Protracted Relief and Recovery Operation Zambia 10593.0 Title: Food Assistance for Refugees from the Democratic Republic of Congo Duration: 24 months (1 January 2008 31 December 2009) Number of beneficiaries: 45,500 WFP food tonnage: 14,288 metric tons WFP food cost: US$ 4,751,497 Total cost to WFP: US$ 11,152,145 Executive Summary The Government of the Republic of Zambia (GRZ), has maintained an open-door policy and consistently granted asylum to populations seeking refuge. The current refugee population countrywide is estimated at 118,100, of which 64,500 reside in designated sites while the rest are spontaneously integrated into communities. In 2007, WFP provided food assistance to 48,000 refugees in Zambia assessed to depend on food aid. The security situation in Southern Africa and the Great Lakes Region has improved in recent years, particularly in Angola, the Democratic Republic of Congo, Rwanda and Burundi. Though the transition process is fragile, the election of constitutional governments and peace negotiations with warring factions are stimulating conditions for social and economic development. The voluntary repatriation of refugees from the Democratic Republic of Congo (DRC) commenced in mid 2007, but delays have been encountered. As of October, only 4,500 refugees have repatriated to the DRC, making it unlikely that the UNHCR planning figure of 20,000 for 2007 will be realised. WFP has been able to phase down its assistance to Angolan refugees in Zambia as most of them are now either self-reliant or repatriated. Specifically, some 73,800 refugees were repatriated during 2003 2007 under the voluntary repatriation exercise for Angolan refugees. The repatriation and the provision of land to refugees from the Meheba and Mayukwayukwa settlements has enabled WFP to reduce the number of refugees assisted under this operation by 36,500 in just two years. Food assistance now only targets the most vulnerable caseloads in these settlements. In line with WFP Strategic Objectives 1, 2 and particularly 3 (save lives, protect livelihoods and support the improved nutritional status of children mothers and other vulnerable people), this operation will continue to assist approximately 45,500 mainly Congolese refugees in the Kala and Mwange camps and vulnerable groups in the Meheba and Mayukwayukwa settlements in 2008. The number of people to be assisted is expected to gradually reduce in 2009 subject to the successful repatriation of Congolese refugees which commenced in 2007. With the successful repatriation and resettlement of Angolan refugees, this operation represents a marked decrease from the previous phase of 82,000 beneficiaries in 2006. The project s food requirements are estimated at 14,288 metric tons at a food cost of US$ 4.75 million and a total cost of US$ 11 million over the two year period. WFP s assistance will phase down as successful repatriation continues. WFP will continue to procure food commodities when possible through a Local Purchase Programme in order to encourage small-scale production and rural infrastructure improvements in and around settlements. 1
WFP promotes the active participation of female refugees in food management, distributions, incomegenerating activities, and in capacity-building activities. Cooperating partners are also encouraged to recruit more women in their workforce, especially in decision-making positions. This PRRO will complement and closely coordinate with the efforts of Government, UNHCR and NGO programmes for refugees in the country. 2
1. SITUATION ANALYSIS AND SCENARIO (a) The overall context 1. Zambia shares common borders with eight countries: Angola, Democratic Republic of Congo (DRC), Mozambique, Namibia, Botswana, Malawi, Tanzania and Zimbabwe. The country has provided asylum to a significant number of refugees from countries in conflict since the 1970s. During the 1982/1983 and 1999/2002 peak periods, more than 200,000 refugees, mostly from Angola and the DRC, received assistance in the country provided under a series of emergency, and protracted relief and recovery operations. 2. The current number of refugees in Zambia stands at 118,000, of which 54,000 have settled in urban areas and in villages along the border, while 64,500 are hosted in four designated sites: Kala (Kawambwa district) and Mwange (Mporokoso District) in Northern Province, Meheba (Solwezi District) in North-Western Province and Mayukwayukwa (Kaoma District) in Western Province. The majority of refugees in the camps are from DRC, followed by Angolans, Rwandese, and Burundians. 3. In 2007, the Government, UN agencies and donors fielded a joint assessment mission. It recommended that, of the 64,500 refugees living in the four sites, 48,000 (75 percent) continue receiving WFP food assistance; about 17,000 refugees in Maheba and Mayukwayukwa should be graduated from the food assistance programme as they had become self-sufficient mainly due to the allocation of farmland by the Government. Table 1: Refugee Camp Population by Country of Origin Camp Angola Burundi DRC Rwanda Others Total Kala - - 19,058 - - 19,058 Mwange - - 21,319 - - 21,319 Meheba 8,460 170 3,172 1,813 100 13,715 Mayukwayukwa 9,989 73 226 84 36 10,408 Camp total 18,449 243 43,775 1,897 136 64,500 Percentage 28.6 0.4 67.9 3 0.1 100 Table 2: Food Assistance Beneficiaries per Camp/Settlement July 2007 Camps/Settlement Total Population Food Assistance Beneficiaries Kala 19,058 19,058 Mwange 21,319 21,319 Meheba 13,715 2,308 Mayukwayukwa 10,408 5,000 Total 64,500 48,177 4. The political situation in Southern Africa and Great Lakes Region has improved in the recent past. Following the parliamentary and presidential elections in DRC, a Tripartite Agreement for the Voluntary Repatriation of Refugees from DRC was signed in Lusaka on 28 November 2006. The facilitated repatriation for a planned number of 20,000 refugees from Congo commenced on 3 May 2007. However, despite the overall improvement of the political situation, security concerns for the returnee population in Eastern Congo have increased. With less than 5,000 Congolese refugees having resettled in their country of origin, as of October 2007, repatriation of the remaining refugees 3
will be delayed further. The vulnerable Congolese refugees in the Kala and Mwange camps, who are not yet self-reliant, will continue to require assistance. 5. Since the voluntary repatriation exercise commenced in July 2003, some 73,800 Angolan refugees repatriated as at January 2007, leaving about 42,000 Angolan refugees in Zambia (18,449 in designated sites and 23,551 locally integrated in border villages and towns). While the repatriation exercise was successful and most Angolans are now self sufficient, thanks to the provision of land provided to them by the Government in the Meheba and Mayukwayukwa settlements, roughly 7,500 of the 18,449 refugees in designated sites have been assessed as being food insecure and vulnerable and will continue to need assistance as long as they remain in Zambia. WFP plans on assisting this caseload until April when the responsibility for assistance will be handed over to partners. This caseload includes 2,500 refugees in Meheba who are chronically ill, disabled, child headed households or elderly people. Since the start of the previous PRRO, 36,500 refugees have been taken off the lists for food assistance. 6. Refugees from Rwanda and Burundi, who constitute about 4 percent of the total refugee population, despite continuous calls for their repatriation, have not yet indicated their intention to return to their countries of origin. UNHCR, in consultation with the Government, continues to explore durable solutions, such as the possibility of local integration for this group. 7. Simultaneous with the repatriation of the Angolan refugees, camp closures and consolidation processes have been initiated in 2006. In order to close the Nyangweshi Refugee Camp, 5,000 Angolan refugees who wished to remain in Zambia were transferred to the Mayukwayukwa settlement. The Government provided all relocated households in Mayukwayukwa with 2.5 acres of agricultural land per household. WFP will provide assistance to these refugees until the next harvest in April 2008. (b) Food security and nutrition situation 8. WFP and UNHCR conducted a Joint Assessment Mission (JAM) in May 2007. The mission which included Government, Donors and Implementing Partners visited all four camps and focused on food security and livelihoods, health and nutrition, water and sanitation, education, supply of nonfood items, environment, protection, security and gender issues. 9. In the Maheba and Mayukwayukwa settlements, 1.5 hectares and 2.5 hectares of land respectively is available to each household for agricultural activities and 70 percent of the population is engaged in agriculture. Households in Maheba have access to wetland areas, which provides an opportunity for winter cropping and all year round vegetable cultivation. In both settlements, the Ministry of Agriculture and Cooperatives and Cooperating Partners provide agricultural inputs and extension services, with emphasis on conservation farming techniques and sustainable usage of forestry resources. Markets in the settlements were found to be fully functional, with cash and barter trading as the main forms of market exchange. A good number of refugee households were able to access markets outside the camp, allowing them to sell their produce at competitive prices. The 2006/07 harvest for all crops was estimated to be average in Mayukwayukwa and above average in Maheba resulting in adequate food availability for the majority of households. 10. The settlements however also host vulnerable populations. In Maheba, female headed households account for 40 percent of the population, of which 17 percent are 60 years or older. Amongst the resident Rwandese and Burundian populations in the settlement, 8 percent of the household heads are aged 18 years or younger. Although each household from the Nyangweshi caseload was allocated 2.5 hectares of land in Mayukwaykwa, not all refugees were able to cultivate, because the inputs were delivered only after the planting season. 4
11. In both the Kala and Mwange camps, food assistance was observed to be the main source of food for the Congolese refugees hosted there. Access to land is limited with only an average of 1/4 hectare allocated to each household and other opportunities for income generation are scarce. Most households engage in small-scale vegetable production to supplement their diet; however yields are generally low due to soil degradation and the absence of good land management skills. Support in the form of agricultural inputs is minimal, with only 4 percent of households receiving seed support from World Vision, and extension services are non-existent. Households with produce to sell are unable to access competitive markets outside the camps due to restrictions placed on them. However, markets within the camps are functional, with cash, barter and labour being the main forms of market exchange. Evidence of cross-border trade in agricultural commodities with DRC was also observed. 12. The Joint Assessment Mission found malnutrition in the camps and settlements to be below the national average for Zambians. Global Acute Malnutrition among children from 6 to 59 months varied from 2.1 percent to 8.4 percent. However, many adults were reported to be malnourished and chronically ill, assumed to be associated with HIV infection. Less than 15 percent of the mothers sampled were either malnourished or obese, which is comparable with the national average. Specifically, in the four camps, wasting ranges from 2.6 percent to 8.4 percent, underweight ranges from 14.7 percent to 27.5 percent while stunting ranges from 27.9 percent to 56.7 percent. 13. Data on food consumption patterns revealed that 80 percent of all refugees had adequate consumption, 18 percent were borderline and less than 2 percent had poor consumption 1. Such results attest to both adequacy and variety in diet, contributing to good nutrition. Micronutrient requirements are met through the intake of fresh vegetables through beneficiaries own production and distribution of WFP fortified foods. 14. The Joint Assessment Mission noted the lack of a food supplementation programme to meet the increased nutrition needs of people living with HIV and AIDS. The Government provides Antiretrovirals (ARVs) for refugees who are HIV positive through district hospitals. Many of the drug recipients interviewed reported an increased food requirement when starting the drug regime and negative side effects due to the lack of adequate food. The mission also noted the lack of therapeutic foods F75, F100 and RUTF (Ready-to-Use Therapeutic Food), such as plumpy nut, for the treatment of severe cases of malnutrition. (c) Scenarios 15. The proposed food assistance programme is based on the assumption that the repatriation of Congolese refugees continues and the self reliance or settlement opportunities for the remaining caseloads of various nationalities increases. The initial target for the repatriation of 20,000 of the roughly 44,000 Congolese in camps and settlements in Zambia has been revised downwards to 5,000 in 2007, as delays have been encountered with reception arrangements in the DRC. As of August 2007, only 4,500 out of the planned 20,000 refugees were repatriated. 16. In light of the ongoing repatriation of Congolese refugees, and the phase out of caseloads in the Meheba and Mayukwayukwa settlements as they attain a moderate level of self-sufficiency, 45,500 refugees will be assisted under this PRRO in 2008 and 28,000 in 2009. 1 UNHCR/WFP Joint Assessment Mission, May 2007 5
2. POLICIES, CAPACITIES AND ACTIONS OF THE GOVERNMNET AND OTHERS (a) Policies, capacities and actions of the Government 17. Under the Ministry of Home Affairs, the Office of the Commissioner for Refugees (COR) is entrusted with the coordination of the assistance to refugee programmes in the country and the implementation of the GRZ policy regarding refugees. 18. Zambia has adopted the 1951 UN Convention on Refugees with the enactment of its Refugee Control Act in 1970. The act, which is flexibly applied by the Government, carries a number of reservations which preclude permanent residence or naturalisation, and work permits for refugees who are nonetheless allowed to live indefinitely in Zambia. Efforts at approving legislation favouring local integration have stalled. 19. The Government has taken major steps in assisting the predominately Angolan refugees in the Maheba and Mayukwayukwa settlements to attain food security through its land allocation policy. To date, over 40,000 hectares have been allocated for the two settlements, allowing up to 70 percent of the refugee population to engage in agricultural activities and no longer require food assistance. However, a similar policy has not been initiated for refugees in Kala and Mwange camps for the Congolese refugees. Without other income generating options, these populations are still reliant on WFP assistance to meet their nutritional needs. (b) Policies, capacities and actions of other major actors 20. UNHCR, in collaboration with the Commissioner for Refugees (COR) coordinates country-wide refugee assistance programmes. The main thrust of UNHCR activities is aimed at helping the Government to protect refugees and asylum-seekers and to enact more refugee-friendly legislation. Implementation arrangements are oriented towards repatriation and sustainable local integration; this includes building the capacity of government ministries to serve the needs not supported by legislation of the remaining Angolan, Rwandan and Burundian refugees. 21. UNHCR and WFP play an active role in the Sector Advisory Group on Social Protection established under the Fifth National Development Plan to coordinate and monitor programmes targeting refugees and host communities, and has entered into partnerships with government ministries and NGOs for the provision of basic social services, health, nutrition, shelter, water and sanitation as well as non-food items required. In the area of food security and nutrition, UNHCR and WFP have signed a joint plan of action which details the activities of each agency. (c) Coordination 22. Coordination between WFP, UNHCR, Government and NGO counterparts is maintained at central level through monthly inter-agency coordination meetings, which are also replicated at field level with the participation of all stakeholders including representatives of the refugee elders and food committees on which we ensure that women are equally involved. Stakeholders work closely on planning, implementation, phase-out strategies and resource mobilisation, including joint appeals, field visits, the annual JAM and the repatriation task forces. 6
3. OBJECTIVES OF WFP ASSISTANCE 23. The overall goal of this PRRO is to meet the basic nutritional needs of refugees by providing secure access to food and safeguard the nutritional status of refugee beneficiaries until they attain food selfsufficiency or are repatriated to their country of origin, with the following objectives: Save lives and reduce and/or stabilise the prevalence of acute malnutrition among targeted beneficiaries and improve the nutritional status of vulnerable groups including those living with HIV (SO 1; SO 3). Improved food security and livelihoods amongst refugee households while in Zambia as well as upon resettlement in their home country (SO 2). Sustainable solution for refugees in Zambia facilitated with the organised voluntary repatriation exercise (SO 2). 4. WFP RESPONSE STRATEGY (a) Nature and effectiveness of food security related assistance to date 24. WFP has been providing food assistance to refugees in Zambia since 1968, initially caring for refugees from Angola and Mozambique. The refugees are generally satisfied with the entitled food ration although many households indicate that the food rations rarely cover the entire month. As a result, many beneficiaries restrict themselves to two meals a day. Among a small percentage of refugee families, alternative sources of income are available, either through the sale of agricultural produce, trading, barter or casual labour which is used to supplement the diet with additional commodities. Vegetable gardening also provides a means of supplementing micronutrient intake and contributing to diversity in the diet. 25. The land allocation policy implemented by the Government in Maheba and Mayukwayukwa settlements and the provision of agricultural inputs has enabled 17,000 refugees remaining in these settlements to become self-reliant. WFP assistance is still required for about 30 percent of the population hosted in these camps. (b) Strategy Outline 26. This PRRO will cover a period of twenty-four months from 1 January 2008 until 31 December 2009. Based on the Government request, allowing for the on-going repatriation efforts and old caseload refugees attaining a moderate level of self-sufficiency, assistance will be planned for 45,500 refugees in 2008 and 28,000 in 2009. Beneficiary figures will be revised as the assisted voluntary repatriation exercise of Congolese refugees proceeds and durable solutions are found for vulnerable caseloads currently resident in the Maheba and Mayukwayukwa settlements. 27. A general food ration will be provided to all refugees qualifying for food assistance. Vulnerable groups will also receive supplementary rations; these include HIV positive individuals on ARVs, moderately malnourished children from 6 to 59 months, pregnant and lactating women, as well as chronically ill persons and TB patients identified by health clinics. WFP and its implementing partners will work with UNICEF for the provision of therapeutic food for severely malnourished children, should it be required. 28. To facilitate the voluntary repatriation exercise, WFP, working with UNHCR and the International Organisation for Migration (IOM), will provide wet rations at the departure and transit centres. The food needs of refugees travelling on the one to two day trip will be covered with ready-to-eat 7
commodities such as Humanitarian Daily Rations (HDRs), if available. To support the reintegration process, WFP in the DRC is providing a three-month ration as part of a reintegration package for returnees. 29. In addition to supplementary rations for HIV and TB patients, HIV/AIDS prevention and awareness activities will be mainstreamed under this operation with the implementation of programming strategies adapted from a UNHCR/UNICEF/WFP Joint Assessment 2. Of the twenty strategies formulated, six have been selected for implementation in Zambia based on the principles of feasibility, sustainability and use of existing structures. HIV prevalence in the camps is estimated to be 2.4 percent, significantly lower than the Zambian national average of 16 percent. 30. WFP will continue to mainstream gender in the implementation of this PRRO by ensuring that agreements with NGO partners and food management committees reflect WFP s Enhanced Commitments to Women (ECWs). Training opportunities will be promoted in line with ECW to sensitise and educate beneficiaries, especially women, on various topics in health and nutrition including HIV awareness, prevention, and education. In particular, and in line with ECW V, WFP will continue to support refugee women s involvement in executive positions on food management committees by providing training on leadership skills and the monitoring of food distributions. Efforts to-date have been quite successful, with women currently holding 50 percent of the positions on food management committees in the Mwange and Kala camps. The ration cards in all the camps/ settlements under this new PRRO will show the names of both the head of household and of the food entitlement holder, which is normally the most senior woman in the household. 31. A comprehensive programme to combat sexual and gender-based violence (SGBV) has been implemented by UNHCR in all the camps. This programme includes the establishment of interagency SGBV task forces and the appointment and training of psychosocial counsellors. In line with ECW IV, WFP will continue to support these efforts, in collaboration with UNHCR, GRZ and partners, by advocating for integrated approaches towards SGBV in all sector activities, including food distribution, physical planning, sanitation and registration. (c) Exit strategy 32. The exit strategy under this project is directly linked to Government and UNHCR efforts in finding solutions for the current refugee populations, either through repatriation, sustainable integration for refugees who decide to remain in Zambia, or resettlement for those for whom neither local integration nor repatriation are viable options. 33. In an Intention Survey conducted by UNHCR in December 2006, 90 percent of Congolese refugees in the two camps (Kala and Mwange) expressed their interest in being repatriated during 2007. While it is expected that over the coming two years most of the Congolese refugees will opt for assisted voluntary repatriation, delays encountered to date suggest that this exercise may take longer than planned. 34. The prevailing legislation presents a challenge to finding durable solutions for the remaining non- Congolese refugees who have decided to remain in Zambia. Nevertheless, the Government did allocate land to all households in both the Maheba and Mayukwayukwa settlements, thus, enabling them to become self-reliant. The 2007 JAM reported that about 70 percent of the households in both settlements were no longer in need of food assistance. WFP and UNHCR agreed in their 2007 joint 2 UNHCR/UNICEF/WFP Joint Assessment on integrating HIV/AIDS with food and nutrition systems to support HIV prevention, care, treatment and support for the HIV-infected and affected. 8
work plan that food assistance in both settlements would only be provided to vulnerable households and the caseload relocated from Nyangweshi. 35. UNHCR is working with the Government and development partners on opportunities for selfreliance through the Zambia Initiative. The Zambia Initiative, established in 2002, rests on two pillars: poverty reduction with priority given to agricultural production and empowerment of refugees and their local integration for a durable solution. Through the Zambia Initiative, refugees have been integrated within the Government s National Development Plan and its poverty reduction strategy, despite the fact that local integration has yet to be supported. 5. BENEFICARIES AND TARGETING 36. Beneficiary selection is done jointly by WFP, the Government (Ministry of Home Affairs/Commissioner of Refugees), UNHCR, camp leaders and the lead implementing partners. WFP will provide food assistance to all refugees registered in food entitlement records maintained by the implementing partners and verified on a monthly basis. In the Kala and Mwange Refugee camps, food lists will be updated after each repatriation exercise. In the two settlements, Maheba and Mayukwayukwa, only persons classed as vulnerable, including aged, child headed household, or chronically ill and thus unable to meet their own food needs, will receive assistance. 37. Supplementary feeding activities will target vulnerable groups including HIV positive individuals on ARVs, moderately malnourished children from 6 to 59 months, pregnant and lactating women, as well as chronically ill persons including TB patients identified by health clinics. Entry and exit criteria are based on the standard WFP/UNHCR agreed indicators. Given the demographics of the caseload in Maheba and Mayukwayukwa, it is estimated that 20 percent of the food-assisted population will require supplementary feeding while according to the nutritional survey data only about 5 percent of the population will require supplementary feeding in Kala and Mwange. Table 3: No of Refugees by Type of Support (2008 2009) Location General Distribution Jan - Apr 2008 General Distribution May - Dec 2008 General Distribution 2009 No. of Refugees Supplementary Feeding Jan- Apr 2008 Supplementary Feeding May Dec 2008 Supplementary Feeding 2009 Meheba 2,500 0 0 500 0 0 Mayukwayukwa 5,000 0 0 300 0 0 Mwange 20,000 20,000 15,000 1,000 1,000 750 Kala 18,000 18,000 13,000 1,000 1,000 730 TOTAL 45,500 38,000 28,000 2,800 2,000 1,480 6. NUTRITIONAL CONSIDERATIONS AND RATIONS 38. The JAM 2007 findings indicate that food assistance requirements, based on access to arable land, agricultural production, asset ownership, income sources and nutritional indicators vary between the four camps. In Maheba and Mayukwayukwa, households who have access to land in general have been able to produce sufficient food to meet their nutritional needs. However, both settlements are host to vulnerable groups who have been unable to cultivate and are dependent on food assistance to meet their needs. A food basket designed to meet the recommended daily food needs is recommended for this caseload until a sustainable, durable solution has been agreed to between the Government and UNHCR. For refugees in the Mwange and Kala camps, the joint assessment 9
indicated that food assistance was still necessary due to the lack of agricultural production, sustainable livelihood options, and the restrictions on movement outside the camp, and recommended the continuation of food assistance based on a food basket designed to meet the daily food needs. 39. Under general food distribution, the WFP supplied basket will consist of cereals, pulses, fortified vegetable oil and iodized salt. The ration will provide 2,122 Kcals per day in order to meet the recommended daily intake for populations dependent on food assistance. Fortified blended food and vegetable oil will be provided as a take home supplementary ration to vulnerable groups with increased nutritional needs, providing an additional 861 Kcals. In partnership with the Government, WFP will continue to explore the production and distribution of fortified cassava flour as an alternate cereal component of the food basket under this project. Table 4: Food Basket and Ration Scales by Programme Category Commodity General Food Ration Supplementary Feeding Ration Gram/person/day Maize meal 420 Pulses 60 Vegetable Oil 25 20 Iodised Salt 5 Blended Food 50 180 Energy (Kcal) 2122 861 Protein 11.00% 15.10% Fat 18.60% 32.20% Table 5: Food Requirements (MT) for 2008 and 2009 Feeding Days Caseload Cereal Pulses Oil CSB Salt HDRs Total Year 2008 General rations 120 45,500 2,293 328 137 273 27 3,058 (Jan-Apr) General rations 240 38,000 3,910 559 233 466 47 5,215 (May-Dec) Supplementary 120 2,800 7 60 67 Feeding (Jan-Apr) Supplementary Feeding (may-dec) 240 2,000 10 88 98 Repatriation 1 10,000 10 10 Subtotal 2008 6,203 887 387 887 74 10 8,448 Year 2009 General rations 360 28,000 4,292 613 256 511 51 5,723 Suppl Feeding 360 1,480 11 97 108 Repatriation 1 10,000 10 10 Subtotal 2009 4,292 613 266 608 51 10 5,840 Grand Total 10,496 1,500 653 1,495 125 20 14,288 Note: No carry-over stocks from the current PRRO into the new PRRO are anticipated at this stage. 10
40. Micronutrient requirements will be addressed through the provision of fortified maize meal or cassava flour. In addition, salt will be iodised and vegetable oil fortified with Vitamin A. To supplement the WFP food basket, refugees will be encouraged and supported to engage in vegetable cultivation and poultry farming to supplement their diet. 41. As recommended by the JAM 2007, annual nutrition surveys will be carried out in both Maheba and Mayukwayukwa to monitor the changes in the nutritional status following the phase-out food assistance for most of the refugees as of July 2007. 7. IMPLEMENTATION ARRANGEMENTS 42. WFP will continue to manage of the general food distributions following the successful transfer of food management responsibilities from UNHCR to WFP (institutionalised under the previous project, PRRO 10071.2). This transfer of responsibility has greatly improved the efficiency and accountability of operations: the number of days required for distribution has been reduced by up to 50 percent; control over beneficiary numbers has improved through stringent verification processes, and commodity losses have been drastically reduced with training and improved handling and stock control systems. 43. WFP will continue to implement project activities in the camps with existing partners who have experience in food management and handling: World Vision, Zambia Red Cross Society, St. Mary s Home Based Care, and COR. Field Level Agreements will be signed covering food management and distribution tasks while operational costs incurred by the partners will be reimbursed on the basis of an annually agreed upon budget. 44. Following the significant reduction of refugees receiving food assistance in Maheba and Mayukwayukwa in accordance with the 2007 JAM recommendations, WFP has begun working with the Commissioner of Refugees Office to develop their capacity in handling food distributions. Logistics, administrative and technical support has been provided to enable them to assume the responsibility for food management, distribution and reporting. This initiative contributes to the overall UNHCR objective of building the capacity of Government Ministries to serve the needs of the remaining refugees. 45. While repatriation is on-going, food distributions in the northern camps of Kala and Mwange will be carried out twice a month, which is intended to facilitate the regular updating of food lists as refugees depart from the camps. In Maheba and Mayukwayukwa, food distributions will be carried out once a month. Efforts to encourage women to participate in food committees and food distribution teams will continue through on-going leadership training and sensitisation facilitated by the implementing partners. WFP will further endeavour to have at least 50 percent women in leadership positions on food management committees. Households will receive food entitlements on the basis of a household ration card which will include the names of both the male and female heads/food entitlement holders of the family. Female family members will be nominated as food entitlement holders, thus enhancing women s control over the family rations. 46. Through this operation, WFP supports the Government's Disaster Management and Mitigation Unit and jointly participates in early warning, preparedness and regular joint assessments. WFP in collaboration with inter-agency partners will conduct and/or participate in training programmes for UN, NGO and Government staff on emergency preparedness, as well as the prevention of Sexual and Gender Based Violence (SGBV), and abuse in humanitarian crises. Special attention will be given to HIV/AIDS awareness training, carried out by WFP, for staff, cooperating/coordinating 11
partners and beneficiaries. Additional training for storekeepers and food distributors in warehouse maintenance, food management/ distribution and reporting will also be provided by WFP under this PRRO. 47. To date, WFP has provided 23 hammer mills for women s clubs in the camps to facilitate the grinding of maize grain distributed to refugees and generate income for the clubs in the camps/settlements. The clubs have been encouraged to become cooperatives and have received guidance from the Ministry of Agriculture and Cooperatives on laws and processes governing cooperatives in Zambia. Men have been encouraged to assist the women with planning, budgeting and the transfer of technical skills. This collaboration of men and women on the implementation of a project which fosters partnerships to achieve gender equality received the Catherine Bertini Award in 2006. 48. Given the availability of commodities locally, and the high cost of transport to Zambia, a landlocked country, cash contributions for local purchases are encouraged. Current national maize production figures indicate that sufficient maize quantities are available for purchase given the national of surplus production of an estimated 250,000 tons in 2006/07. Since 2001, WFP has purchased over 300,000 tons in Zambia with both large and small scale traders included on the procurement shortlists. WFP and its partners benefit from shorter lead times and reduced transport costs by buying close to source when commodities are procured locally. 49. Local procurement will continue to explore the promotion of cassava cultivation and use as a cash crop in support of the NEPAD agriculture strategy entitled, Cassava - a Poverty Fighter in Africa. WFP s Local Procurement Programme (LPP) will contribute to development opportunities within the host communities around Kala and Mwange in Luapula and Northern provinces, where the majority of cassava in Zambia is produced. The LPP and fortified cassava flour initiative will contribute to action points outlined in Zambia s Poverty Reduction Strategy, including development of entrepreneurial skills, creation of a strong agricultural market and implementation of quality control standards. 50. In line with SO 5, the cassava mills have been donated to the Government by WFP in an effort to increase the Government s capacity to diversify agricultural production and open up opportunities for new markets. WFP will provide the implementing partner with training in terms of fortified cassava flour production and lab equipment for the continued quality control of the product. 51. WFP will be responsible for the timely transport, storage and management of commodities up to EDP level. Ports and overland routes in Mozambique, South Africa and Namibia will be considered for receipt of international cargo. Commodities procured regionally will be sourced in South Africa, Malawi, Tanzania and Namibia. Overland and internal transport contracting will follow a competitive open tendering process, supported by performance monitoring. Local and regional procurement actions and delivery terms will be designed to ensure timely supply of commodities preventing delays or shortfalls in distributions. EDPs will be managed by the Cooperating Partners and all sites will be provided with COMPAS, the global commodity tracking system. WFP Sub Offices will provide support to Cooperating Partners, through regular monitoring and on-site training. 52. Resources permitting and to ensure an uninterrupted distribution of food commodities as well as to avoid high transport costs during the rainy season, WFP will continue to pre-position 3-4 months food at EDP level. 12
8. PERFORMANCE MONITORING 53. The implementation of the project will be monitored using WFP standard Monitoring and Evaluation guidelines and Result Based Management (RBM) tools. The performance monitoring plans will be based on the project log frame (Annex II). Additional performance monitoring data will be obtained from monthly distribution and stock reports submitted by the Cooperating Partners. Data collected will form the basis of regular programme reviews and compilation of the annual standard project reports. 54. Cooperating partners, providing health services in the camps/settlements, will conduct food basket monitoring during distributions. WFP and partners will use a WFP post-distribution monitoring (PDM) tool to measure access, level of utilization and adequacy of the food basket at household level. The nutritional status of the camp populations will be monitored through monthly health/nutrition reports prepared by the partners in addition to periodic nutritional surveys carried out by WFP and UNHCR. Annual joint assessment missions will be conducted in collaboration with Government, Donors, UNHCR and NGOS to assess livelihood changes and the continued need for food assistance. 55. Monthly Food Distribution Committee meetings involving all stakeholders will be held in each of the camps. This forum will review progress towards performance indicators, distribution modalities and will be used to resolve any implementation problems which should arise. UNHCR/COR/WFP will also periodically visit refugee settlements and reception centres to review progress in project implementation. 56. WFP will monitor EDP management and food distributions through its sub office in Kawambwa. A programme officer and programme assistant based in Lusaka will provide central level support to the operation and act as liaisons between the Government, UNHCR, and Cooperating Partners. Logistics and finance/administrative staff included in the project budget will ensure timely delivery of food to the camps and prompt payment to partners and logistics service providers. 9. RISK ASSESSMENT AND CONTINGENCY PLANNING: (a) Risk Assessment 57. The success of the operation depends on adequate resources from WFP, UNHCR and partners throughout the implementation period. 58. Adequate funding for UNHCR s voluntary repatriation exercise and durable peace in the DRC are critical to a sustained return. While the 2006 elections were successful, the security situation remains fragile as tension among opposing political camps remain. The potential risk of a resumption of fighting should be taken into account as renewed and continued instability may change the repatriation plans for the refugees and/or lead to an influx of new arrivals. (b) Contingency Planning 59. A joint UNHCR/WFP contingency plan is in place which takes into account possible scenarios to enable UNHCR, WFP, GRZ and NGO partners to provide protection and assistance to a possible influx of asylum seekers, should a sudden deterioration in the situation in DRC or other neighbouring countries occur. 13
60. Should there be an additional influx of refugees requiring assistance, WFP operations will be adjusted through a budget revision to address any additional needs. As most of the food basket commodities are available locally or regionally, timeframes between call-forwards, purchases and arrivals can be reduced to a minimum in order to act as quickly as the situation requires. 10. SECURITY CONSIDERATIONS 61. UNHCR has been conducting training for refugee women on how to prevent and respond to sexual and gender-based violence. Women s participation in camp decision-making structures has increased, and the food management committees in both Kala and Mwange camp are comprised of 50 percent women. All personnel involved in refugee operations (UN and NGOs) are required sign a code of conduct. UNHCR has assisted the Government in the recruitment of security personnel for the camps; particularly policewomen. Distribution centres are located in safe areas and at a reasonable distance from homes. The centres are constructed so as to allow for orderly and uncongested food distributions. 62. The two camps of Kala and Mwange are located at a safe distance from the border with DRC. Although the overall security along border areas is good, WFP continuously updates its security plans. WFP Zambia operations comply with minimum operating security standards. All field staff (WFP/UNHCR) have received Security Awareness Training. In addition, all sub-offices are able to communicate with Lusaka by HF and VHF radios, telephone, e-mail and fax. 11. RECOMMENDATION The Executive Director is requested to approve PRR0 10593.0 which is designed to benefit Congolese refugees and vulnerable refugee households in camps and settlements in Zambia, from 1 January 2008 to 31 December 2009 at a food cost of US$ 4,751,497 and a total cost to WFP of US$ 11,152,145. Approved by: Josette Sheeran Executive Director Date: 14
ACRONYMS AAH AHA AIDS ARV AU CO COMPAS COR CORD CP DHMT DRC ECW EDP EMOP FAO FDP FFA GDP GRZ HDR HEPS HF HIV IOM ITSH JAM LDC LPP LTSH MDGs NEPAD NGO ODOC ODJ PDM PRRO RBM RUTF SFP SGBV UN UNHCR UNICEF VHF VSATs WFP WVZ Aktion Afrika Hilfe Africa Humanitarian Action Acquired Immune Deficiency Syndrome Anti-Retro-Viral African Union Country Office Commodity Movement Processing and Analysing System Commissioner for Refugees Christian Outreach Relief and Development Cooperating Partner District Health Management Team Democratic Republic of Congo Enhanced Commitments to Women Extended Delivery Point Emergency Operation Food and Agriculture Organization Final Delivery Point Food For Assets General Food Distribution Government of the Republic of Zambia Humanitarian Daily Ration High Energy Protein Supplement High Frequency Human Immuno-deficiency Virus International Organization for Migration Internal Transport, Storage and Handling Joint Assessment Mission Least Developed Country Local Purchase Programme Landside Transport, Storage and Handling Millennium Development Goals The New Partnership for Africa s Development Non-Governmental Organization Other Direct Operational Costs Operations Division Johannesburg Post Distribution Monitoring Protracted Relief and Recovery Operation Results Based Management Ready to Use Therapeutic Food Supplementary Feeding Programme Sexual and Gender Based Violence United Nations United Nations High Commission for Refugees United Nations Children s Fund Very High Frequency Very Small Aperture Terminals World Food Programme World Vision Zambia 15
ANNEX IA WFP PROJECT COST BREAKDOWN Quantity (MT) Average cost (US$) per MT Value (US $) COSTS A. Direct operational costs Cereals 903 228.5 206,354 Processed cereals 5,892 228.5 1,346,440 Cereals - Fortified cassava flour 3,700 263.5 974,950 Pulses 1,500 500 750,000 Vegetable Oil 653 1104 720,912 HEPs/CSB 1,495 459 686,280 Iodised Salt 125 459 57,381 HDR 20 459 9,181 Total commodities 14,288 $ 4,751,497 External transport $ 492,512 ITSH - Total LTSH $ 3,712,892 Other direct operational costs $ 513,500 Total direct operational costs $ 9,470,401 B. Direct support costs (see table below for details) $ 952,164 C. Indirect support costs (7 percent of total direct costs) $ 729,580 TOTAL WFP COSTS $ 11,152,145 16
ANNEX IB DIRECT SUPPORT REQUIREMENTS ($US Dollars) Staff International professional staff $ 289,440 National professional officers $ 96,000 National general service staff $ 260,000 Temporary assistance $ 15,000 Overtime $ 5,000 Staff duty travel $ 69,000 Staff training and development $ 35,000 Subtotal $ 769,440 Office expenses and other recurrent costs Rental of facility $ 12,000 Utilities (general) $ 8,000 Office supplies $ 22,000 Communication and IT services $ 27,000 Insurance $ 14,000 Equipment repair and maintenance $ 9,000 Vehicle maintenance and running cost $ 30,000 Other office expenses $ 13,724 United Nations Organizations Services $ 10,000 Subtotal $ 145,724 Equipment and other fixed costs Furniture tools and equipment $ 3,000 Vehicles $ 18,000 TC/IT equipment $ 16,000 Subtotal $ 37,000 TOTAL DIRECT SUPPORT COSTS $ 952,164 17