distribution. However, onger intervas may suit some peope better, as they wi trave at ess frequent intervas to coect rations. The weight of the ration and distance from site to househod and househod eve storage capacities are important factors to consider. Long intervas with reativey arge amount of commodities distributed each time may make it more ikey that refugees wi se commodities, particuary when whoe sacks or other containers of food are distributed. 2.7 Equipment for distribution Non-food items usuay need itte or no equipment for distribution. Food, however, may need various items of equipment. Scoops Scooping gives scope for significant variation in the weight of portions measured out. The basic probem is that food rations are cacuated by weight but scooped by voume. The actua weight of the food deivered wi depend on whether the scoop is fied beow or eve with the top, or the food is pied high to overfow. Even a sma amount of under scooping can resut in a significant tota amount of food being misappropriated. Scooping is aso very staff and supervision intensive. Even when cosey supervised, it provides an easy opportunity for cheating. Scooping (sometimes caed tipping ), i.e. measuring of individua rations, by voume, using containers is often seen as the natura way to ensure fairness in distribution. This can be a dangerous assumption as there are many difficuties associated with this method. Scooping has even been described as "a notorious means for cheating the beneficiaries ". The composition and quantity of the individua ration may change consideraby from one distribution to the next depending on food suppy. The same voume measuring cups wi give different weights of, for exampe, cereas, depending whether the cerea is maize, sorghum etc. whoe grain or mied. Different shipments of the same commodity may have a different weight to voume ratio. Scooping can be used when buk distribution is not possibe. Provision of scoops is a UNHCR responsibiity. When scoops have to be used they shoud be standard, marked with the commodity and weight, reguary checked and provided from a centra source. The team of scoopers shoud incude adequate proportions of women and men, shoud be rotated randomy between distribution points and shoud be chosen at random just prior to the distribution. Weighing scaes These shoud be avaiabe at each distribution point in order to carry out spot checks on unit weights. Scaes capabe of weighing up to 100 Kg are needed. Scaes shoud aso be avaiabe at distribution points for use by the refugees to check the weights of their own rations, these scaes shoud be suitabe for the convenient weighing of the ration distributed. Other equipment reated to food preparation/consumption The provision of non-food items essentia for the preparation and consumption of food such as fue, grinding equipment, cooking utensis and stoves wi infuence, substantiay, the amount of time and

14 abour spent by women in food preparation and shoud therefore receive priority. III. HOW TO CHOOSE AND SET UP A SYSTEM 3.1 The Framework - an overview The framework - an overview Advantages and disadvantages of the three categories of distribution Choosing the system How to distribute through the eadership How to distribute through groups of heads of famiies How to distribute through individua heads of famiies Distribution systems can be cassified according to whom the commodities are given. In each of these categories of distribution the recipient can either be a woman or a man. There are three broad categories of distribution system (see Fig. A). Distribution to groups of beneficiaries through the group eadership. Distribution to groups of heads of famiy. Distribution to individua heads of famiy System Description Commodities are given in buk to a representative of a group of beneficiaries who further divide it among the group. A of the commodities for the group of famiies are handed over to a representative of the group. The commodities are then immediatey redistributed to the individua famiy heads by the representatives. Commodities are handed over directy to each famiy head. Type of situation in which these systems have been used Eary days of an emergency. Mass infux of refugees. No forma registration. Large popuations. Eastern Zaire, arge infux, no registration or ration cards. Former Yugosavia. When peope are setted. When registration is done and ration cards are avaiabe. Homogeneous groups. Can be used in camps with sma or arge popuations. Somai refugees in Eastern Ethiopia. Rwandese refugees in Tanzania Setted popuation. Registered popuation. Beneficiaries iving in camps, settements or integrated within the oca popuation. Somaia, Maawi, Thai-Cambodian border, Cambodian repatriation. Fig.A. Seection of a distribution system What eve of responsibiity do you want to give the beneficiaries? How much resources are avaiabe for the system?

15 3.2 Advantages and disadvantages of the three categories of distribution 1. Distribution to groups of beneficiaries through the eadership Advantages Disadvantages You need imited staff. You can use community eadership structures aready in pace. Easy for community eadership and/or the 'strongest' to abuse their position and discriminate against parts of the popuation. The beneficiaries themseves can act as monitors of the distribution process. Gives responsibiity to the community, paces some responsibiity for assisting at risk groups on the community itsef. Gives possibiity for community to aocate commodities according to their priorities incuding giving extra to at risk groups. Can be used in first stages of a arge infux with imited space for distribution. Can be impemented without registration or ration cards. There may be many eves of re-distribution, from the eadership to many ayers of "sub-eaders" unti it reaches the individua househod, this makes monitoring by outsiders difficut. Distribution may not be equa. Based on the communities own norms, certain groups or individuas (not at risk) may receive more than others. Can be difficut for the most at risk to receive their share. Lack of contro on beneficiaries figures. Difficuty in monitoring the distribution. Distribution is reativey quick to get started. If women are not propery represented in the eadership, they may have difficuty of access.

16 2. Distribution to groups of heads of famiy Advantages Disadvantages Promotes socia interaction within the refugee community and enhances socia adjustment to the new situation and environment. You can have some infuence over the seection of eaders, you can introduce new community eadership structures, ensure the representation of women etc. Depending on how you seect the famiy groups, this can be used to hep repace an existing unrepresentative eadership. Needs registration and substantia administration to organise famiy groups An extensive information campaign is needed. Needs homogeneous group of beneficiaries Needs reiabe and verified popuation figures Abuses by famiy group representatives may happen. You can set up speciaised groups of famiies e.g. a femae headed in separate groups, a famiies of marginaised groups together. Monitoring of the fina re-distribution within the groups is needed when this is taking pace away from the agency distribution site. Shares responsibiity for distribution with the beneficiaries. The beneficiaries themseves act as monitors of the distribution process. Requires a sma number of distribution staff Because the food is handed over in buk to groups, individua scooping by the distributing agents is avoided. Can be used when standardised scoops are not avaiabe whie food rations are frequenty changing. Quick impementation. Security probems reated to crowd contro are minimized by the presence of the famiy group representatives. 3. Distribution to individua heads of famiy Advantages Disadvantages

17 You retain contro over the whoe deivery process right to famiy eve. This may be important in situations where there are inadequate community structures. Makes it possibe to target at risk groups. Very staff intensive Needs a ot of infrastructure. Needs registration and a substantia administration. Transparency. Commodities reach the beneficiaries directy. Easy to monitor that femae headed househods, and vunerabe famiies have proper access. Takes away most of the responsibiity for distribution from the beneficiaries themseves. Can be difficut for the beneficiaries themseves to act as monitors of the distribution process. Not appicabe in eary stages of an emergency Standardised scoops are needed, these need to change every time there is a change in the ration. Scooping coud prove difficut to monitor. 3.3 Choosing the system Two basic questions which wi hep you to choose a system are: how much responsibiity is it appropriate to give to the refugees themseves? How much resources do you have avaiabe to set up and run the system? (refer to Fig A). Resources incude time, space, experienced staff as we as financia resources. In case of food distribution the modaities of distribution as we as the reporting requirements wi be set out in a tripartite agreement between UNHCR, WFP and the impementing partner. 3.4 How to distribute through the eadership (one method) How Situation Used in Commodities are given in buk to representatives of a group of beneficiaries. The representatives then re-distribute to individua famiies. The representatives shoud incude women and men. Eary days of an emergency Mass infux of refugees No registration Large popuation Urban popuation Large camps, in the eary stages after an infux. Dispersed popuations in towns, viages. How to impement in arge camps, in the eary stages after a arge infux Seect eaders Ca for vounteers from the refugees who agree to represent and organise the popuation. The peope who emerge as sef-appointed eaders may not be representative, and you may wish to encourage

18 eections or some other way of seecting more representative eaders. However the resources, incuding time, which wi be required to ensure proper representation may not be avaiabe in the eary days of an emergency. Therefore, you may have to accept such eaders unti resources and time are avaiabe. Aways try and ensure that there are some women among the eaders. Estimate the popuation Obtain from the eaders their estimate of the popuation size and adjust them in the ight of your own estimates. Come up with a popuation estimate jointy agreed with government, WFP, NGOs and other key partners. Organise groups Organise, together with the representatives, groups of beneficiaries based on their origina administrative or socia structure. Assign each group to a specific distribution point. A sma number of distribution points wi mean a arge number of beneficiaries per site and wi increase security risk. A arger number of distribution points wi aow for a quicker distribution. Cacuate quantities Prior to the day of distribution, cacuate the quantity of commodities that each group shoud receive. Provide this information to the distribution agency and to the refugees. Distribution day Security a. Commodities are moved to the distribution point on the morning of the distribution. b. The group representatives are caed one by one to coect the commodities. The distribution agency uses its own staff to ca up the group representatives using ists previousy prepared. c. Each group representative wi come forward with a pre-arranged number of porters from the group. She/he wi sign to acknowedge receipt of the quantity of the commodity. The distribution agency wi have divided the commodities into separate pies by type and wi have appointed adequate staff based on the quantity of the commodities. The staff wi be responsibe for handing over these commodities to the porters. The amount of commodities handed over is cacuated as (ration/person/day) x (no. of peope in the group) x (no. of days) d. The representative and the porters wi eave the distribution site and carry the commodities to a pace nearby where the group's popuation is waiting for them. There, the group representative wi use the name ist of beneficiaries and wi ca them one by one to coect their share. (Make sure that the sef-distribution is carried out at a pace to which you have access and where it can be monitored.) If the group is a very arge one, the representative wi further share the commodities received among smaer groups. The fina stage wi be the distribution to individua famiies. For sharing, the representatives wi use their own scoops or utensis taken from their cooking sets. e. The distributing agency shoud have monitors who wi circuate among the groups. Security is an important consideration for this method of distribution. Security probems are more ikey to occur in the afternoon, when peope are getting tired of waiting and are afraid that commodities wi run out before their turn comes. Try to distribute quicky, with no ong

19 deays. Crowd contro staff shoud be a mix of beneficiary representatives and agency staff, preferaby those abe to speak the refugee anguage. Where possibe staff shoud not be paid in kind (remember commodities coud be scarce at the eary stage of the emergency). Another eement, important for crowd contro, is to make sure that the commodities are unoaded in a pace away from the crowd of beneficiaries. An area of minimum 50 x 50m is required. The waiting beneficiaries shoud be at east 20m from the buk of commodities. The area shoud have boundaries. If there is not time or resources enough to buid fences then stones, ropes etc. shoud be used to deimit the area. Crowd contro staff shoud surround the area and be cose to the stock of commodities. How to impement for dispersed popuations in towns, viages Geographica division The country is sub-divided into regions based on existing administrative boundaries. A needs assessment is made for each of these areas. These assessments resut in the estabishment of food and non-food items targets for each area. Prioritise Together with the oca authorities in each area, estabish categories of individuas prioritised in regard to their need for assistance. Categories incude sick, edery, handicapped and others. Hand-over The commodities are transported to a centra warehouse in the region by UNHCR (or WFP in the case of food) where they are handed over to the oca authorities. When the tota amount avaiabe for that month is known, a distribution pan is worked out jointy between UNHCR and the authorities. Information on the quantity of commodities to be distributed is made avaiabe to the beneficiaries. Distribution Commodities are transported by the oca authorities from the regiona warehouse to distribution points in towns and viages from which the beneficiaries coect their rations. 3.5 How to distribute through groups of heads of famiies (one method) How Situation Used in The commodities for the group of famiies are handed over to a representative of the group by the impementing agency staff. The commodities are then re-distributed to the individua famiy heads by the group representative. When peope are setted. When forma registration is done and cards are avaiabe. Homogeneous groups (same tribe, cuture,...) Large camps, can be used in smaer camps. There are two ways in which this can be impemented. 1. Distribution to groups of famiies of the same size (preferabe)

20 or 2. Distribution to groups containing different famiy size. 1. Distribution to groups of famiies of the same size Organise famiies into groups Request refugees to organise themseves in groups of 20 6(6) heads of famiy (HOF), each having a famiy ration card. Each group of 20 comprises famiies of the same size. Head of famiies can be women or men. For exampe one group woud have heads of famiy size 2, another of famiy size 3 etc. You may decide not to aow famiy size 1 so as to prevent famiies spitting up in order to maximise their aocation of non-food items. A those caiming to be aone and be of famiy size 1 shoud be asked to join together with others in the same situation to form househods of 2 or 3 persons (depending on what minimum you decide). These groups are maintained for future distributions. Each group of 20 seects a representative, who can be a woman or a man. Having groups of the same famiy size means that each househod shoud receive the same quantity. It wi be easier for a to see if some househods are being more or ess favoured than others. It aso makes ife easier for the distribution staff who do not have to make a different cacuation as to quantity for each househod. Make sure that the size of the group remains reativey sma. This aows for easier sef monitoring by the beneficiaries. Divide the Camp into Zones In the case of arge popuations it may be usefu to divide the camp into zones (or bocks). Within each zone, groups of famiies of the same size are formed by the refugees. It is recommended to prepare a ist (computerised) per group indicating name of HOF, card numbers and famiy size. A distribution encosure is constructed at each distribution site, see Fig 1.

21 Distribution day Pre-position suppies Sufficient commodities for the distribution are pre-positioned in the distribution encosure the day before distribution. The quantities are based on prior cacuations considering number of beneficiaries to be served and the ration agreed upon. Up to 5% extra commodities shoud be pre-positioned to aow for damages and short-weight. Inform the beneficiaries A signboard is posted, in advance, outside each distribution point advising the quantities of commodities to be received according to famiy size. The PA system shoud aso announce this. The beneficiaries assign a representative within each group who, on the day of distribution, coects the cards of a HOF within the group. The group representative coects the commodities The group representative goes to the counter corresponding to her famiy size. A checker retrieves the cards and verifies them against her ist. Cards are punched and the group representative signs for receipt against her name on the ist. The commodities are handed over to the group representative who, together with some assistants from her group, carries them to the distribution area where a the HOF of the group are waiting. Each group member receives the same quantity The actua handing over of the commodities to the HOF takes pace with the participation of a group members. The principe is that every group member (HOF) has to receive the same quantity, since a the famiies are of the same size. This puts the responsibiity for fair distribution in the hands of the refugees themseves. The division of the commodities shoud take pace in fu view of the famiy heads so that a can see that everyone receives the same amount.