Supplies and Food Aid - Field Handbook (UNHCR, 1989, 296 p.) CHAPTER 8 - DISTRIBUTION AND END-USE 8.1 Turnover to Implementing Partners (introduction...) Chart 8.A: Takeover Certificate - Information Requirements 8.2 Distribution to the Refugees (introduction...) Chart 8.B: Factors Affecting Distribution Effectiveness and Efficiency Distribution Centres Distribution Methodology Chart 8.C: Distribution Options Chart 8.D: Accountability of Distribution Staff Distribution Reporting Chart 8.E: Information to be Included in a Distribution Report Supplementary Feeding Centres 8.3 Identifying the Beneficiaries 8.4 Distribution Day (introduction...) Chart 8.F: Mass Distribution and Crowd Control 8.5 Monitoring Distribution (introduction...) Chart 8.G: Distribution Monitoring Objectives 8.6 UNHCR Distribution Reports

Supplies and Food Aid - Field Handbook (UNHCR, 1989, 296 p.)

CHAPTER 8 - DISTRIBUTION AND END-USE

8.1 Turnover to Implementing Partners

8.1.1 Supplies and food aid rarely remain under the direct control of UNHCR throughout the supply process until their distribution to the beneficiaries. A variety of operational arrangements with UNHCR's implementing partners are used to meet refugee needs for material assistance.

8.1.2 Aside from food and household goods, many of the supplies that UNHCR provides are not distributed to the refugees themselves. An almost endless list of materials and equipment are used in projects designed to promote interim self-reliance among the refugees and to improve their health and well-being. Examples are pumping equipment to provide reliable, potable water supplies, agricultural equipment, cement for the construction of latrines, storage and other buildings, and books and educational materials for refugee schools.

8.1.3 At some point in the supply process, goods (and sometimes even the money to buy the goods) are turned over to a UNHCR implementing partner, who assumes responsibility to provide and use the goods for the purposes prescribed in the relevant project agreement. This formal turnover must be documented and substantiated.

8.1.4 A generic name for this documentation is a Takeover Certificate. It must indicate the nature, condition and quantity of the goods, the name of the implementing partner receiving the goods, the date and their intended purpose. It provides documentary evidence should questions concerning the custody of the goods arise at a later date. The Takeover Certificate can have many forms:

(a) a Bill of Lading, endorsed to an implementing partner prior to the arrival of a consignment, with a signed and annotated copy returned to UNHCR following port clearance;

(b) a release order, authorized by a designated UNHCR official, instructing the responsible storekeeper to turn over specified supplies for a named purpose to an implementing partner. The storekeeper endorses the release order which is also signed by an official of the implementing agency to acknowledge receipt; or

(c) a Receipt Voucher, Stores Requisition or transport waybill which the implementing partner signs to acknowledge receipt of the goods listed on the document.

8.1.5 Retain the Takeover Certificate to match with subsequent reports from the implementing partner on the final use or disposition of the supplies. These reports may include distribution reports, inventories of non-expendable property, equipment installation reports or periodic progress and project reports. This follow-up facilitates UNHCR's distribution reporting and end-use evaluation, to enhance accountability within the supply system and with our donors.

Chart 8.A: Takeover Certificate - Information Requirements

WHO ...	(name of the organization and representative) turned over ...
WHAT ...	(description of the goods, exact quantity and condition) ...
TO WHOM ...	(name of receiving organization and representative) ...
WHEN ...	(date and time) ...
WHERE and HOW ...	(circumstances/location) ...
WHY ...	(for what purpose) ... and
SIGNED BY ...	(representatives of both the delivering and the receiving organizations)

8.2 Distribution to the Refugees

8.2.1 Distribution of food, blankets, cooking utensils and other domestic items to the beneficiaries takes place from in-settlement stores, ration shops or distribution centres, usually located right in the refugee camps. Camp administrators, under the direction of UNHCR's implementing partners, supervise the distribution. Proper control, monitoring and reporting procedures must be instituted to ensure that the refugees are not short-changed.

8.2.2 When all other phases in the logistics operation are adequately controlled, distribution provides the final opportunity for abuses to occur, so that the refugees may not benefit fully from the material assistance provided. Shortages can be concealed by underscooping. Goods can be subject to inequitable distribution, hoarding or diversion by refugee leaders.

8.2.3 Refugee awareness of their entitlements and the methods used to distribute commodities make the refugees themselves part of the distribution control system. Encourage the formation of refugee committees to monitor each distribution. Both UNHCR and WFP field officers should also monitor distributions carefully, to watch for irregularities and to verify the quality and the quantity of the household goods and food rations being distributed and the methodology employed.

Chart 8.B: Factors Affecting Distribution Effectiveness and Efficiency

· Unreliable demographic data or inadequate registration system for the beneficiaries.

· Ineffective distribution methodology. For example, when distribution is to refugee group leaders, rations actually reaching individuals are unknown.

· Uncoordinated storage and distribution areas.

· Poor security, failure to provide fenced storage and distribution centres.

· Irregular or unreliable supplies of rations.

· Supplies unsuitable for refugee needs or culturally unacceptable.

· Cultural and social pressures within the refugee group itself, including threats to personal security.

· Intense local pressure on national distribution staff, especially those residing in or near the camps, affecting quality of service, degree of trust and ease of working relationships.

· Lack of sufficient and experienced international monitoring staff, with proper transportation and convenient living accommodations.

· Lack of day-to-day liaison and cooperation between responsible authorities.

· Lack of properly documented controls and reporting requirements.

Distribution Centres

8.2.4 Proper distribution of food and other relief items requires:

(a) a reasonable number of refugees served by each distribution centre to permit safe Storage of commodities and proper control over each distribution;

(b) adequate, well maintained and secure storage to hold the supplies at the distribution site;

(c) standardized measures and weigh scales, properly used by distribution staff; and

(d) distribution staff who are trained in the principles and practice of distribution.

8.2.5 Distribution centres should have two separate areas:

(a) a secure, enclosed, sheltered storage area with sufficient capacity to hold supplies received in the camp for several days pending distribution. Staff must apply standard warehousing rules, especially those concerning cleanliness, security, stacking and record keeping; and

(b) a distribution area through which the beneficiaries pass in an orderly fashion.

8.2.6 Reserve or buffer stocks may have to be stored in the camp or nearby, for periods when the area is inaccessible, during the rainy season or the winter months. These needs should be anticipated during the logistics planning phase. See Chapter 5, Field Logistics Operations, and Chapter 7, Storage and Warehousing.

8.2.7 Equip distribution centres with scales to weigh commodities and to spot-check distributed food rations. Food rations, though calculated by weight, are often distributed by volume using pre-measured scoops. Level scoops are better than scoops with graduated markings, to ensure equal rations for all. For some refugee groups, «heaped» measures are more culturally acceptable, as evidence of a full measure. WFP has been instrumental in several countries, providing labelled scoops of the proper size.

8.2.8 Encourage cooperation between field monitoring staff, distribution workers, camp administrators and refugee leaders to schedule distributions, to inform refugees of their entitlements, to distribute equitable quantities and to provide an orderly flow of people through the distribution centre. Train distribution workers in proper scooping techniques and the use of weigh scales.

Distribution Methodology

8.2.9 Food rations must be regularly distributed in sufficient quantities to provide or supplement a nutritionally balanced diet for the refugee recipients and their families. The distribution of other relief goods and household items should be based on clearly established criteria to ensure equitable treatment of all the refugees involved.

8.2.10 Plan each distribution in advance and establish target quantities for each distribution centre. Taking into account what is available and where it is located, prescribe per capita quantities and commodities or items to be distributed on the next scheduled distribution date. Based on the refugee population served by each distribution centre, calculate delivery quantities and timing. Total tonnages are converted into units -bags, cartons and drums - and entered on stock issue vouchers and transport waybills for each destination.

8.2.11 Adjustments to the established food ration scale are sometimes necessary because of unevenness or lateness of shipment arrivals. When stocks on hand are insufficient for planned distributions, consider borrowing available local stocks from the government or other international organizations, to be replaced promptly on arrival of an imminent shipment.

8.2.12 Distribution controls must be assured to prove the eligibility of the people presenting themselves to receive material assistance and to avoid duplicate distribution to the same individuals. In ongoing refugee situations, registered refugees are often issued ration cards, which they present at each distribution. Less sophisticated methods which are no less effective, especially for emergency situations or in the initial stages of a refugee operation, include marking the refugees with skin dye, issuing and then collecting tokens or coupons, or physically separating those who are waiting for assistance from those who have already received it.

8.2.13 Overdistribution, within reasonable limits, is better than underdistribution. For example, recipients whose food rations exceed their needs, in moderation, can trade these excesses locally for other food and domestic needs, such as fruits, vegetables, meat and clothing.

8.2.14 One way to reduce food losses, increase consumption and make stocks easier to monitor is to provide limited, more frequent rations. A regular 10-day ration is smaller to handle logistically and refugees are not as likely to sell or hoard supplies. Overconsumption is not a critical problem because distribution is more frequent. Increased frequency also permits greater flexibility in adjusting ration sizes to compensate for delayed shipments. Scarce commodities can be used to best effect because they can be included periodically in more frequent smaller rations, rather than waiting until enough is on hand for larger, less frequent distribution. Because of the smaller quantities involved, the time taken for each distribution to the refugees is also reduced.

Chart 8.C: Distribution Options

· Direct to family heads or individual refugees, the most effective method to assure equitable distribution.

· Indirect to representatives of refugee groups (block or tribal leaders) for redistribution within the group. This works effectively only if refugee leaders are strong and honest.

· Centralized, where all commodities are distributed at one place in the camp.

· Decentralized, where there are several distribution centres located in the camp.

· Fixed distribution times, when rations are distributed on a particular date between specified hours. Always allow enough time, as early in the day as possible, to complete the planned distribution in an orderly fashion.

· Open distribution times, when refugees can collect rations at any suitable time over a fairly long period.

Distribution centre staff should be selected objectively, paid, follow prescribed distribution procedures, and be subject to monitoring and disciplinary measures.

Providing cooked food or prepackaged, mixed ration packs is expensive.

Chart 8.D: Accountability of Distribution Staff

1. The quantity of commodities on hand in the distribution centre should closely match the requirements of the beneficiaries.

2. The refugees should know what their entitlements are and how they are measured.

3. Refugees should have a ration card or other documentary proof of entitlement. The distribution worker must record the card number, punch the card or enter the amount in the refugee's passbook. Spot-check individual refugees after collection.

4. Tokens or coupons may be issued to the refugees, which are surrendered to distribution staff in exchange for a particular item or quantity of commodities. At the end, distribution staff must have enough tokens or coupons to equal the amounts distributed. Tokens and coupons are subject to stringent security, both before they are given to the refugees and after they are retrieved.

5. All refugees served by any one distribution worker should receive a standard quantity. An independent count of the number of beneficiaries can be reconciled with the total amount distributed.

Distribution Reporting

8.2.15 To ensure control over the distribution system, distribution staff receiving supplies and commodities and overseeing their distribution must be accountable to the project authority who dispatched the goods in the first place. Recorded outflows from one segment of responsibility in the logistics and distribution system must equal recorded inflows into the next segment of responsibility, over equivalent time periods. Accountability is achieved through regular reports of supplies received and issued, deliveries to the refugee camps, distributions to the refugees and balances on hand at each store's location.

8.2.16 Distribution staff must record the outflow of rations in distribution ledgers. After each distribution, each distribution centre must submit a report to the project authority. UNHCR and WFP, if appropriate. These reports can be used to compare planned targets with actual results achieved. They also provide statistics for donors, sponsors, governments and other interested parties on the amounts of relief goods received, delivered and distributed to the beneficiaries.

Chart 8.E: Information to be Included in a Distribution Report

1. Name and location of the distribution centre.

2. Commodities and amounts (units and weights) on hand after the previous distribution.

3. Commodities and amounts (units and weights) received.

4. Commodities and amounts distributed.

5. Number of beneficiaries.

6. Distribution date(s).

7. Balances on hand (if any).

8. Signature of the person preparing the report and certifying that the information included is correct.

Supplementary Feeding Centres

8.2.17 For supply purposes, supplementary feeding centres must report regularly, to outline receipts, utilization and balances on hand, the numbers being fed, the distribution frequency and the composition of the feeding mix. Stocks can be replenished based on this information.

8.3 Identifying the Beneficiaries

8.3.1 To distribute commodities to individuals or groups, once or repeatedly, these individuals must be easily and reliably identifiable. Authorities, refugee leaders or family heads may falsely increase the number of beneficiaries. Refugees may register several times in the same camp, or in several different camps. Leaders or others may register refugees who do not exist. Local people may also register as refugees, or otherwise obtain material assistance intended for the needy refugees.

8.3.2 Initial fear of uncertain or inadequate quantities of refugee supplies is an important cause for the refugees to attempt to increase their numbers. Resolve this problem right away, or the ongoing excessive supply will be used for personal gain or benefit. Cooperation and understanding between the refugee leaders and project authorities will alleviate uncertainties. Document a comprehensive picture of leadership, family structure, cultural factors and economic exchange in the refugee camps. Define an acceptable distribution system as soon as possible and get agreement from the authorities in charge and the refugees themselves.

8.3.3 Ideally, individual refugees possess identity documents containing a photograph and linked to separate records of age, sex, physical characteristics and their location in the refugee camp. Ration cards for individuals or families should be reflected, by number, in the identity documents, or combined in one document. Provide distribution staff with a list of the numbers of valid ration cards. Arrangements are necessary to update the lists, and to issue documents to new arrivals, to cancel lost documents and to retrieve and cancel documents belonging to refugees who leave the area.

8.3.4 The overall number of beneficiaries can be an issue of some dispute. Planning figures, census figures and working figures may all be different. Figures may not be adjusted periodically to take into account new arrivals, births, deaths or departures from the camp. Overstating refugee numbers affects a programme's credibility with UNHCR's donors. Obtain agreement from national authorities to confirm the number of refugees, using demographic sampling techniques or registration methods selected by UNHCR. Apply the same method to identify the refugees throughout the affected area.

8.4 Distribution Day

8.4.1 Commodities and relief supplies may be held in a main camp storage area or they may have previously been delivered to each distribution centre, depending on local security conditions and facilities. Early on the day of distribution, staff physically confirm that the total amounts of each commodity on hand agree with those listed on the Commodity Allocation List, and are sufficient for the established per capita allocation or ration and the agreed population of recipients served by each distribution centre. Check that ration measures for each food commodity are on hand and in sound condition. Separate relief items and food commodities by type at each distribution point, arranged in an orderly sequence.

8.4.2 Family heads or their representatives bring their own containers and queue up next to the distribution centre. A controlled area with a restricted entrance and exit is best. The refugees pass in an orderly fashion along the distribution sequence, first having ration cards or other means of identifying eligibility checked and quantity entitlements recorded. Food rations are scooped or dipped in measured tins from commodity sacks or drums, and emptied into the refugees' containers. Other relief items are distributed according to prescribed criteria. The quantities and rations (number of scoops) may be posted so the refugees know their entitlements.

8.4.3 On completion of the distribution, any quantities remaining are confirmed and recorded. The difference between these amounts and the original quantities received in the distribution centre are compared with the number and quantity issued to the refugees. Any shortage or overage is explained in the distribution report submitted to the project authority.

8.4.4 Non-food items or special commodities to which every refugee is nor entitled to on a per capita basis require stated special distribution criteria, established by the project authority prior to distribution.

8.4.5 Extraordinary issues between scheduled distributions for new arrivals or other special cases require the written approval of the project authority.

Chart 8.F: Mass Distribution and Crowd Control

If you must count, register or distribute relief items or food commodities to large numbers of people, here are some helpful tips:

1. Plan for success, initially choosing an area and a population where the exercise is likely to work. Start small, and increase the scale as you gain experience.

2. Cooperate with local officials and refugee leaders, listening to their ideas whenever possible and gaining their respect and agreement for the methods used.

3. Hire staff under contract, with specified duties for which they are paid, and make them subject to disciplinary action. Provide a simple manual which explains the methodology to be used.

4. Designate one person in authority, with responsibility for the overall exercise. Make sure everyone knows who is in charge, that the person is always visible and has an interpreter nearby.

5. Provide effective communications to the staff, refugees and their leaders to understand what you intend to do and how. Use personal radios and public address systems or megaphones if available.

6. Define the working area carefully, identifying the boundaries of the group or groups involved, and keeping people seated to cause less confusion during the proceedings. Keep animals, brought to carry away the distributed supplies, well away from the area, for reasons of hygiene and order.

7. Make special provisions, allocating separate areas (preferably shaded) for the elderly, the disabled, children and other "at risk" groups. Keep their waiting time to a minimum and have medical personnel on hand.

8. Provide crowd control personnel positioned throughout the assembly area. These should be civilian personnel who are easily recognized - provide hats, uniforms, whistles, as appropriate. There must be no weapons at or near the working area.

9. Supply sufficient quantities for the distribution. People will wait more calmly if they know there is enough for everyone. Always keep a reserve stock aside to deal with unexpected demand.

10. Speed is essential. Begin early when it is cool. Do not keep people waiting longer than is necessary.

11. Deal with potential problems. Things do go wrong, but it is usually best to finish once you have started. Control the perimeter. Keep people seated and stop temporarily when isolated individuals or small groups cause problems. If trouble is likely, distribute off the backs of vehicles, and be prepared to move if disorder does arise. Make sure registration and distribution documents are kept safely.

8.5 Monitoring Distribution

8.5.1 The ultimate measure of distribution effectiveness is how much the goods distributed contribute to the well-being of the individual refugees. This is difficult to assess directly. Relevant performance indicators must be identified, which can be more easily monitored and quantified.

8.5.2 Two methods to assess distribution effectiveness are commonly used:

(a) System Monitoring checks that the internal controls in the system are strong enough. Develop a checklist of system controls for monitoring staff to examine - types of control forms in use and their purpose, proper job descriptions and written procedures for distribution staff, adequate division of responsibilities, appropriate equipment on hand to carry out assigned tasks, and possible system weaknesses. This method is especially useful for large programmes where the number of monitoring staff is limited.

(b) Field Monitoring provides first-hand information, by conducting commodity control checks, inspecting commodity quality and observing distributions to refugees. At least some field visits should be unannounced. Checks include an examination of Commodity Allocation Lists, distribution ledgers, refugee registration and ration documents, and other forms to confirm their completeness, accuracy and authenticity. Pay special attention to actual weights where commodities are recorded in units, and check weigh scales for accuracy. Sample commodities for quality testing, or conduct a visual inspection by opening all or a sample batch of the supplies.

8.5.3 Monitoring staff should be honest, perceptive, inquisitive and persistent. They must be diplomatic, sensitive listeners who also have the ability to influence and convince people through discussion. They require a basic knowledge of nutrition, inventory control and distribution methodologies, preferably gained from prior experience in a similar operation.

8.5.4 Monitoring staff should be paid and employed under a firm contract which contains a detailed job description. Regular meetings involving monitoring staff and supervisory personnel provide a forum to discuss problems and encourage suggestions. Avoid hiring refugees as monitoring staff as they will be subjected to ongoing community pressures which may become unbearable. National staff may also be subjected to pressure, but usually to a lesser extent. Supervisors must be sensitive to these pressures and attempt to alleviate them. It is also necessary for international staff to monitor the monitors, to verify that their sampling and measuring techniques are suitable and their observations thorough.

Chart 8.G: Distribution Monitoring Objectives

1. To check that individual refugee families receive the correct quantity and quality of material assistance.

2. To check that all relief items and food commodities received are distributed to the refugees.

3. To confirm that logistics and distribution staff are following procedures.

4. To ensure that the procedures in use give good control, that they prevent irregularities and allow accurate tracking of refugee supplies and their distribution.

8.6 UNHCR Distribution Reports

8.6.1 UNHCR is accountable to its donors for the resources they provide. How can we expect them to keep on giving, sometimes in the millions of dollars, if we fail to acknowledge their contribution and do not provide the reports they have requested?

8.6.2 Having established proper controls for the safeguarding of supplies and food aid in the host country, UNHCR Field Programme Officers must monitor the release and distribution of goods to ensure that assistance reaches the intended beneficiaries. Submit timely, informative reports to the geographic desk at Headquarters concerning the refugees and the end-use of the supplies and food aid provided.

8.6.3 For specific earmarked contributions, the reporting requirements are normally indicated on the CAF, a copy of which is sent to the UNHCR consignee field office. Comply with these stated reporting requirements by completing and forwarding UNHCR Distribution Reports (see Annex XXVII) to Headquarters. For longer-term projects, or where assistance has not been fully utilized by the requested reporting date, submit interim reports. FRS, with the support of the geographic desk and SFAS, ensures that UNHCR Distribution Reports received from the field are transmitted to the relevant donors.

8.6.4 All material assistance and food aid supplied, whether through an earmarked donation or from another source, should be the subject of a final report to Headquarters. In addition to the information on use and beneficiaries required by donors, include comments on the suitability of the goods for their intended purpose and any problems, such as those which may be encountered due to improper packing or labelling. Such feedback is most useful, both in the field and at Headquarters, to allow all concerned to learn from previous experience, to find better solutions, and to avoid similar situations in the future.