MAL

AWI RED CROSS

SOCIET Y

Joint Emergency Food Aid Programme (JEFAP)

District Level Lead Agencies Africare

Emmanuel International CARE International

Catholic Relief Services Concern Universal

GOALMalawi Red Cross

Oxfam GB Salvation Army

Save the Children - UK Save the Children – US

World Vision International

Partner Agencies assisting District Lead Agencies Action Aid

Adventist Development and Relief Agency CADECOM

Canadian Physicians for Aid and ReliefChristian Children’s Fund/EveryChild

Evangelical Association of Malawi Jesus Alive Ministries

Plan International Self Help Development International

Manual for the Provision of General Food Distributions during Emergency

Programmes in Malawi

USA

Preface

This printed version of the JEFAP Manual was produced in August and September 2003 by the Secretariat of the Active Learning Network for Accountability and Performance in Humanitarian Action (ALNAP) on behalf of the Learning Support Office (LSO). The LSO operated in Lilongwe from September 2002 to March 2003 to test the concept, developed within ALNAP, of an independent capacity supporting learning by agencies during a relief operation as a means of improving the overall performance of the operation.

The preparation of the JEFAP Manual formed an important part of the work of the LSO test and though not finalised and printed during the 2002-03 emergency programme was widely disseminated and used in draft form. The motives for finalising and printing this version were: a) that it could form part of the package of products generated by the LSO Test; and b) to ensure that copies of the Manual were readily available in Malawi so that the knowledge and learning from the 2002-03 relief operation would be available to those involved in any possible future relief operations in the country. Though this version was finalised after the end of the 2002-03 emergency programmes, the text retains the present tense used in earlier drafts when referring to the ‘current emergency programmes’.

Much of the practical, Malawi-specific, guidance contained in the Manual was generated by a three workshops run for selected JEFAP Field Officers during October 2002. An account of these workshops is available on the ALNAP website www.alnap.org as part of a larger study on the use of After Action Review methods in relief operations. The final evaluation of the LSO is available on the LSO website www.lsomalawi.org which can also be accessed via the ALNAP website.

A near final version of this Manual was used as the basis for a series of training sessions for all JEFAP Field Officers during February and March 2003. The courses were organised by the LSO with guidance from a Steering Group of JEFAP agencies and with funding support from WFP Malawi. The courses were delivered by two trainers from the Malawi Entrepreneurs Development Institute (MEDI) assisted by two seconded Field Officers from the Evangelical Association of Malawi (EAM) and Self Help Development International (SHDI). In all 248 Field Officers participated in the eleven day long courses that were provided at 8 different locations around Malawi. Feedback from participants helped further sharpen a number of sections in the manual.

The JEFAP Manual was the result of a truly collaborative effort by individuals from many different agencies in Malawi. The staff of the erstwhile Learning Support Office test, the LSO Steering Group and the ALNAP Secretariat would like to express their thanks to all those who contributed.

Active Learning Network for Accountability and Performance in Humanitarian Action (ALNAP) Secretariat Overseas Development Institute 111 Westminster Bridge Road London SE1 7JD UK

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Table of Contents

Section 1 Background …………………………………………………………………………. 41.1 About this manual …………………………………………………………………………… 4 1.2 What is JEFAP? …………………………………………………………………………….. 5 1.3 The Food Aid ‘Pipeline’ ……………………………………………………………………. 9

Section 2 Principles for Effective Working …………………………………………………... 11 2.1 Why Principles are Necessary and How They Help Improve Our Effectiveness …………… 11 2.2 WFP’s Guiding Principles of Food Distribution …………………………………………….. 11 2.3 The Inter-Agency Standing Committee Code for Protection from Sexual Exploitation and Abuse of Women and Children in the Humanitarian Response adopted by JEFAP in Malawi 12 2.4 The Red Cross/NGO Code of Conduct ……………………………………………………… 14 2.5 The Sphere Project’s Humanitarian Charter & Minimum Standards in Disaster Response … 14

Section 3 Concentrating the Food Available on those most in Need ………………………... 16 3.1 The Need for the Targeting of Available Resources ………………………………………… 16 3.2 Determining Needs at the National and District Levels ……………………………………... 16 3.3 Determining the Needs of Different Areas Within a District ……………………………….... 18 3.4 Selecting Beneficiaries at the Village Level ………………………………………………… 18

Section 4 Working in Partnership at the Central, District and Local Levels ……………….. 21 4.1 The Importance of Effective Partnerships …………………………………………………….. 21 4.2 District Level Sensitization and Coordination ………………………………………………… 22 4.3 Sensitization at the Traditional Authority and Village Headman Level ……………………… 25 4.4 Forming and Training a village committee …………………………………………………… 27 4.5 Registration of the Households Selected by the Village Committees ………………………… 28 4.6 Selecting the Final Distribution Points ……………………………………………………….. 30 Annexes to Section 4 a) The Household Registration Form…………………………………………………………………….. 33 Instructions for Completing the Household Registration Form …………………………………….. 34 b) The Village Committee Details Form ………………………………………………………………….. 37 Instructions for completing the Village Committee Form ……………………………………………. 38 c) JEFAP Village Committee Monitoring Form ………………………………………………………... 40

Section 5 Preparing For Distribution …………………………………………………………... 41 5.1 Identifying the Tasks and the Timeline………………………………………………………... 41 5.2 Working through the Steps…………… ……………………………………………………… 41 Annexes to Section 5 a) Extract from a consolidated distribution plan ……………………………………………………….. 45 b) Tally Sheet used by CARE ……………………………………………………………………………… 46

Section 6 Day of Distribution ……………………………………………………………………. 47 6.1 Organising for the Distribution ……………………………………………………………….. 47 6.2 Setup of the Site for Efficiency and Crowd Control ………………………………………….. 47 6.3 Delivery, Off-loading and Organising the Food …………………………………………… … 48 6.4 Verification of Commodities ………………………………………………………………….. 50 6.5 Signing Waybills ………………………………………………………………………………. 50 6.6 Calling up Beneficiaries, Registration Books and Tally Sheets ………………………………. 51 6.7 Distributing the Commodities ………………………………………………………………… 52 6.8 Planning for Eventualities and Handling Complaints …………………………………………. 55 Annexes to Section 6 a) A Sample Waybill….. …………………………………………………………………………………….. 58

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b) A Registration Book Page ………………………………………………………………………………… 59 Section 7 Security at the Distribution Site ……………………………………………………... 60 7.1 Introduction ……………………………………………………………………………………. 60 7.2 Precautionary measures ………………………………………………………………………... 60

Section 8 Monitoring and Reporting …………………………………………………………….. 63 8.1 Definitions and Types of Monitoring …………………………………………………………... 63 8.2 The Practice of Monitoring and Reporting ……………………………………………………. 66 Annexes to Section 8 a) The On-Site Monitoring Form and Guidance on how to complete the form …………………….. 71 Instructions for Completing the On-Site Monitoring Form ………………………………………….. 72 b) The Beneficiary Post Distribution Guidance on how to complete the Form…..………………….. 74 Instructions for completing the Beneficiary Post Distribution Monitoring Form…………………. 77 c) The Non-Beneficiary Post-Distribution Monitoring Form and Guidance on how to complete the form ………………….……………………………. ………………………………………………………... 82 Instructions for completing the Post Distribution Non-Beneficiary Monitoring Form………….. 83 d) JEFAP On-Site Database form …………………………………………………………………………. 86 e) JEFAP Non-Beneficiary Database form ……………………………………………………………… 87 f) Sample Narrative Report OXFAM ………………………………………………………………………. 89 g) Monthly Stock and Distribution Report ………………………………………………………………... 93

REFERENCES

List of Tables Table 1.1 Lead NGOs at the District Level and their Assisting Partners …………………………. 7 Table 2.1 Guiding Principles of WFP Food Distribution (draft) …………………………………. 12 Table 4.2 The Potential Roles of Different Stakeholders in Implementing the JEFAP Programme 24

List of Boxes Box 3.1 Case Study: The VAC Assessment of August 2002 ……………………………………… 17 Box 4.1 A Note on terminology regarding Committees …………………………………………… 21 Box 4.2 The Potential Roles of Different Stakeholders in Implementing the JEFAP Programme … 24 Box 4.3 Points for use in forming a Village Committee ………………………………………….. 29 Box 5.1 Scheduling the Preparatory Tasks ………………………………………………………… 41 Box 5.2 Decision Aid in Selecting the Type of Security …………………………………………… 43 Box 5.3 Potential Roles for Volunteers at the Distribution Site …………………………………… 44 Box 6.1 Factors to Consider when laying out a Distribution Site …………………………………. 47 Box 6.2 Layout at a Typical Distribution Site ……………………………………………………… 49

Bibliography 1 References and resources used in the preparation of this Manual2. Contact details of JEFAP District Leads and Assisting Partners

NB: The boundaries, names and the designations used in this manual do not imply official endorsement or acceptance by the United Nations or any of its partner agencies.

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SECTION 1. BACKGROUND

1.1 About this Manual This Manual provides guidance for those involved in the current Joint Emergency Food Aid Programme (JEFAP) general food distribution programme in Malawi. It covers all aspects of the programme and the whole ‘distribution cycle’, providing guidance on for instance: conducting the first sensitization meetings at the village level; managing the food distribution sites; and completing a Post-Distribution Monitoring Form.

The Manual is intended primarily for use by Field Officers of the agencies that together comprise the JEFAP Consortium. It has been deliberately written in a practical style, providing step-by-step guidance to help Field Officers in ensuring the effective operation of the general food distribution programme. By bringing together in one document information on JEFAP, its policies and procedures and the ‘rules’ to be followed by agencies involved in the general food distribution programme, the Manual will also be of interest to a much wider audience including District Assembly members, District Executive Committee members, other district officials, members of civil society, local and national politicians, Malawian media organisations, and traditional authorities. In support of the JEFAP principles of transparency and accountability it is planned to meet the needs of this wider interest group by producing a summary version of the Manual translated into several local languages.

This Manual supersedes the various initial guidance notes that were developed by the JEFAP Consortium soon after it was formed in June 2002. It was recognised the initial guidance would need to be reviewed after the initial period of implementation and would benefit from being written in a more practical and accessible style. During October 2002 therefore the Consortium member agencies, supported by the Learning Support Office, organised three regional workshops in Blantyre, Karonga and Lilongwe that brought together a total of 70 Field Officers and other staff from the JEFAP agencies. The workshops reviewed initial experience in the areas of Community Sensitisation and Targeting, Food Distribution and Monitoring.

The workshops generated a substantial body of information that has been used by the JEFAP Drafting Group1 in the preparation of this Manual. Also used were manuals on general food distribution prepared by other agencies and lessons from the experience of undertaking general food distribution programmes in other African countries (see Annex 1 for a list of the resources used)

The workshops revealed variations in practice between the JEFAP agencies in terms of their adherence to, or interpretation of, the initial guidance notes. By providing explicit and practical guidance that takes account of the specific challenges faced by JEFAP Field Officers it is hoped to eliminate or at least reduce such variations in practice. Once this Manual has been approved 1 Members of the Drafting Group were Ted Horwood (Salvation Army), Olex Kamowa (SC-UK, Mohamed Luqman (CARE International), Amy Horton and Jonathan Campbell (WFP) and John Borton (Learning Support Office). 4 The NGO Consortium was formed in June 2002 by NGOs wishing to participate in the general food distribution programme. The Consortium is chaired by CARE which represents the Consortium in certain policy and management discussions and on the Humanitarian Response Sub-Committee.

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by the JEFAP Consortium and the Humanitarian Response Sub-Committee of the Joint Task Force (see Figure 1.1), it is planned to present and explain this Manual to all Field Officers involved in the general food distribution programme in Malawi and present a summary version to local authorities.

The current period of food insecurity in Malawi is the product of a number of factors including reduced rainfall, increased poverty and the household impacts of the HIV/AIDs pandemic and inappropriate agricultural practices. In seeking to protect the food security of the most vulnerable households in Malawi during this period, the JEFAP programme needs to be responsive to resource availability and the changing needs at the household and village level. As the programme evolves so aspects of the guidance provided in this Manual will need to be modified. For instance under current plans the general food distribution programme will most likely be scaled down and phased out during the period April to June 2003. This process is likely to require the modification of some sections of this version of the Manual. However, it is anticipated that this version of the Manual will be effective until the General Food Distribution ceases or other guidelines supersede this Manual. It is hoped that the work that has gone into the preparation of this Manual will provide a basis for future guidance and manuals for relief operations in Malawi.

1.2 What is JEFAP? The Joint Emergency Food Aid Programme (JEFAP) is the principal food aid component of the 2002-03 humanitarian response in Malawi. JEFAP is a collaboration by the Government of Malawi, donor organisations, the World Food Programme and the NGO Consortium4 with the objective of providing general food distributions to the most vulnerable and food insecure households in Malawi in a transparent and accountable way.

JEFAP was formed in the weeks following the Government of Malawi’s declaration of a national disaster on 27th February 2002. That declaration followed a period of maize shortages in the country, dramatic increases in maize prices and significantly raised rates of Global Acute Malnutrition detected by SC-UK in surveys conducted in Salima and Machinji Districts. In June a regional meeting of the Inter-Agency Standing Committee emphasised the need for early implementation of a region-wide food aid programme.

Beginning in June 2002 from a level of 4,000 tonnes/month JEFAP has rapidly scaled-up to a peak of over 30,000 tonnes/month during February and March to approximately 3.4 million people (approximately 30% of the total population) in all 27 districts in Malawi.

WFP and the NGO Consortium have entered into agreement to coordinate the JEFAP with the Government of Malawi. At the national level JEFAP reports to the Humanitarian Response Sub-Committee (HRSC) of the Food Crisis Joint Task Force. The HRSC forms part of the Government’s Joint Task Force which is responsible for overall coordination of the response to the food security crisis.6 (See Figure 1.1)

6 Other Sub-Committees established by the Joint Task Force are: Food Security Policy Sub-Committee; Information System Sub-Committee; Strategic Grain Reserve Sub-Committee; Import and Logistics Sub-Committee. In November 2002 a Commercial Maize Sub-Committee was also created.

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Figure 1.1 Organisation Chart of the Joint Task Force Structure

Humanitarian Response Sub- Committee

Import andLogistics Sub-

Committee

Strategic Grain Reserve Sub-

Committee

Food Aid Allocation Working Group

VulnerabilityAssessment Committee

Targeted Nutrition Programme

JEFAP¶ Government¶ Donors ¶ WFP¶ NGO

Consortium

Food Security Policy and Programme Sub-

Committee

Commercial Maize Sub-Committee

Food Crisis Joint Task Force

Information System Sub-Committee

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In December 2002 a JEFAP Parliamentary Overseer Committee was set up to provide parliamentary oversight of the programme. The committee is comprised of 12 Members of Parliament drawn from the three main political parties and four ex-officio members representing the Treasury, the Ministry of Agriculture and Irrigation, ADMARC and the Department for Poverty and Disaster Management Affairs. The Secretary is the Commissioner for Disaster Preparedness, Relief and Rehabilitation.7

At the District level NGOs and the District authorities are responsible for setting-up and managing the system by which the food is received at the Final Distribution Points and then distributed within the villages. Each District has a designated Lead NGO. In most Districts the Lead NGO manages all the distributions at the FDP/village level. In some Districts however the Coordinating NGO works with what are termed Assisting Partner NGOs that take responsibility for managing distributions in part of the District – typically within one or more Traditional Authorities (TAs). (see Table 1.1).

The costs of the distribution, reporting and monitoring activities undertaken by the Lead NGOs and Assisting Partner NGOs on behalf of JEFAP are funded by WFP according to budgets prepared by the individual NGOs and agreed with WFP. Because of the contractual and legal obligations involved, each of the NGOs has signed a formal Memorandum of Understanding with WFP.

Table 1.1 Lead NGOs at the District Level and their Assisting Partners

District Lead NGO Assisting Partners Balaka Save the Children-US Blantyre Goal Jesus Alive Ministries (JAM) Chikwawa World Vision International Evangelical Association of

Malawi (EAM) Chiradzulu Goal Chitipa Malawi Red Cross Dedza Concern Universal Self Help Development

International (SHDI) Catholic Development Commission – Malawi (CADECOM)

Dowa CARE Action Aid 7 The TOR for the Parliamentary Overseer Committee is as follows:

1. The life of the JEFAP Parliamentary Overseer Committee is to last until the end of the Emergency Operations (December 2002-April 2003), subject to the crop situation on the ground. 2. To oversee the JEFAP’s modus operandi. 3. To examine the functioning of the local civil protection committees of the JEFAP with a view to enhancing efficiency and goal achievement. 4. To receive and analyse reports from the Humanitarian Response Sub-Committee and provide advice where necessary. 5. To work with the JEFAP Civil Protection Committees and implementing NGOs in the districts with a view to effecting improvements in the targeting mechanisms where necessary. 6. To relate to the Food Crisis Joint Task Force by ensuring information sharing. 7. To ensure fair and equitable distribution of food to the needy. 8. To report to His Excellency the State President periodically on the state of affairs on the ground vis-à-vis the JEFAP.

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Canadian Physicians for Aid and Relief (CPAR)

Karonga Malawi Red Cross Kasungu Catholic Relief Services CADECOM Likoma Africare Lilongwe CARE Adventist Development and

Relief Agency (ADRA) Plan International Canadian Physicians for Aid and Relief (CPAR)

Machinga Emmanuel International Mangochi Save the Children-US Mchinji Save the Children-UK Mulanje Oxfam Mwanza World Vision International Mzimba Africare Christian Children’s

Fund/EveryChildEvangelical Association of Malawi (EAM)

Nkhata Bay Africare Nkhota kota Malawi Red Cross Nsanje World Vision International Ntcheu Africare ADRA Ntchisi Malawi Red Cross Phalombe Salvation Army Rumphi Malawi Red Cross Salima Save the Children-UK Thyolo World Vision International Zomba Catholic Relief Services CADECOM

Regular meetings are held to ensure an effective flow of information on both logistics and programme matters within JEFAP. The meetings are open to all interested organisations. The location of the meetings alternates between Lilongwe and Blantyre to ease the pressure on those NGOs based in the southern region to always travel to Lilongwe. Logistics meetings hosted by the WFP Logistics Section are held every Friday. Every other Friday afternoon the NGO Consortium meets and most of its business is JEFAP or JEFAP-related. The Consortium meetings are chaired by CARE and are generally attended by approximately 20 different organisations. Information on the schedule and location of the meetings can be obtained from CARE Lilongwe.

Within the JEFAP, the NGO Consortium’s primary responsibilities are liaison with District Authorities, developing district-level structures for coordination and implementation of the JEFAP, including the establishment of targeting, distribution and monitoring systems in accordance with guidelines developed by JEFAP (and further articulated later in this Manual). At the District level the Lead and Assisting Partner NGOs are expected to work closely with the District Assemblies and either the District Executive Committees or, where they have been established, District Civil Protection Committees/District Steering Committees (see Box 4.1 for an explanation of terminology in relation to committees at the district, TA and village levels). Where an NGO is felt not to be collaborating sufficiently closely with the District authorities, the matter should be taken up with the District Commissioner and the local or national representative of the NGO concerned. If the situation cannot be resolved it should be raised with CARE as the Chair of the Consortium.

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Principal JEFAP Contact Points Chair NGO Consortium CARE International in Malawi P/Bag A89 3rd floor ARWA House African Unity Avenue Phone: 01 774 637/738 Fax: 01 782 174 Email: office@care.malawi.net

Emergency Coordinator WFPPO Box 30571 Kang’ombe Building City Centre Lilongwe 3 Phone: 01 774 601 Fax: 01 773 785 Email: amy.horton@wfp.orgblessings.mwale@wfp.org

The contact details of all Lead NGOs and Assisting Partners is provided in Annex 2

1.3 The Food Aid ‘Pipeline’ The purpose of the JEFAP food aid is to ¶ prevent severe food shortages at the household level that could lead to deterioration in

the nutritional status and starvation; ¶ safeguard the nutritional well being of vulnerable segments of the population such as

People Living With HIV/AIDS, children, expectant and nursing women, and the elderly; ¶ preserve productive and human assets; ¶ Prevent distress migration from affected areas to urban centres and neighbouring

countries.9

The goal of JEFAP is to provide a monthly allocation of three main commodities maize, ‘Likuni Phala’ (Corn Soy Blend) and beans with a fourth, vegetable oil, to be added to the commodity basket in early 2003. The maize is provided in either whole grain or milled form. The target ration for each household10 is 50kg whole grain or milled maize, 12.5 kg ‘Likuni Phala’ and 10 kg beans. However the commodities and ration are subject to their availability within the ‘pipeline’ and occasionally it is necessary to either reduce the size of the monthly ration or undertake the distribution without a particular commodity. Where food has not been delivered due to pipeline breaks, there will be no retrospective feeding of the beneficiaries.

The food aid commodities for distribution are donated to JEFAP by donor countries wishing to assist the Government and people of Malawi during this crisis. The food is provided through WFP’s Southern Africa Crisis Emergency Operation (EMOP 10200). By far the largest contribution to the regional EMOP has been received from the United States Government but significant contributions have been provided by the European Union, and the Governments of the UK, Japan, Germany and Canada. So far JEFAP has received donations from approximately 25 different sources including the Nelson Mandela Foundation.

Most of the commodities are shipped to the ports of Dar es Salam (Tanzania), Nacala and Beira (Mozambique) and Durban (South Africa) and then transported by train or truck to WFP warehouses in Malawi (known as Extended Delivery Points) located in Lilongwe, Blantyre, Mzimba, Bangula, Kaporo and Liwonde. From the EDPs WFP then coordinates the despatch of deliveries using commercial Malawian transport companies to the Final Delivery Points (FDPs) of which there are 750 located in all areas of Malawi. WFP has overall responsibility for the food commodities vis-à-vis the donors from arrival in the ports to their final distribution to beneficiaries.

10 JEFAP food rations are calculated on a household basis and assume an average household size of 5.5 persons. Other programmes may provide rations on an individual basis.

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Transport from the EDPs to the FDPs is usually by Malawian commercial transporters. At most FDPs the delivery of the commodities occurs either on the day of the actual distribution or the day before where it is kept in safekeeping by the village committee or local police. Ensuring the timely delivery of the commodities is therefore critical to the smooth running of the operation and places a heavy burden not only on WFP but also on the NGOs to carefully plan the timing of their distributions, ensure that WFP receives their Monthly Distribution Plan in time and maintain good communications with the WFP warehouse and Sub-Offices

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SECTION 2. PRINCIPLES FOR EFFECTIVE WORKING

2.1 Why Principles are Necessary and How They Help Improve Our Effectiveness

Over the last ten years international humanitarian and relief agencies have developed a range of Codes and Principles to guide their work and improve accountability within relief operations. The primary ones that are of direct relevance to JEFAP and the Malawi context and which are described in this section are: ¶ WFP’s Guiding Principles of Food Distribution ¶ The Inter-Agency Standing Committee Code for Protection from Sexual Exploitation and

Abuse of Women and Children in the Humanitarian Response adopted by JEFAP in Malawi

¶ NGO/Red Cross Code of Conduct ¶ Sphere Standards

These principles are the product of considerable experience and reflection on the lessons from that experience. Following them and adhering to them will enable personnel in JEFAP agencies to benefit directly from that experience and avoid problems that might be encountered if they are not followed. For instance the principle of transparency in the WFP Guiding Principles is important in avoiding situations where stakeholders at the District level may feel left out of the picture and speak against the programme or the JEFAP NGOs working in that District. It is important that all key actors in the system of distribution are aware of the JEFAP, the areas the programme will cover, the criteria for area and beneficiary selection, the amounts of food and rations and the ability to witness and observe all aspect of the food distribution. Such awareness has to be at all levels namely Central Government, District Administration down to Local Authority/Leadership at the Traditional Authority (TA) and village levels. The principle of respect for local culture and customs (Red Cross/NGO Code of Conduct and also the WFP Guiding Principles) is important in avoiding situations where the approach adopted by a JEFAP member runs counter to local custom and builds resentment among the beneficiaries. A possible example of this is the practice of voluntary sharing of the food commodities by beneficiaries with relatives and neighbours.

For the most part principles are useful guides and signposts that can help JEFAP agency personnel to make considered decisions when faced with difficult operational problems in the field. However some of them are so important that they are in effect rules that have to be followed at all times. The Malawi Code for Protection from Sexual Exploitation and Abuse of Women and Children in the Humanitarian Response falls into this category and should be strictly adhered to by JEFAP agency personnel.

2.2 WFP’s Guiding Principles of Food Distribution

As a central component of JEFAP in terms of its coordinating, resource provision and logistical role, as well as being responsible for food commodities between the port and the beneficiaries at the Final Distribution Point, WFP’s own (draft) Guiding Principles for Food Distributions are particularly pertinent to JEFAP agencies and personnel. While aiming at getting the right amount of food to the right number of beneficiaries at the right place at the right time WFP’s Guiding Principles promote: accountability to beneficiaries and to donors; transparency; fairness; respect, complete impartiality and gender sensitivity. Failure to stand by these Guiding Principles will result in problems both for those distributing the food and for the beneficiaries. The methods by which these principles are generally applied are summarized in Table 2.1 below.

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Table 2.1:- Guiding Principles of WFP Food Distribution (draft)

Principles Description Implications for Food Distribution

Fairness Rations and food allocations are based on an objective assessment of need and are distributed according to household size.

Distribution system is sensitised to the social, ethnic, political divisions within the affected population.

Food Basket monitoring of the receipt of agreed rations (quantitative and qualitative information is collected).

All politically, economically and/or socially marginalized are entitled to and receive their food rations with no discrimination

Accountability tobeneficiaries

Aid is distributed promptly: adequate systems and plans should be in place to facilitate quick response to any crisis to save lives and/ or prevent migration.

Standards of accountability when working with beneficiaries are respected

Humanitarian workers’ conduct is done in a responsible manner.

Establishment of beneficiary food committees to elicit their views on distribution and any complaints.

Monitoring during and post distribution by WFP and/or NGO implementing partners.

Beneficiaries are allowed to weigh their food ration at the end of the distribution process.

Information campaign on humanitarian workers responsibilities vis-à-vis beneficiaries.

Coordination &accountability to donors, governments,implementingpartners and within WFP

WFP must work in the framework of established UN coordination mechanism and with donors, governments and IP.

Regular reporting and analysis of quantity of food distributed and number of beneficiaries.

Regular and accurate monitoring and reporting. WFP initiates and participates in Food Aid Committees.Minimize losses and diversions. Simple distribution methods.

Transparency Information about food rations, method and timing of distribution is widely disseminated.

Beneficiaries, IPs and local authorities are involved in the design of the distribution system. Population and partners are kept informed of any problems in food supply, changes in rations and delays.

Respect The food programme should maintain a normal community/family environment and it recognizes the physical & psychological vulnerability of those being assisted.

Specifically designed to preserve the dignity and self-respect of every beneficiary.

2.3 The Inter-Agency Standing Committee11 Code for Protection from Sexual Exploitation and Abuse of Women and Children in the Humanitarian Response adopted by JEFAP in Malawi 11 The Inter-Agency Standing Committee was formed in 1992 to serve as the primary mechanism for inter-agency coordination relating to humanitarian assistance in relation to complex and major emergencies under the leadership of the UN Emergency Relief Coordinator. The organisations participating in the IASC are: Office for the Coordination of Humanitarian Affairs (OCHA); United Nations Development Programme (UNDP); UN High Commissioner for Refugees (UNHCR); UN Children’s Fund (UNICEF); World Food Programme (WFP); World Health Organisation (WHO); Food and Agriculture Organisation (FAO); International Federation of Red Cross and Red Crescent Societies (IFRCRCS); International

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Sexual exploitation and abuse occur in many different environments. However in humanitarian crises, the dependency of affected populations on humanitarian agencies for their basic needs creates an ethical responsibility on the part of the personnel of humanitarian agencies and volunteers they may use to behave correctly. In early 2002 evidence of widespread sexual exploitation and abuse by humanitarian personnel involved in refugee operations in West Africa came to light. Steps are being taken at a high level within many humanitarian organisations to ensure the protection of the populations that they are seeking to serve.

As part of these steps the Southern African Emergency Operation has developed strategies to protect the affected populations from sexual exploitation and abuse. In Malawi a group of government departments and international agencies have adopted the Code of Conduct which is set out below and are undertaking a programme of awareness raising, training and information dissemination. WFP is including a reference to the need to adhere to the code in its Memorandum of Understanding with NGOs. All personnel must therefore be familiar with and make every effort to create an environment in which sexual exploitation and abuse are not tolerated. Managers within JEFAP member agencies have a particular responsibility to ensure that there are proper mechanisms in place to prevent and respond to sexual exploitation and abuse.

The six principles agreed to by all agencies in the Inter-Agency Standing Committee are:

¶ Sexual exploitation and abuse by humanitarian workers constitute acts of gross misconduct and are therefore grounds for termination of employment

¶ Sexual activity with children (persons under the age of 18) is prohibited regardless of the age of majority or age of consent locally. Mistaken belief in the age of a child is not a defence

¶ Exchange of money, employment, goods or services for sex, including sexual favours or other forms of humiliating, degrading or exploitative behaviour is prohibited. This includes exchange of assistance that is due to beneficiaries

¶ Sexual relationships between humanitarian workers and beneficiaries are strongly discouraged since they are based on inherently unequal power dynamics. Such relationships undermine the credibility and integrity of humanitarian aid work

¶ Where a humanitarian worker develops concerns or suspicions regarding sexual abuse or exploitation by a fellow worker, whether in the same agency or not, she/he must report such concerns via established agency reporting mechanisms

¶ Humanitarian workers are obliged to create and maintain an environment which prevents sexual exploitation and abuse and promotes the implementation of their code of conduct. Managers at all levels have particular responsibilities to support and develop systems which maintain this environment.

For further information on the Malawi Code please contact the focal point person in each of the lead NGOs.

Committee of the Red Cross (ICRC); InterAction; Steering Committee for Humanitarian Response (SCHR); Office of the High Commissioner for Human Rights (UNHCHR); International Council of Voluntary Organisations (ICVA); International Organisation for Migrations (IOM); the World Bank; the Representative of the Secretary General on Internally Displaced Persons; UN Fund for Population Activities (UNFPA). The IASC maintains secretariats at the UN offices in New York and Geneva.

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2.4 The Red Cross/NGO Code of Conduct

The Principles of Conduct for the International Red Cross and Red Crescent Movement and NGOs in Disaster Response Programmes was published in 1994. The number of organisations that are signatories to the Code now exceeds 150 and includes the majority of the NGOs participating in JEFAP.12

The Ten Principles in the Code are, in summary form:

1. The Humanitarian imperative comes first 2. Aid is given regardless of the race, creed or nationality of the recipients and without

adverse distinction of any kind. Aid priorities are calculated on the basis of need alone. 3. Aid will not be used to further a particular political or religious standpoint 4. We shall endeavour not to act as instruments of government foreign policy 5. We shall respect culture and custom 6. We shall attempt to build disaster response on local capacities 7. Ways shall be found to involve programme beneficiaries in the management of relief aid 8. Relief aid must strive to reduce future vulnerabilities to disaster as well as meeting basic

needs9. We shall hold ourselves accountable to both those we seek to assist and those from

whom we accept resources 10. In our information, publicity and advertising activities, we shall recognize disaster victims

as dignified humans, not hopeless objects.

Copies of the full version of the Code of Conduct and further information can be obtained from the Malawi Red Cross Society Head Office in Lilongwe, the website of the International Federation of the Red Cross and Red Crescent Societies (www.ifrc.org) or from the Learning Support Office

2.5 Sphere Project Humanitarian Charter and Minimum Standards in Disaster Response

The Sphere Project was initiated by a coalition of European and US NGOs to develop minimum standards for five sectors of humanitarian assistance. Whilst many relief agencies had developed their own guidelines, there was a need to bring them together and agree a set of standards that could serve as benchmarks to assess the performance of the agencies and as a means of improving accountability within relief operations. The standards developed covered the following five sectors: ¶ Water Supply and Sanitation ¶ Nutrition ¶ Food Aid ¶ Shelter and Site Planning ¶ Health Services

A sixth sector – Food Security - is being developed and will be added during 2003.

The standards are intended to provide a benchmark against which agency performance can be monitored. Funding and operational constraints sometimes prevent agencies from attaining or exceeding all the standards at all times.

12 Signatory agencies include: Action Aid; ADRA; CADECOM; Christian Childrens Fund/EveryChild; CRS; Goal; Malawi Red Cross; Oxfam GB; Plan International; Salvation Army; SC-UK; SC-US; World Vision International. JEFAP members that have not yet signed the Code are abiding by it on a voluntary basis in Malawi.

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The first edition of the Sphere Handbook was published in 2000. Over 25,000 copies have been sold and the Handbook translated into 15 languages. The UN’s Inter-Agency Standing Committee has endorsed the book as an important tool for anyone working with populations affected by disaster and called on all IASC members (UN and NGO) to promote the use of the Humanitarian Charter and Minimum Standards in Disaster Response within their organisations and particularly in their field operations.

The text of the Handbook is available on the Sphere Website (www.sphereproject.org) where hardcopies can also be ordered. Copies may be viewed at many of the JEFAP member agencies’ offices or at the Resource Centre of the Learning Support Office

The Sphere Project provides training courses on the Charter and the Standards around the world. It also produces a newsletter which provides information on the courses and the evolution of the project. The Handbook is scheduled for revision during 2003 and as part of the revision process a two day workshop was held in Lilongwe in January 2003.

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SECTION 3. CONCENTRATING THE FOOD AVAILABLE

ON THOSE MOST IN NEED

3.1 The Need for the Targeting The current food security crisis is affecting 6 countries in Southern Africa. Within each country some areas are more affected than other areas. In all the affected areas the poorer and more vulnerable households are more affected and at risk of malnutrition and loss of assets and livelihoods than other households. Providing everyone who feels they need food assistance with such assistance is simply not feasible given the limited resources available and would not be desirable as it would probably create dependency on food aid among Malawians who are capable of farming or earning an income. In a country where 60% of the population live below the poverty line many more people feel that they deserve the JEFAP food assistance than there is food available through the JEFAP programme. Consequently targeting and issues of inclusion in, and exclusion from, the programme are often contentious and can result in criticism and cries of unfairness by many people ranging from villagers to politicians. It is important therefore that JEFAP agency personnel are fully aware of the methods by which the available food aid is targeted at those most in need in order that they can explain the methods and placate those who may feel that the system is unfair.

To ensure that the food aid that is available reaches those areas and households most in need and as far as possible adheres to the Principles for effective working outlined in Section 2, different methods for targeting are used at different levels of the relief operation in Southern Africa and Malawi:

¶ Differences in need within the region between the affected countries ¶ Differences in need within Malawi between different districts ¶ Differences in need within a district between different TA’s and villages ¶ Differences in need within a village between different households

Essentially targeting at the higher levels should be “technically-based” making use of surveys and statistical methods. At the village level targeting is “community-based” in that the responsibility for deciding who is included in the programme as a beneficiary household and who is excluded is the responsibility of the Village committees which are (or should be) representative of the communities.

3.2 Determining Needs at the National and District Levels Initial food aid allocations at the national and district levels within Malawi prior to August/September 2002 were guided by the findings of a UN Crop and Food Supply Assessment Mission (CFSAM) to Malawi in May 200213 (FAO/WFP 2002).

To enable WFP, donors and governments in the southern African region to make assessments of the relative needs of the different affected countries and the relative needs of districts within each country, allocations since August/September 2002 have been guided by an adapted form of the VAC (Vulnerability Assessment System) developed by the Southern African Development Community’s (SADC). The system is based on the network of national Vulnerability Assessment Monitoring (VAM) that had been established in Malawi and the other countries with SADC in Harare. In collaboration with international partners (WFP, FEWS NET, SC(UK), CARE, FAO, UNICEF, and IFRC) the SADC VAC system has been adapted for the purposes of the emergency programmes in the region and came into operation in August/September 2002. The adapted system brought together and combined a range of different approaches to vulnerability

13 FAO GIEWS/WFP – Special Report, FAO/WFP Crop and Food Supply Assessment Mission to Malawi, May 2002.

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assessment into one common approach the results of which would have a sound basis and be acceptable to all the organisations and governments.

The VAC approach involves surveys conducted at three monthly intervals by the national VACs in each country. The survey carried out in Malawi during August 2002 guided JEFAP food aid allocations to each District during the September-December period. The survey conducted at the end of November/early December will guide district allocations during the January-March 2003 period. A third VAC survey will be undertaken during March 2003 that will guide the evolution of the JEFAP programme during the April-June period. The August 2002 VAC survey is described below to illustrate how the system works and how it generates a tonnage allocation of food aid for each district in Malawi.

Box 3.1 Case Study: The VAC Assessment of August 2002

The August VAC survey was undertaken over a three week period by six teams of 4 persons provided by the NEC, Ministry of Agriculture, Local Government, National Statistics Office, FEWS Net and WFP and 6 NGOs - Africare, Action Against Hunger (AAH), Concern Universal, CADECOM, Save the Children-UK, and World Vision International. The teams used three separate questionnaires to obtain district, community and household level information. ¶ District – Interviews with district level agriculture officials to determine food

security status by EPA and ranking in order of vulnerability. ¶ Community – Key informants/leaders to determine wealth groups, main

sources of food and income, market access and prices, winter crop production, and access to inputs and water.

¶ Household – 12 to 15 households per village from different wealth groups to collect information on past and present access to food and income - production, access to inputs, current asset holdings, livestock ownership, meals consumed and dietary diversity.

In all 1,128 households in 81 villages covering all 27 Districts were interviewed by the August survey. Data from the household surveys was used to calculate the percentage of households requiring food assistance in each District. The results showed quite wide variations in need between the Districts in Malawi with Salima being judged to be the worst affected District with 38% of its population in need of food assistance (ie. 108,622 people) and Likoma judged to be the least affected with none of its population in need of food assistance.15 (Malawi VAC 2002). These figures were then converted into a tonnage allocation for the JEFAP food commodities for each district so that for instance Salima was allocated 987 tonnes of maize each month during the September-December period and Likoma was not included in the JEFAP programme for that period16. These figures and allocations will be modified in the light of the results of the November/December VAC survey and the March 2003 VAC survey with the consequent adjustment in beneficiary numbers.

15 ‘Malawi Food Emergency Assessment Report’ September 2002 National Vulnerability Assessment Committee, Lilongwe. 16 These tonnages were adjusted during the period in the light of the supplies of maize available and slight adjustments in the district allocations. 19 FAO GIEWS/WFP – Special Report, FAO/WFP Crop and Food Supply Assessment Mission to Malawi, May 2002

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The tonnage figures generated by the VAC process are target figures that assume the full availability of all the commodities in the JEFAP food basket (maize, likuni phala and beans). In reality some commodities may not be provided at the planned level. In addition delays may occur in the arrival of shipments both at the ports and the rate at which the commodities arrive by road or rail in Malawi. Decisions about how to deal with shortfalls in the availability of the different commodities are the responsibility of the Food Aid Allocation Working Group which includes representatives of the Government of Malawi, WFP, CARE and donors and which reports to the Humanitarian Response Sub-Committee of the Joint Task Force (see Figure 1.1).

3.3 Determining the Needs of Different Areas Within a District

When the JEFAP began in June 2002 the initial tonnages distributed were limited partly because the peak period of need was identified as being the traditional hungry season between November and March and partly because it takes time to ship food aid to Malawi and develop the necessary logistical capacity to transport and distribute it. At the beginning of the programme therefore there was a need to focus resources on those areas of the Districts that were in most need. The FAO/WFP Crop and Food Supply Assessment Mission19 had indicated agricultural Extension Planning Areas (EPAs) most in need of food aid. The Traditional Authority areas that broadly conformed to the identified EPAs were to be the first TA’s to be targeted. The procedure followed was that the lead NGO in each District consulted with the District Executive Committees to identify the most vulnerable TA’s in the District. These are the TA’s that are included in the JEFAP programme.

Within the targeted TA’s the worst affected villages are selected. At least 15% of the population in any targeted village should receive distributions. If the beneficiary lists of 15% of the population in the worst affected villages exceeded the total amount allocated then the number of villages would have to be reduced.

As the JEFAP has expanded and scaled up so other rural TA’s have been added in consultation with District authorities. It is important to note that the programme does not cover urban areas and those rural TAs where vulnerability assessments indicated minimal need for food assistance such as those with irrigated crop production or significant commercial employment opportunities.

Where a new TA is added it is important that the lead NGO and (where relevant) the Implementing Partner NGO that will be managing the distributions in that TA work closely with the District Assembly and the District Steering Committee. The criteria and reasoning for the inclusion of this TA as opposed to other TAs that will continue not being covered by the JEFAP programme need to be transparent and fair. This will require providing clear explanations in the TA to be added and to the authorities, traditional leaders and villages in those TAs that will remain outside the JEFAP programme.

3.4 Selecting Beneficiaries at the Village Level

At the village level the JEFAP relies on the community itself to identify those households to receive the monthly ration. This method is known as Community Managed Targeting and is based on the Community Managed Targeting and Food Distribution (CMTD) approach that was developed in Kenya, Tanzania and South Sudan and has been widely used in these and other countries.20 The method has the following advantages

20 Whilst in these countries the community is also responsible for managing the actual distributions of the rations, in Malawi this role is performed by Field Officers of the JEFAP NGOs. Strictly speaking therefore the approach used in Malawi by JEFAP is not the full CMTD. In many cases however the JEFAP NGO personnel are assisted by the community for instance through members of the village committee assisting

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¶ It gives power to the communities to make decisions on who among them most needs to receive food aid

¶ It avoids the need for ‘outsiders’ who do not know the community well (whether government employees or NGO personnel) from making these difficult decisions

¶ It raises awareness within the community about the different levels of vulnerability that exist within it

Critical to the success of Community Managed Targeting is the formation and effective operation of the Village Civil Protection Committees which are often referred to as Village Relief Committees (see Box 4.1). An evaluation of targeting within the JEFAP programme undertaken in November 2002 found that targeting worked well in those villages where such committees had been established and were operating effectively. In contrast where such village committees had not been formed, allocation decisions were generally being made by the village Headman in an un-transparent manner and often prioritising the Headman’s relatives and friends over those most in need within the community21

Whilst some villages are receiving JEFAP allocations that provide for the inclusion of 40% of the households in the village (ie. 40 households in a village of 100 households), many communities are having to select around 20% of households (20 households in a village of 100 households) in a village and some are only selecting 10%. If a village is selecting 20% then it means that 80% of the households in the village are having to be excluded from the programme. Excluding the majority of a community from a programme can place enormous social pressures on the targeting method and those charged with taking the decision. This makes it all the more important that the village committee is established and functioning properly. Establishing and supporting representative, transparent and effective village committees is a critical role of Field Officers within the JEFAP programme and will be stressed throughout this Manual. One of the potential disadvantages of community managed targeting is that the categories of household thought by the external agencies to be ‘more vulnerable’, such as those with household heads suffering from chronic illnesses cannot be guaranteed to be included in the list of those selected by the village committees. The JEFAP programme only targets the mostvulnerable households. The Chichewa term ‘osaukitsitsa/ovutikitsitsa’ effectively translated as ‘the poorest of the poor’. Within this category village committees should give particular consideration to households having one or more of the following characteristics:

¶ Households caring for orphaned children less than 18 years old (where both parents have died)

¶ Child-headed households (orphan-headed households or where the parent or grandparent is incapable of undertaking the usual head of household roles)

¶ Elderly-headed households (more than 60 years old)

¶ Households with chronically ill/HIV-AIDs affected members

¶ Female-headed households

¶ Households with two or more years of successive crop failure

¶ Households with children receiving supplementary or therapeutic feeding

with the distribution process or by volunteers either from within the community or elsewhere. Useful sources on community managed targeting and distribution are indicated in Annex 1.

21 Westen E 2002 Targeting Evaluation Consultancy Report EMOP 10200 Malawi October/November 2002, WFP Malawi.

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Whilst this pre-identification of priority categories might be criticised as undermining the empowerment objective of community managed targeting, it is included in the JEFAP programme because of the strength of the belief that households with these characteristics are particularly vulnerable to food insecurity and its effects.

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SECTION 4. WORKING IN PARTNERSHIP AT THE

CENTRAL, DISTRICT AND LOCAL LEVELS

4.1 The Importance of Effective Partnership JEFAP represents a partnership between the Government of Malawi, donor organisations, WFP, NGOs and the local authorities at the District and TA levels. Each party brings its own knowledge, perspective and comparative advantage to the programme and the programme is all the stronger for the inclusion of those qualities. Food distribution programmes are not just about effective logistics management. They are also about the quality of the relationship between the different parties involved. Central to establishing and maintaining a quality partnership are the principles of Respect, Transparency, Coordination and Accountability already introduced in Section 2 in WFP’s Guiding Principles. For JEFAP to operate effectively central government and local government needs to be fully aware of and supportive of the programme and the way it is operating. At the District level WFP and the lead and assisting partner NGOs need to work closely with the District Assemblies and members of the District Steering Committee or District Civil Protection Committee, particularly the District Commissioner to draw on their knowledge and experience, to keep them informed of the programme and its operation and to ensure their continued support for the programme. At the TA and village level community leaders have to be kept informed and on board to avoid misunderstandings during the programme. Central to all these relationships is the process of initial sensitization and the maintenance of effective communication through regular contact and coordination. The objective is to achieve a common understanding of JEFAP and an endorsement of the approach and methods.

Box 4.1 A Note On Terminology Regarding Committees The Disaster Preparedness and Relief Act of 1991 envisaged the creation of several tiers of Civil Protection Committees at the District, Traditional Authority and Village levels. Whilst some districts have functioning District Civil Protection Committees, in many districts the committee dealing with the emergency programme is the District Steering Committee. At the village level very few Civil Protection Committees are functioning and in most cases the committees formed under the JEFAP programme are called Village Relief Committees. Whilst they should be called Village Civil Protection Committees in line with the Act, the term Village Relief Committee is in wide usage. This Manual therefore uses the dual term District Civil Protection Committee/District Steering Committee to refer to the committees at district level and the term the village committee to describe the Village Civil Protection Committee/Village Relief Committee.

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4.2 District Level Sensitization and Coordination

Building a Good Relationship with the District Commissioner The key figure at the District level is the District Commissioner. Building and sustaining an effective relationship with the DC should be a priority for JEFAP NGOs and their Field Officers. If the NGO Relief Coordinator or a member of the relief team is newly arrived in a District a meeting should be arranged as early as possible to introduce the agency, its personnel and the objectives of JEFAP to the DC. The DC may already have information from central government about JEFAP but this cannot always be relied upon. As a central figure in the District administration the DC will be a good source of information on the needs within the District, other agencies carrying out food distributions in the district and the areas in which they are working. This information will help avoid duplication of effort and may indicate potential implementing partners at district and sub district levels. The DC should be a key ally in mobilising the support for JEFAP of the different stakeholders at the district level. Given the national importance of JEFAP and the participation of Central Government it is reasonable to request the DC to take up the role of mobilizing relevant district stakeholders such as the District Assembly, District Executive Committee etc for sensitization meetings. If the agency cannot carryout sensitization meetings due to other constraints, request the DC to mobilize the necessary support from relevant groups. The DC is the focal point for all complaints from the community level. As such the DC will receive complainants about the implementation of the food distribution programme and the targeting of recipients. In order for them to respond it is important to keep them well informed on all aspects of the programme to enable them to be able to deflect unwarranted criticism. The DCs office is also likely to be a good source of district maps, names of Traditional Authorities (TAs), Group Village Headmen etc. They will also be able to provide other relevant information such as newly created TAs or villages, border disputes, difficulties as well as supporting the NGOs operation by making some field staff available. The DCs office is also useful in signing letters going to the TAs. Letters not signed by the DC’s Office may not be taken seriously by the TAs.

Forming a District Civil Protection Committee/District Steering Committee Though a central figure at the District level, a good relationship with the DC will not be sufficient to ensure good communication and support for the JEFAP programme and the JEFAP NGOs from all the relevant government departments. If a District Civil Protection Committee/Steering Committee does not already exist the NGO should work with the DC, District Assembly or the District Executive Committee to ensure the creation of one. If one exists but it has not met for a long time the NGO should seek to revitalise the committee. A District Civil Protection Committee/District Steering Committee may include officers from relevant government departments such as the District Agriculture Office, Community Service and Social Welfare office, District Health Office, ADMARC office, WFP Sub-Office, lead NGO and assisting partners, District Police, District Information Office, Department of Surveys Office, District Education Office and others. The District Monitoring Officers that were deployed by the Department of Poverty and Disaster Management Affairs (DPDMA) in November 2002 as part of the emergency programme should also be included. Other NGOs working in the District in a relevant sector or that is contemplating undertaking some role in the overall relief efforts should also be included in the committee.

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Potential Roles and Contributions of Different Government Departments ¶ District Agriculture Office (DAO)

Providing vulnerability data for geographic targeting Providing village mapsAuthorizing support from DAO Field Workers (Extension Planning Area – EPA staff)

¶ Community Services and Social Welfare Providing information on other vulnerable groups such as orphans, the elderly and child-headed households

¶ District Health Office (DHO) Providing nutritional information Providing information on admissions to and recovery and mortality rates in Nutritional Rehabilitation Units Information on the chronically ill Mobilizing support from Health Surveillance Assistants (village level health frontline workers).The District Health Office may also possess information on population and household composition that can be used in case the other offices do not have updated figures.

¶ PoliceAssist on information and later on in handling security issues at distribution sites.

¶ ADMARC Assist with warehousing of commodities and market information

¶ Department of Surveys Help with maps

¶ Ministry of Education Many Final Distribution Points (FDPs) happen to be located at school grounds. The NGO will need authorization from the District Education Manager to use the schools and have cooperation from school heads.

While an inclusive approach to the different stakeholders at the district level is likely to bring many benefits, JEFAP agencies should note that some players also bring problems. Careful consideration must be made when including offices or institutions which have particular agendas or biased interest in the programme. Examples can be a religious institution or a person holding a position by virtue of being a political party or any other representative. While such figures may provide invaluable help, some prejudice the programme by compromising fairness, transparency and accountability by using the relief as rewards for their followers or faithfuls.

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Box 4.2 The Potential Roles of Different Stakeholders in Implementing the JEFAP Programme STAKEHOLDER ROLES DistrictCommissioner

o Write and or sign letters to inform the TAs and VDC about food aid programme.

o General information about programmes already taking place and some possible challenges likely to be faced.

o Authorization to implement a programme within the district. o Identification of vulnerable areas according to vulnerability surveys and

district profiles. PoliticalLeaders/ReligiousLeaders

o Mobilization process of the programme especially the newly agreed methodology of Community Managed Targeting and Distribution.

o Attending meetings on Food Aid Programmes o Part of sensitization process

TraditionalAuthorities(TAs)

o To work hand in hand with Village Civil Protection/Relief Committees, implementing agency and other key players in the whole process (mobilizing communities)

o Supporting Group Village Headmen in the implementation of the programme.

o Prioritisation of TA’s and villages Group Headmen and Headmen

o Mobilizing community members to participate fully in attending meetings (Organizing village committee meetings)

o Can facilitate formation of the village committees o Assisting facilitators and the village committees in passing information

to the community members. o Identify loaders. o Food received by implementing agency stamped and signed on the

waybillo Maintain peace during meetings o Organize security for the food received o Work hand in hand with village committee members, assisting them in

difficult situations and ensuring they are able to undertake their work

Lead NGO o Conducting meetings for the formation and support of village committees and selection of FDPs

o Preparing monthly distribution plans (including information from assisting partners) and submitting them on time to the WFP Sub-Office copied to the WFP Country Office

o Managing assisting partner NGOs to ensure that the programme is implemented in accordance with JEFAP Guidelines

o Working with WFP to ensure that food is dispatched to the village committees in the right amount (tonnage) and delivered in time.

o Organising the food distributions on distribution days o Undertaking the on-site and post-distribution monitoring and entering

the data into the relevant databases for submission to WFP with the monthly reports

o Informing authorities on progress and difficulties encountered during implementation.

o Preparing required consolidated reports for the WFP Sub-Office and copied to the WFP Country Office (including information from assisting partners) on time

AssistingPartner NGO

o Conducting meetings for the formation and support of village committees and selection of FDPs

o Preparing monthly distribution plans and submitting them in good time to the lead NGO

o Ensuring that food is dispatched to the village committees in the right amount (tonnage) and delivered in time.

o Organising the food distributions on distribution days o Undertaking the on-site and post distribution monitoring and either

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submitting the forms for data entry by the lead NGO or entering the data directly

o Informing authorities on progress and difficulties encountered during implementation.

o Reporting to the lead NGO

WFP o Communicating, liasing and advocating with donors and Government in conjunction with the lead JEFAP agency

o Managing food commodity pipelines including importing and storage of all food commodities

o Co-ordinating food pipeline with distribution ration in consultation with the Food Allocation Committee

o Managing delivery of food commodities to partners including consolidation of distribution plans, preparation of LTIs and waybills, contracting of transporters (transport in some districts is managed by the partners eg Salima), loading and dispatching of trucks

o Assisting JEFAP partnership in ensuring uniform programme implementation through technical support, funding and advocacy

o Monitoring of WFP JEFAP activities through WFP monitors o Reporting to WFP regional and head offices as well as donors o Facilitating regional co-ordination and communication through

sub-offices

Donors o Evaluating the implementation and impact of the programme o Assisting WFP and implementing partners with advocacy a

Government and international levels o Provision of the necessary resources to implement the programme

Other meetings at District Level ¶ District Assembly Meeting

Meeting with Assembly which consists of government officers, Traditional Leaders, Political Leaders and Representatives of NGOs. Here all stakeholders are informed of the food aid programme, methodologies for geographic and beneficiary targeting, constraints on the implementation of the programme and roles of different stakeholders.

¶ District Executive Committee (DEC) The DEC is comprised of heads of different government departments and will be useful in ensuring the cooperation of Government frontline workers. DEC’s usually have a variety of subcommittees and in most cases will already have an emergency subcommittee. This subcommittee could be adapted to form the District Emergency Steering Committee, though it may be necessary to add additional members to ensure that it has representation from all the district stakeholders as described above.

4.3 Sensitization at the Traditional Authority and Village Headman Level

Meeting at TA level involving TAs and Group Village Headmen An initial meeting should be arranged with the TAs to informing them of JEFAP. One of the better practices is to call for one meeting in which the TA and all his/her Group Village Headmen are present to inform them together of the planned programme. The meeting should cover the following points: ¶ Acknowledge the difficulty of targeting given that 60% of the population are below the

poverty line ¶ Discuss the resources available ¶ Discuss the different levels of vulnerability within the area and the community and the

need for targeting.

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¶ Discussion of targeting criteria ¶ Discuss information obtained from District Agriculture Office on vulnerable areas within

the TA ¶ Discuss the number of villages in the area including registered and unregistered villages ¶ Verify the overall population numbers in each village ¶ Starting the process of identifying Final Distribution Points that will be readily accessible

by several villages and therefore most probably located at the Group Village Headman level.

Subsequent meetings with TAs, Group Village Headmen, and perhaps later, Village Headmen should seek to obtain available information on numbers of household if such data is not available at any higher level. Data collected at district levels should be discussed to iron out any errors.

Care should be taken to check the population numbers claimed for each village and also the actual existence of the claimed villages, as many JEFAP organisations have already encountered incidences of ‘ghost’ villages (ie. villages that do not exist) or villages where the population number has been exaggerated in order to obtain additional rations.

Because of the central role of the community in managing the targeting at the household level it will be necessary to spend time introducing and discussing issues of vulnerability and the targeting criteria at this stage prior to the formation of the Village committees. This will involve discussion of: ¶ different socio-economic groupings within community e.g. very poor, poor, middle-

income and well-off¶ what defines wealth ¶ what characteristics can be used to differentiate between different wealth groups ¶ other vulnerability criteria e.g. child, female and elderly headed households, orphans,

disabled, chronically ill etc ¶ which socio-economic or vulnerability groups have been affected by the crisis ¶ those groups that should be prioritised by the JEFAP programme

Meeting at Group Village Headman (FDP) Level Involving Village Headmen and the Public: The First Public Meeting This meeting should involve the Group Village Headman of the area and all Village Headmen under that GVH. For this meeting, which is often referred to as ‘the First Public Meeting’ Village Heads should be requested to invite all the people from their village.

Immediately before the public meeting the Field Officers should have a closed meeting with the Group Village Headman and Village Heads to: ¶ Introduce the JEFAP to the village leaders ¶ Confirm which villages are present at the meeting ¶ Create awareness among Leaders of the Community Managed Targeting approach ¶ Notify the leaders of the need for assistance and the need for support from all members

of the village committee in explaining the Community Managed Targeting to the whole community

The public meeting should then proceed with the people assembled from each village and should seek to cover the following: ¶ Introduce the Field Officers and facilitator of the meeting and convey greetings. ¶ The reasons for the grant of food aid and the sources of the food aid ¶ Introduce the Community Managed Targeting method

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¶ The need to form a Village committee to ensure that the selection of beneficiaries is transparent and fair

¶ The criteria to guide the selection of the most vulnerable ¶ The proportion of the population that can be included in the programme and the

proportion that will not be included at this stage of the programme ¶ Defining what is a Household ¶ The numbers of households that need to be identified ¶ The composition and size of the ration

At this point the meeting should be informed of the following points. Use can be made of the points in Box 4.2. ¶ The characteristics of an effective village committee. ¶ The qualities of a good village committee member. ¶ The structure of a village committee. ¶ The roles of a village committee ¶ The roles of other stakeholders in the implementation process. ¶ The challenges the village committee is likely to face

The meeting should then break into their respective village groups to enable them to select their village committee.

The Second/Reconvened Public Meeting Following the selection of the village committee members the public meeting should be reconvened that should cover the following points: ¶ List of members elected by each village to the village committee are announced¶ Criteria to be used in identifying beneficiary Households is announced and discussed

with all villagers present ¶ Number of Households per village to be registered and amount of food per village /FDP

is announced¶ Also announce amount of ration per Household (Maize, beans and Likuni Phala)¶ Obtain the community’s endorsement or understanding on the criteria to be used in the

selection process

4.4 Forming and Training a Village Committee Once the members of the village committee have been elected from various villages at the first public meeting, consideration may be given to the possibility of forming an overall contact point that will cover all the villages being served by the Final Distribution Point. The overall contact point could be made up of members selected from the individual village village committees elected at the first public meeting

Central to the effectiveness of the village committees is their ownership of the selection criteria to be used in identifying which households should receive the monthly ration. The newly formed village committees will therefore need training to enable them to understand the principles and methods for differentiating wealth and vulnerability. The training method for achieving this is for the agency to decide but Box 4.2 provides some points that ought to be covered.

Once the members of the village committee have been determined there is a Village Committee Details Form to be completed recording information on the committee that needs to be entered on the Village Committee Database held by the lead NGOs and submitted to WFP. A sample Village Committee Details Form is shown in the Section 4 Annexes.

The training may be provided after the first public meeting has ended and once the selected village committee members have rested. Alternatively it may be arranged for a subsequent date.

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The following is a suggested process for the training:

¶ Selection of criteria to be used in selecting beneficiary households ¶ Household characteristics and resources to be used in assessing relative wealth and

vulnerability¶ Estimation of the number of households in different wealth status groups (eg. very poor,

poor, middle income and wealthy) and vulnerability groups in their village ¶ Adding other selection criteria/description of vulnerability such as Orphans, Child, elderly

and female headed households etc ¶ Agreed criteria should be recorded. ¶ Discuss and confirm beneficiary criteria to be used in registration.¶ Election of the general chairperson and the secretary (if necessary)

4.5 Registration of the Households Selected by the Village Committees22

Registration is a systematic method of collecting and recording information about the households selected by the village committees. Information about the beneficiaries of the JEFAP food rations is required for the following purposes: ¶ So that their identities are known and can be announced to the community for

transparency purposes and that those that are not eligible are rejected ¶ So that their names can be called out on the day of the actual distributions and their

identity verified by a village committee member of village headman ¶ So that basic information about the household composition (the number of adults and

children their age and sex), the reasons they were selected by the village committee (orphan, chronically ill, child-headed household, female headed household, elderly headed household) can be collected together with other information such as the other programmes (therapeutic feeding, supplementary feeding, HIV/AIDs and school feeding) that members of the household may be receiving assistance from. Such information is vital for effective management and refinement of the programme and is also required for reporting to donors funding the JEFAP.

22 Information on Registration derived from JEFAP Workshops, OHA/WFP 2002, Food Distribution Guidelines, Draft Copy and SC UK Community Managed Targeting and Distribution Guidelines.

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The household registration form used for the first 6 months of the JEFAP programme was found not to provide sufficient information for programme management and reporting purposes and so the revised form was developed and tested in December 2002 and introduced during January 2003. A sample of the revised Household Registraton Form is shown in the Annex to Section 4.

Verification and Confirmation of the Registered Households This may be done in several ways namely: ¶ Confirmation through public meetings ¶ Village to Village Meetings ¶ House to house visits by agency staff or volunteers

Box 4.3 Points for Use in Forming a village committee

CHARACTERISTICS OF AN EFFECTIVE VILLAGE COMMITTEE A good Village committee should have been elected with the inhabitants to each village unit preferably nominating 3 females and 3 male members. Women form a significant percentage of Village committees (at least 50%) and actively participate in the decisions made by the Village committees. Village committee members should be of high integrity and be trusted by the entire community.

QUALITIES OF A GOOD VILLAGE COMMITTEE MEMBER 9. Elected by consensus by beneficiaries using an agreed upon criteria. 10. Able to command respect form the community. 11. A person of integrity and firm principles. 12. Understands the need of his/her community and is able to articulate them well to external

stakeholders. 13. Must be willing to devote his/her time voluntarily during registration and distribution for up to 6

days.14. Able to organize and arrange a good order for distribution. 15. Must be subject to the same criteria as other villagers as regards decisions on eligibility for food

aid.16. Literacy will be an added advantage.

STRUCTURE OF VILLAGE COMMITTEE 6. Must be village based. 7. Elected by the villages 8. No remuneration or rewards will be expected. 9. Women make up at least 50% of the committee composition. 10. Village members elect a committee (general) Chairperson and secretary. (3 male and 3 female).

Gender should be considered.

ROLES OF VILLAGE COMMITTEE MEMBERS 9. Determination of beneficiaries’ criteria to be used in identification of required beneficiaries. 10. Identification/ registration of beneficiaries. 11. Coordinating of community meetings related to food aid distribution. 12. Assist in the organization and management of distribution. 13. Confirm the receipt and accounting of relief commodities (JEFAP to instigate documentation and

confirmation) 14. Organizing for the off loading of relief commodities. 15. Organizing proper storage and security of relief supplies when not being distributed. 16. Organizing beneficiary households into village groups to receive food at distribution sites.

CHALLENGES THE VILLAGE COMMITTEE IS LIKELY TO FACE 7. Political interference. 8. Pressure to register persons that are not eligible for food relief. 9. Lack of cooperation from village government leaders. 10. Needs to have an understanding of relief accounting systems/formats. 11. Additional workload to their other responsibilities/ the temptation to ask for compensation. 12. Lack of cooperation from committee members themselves.

30

¶ When handing over ration cards.

The recommended process for confirmation through public meetings is described below. Meetings may be held at the Group Village Headman (GVH) level rather than at the individual village level. Such meetings may well constitute the third public meeting. The public meeting should be preceded by a private meeting of the agency personnel with the village committee members at which they: ¶ Check registered figures, especially adherence to given number or percentage per

village.¶ Ask village committee members if they are comfortable with their figures before going to

the people ¶ Nominate one person to read all targeted Households per village ¶ Check the village size

At the public meeting the nominated person from the village committee should read all names and then the agency personnel should facilitate a discussion with the community members after each village list. Any amendments may then be considered. The confirmed names should again be read out to the community members.

The confirmed names should then be recorded in the Master Roll/Ledger/Register and the process of issuing ration cards to confirmed and registered households can then take place. The ration card can only be issued to the head of the household or a certified representative. It must show the same number that has already been assigned to the household on the Main Register Book.

Before the public meeting ends the date of the distribution, place (FDP locations should be identified by this stage or announced to the village well ahead of the distribution day) and time should be announced and the various responsibilities of the agency personnel and volunteers and the village committee during distribution day should be described. All distribution and security arrangements should be made with the village committee members on how the offloading will take place, who will be responsible or assisting with offloading the commodities and who will be responsible for providing security (see also Section 7).

4.6 Selecting the Final Distribution Points (FDPs) The agency must determine both the number and type(s) of Final Distribution Points that will be used for their general food distribution. Such decisions need to be made in full consultation with the village committees and village leaders. Such decisions must be made at least 5 weeks prior to the distribution to allow WFP Logistics sufficient time to plan the distribution and check its location and routes, contract transporters and relay the information to the commercial transporters. Information on the location of the FDP is crucial when consolidating the Monthly Distribution Plan.

As a general principle FDPs should be located as close as possible to the villages being served. However there are sharp trade-offs as there is a limit as to how many FDPs can be reached given the limited transport capacity. Also it is not cost-effective to have a truck tour several small FDPs dropping of a limited number of bags at each site. In addition the more FDPs to be covered by the JEFAP agency the more teams will be required to oversee and manage the sites on distribution day. For instance if a district has 20 FDPs then the agency would probably only need one team to visit each FDP on the day of distribution (5 distributions per week). However if a district had 60 FDPs the agency would need three teams to cover the sites on distribution day (15 distributions per week). On the other hand too few FDPs will mean not only that

31

beneficiaries will have to walk long distances but also that the distributions will be large, crowded and likely to have management and crowd control problems.

WFP’s recommendation is that ¶ FDPs are located between 10 –12Km from each other. This implies at least a

5Km catchment radius around each FDP. ¶ FDPs should have minimum 500 beneficiary households per site and a maximum

of 1500. To have less than 500 is generally not cost effective. The 500 household minimum represents an increase over the 200 household minimum in the initial guidelines. This has proved necessary due to the logistic constraints of delivering the larger quantities of food required by the scaled-up programme.

¶ 1500 is probably the maximum practicable number of beneficiary households that can receive a distribution at one site in one day.

¶ FDP with beneficiaries in excess of 1500 beneficiary households should be split between different (though maybe consecutive) days.

The implementation of these recommendations is subject to agreement between concerned NGOs and WFP Sub-Offices. If NGOs feel they have a strong case for establishing an FDP serving les than 500 beneficiary households (because of extremely long walking distances to other existing FDPs) this case should be made to the Sub-Office.

Other factors that need to be taken into account when planning the location of FDPs are: ¶ Ease of access to the sites for the likely size of truck to be used ¶ The likelihood of the access route being cut off during the rainy season ¶ The presence at the site of a suitable store for the food once offloaded from the truck ¶ Security considerations at the site

Whilst the agency will have its own sense of the various considerations it is important to involve the village committees and community leaders in the decision process about the number and location of FDPs. Their knowledge on such issues as stores and access routes will be invaluable. If the available options are limited and a site quite distant from a particular village has to be chosen then the agency will need the understanding of the village committees and community leaders in explaining the eventual location to their community.

What Kind of Sites are Suitable as FDPs?

Potential structures for FDPs may already exist, sites such as schools, community centres, ADMARC stores and/or government buildings (NOTE: military or police camps or political offices must be avoided). When utilizing a school or other community centre, it will be important to coordinate the distribution schedules with the community’s own activities so that no conflict in usage will occur.

Note that during the rainy season the agency may deem it necessary to establish shelter sites for the food and/or beneficiaries. This must be planned in advance in order to obtain the necessary resources and make appropriate arrangements for temporary/permanent construction and deconstruction (eg. erection of tents, establishment of basic shelters with iron corrugated sheets, etc.)

A) General Factors to be Considered ¶ Sufficient space - Is there enough space for all the activities that will take place at the

site? Take into consideration: storage space; access for truck deliveries; and, space for beneficiary queues.

¶ Accessibility - Is the road to the FDP accessible in both the dry and wet season? ¶ Is the FDP, and the road leading to the FDP, in a secure area? ¶ Stability -Is the site located on solid ground?

32

¶ Is the site located at least 50 to 100 meters from the nearest house and in an open area away from congested spaces such as markets and hospitals

¶ Storage - Are the food commodities stored either in or in proximity to the distribution point?

¶ Accessibility to water and sanitation and first aid services. Are such facilities available for both staff and beneficiaries?

B) Gender Considerations ¶ Easily accessible for women. ¶ Security ¶ Are women being exposed to areas that they find threatening ? ¶ Are men being exposed to potentially dangerous environments?

C) Access for Beneficiaries ¶ Travel distance for dispersed population should not exceed 5-10 km (or less than a

four hour walk to the distribution site) ¶ Can beneficiaries travel to the FDP and return home within the same day ? ¶ No military checkpoints ¶ Do beneficiaries have to pass through military points to reach the distribution site?

D) Logistical considerations

¶ Access for delivery vehicles. Sufficient space for trucks to deliver food to the centre. ¶ Ensure availability of parking and sufficient turning space and; easy access to the

store.¶ Assume that all the trucks will turn up at the same time. ¶ Site should be separated from the commodity storage facilities. ¶ Storage facilities must be accessible for food deliveries during all seasons. ¶ Land ownership, the land should be provided for the sole use of distribution.

Agreement must be reached with the owner that the site will be provided free for the duration of the distribution programme (usually the land provided for a distribution centre is Government-owned).

¶ Tarpaulins to keep the food dry (if there is no storage). ¶ Avoid depressions, swamps and river banks and choose a well-drained site.

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34

Instructions for Completing Household Registration Form

A. Completing the Form: One form for each beneficiary household.

B. Definition of a household: People staying or eating with the beneficiary Head of Household on a normal basis (in Chichewa this translates to: ‘Anthu amene mumakhala nawo ndi kudya nawo mbele imodzi)

C. How should this form be completed? The form can be used in different ways: ¶ The forms can be given to the VRC’s for them to complete for each beneficiary household and then return to the implementing partner (eg at a distribution) ¶ The information can be collected on site at distribution ¶ The information can be captured by the implementing partner monitors when carrying out post distribution monitoring in the household

More detailed instructions are given below by section.

Completing the form:

1. Introduction a) Partner - ensure that the name of your implementing agency is filled in b) Location - complete the name of the village, TA, EPA (since the VAC works with EPA’s), FDP and GVH

2. Household details – to be listed for each individual a) Names: ¶ Head of household – complete first name, second name (if they have one) and family name ¶ Other members – complete first name only ¶ If there are more than 12 names to be included, please continue on the back of the page

b) Sex: ¶ Insert ‘F’ if the person is female ¶ Insert ‘M’ if the person is male

c) Age: ¶ Insert the person’s actual age. ¶ If they only know the year of birth, then please calculate the age. ¶ If they do not know either the age or the year, please use a best estimate so that the family member is in the correct age category of under 5, 5-18, 18-60 or over 60.

d) Beneficiary category code: ¶ Please list for each individual member one of the following codes in line with the codes listed below the main matrix: ¶ Able-bodied as ‘0’. ¶ Orphans as ‘1’, (The definition of an orphan is under 18 years of age with both parents dead, ‘m’masiye’ in chichewa) ¶ Chronically ill / HIV AIDS sufferers as ‘2’ (The definition for chronically ill is ‘kudwalika’ in chichewa). ¶ Disabled family members as ‘3’ (Defined as those who are incapable of work)

35

e) Currently receiving food through other activities: ¶ If any member of the family is receiving food under any of these other programmes, please

tick / check the appropriate box. ¶ Therapeutic and supplementary feeding – since the beneficiaries will not understand these

terms, the best way to establish this is through the following questions:

Ǐ Are any members of the family receiving food from the hospital or the health centre?

Ǐ If ‘No’, then no-one is receiving supplementary or therapeutic feeding

Ǐ If ‘yes’ then ask if the person is admitted to the hospital / health centre or being given the food to take home?

Ǐ If they have been admitted, this is therapeutic feeding which is only given to children under 5 and their carers

Ǐ If they are taking this food home then it is supplementary feeding which is given to children under 5 but only to their mothers if they are pregnant or lactating

¶ HIV / AIDS programme – the best way to establish this is by asking:

Ǐ Is anyone in the family receiving food through the community based home care programmes normally operated through Community or Village AIDS Co-ordination Committees (CACC or VACC)?

Ǐ These feeding programmes are currently operational in Lilongwe, Blantyre, Chiradzulu and Palombe districts.

¶ School-feeding – currently the WFP school feeding programmes are only operating in Dedza, Salima, Ntcheu, Thyolo and Nkhata Bay districts. However from 1 January 2003,

this will be expanded to Lilongwe, Mangochi and Kasungu districts.

f) Remarks: Remarks are not compulsory but anything relevant to the beneficiary household member

could be included here if thought necessary.

3. Targeting a) Vulnerability ¶ Please circle the appropriate answer – yes or no – as to whether the family is among the

poorest of the poor (‘osaukitsitsa’ or ‘ovutiksitsa’ in Chichewa). ¶ The recent targeting review showed that many VRC’s had understood the targeting

according to category (such as female or orphan-headed families) but that the household sometimes was not actually vulnerable eg a ‘rich’ household that was also female-headed. By asking whether the household is among the most vulnerable in the village should help reinforce the concept that beneficiaries need to be vulnerable as well as fitting one of the criteria such as child or elderly-headed household.

¶ If this form is being completed by the VRC then this question should be included, particularly with the new registrations for the January 2003 increased beneficiary numbers.

¶ If this information is being collected at a distribution site, it will not be possible to ask this question.

36

b) Criteria ¶ Please circle the appropriate criteria under which the family has been selected ¶ These categories correspond to the criteria under which the existing beneficiaries should

have been selected. A beneficiary household may know this but if they don’t, the VRC representative should be able to give this detail.

¶ An extra criteria, ‘children receiving supplementary / therapeutic feeding’ has been added since this was suggested as a criteria at the last JEFAP meeting.

C) Signatures ¶ In order to encourage ownership of the targeting and responsibility for those beneficiaries

selected, it is important the person collecting this information should sign the form especially if they are part of the VRC.

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38

Instructions for Completing Village Committee Form

Completing the Form: One form for each committee.

The form is entitled Village Committee since this allows us to discover whether the committees are Village Relief Committees (as in the JEFAP guidelines) or different committees. More detailed instructions are given below by section.

Completing the form: 1. Introduction

¶ Partner - ensure that the name of your implementing agency is filled in ¶ Location - complete the name of the village (or villages if there are more than one!), TA, EPA

(since the VAC works by EPA), FDP and GVH

Committee Member Details Names:¶ Head of Committee – complete first name and family name in the top row of the frame ¶ Other members – complete first name and family name ¶ If there are more than ten add extra names on the back.

Sex:¶ Circle ‘Female’ or ‘Male’ as appropriate

Profession:¶ If the committee member has any profession such as farmer, teacher, nurse etc, this should be

inserted here ¶ This will give us an idea of the level of the committee ¶ This is not the position within this committee (ie. chairman, secretary, treasure, etc).

Committee member is also a beneficiary? ¶ Circle ‘Yes’ if the committee member is a beneficiary or ‘No’ if they are not. ¶ Since all committees are meant to include beneficiaries this is an important question. Please

encourage committees to identify beneficiaries. It should be indicated that there is no penalty for having beneficiaries as members. It is actually viewed favourably.

Is the committee member elected or appointed? ¶ Circle ‘elected’ if the committee member was elected (anasankhidwa) or ‘appointed’ if they were

appointed (kutchulidwa). Ensure that those filling out these forms understand the difference clearly.

Is the committee member an original member or a replacement member? ¶ Circle ‘original’ if the committee member has been on the committee since the beginning of the

programme or ‘replacement’ if they have joined the committee to replace someone else. ¶ This question is to understand how much ‘movement’ there is on the committee

Is the committee member also a member of the District Development Committee? ¶ Circle ‘Yes’ if the committee member also a member of the District Development Committee or

‘No’ if they are not. his question is to try and ascertain how independent the committee is

39

Additional Information What is this committee? ¶ Please circle the appropriate answer. If the response is ‘other’, then please explain what

the committee is eg Village AIDS co-ordination committee (VACC) ¶ Since not all committees are VRC’s, it is important to know how many communities are

using alternative committees to target the beneficiaries, particularly as there appears to be a correlation between the type of committee and the reliability of targeting.

Does the committee select the beneficiaries? Please circle ‘yes’ or ‘no’ as appropriate. If the committee does not select the beneficiaries, then please state who does!

Village Headman ¶ Please mark VH in the Remarks space for the committee member’s title if s/he is part of

the committee.

Group Village Headman ¶ Please mark GVH in the Remarks space for the committee member’s title if s/he is part of

the committee.

WFP Jan 03

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Final Draft -JEFAP Manual 30/3/03

41

SECTION 5. PREPARING FOR A DISTRIBUTION

5.1 Identifying the Tasks and the Timeline If the FDP sites have already been selected and the beneficiaries been registered and issued with their ration cards then the remaining tasks or steps ahead of the actual distribution day are as shown below. Field Officers should prepare a schedule to ensure that each of these steps is undertaken in sufficient time ahead of the actual distribution. Preparing a timeline of activities for each FDP and then transferring it to a work-planning calendar is an effective way of making the process systematic and manageable.

Box 5.1 Scheduling the Preparatory Tasks Task Timing in relation to the Distribution

1. CONSOLIDATE Distribution Plans 7th day of preceding month to WFP Sub-office which submits to WFP Country Office by 10th of preceding month

2. INFORM Beneficiaries of distribution date

One week before

3. SYSTEMATIZE Tally Sheets The day before (currently only CARE and its partner agencies in Lilongwe and Dowa Districts use Tally Sheets)

4. ARRANGE for Necessary Equipment 5. PREVIEW Distribution Point One month before (to allow time to

contact authorities required) 6. DETERMINE Security Arrangements One week before

7. IDENTIFY Staffing Requirements One week before

5.2 Working Through the Steps

STEP 1 Consolidate Distribution Plans ¶ ALL distribution plans need to be submitted to the relevant WFP Sub-Office by

the 7th of the month PRIOR to the month of distribution.¶ Distribution plans MUST be provided in the standard format with the GIS

(Geographic Information System) code and all information (including TA) is required. An example of an extract from a consolidated distribution plan is shown in the Section 5 Annex.

¶ Present the distribution plan to the District Steering Committees in order to keep them informed.

The reasons why it is vital to get the distribution plans in on time and with full information are:¶ to give WFP time to produce the master plan for all 750 or so FDPs that ensures

a sensible spread of planned distribution dates throughout the whole month (agencies tend to bunch their dates in the first half of the month)

Final Draft -JEFAP Manual 30/3/03

42

¶ to give WFP time to make necessary arrangements with the transport companies working in the different districts

When distribution plans are submitted late or are subsequently changed there is a significantly increased chance that the trucks will not appear on the planned day of distribution.

Procedures for making changes to the distribution plan after it has been submittedSometimes it may be necessary to modify a distribution plan after it has been submitted to WFP. In such cases the original distribution plan should be resubmitted to WFP with the proposed changes highlighted on the spreadsheet and an explanation given in the accompanying text. This explanation should indicate the reasons for the changes and explain the highlighting used if more than one colour/style has been used to indicate the change. WFP will require a minimum of one week in order to effect these changes.

STEP2. Inform Beneficiaries of the Date and Location of the Distribution Beneficiaries should be informed at least one week before of the planned date of distribution. The date and expected timing of the arrival of the trucks should be double checked with the relevant WFP Sub-Office before the beneficiaries are informed. The information should be conveyed directly to the members of the village committee who are then responsible for ensuring that all beneficiaries are informed.

STEP 3. Systematize Tally Sheets Of the JEFAP agencies CARE and its partners are the only ones to use Tally sheets. CARE finds them to be a useful management aid in that they enable:

¶ Spot checks to be carried out ¶ Determines how many people received food ¶ Identifies how many people absent ¶ Preparation of the Daily Distribution Report form at the distribution site

An example of a Tally Sheet used by CARE is shown in the Annex to Section 5.

STEP 4. Arrange for Necessary Equipment The following equipment will be needed for a food distribution ¶ Measuring equipment ¶ Scooping pales and buckets ¶ Weighing scales ¶ Rope to mark off areas for security ¶ Registration books ¶ Pens ¶ Ink pad and ink (for thumb-printing the registration books ¶ Chair and table for registration ¶ Rubber stamp ¶ Tally sheets (recommended by CARE) ¶ Centre distribution report form (recommended) ¶ Monitoring Forms (for on-site monitoring) ¶ Tarpaulin to cover food if necessary and for ground cover for spillage in scooping ¶ Ration cards (if not distributed prior to day of distribution)

Final Draft -JEFAP Manual 30/3/03

43

STEP 5. Preview Distribution Points Prepare the distribution point prior to the distribution day. Make sure there are not going to be any surprises. Determine how the distribution will be set up. Ensure that relevant parties know there will be a distribution and the planned time for commodity arrival and beneficiaries arrival

STEP 6. Determine Security ArrangementsThe arrangements for ensuring security at distribution should be decided prior to the distribution and the responsibilities for security personnel (whether by community volunteers, community police, government police or paid security) should be well defined and understood by them in advance.

Ground rules and strategy on how to deal with security incidents should be set and everyone working at the site should be well versed on the ground rules and strategy. It may be necessary to determine what are the advantages and disadvantages of using different types of security personnel. The box below may be used to assist the decision-making process.

Box 5.2 Decision Aid In Selecting the Type of Security

Type of Security Advantages Disadvantages Community Members/Volunteers Paid Security

STEP 7. Identify Staffing Requirements

It is important to develop a plan for use of all hired staff and volunteers. Such a plan should determine number of both staff and volunteers needed and define the roles and responsibilities for each person working at the distribution

Number of staff per FDP Managing an efficient, safe and secure food distribution and ensuring that all the tasks required are properly carried out requires at least a certain number of staff to be present and directly involved in at the FDP. Some agencies use teams of 6-8 staff. Experience during the initial months of JEFAP has shown that problems are less likely to occur when the NGO has at least 4 staff working at the FDP. The recommended minimum number of staff per FDP is therefore 4. Unforeseen events may reduce this number and the NGO has to decide whether it is safe to proceed with a distribution where they have less than this number. The absolute minimum number of staff per FDP is 2. If the NGO is unable to ensure that the absolute minimum number of staff are present the distribution should be postponed until more staff are available.

Economies of scale may apply at FDPs serving large numbers of beneficiaries where it may be possible to introduce more than one ‘distribution line’ into the process. If circumstances allow a useful role of thumb is that distribution lines should not

Final Draft -JEFAP Manual 30/3/03

44

significantly exceed 500 beneficiaries and that two staff should supervise each distribution line.

Use of Volunteers Within JEFAP many NGOs rely solely on their own staff and agency volunteers for the bulk of the work at the distributions. However, some NGOs make use of hired casual labourers for offloading and other tasks and some make use of beneficiaries as volunteers as it: 1) gives the beneficiaries the opportunity to contribute to the programme and 2) encourages the beneficiaries to take “ownership” of the process.

Box 5.3 Potential Roles for Volunteers at the Distribution Site

1) Security 2) Assist in carrying bags to area away from pick up area 3) Scooping if doing scooping or for overseeing the dividing of commodities for groups of HH (see modalities under Day of Distribution 4) Off-loading 5) Mobilizing and organizing beneficiaries at distribution

Where volunteers are used they are invariably drawn from the villages being served by the distribution or the village committees involved in organising the distribution. It is important that JEFAP agencies are consistent in their treatment of volunteers to avoid accusations of unfairness and differences between agencies. The policy agreed by the JEFAP agencies is that volunteers will NOT receive payments or even payment of expenses in exchange for their time. Drinks and refreshments allowances may be give but not other expenses. Members of the village committees who request some form of payment for their time should be reminded that membership of the village committees is voluntary. Under no circumstances should the food commodities be used as any form of payment as it could lead to misunderstandings among non-beneficiaries or escalate into more corrupt dealings. This rule applies to any leftover bags remaining after a distribution. Such bags should be accounted for.

If an NGO decides that a payment is justified for the time and effort given by individuals assisting in the distribution, they should be engaged as causal labour and be contracted by the NGO. This distinction must be clear to avoid misunderstanding by volunteers in other TA’s and FDP’s

Determining the Roles and Responsibilities of Staff and Volunteers All staff need to be clear about the roles they will be performing and be expected to perform before they arrive at the distribution site. Ideally new volunteers will also be briefed on their roles before the distribution day though in many cases this may satisfactorily be done at the site immediately prior to the distribution. Section 6 of this Manual should be used to identify all the different roles that will or may need to be undertaken and to discuss and assign them to specific staff and volunteers.

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b) The Tally Sheet used by CAREBook 1of 4 DISTRIBUTION TALLY SHEET

District LILONGWE Ration Scale [in kgs]

TA Chimutu Maize Beans CSB

FDP Chiwamba EPA 50.000 5.000 5.000

Date of Dist.

Name of Village Name of Village Name of Village Name of VillageKafulatira Nachiola -2 Nachiola -2 Kamphinda

# Card # Date Card # Date Card # Date Card # Date

1 174580 174590 174605 174608

2 174581 174591 174606 174609

3 174582 174592 174607 174610

4 174583 174593 175183 174611

5 174584 174594 175299 174612

6 174585 174595 174613

7 174586 174596 174614

8 174587 174597

9 174588 174598

10 174589 174599

11 175182 174600

12 174601

13 174602

14 17460315 174604

Name of Village Name of Village Name of Village Name of VillageLundu-1 Chandawira Lundu-2 Fupa

1 174615 174627 174636 174646

2 174616 174628 174637 174647

3 174617 174629 174638 174648

4 174618 174630 174639 174649

5 174619 174631 174640 174650

6 174620 174632 174641 174651

7 174621 174633 174642 174652

8 174622 174634 174643 175188

9 174623 174635 174644

10 174624 175186 174645

11 174625 175187

12 174626

13

14

1516

Day-1 Day-1 Day-1 Day-1Day-2 Day-2 Day-2 Day-2

Total-Day 1Total-Day 2

Gr. Total

Page 1 of 1

Final Draft -JEFAP Manual 30/3/03

47

SECTION 6. DAY OF DISTRIBUTION

6.1 Organising for the Distribution

¶ Review the number of staff and volunteers and their roles at distribution -As noted in Section 5 the recommended minimum number of staff per FDP is 4. The absolute minimum number at which a distribution can still proceed is 2. If the NGO cannot provide 2 staff then the distribution should be postponed.

¶ Determine the set up of the distribution - where food will be situated, where security people will stand, where beneficiaries will sit or stand, location of registration table, and provision for a rapid departure in case a security problem develops etc.

¶ Verify all equipment present (see equipment list) - if something is missing run back and get it!!

5.2 Set up of the site for Efficiency and Crowd Control

¶ Organize beneficiaries for crowd control- follow security guidelines. It is common practice in Malawi to have the beneficiaries sit (if the ground is not wet) grouped by their village.

Box 6.1 Factors to Consider when Laying Out a Distribution Site (Adapted from WFP Draft Guidelines November 2002)

The layout of a distribution site should enable quick and efficient distribution of food. It should ensure that beneficiaries go through the distribution in a minimum of time. Of importance, the ones receiving food are separated from as much as possible from on-lookers. Last, the food should be separated from beneficiaries and “on-lookers”.

Four General Rules for Distribution Point It is still possible to plan the distribution centre in such a way as to enable an efficient distribution while avoiding chaos. The four general rules should be adhered at all times to provide the most equitable distribution for the beneficiaries and to ensure safety of the distribution staff: * Do not allow crowding around the distribution point. * Ensure an entrance and exit point in distribution area. * Do not allow passing through the distribution point more than once. * Separate beneficiaries from the commodities and the distributors.

Step-by-step Planning In addition to the four general rules, this is a more exhaustive step-by-step plan to observe for the lay out of the distribution site: ¶ Adequate storage should be ensured for commodities, which may need to be pre-

positioned. ¶ Shaded or a roofed space/areas will be needed for the “waiting area” to avoid sun or

rain and also for areas where any group redistribution of food may be necessary

Final Draft -JEFAP Manual 30/3/03

48

¶ Buildings or rooms that are used should have one entrance and one exit to avoid flow confusion between those entering and those those exiting.

¶ Ensure that beneficiaries who already received their commodities leave without passing in front of those who have not yet received theirs.

¶ If the site is an enclosed area, there should be a specific emergency exit for staff. ¶ Where possible, store the commodities out of sight of the beneficiaries. ¶ At the point of distribution, there should be a barrier between the beneficiary and the

distribution assistant. ¶ Different commodities should be distributed from different bins. ¶ Allow for sufficient space between the different commodities to enable a constant flow

of people through the centre. ¶ If one commodity takes longer to distribute than another, two bins can be used for that

commodity or this specific commodity should be located at the beginning of the distribution chain so it does not slow down the process.

¶ For scooping, ensure that the distributors can easily scoop commodities into the beneficiaries' containers.

¶ Ensure that all entrances and exits to the centre are easily secured.

6.3 Delivery, Off-loading and Organizing the Food

ArrivalThe area should be arranged in such a manner as to provide room for truck to depart distribution area with out any difficulty.

Off-loading of the TrucksOff-loading of the commodities from the truck seems like an easy task, but a number of matters should be taken into consideration. ¶ Off-loaders should be identified before hand and the off-loading process

should be well organized with a set number of people on the trucks and others on the ground

¶ Bags should be handed down from the truck, not thrown. They can (and do) break resulting in spillage.

¶ Bags should be stacked evenly with the same numbers in each row so that they are easy to count.

¶ Particular attention needs to be given to the order of the commodities, making sure not to put oil next to commodities that could easily be ruined such as CSB/Likuni Phala or maize meal.

Layout of the Commodities The order should be:

1. Likuni Phala/CSB 2. Pulses 3. (oil if included in the commodity basket) 4. Maize

Other layout rules ¶ light items first ¶ oil should not be put next to CSB/LP in case of spillage

Final Draft -JEFAP Manual 30/3/03

49

Box 6.2 Layout At a Typical Distribution Site

Likuni Phala Beans Oil Maize

WeighingScales

Registration Desk

Village Group beingprocessed

Waiting Area (Preferably Sheltered and/or Shaded)

Recipients Re-bagging and Transport Area

(bicycles, ox-carts)

Secure roofed structure (school, shelter, etc)

Final Draft -JEFAP Manual 30/3/03

50

¶ stacking should be orderly and the sacks stacked 5-5-5 for ease of counting of the number of sacks used and the number remaining

¶ organize for ease of access ¶ beneficiaries should be able to move through the ration issuing process in

one line. Back-tracking must be avoided as it creates confusion

6.4 Verification of Commodities It is important to verify the quality and quantity of commodities at both the dispatch and receipt stages. ¶ At the FDP level it is very important to under take commodity verification before

each distribution to ensure that the commodities received and to be distributed are of the required quality and quantity.

¶ During the verification process it is recommended that a member of Village Relief Committee be included and then this individual can counter sign the Waybill together with the NGO/Partner representative. This increases transparency and accountability and may help protect the NGO from subsequent complaints about mis-deliveries and poor quality.

6.5 Signing Waybills The Waybill is a critical document in commodity transportation and distribution. In the JEFAP the procedures to be followed are as follows: ¶ WFP prepares the waybill at the time of dispatching the commodities. The

Waybill must record the consignor, consignee, type of commodity, quantity, package/weight (in unit/metric ton), condition of commodity, donor, transporter etc.

¶ The transporter signs the waybill and takes responsibility for the commodities until formal acknowledgement of receipt by the receiving NGO/partner agency

¶ The NGO/partner agency is responsible for all commodities once the transporter has delivered them to the site and the NGO is therefore responsible for signing the Waybills. The signing should be done by staff or representatives of the NGO. Waybills should not be signed by teachers or Admarc staff unless there are extenuating circumstances and in that case the explanation should be put in writing.

¶ On receiving the commodities the NGO/partner agency must count all bags and indicate on the Waybill any shortages or excesses prior to signing it The condition of packages/unit and their contents should also be checked and acknowledged

¶ Any shortages/damages must be clearly noted on the Waybill as the document is required for any claims to be made against the transporter for losses or short deliveries that may well result in deductions from the payment to them by WFP

¶ Before signing the Waybill the NGO/partner agency should check the time of dispatch and write on the waybill if it took an unexplainably long time to get from warehouse to distribution point.

¶ If any delivery is off-loaded by village committee members in the absence of a representative of the NGO/partners agency the VC must note on the waybill for any short delivery and damaged commodity received and NGO/partner must counter sign and put rubber stamp after making a physical count on the waybill.

Final Draft -JEFAP Manual 30/3/03

51

¶ The copy of the Waybill retained by the NGO/partner agency is a useful document in reconciling stock reports and verifying stock balances at the FDP level.

A sample of a Waybill is shown in the Annex to Section 6.

6.6 Calling up Beneficiaries, Registration Books and Tally Sheets

Calling Beneficiaries Beneficiaries should be called one at a time, to identify themselves, present their ration card and thumb print or sign the registration book. The Village Headman may be there to assist but identification of the beneficiaries should not rest solely on the Village Headman as it leaves room for abuse.

Registration Books ¶ The registration book serves to list households as per the household size. ¶ Each head of household gets assigned a number. This number is in chronological

order for each household size. ¶ This number should indicate area/village, household size and ration card number and

the number of children under-five. ¶ Registration books should be completed according to the headings on top of each

columnA sample page from a Registration Book is shown in the Annex to Section 6.

The Tally Sheet The Tally sheet is a list of card numbers issued to beneficiaries and arranged according to family size and, most importantly, in chronological order. An example of a Tally Sheet is shown in the Annex to Section 5. The tally sheet is not mandatory, but is useful for spot checking at the distribution. ¶ This document is based on the information derived from the registration exercise,

where each household head has been issued with a pre-numbered ration card. ¶ Tally sheets are prepared for each population group (i.e. according to the village) ¶ Tally sheets should always be updated by removing all the lost card numbers and by

inserting the new card numbers (new beneficiaries). ¶ It is recommended to keep an updated copy of a tally sheet and print accordingly

before the distribution.

Ration Cards Distributing the ration cards and who holds onto them?

For newly registered beneficiaries it is preferable for ration cards to be issued to them the day before the distribution so as not to delay the start of distributions on distribution day.

Ration cards must be kept by the beneficiaries and not by a proxy or representative.

The collection of ration cards by NGOs to ensure their safekeeping in principle should not occur. Neither should collection and safekeeping keeping by headmen and/or village committee members. Where instances are found of headmen or village committee members collecting and rotating cards the matter should be investigated and reported to

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the District Commissioner. It is easy to check whether beneficiaries are retaining their ration cards by asking to see them during the beneficiary Post Distribution Monitoring Interviews.

Signing or ticking off ration cards- Who and How? ¶ Ration cards should be checked at the registration table, but they should not be

signed until the commodity is handed to the beneficiary. ¶ The person(s) who is responsible for handing the food to the beneficiaries should

be the ones to sign the ration card and it should be done only when the beneficiary is actually picking up the particular commodity.

6.7 Distributing the Commodities

Maize The maize ration for a household each month is a 50kg sack. The JEFAP agencies are fully aware that variations in household size means that smaller households are receiving more maize per household member than larger households. However with a case load of over 3 million people at over 720 distribution points, it was felt not to be feasible to expect Field Officers and volunteers at the distribution sites to scoop or weigh the maize to vary the ration according to the size of the household. It is administratively and logistically much easier to assume an average household size of 5.5 persons which amounts to one 50kg bag per household per month. It is for this reason that sacks of maize are directly distributed.

During the planting season the Government of Malawi is funding the milling of maize into maize-meal and WFP and the millers are adding fortification supplements to enhance the nutrient levels in the maize-meal. This will mean that each sack will contain 50kgs of maize flour. When allowance is made for the milling losses that would have occurred in preparing the whole grain maize in the household, it means that households will be receiving a larger ration (flour equivalent) during the planting season.

Because of the weight of the maize sacks they should be issued last in the distribution process.

Likuni Phala/CSB and Pulses – Scooping, Weighing or Grouping?Lukin Phala (or corn soya blend) and pulses both require dividing bags of the commodities among a number of households. There are two different methods that can be used for distributing partial bags of commodities to beneficiaries. These methods are:

1. Scooping The NGO designates a staff members or volunteers to divide the ration to each beneficiary.

2. Weighing The NGO designates a staff member or volunteer to weigh out the ration for each beneficiary

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3. Household GroupingThe NGO with the assistance from the community divides beneficiaries from the same villages into groups and the group than divides the bag so that each beneficiary receives her or his ration. (Example: if the ration for pulses is 5 kg. A 50 kg bag could be given to a group of 10 families to be distributed among themselves. Or a group of bags could be given to a larger number of families).

1. Scooping1

The use of calibrated and manufactured devices is not always possible. Often, old tins, buckets and bowls culturally recognized by the community are used as the scooping devices. As the ultimate resort, one can also “improvise” with cutting down plastic jerry cans and water plastic bottle (remember that these two will lose their shape with use and/or their holding capacity). To do so, level off the commodity and draw a line to indicate the level the ration comes to and cut the scoop to size (if it is a jerry-can and/or a plastic water-bottle).

Scoops need to be standardised for each commodity, especially for cereals, as measuring cups of the same volume will give different weights depending on the weight and density of the cereal. Scoops need to: ¶ be made of a durable material and have strong handles that will endure repeated use

over a long period ¶ accurately measure the commodity being distributed ¶ readily available in the country in case more are needed ¶ simple to use (familiar to the people doing the distribution) ¶ be used in a transparent manner.

Scoops should be made/prepared at one central point to ensure that certified scoops of the same size are used in all the distribution centres. Place the tin or the chosen container on a scale and fill the tin with the commodity (e.g. pulses) up to the weight for one household entitlement for that specific commodity. The process must be repeated for every household and every food commodity the food basket contains except those being distributed in the packaging unit. All the designs depend of the needs at the distribution point

Scoops should be made of materials that comply with hygienic practices in the food handling industry and should be kept clean by the Field scoopers (especially for flours and pre-cooked food). Scoops should be regularly checked by the Field Monitor to ensure that they have not been modified for over or under scooping.

Under-scooping of food can lead to significant inequity in the distribution. Under-scooping of high-value commodities (oil and sugar) is especially prevalent. For only 20,000 persons if under-scooping represent only 1%, it will total over one tonne of food commodities.Over-scooping also results in an unfair distribution of food and in misappropriation. Decisive corrective action must be taken to stop misappropriation as soon as witnessed.

1 Adapted from WFP Draft Guidelines, November 2002

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Should a beneficiary be displeased with his/her ration, they should be allowed to weigh out their rations to check if they have received their proper entitlement. To this effect, random weighing scales (such as Salter scales of 100 kgs range) placed at the end of the distribution centre is very effective for beneficiary self-monitoring and measuring the accuracy of the ration distributed.

Practice shows that while moving toward the end of the distribution, scoopers compare the remaining bags against the number of recipients left to distribute food to, and adjust the scooping accordingly2 (i.e. under-scooping to beneficiaries) to avoid food shortages. To avoid such practices, systematically practice random sampling of bags weight when downloading the food to distribute.

2. Weighing3

Ideally, weighing out all items distributed in front of the recipient is the most effective way of ensuring a fair distribution.

To weigh commodities, 100 kgs Salter scales are required (the scales should indicate 50 grams graduations). ¶ Find a point strong enough to carry 50 kgs, from which the scale can be hung from (if

you have a hanging scale) if not, find a levelled area to put the scale. ¶ Make a mark using a coloured tape. It can be placed on the scale dial to indicate the

“full point” for the established ration. ¶ To weigh commodities such as vegetable oil, a bucket or similar container will be

required. Do not forget to weigh the bucket and take the weight into account when weighing the oil.

Ensure the scale is visible to all beneficiaries at the end of the distribution line and is located in the distribution area. Remember scales should be accurate and durable and be certified for use by local authority.

For various reasons, including humidity, moisture contents and selling of commodities by either a transporter or official, original commodities bags may not weigh the assumed weight (say a 50 kg becomes a 48.5 kg). Up to 5% of commodities delivered are below their waybill weights.

3. Grouping The process for using household grouping as a means of dividing the Likuni Phala and the pulses is as follows: ¶ Based also on the ration sizes, define what would be the most appropriate number

of individuals. Hence, bags could be directly distributed to the groups. ¶ Form households into the appropriate size of groups ¶ Check that each head of household holds a valid ration card.

2 Ibid. World Vision International. 3 Adapted from WFP Draft Guidelines, November 2002.

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¶ Hand over the full commodity sack to a representative of the group, who together with some assistant from her/his group, carries it to the distribution area where all the head of households (HHH) are present.

¶ Once the sack is handed to the group, the group divides the commodities between themselves, based on the total number of households and the approved ration.

¶ Appropriate monitoring must take place to insure that each household receives equal rations. Steps need to be taken to assure that the registered beneficiaries receive the appropriate quantity of commodities and to avoid misuse of power or coercion.

Using Volunteers to Ensure that Commodities Are Carried Away from Pick Up AreaThe utilization of volunteers to assist in carrying commodities away from pick up area is recommended. It provides for less need of family members near actual pick up place and provides a services to those who might struggle with carrying all the commodities. If it is necessary to re-bag the maize for ease of carrying, it should be done away from the pick up point- at least a few meters away.

ON-SITE MONITORING – refer to the Section 8

6.8 Planning for Eventualities and Handling Complaints

1. What to do if the commodities don’t arrive on time Prior the distribution day, the commodities may not reach the distribution site in time. The following steps suggest some quick action to take to resolve the issue without creating crowd control problems at the distribution site.

Strategies are as follows: 1. Reduce the number of commodities to be distributed. Distribute an equal share

of available commodities to all the beneficiary population (i.e. reduced rations). 2. Note families which did not receive given commodity and set date and place to

distribute remaining commodities. 3. Postpone the food distribution

¶ Whatever option decided upon, ensure that leaders, beneficiaries committees member, women’s groups, local authorities, and all the others involved in a distribution, are aware of this change.

¶ In case full distribution of the agreed ration has not been possible, the shortfall in the ration will not automatically be distributed in the following month.

2. Someone Else Picking up for Registered Beneficiary- Who and HowA few different methods are presently being used to get food to absentee beneficiaries. They include:

1) giving food to village committee and the village committee members distributing to the absentee beneficiaries 2) NGO returns the following day or another set day to finalize the distribution by distributing to the remaining households or

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3) allow for other family members or identified persons to collect on behalf of the absentee person.

If the village committee is given the responsibility for distributing rations to absentee beneficiaries or if a representative or proxy collects the ration for them, then there needs to be a method for verifying that the intended beneficiary actually received the food. In such cases the village committee and/or the village headman should confirm that the proxy is indeed collecting the ration on behalf of the registered beneficiary. Special efforts should be made to ensure that the post-distribution monitoring includes those households that were represented by a proxy to ensure that they did indeed receive the ration.

3. Handling Complaints from Non-Beneficiaries Since the partner is not responsible for targeting individual households, a process has to be followed if the complaint is a non-beneficiary wanting to be included in the distribution. ¶ This person should be referred to village headman who can raise the issue with

the village committee. ¶ The village committee will need to evaluate the needs of the complaining

household compared to the needs of those households that have already been selected.

¶ If the case is judged to be valid, the committee will try to include the household on the beneficiary list for the next distribution. This may require the de-registration of an existing beneficiary household whose needs are judged to be less than the household to be added.

4. Distributing Vegetable Oil In February 2003, vegetable oil was added to the list of commodities for distribution to beneficiaries. The official ration is 2kg per beneficiary household, but due to the problems of weighing and ensuring the correct ration, most organisations use the more practical alternative of 2 litres per household.

Since the oil can come in various types of packaging depending on the country / region of origin, the distribution staff must check the size of the container delivered to the FDP in order to know how to distribute. In some cases, more than one type of packaging might be delivered so this needs to be clearly explained to the beneficiaries so they are aware that they are all receiving the same ration, though it might appear different.

Distribution can be carried out in 2 ways: ¶ The distribution staff can pour the oil ration into containers provided by the

beneficiaries at the point of distribution ¶ The oil can be issued to an appropriate group of households for them to divide

equally amongst themselves e.g. one 4 litre container should be split between 2 families or two 5 litre containers can be shared between 5 families.

Either way beneficiaries need to bring containers to carry the oil!

If the distribution staff is decanting the oil, it requires appropriate preparation since it is difficult to handle. The following equipment is required for distribution of vegetable oil at the FDP: ¶ Funnels – through which to pour the oil into the beneficiaries containers

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¶ Calibrated scoops (with pouring spout) ¶ Large container to catch - and if possible recycle - the spillage ¶ Gloves for the distribution staff to ensure hygiene

The staff must ensure that oil is kept away from the other commodities (especially the CSB) and that the surface where people walk should not become slippery in the case of oil leaking or spilling. If oil is spilt, mixing the oil with sand / earth will allow it to be cleared easily with a broom.

When reporting the distribution of oil, this needs to be done in kg. In order to arrive at this figure, calculate using a conversion factor of 2 litres of oil equals 1.85kg. If 10 households have received 2 litres each, this would mean that 18.5kg has been distributed.

.

No. 000000Annexes to Section 6

6: (a) A sample Waybill

LOGO

I. TRANSACTION DETAILS1. Origin (Location) 2. Origin (warehouse) 3. Destination (location) 4. Destination (warehouse)

5. Destination (allocation) 6. Project Number 7. Requisition Number of Landside Transport Instruction

8. Date of Loading 9. Date of Dispatch 10. Consignee

11. [ ] Internal WFP Transfer [ ] Delivery or [ ] Purchase [ ] Diversion [ ] Loan/Swap [ ] Other (Specify)Distribution [ ] Sale

12. [ ] Rail [ ] Road [ ] Air [ ] Inland Waterway [ ] Coastal [ ] Other (Specify)Waterway

II LOADING DETAILS

17. Net 18. Gross

ID 1ID 2ID 3ID 4ID 5

DISPATCH OBSERVATIONS

III CERTIFICATION OF COMMODITIES LOADEDWAREHOUSE/DISPATCH POINT TRANSPORT CONTRACTOR21. Name 23. Transport Company

22. Title 24. Sub-contracted Transporter

25. Driver's Name

26. Driver's License

27. Vehicle Registration: Container Number:

I hereby certify the Commodities as described above

Name, Signature and Stamp Name, Signature and Stamp

IV CERTIFICATION OF COMMODITIES RECEIVED28. Place 32. Arrival Date

29. Consignee 33. Start Discharge Date

30. Name 34. End Discharge Date

31. Title 35. Distance (KM)

V OBSERVATIONS (FOR SHORTLANDED OR DAMAGED GOODS PLEASE INDICATE SI NO., CDIY, WEIGHT AND CAUSE)

Receipt Condition

SI Number Units Units (L) or (D) UnitsID 1ID 2ID 3ID 4ID 5

RECEIPT OBSERVATIONS

Name, Signature and Stamp Name, Signature and Stamp

20. Gross19. Net14. Commodity 15. Packing Unit Weight (kg)

MT Net MT Net MT Net

Total Received

Type of Damage

Please endorse this section with an official stamp

On behalf of the Transporter, I hereby certify the receipt of the Commodities described above in good condition, unless otherwise endorsed here above.

Please endorse this section with an official stamp

Good Cargo Lost (L) or Damaged (D) Cargo

WAYBILL 123456

13. SI Number Tonnage (MT)

Conditions of Carriage as indicated overleaf are applicableOriginal / WFP Logistics Office / Issuing Office / Consignee / Waybill Book

16. # of Units

On behalf of the Transporter, I hereby certify delivery of the Commodities loaded, unless endorsed as above.

Please endorse this section with an official stamp Please endorse this section with an official stamp

On behalf of the Consignee I hereby certify receipt of the Commodities loaded, unless endorsed as above.

b) A

Reg

istr

atio

n B

ook

Pag

e

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SECTION 7. SECURITY AND THE DISTRIBUTION SITE4

7.1 Introduction Malawi is a peaceful and law-abiding country and civil disturbances are rare. As a result the incidence of disturbances and security problems at distribution sites is very rare. However, there are many pressures on the JEFAP agencies as a result of the programme being implemented during the pre-harvest hungry season and the increased interest and involvement of politicians in the programme and it is best to be prepared for any problems or disturbances at the distribution site. Security should therefore be a consideration in planning and managing a distribution. A security incident can be created by just one person. If a crowd does become agitated, the situation can quickly become dangerous, leading easily to violence. Experience from many countries shows that:

¶ The best crowd control measure is to design a distribution system that runs smoothly, avoid large crowds gathering outside and inside the distribution site and that is fair for all.

¶ If the population is not well informed and rumours start concerning food shortages, this can provoke fears among beneficiaries that some of them will not receive food causing tension and unrest.

7.2 Precautionary measures

By taking a series of precautionary measures, risks associated to a food distribution can be considerably reduced. They are:

Lay out – the site must be secure for both beneficiaries and distribution staff ¶ Sites must be situated in neutral areas not associated with any particular powerful

group. ¶ Clearly delineate the boundaries of the distribution centre & ensure that they are

respected. ¶ If goods are distributed immediately after delivery to the site, ensure an exit for the

trucks. ¶ Try to ensure basic facilities (i.e. water, shade, heat, latrines etc.) ¶ Designate entrance and exit to avoid congestion by the beneficiaries in the

doorways/lines. ¶ Build a “security exit” at distribution sites only for distribution staff.

Involve Community Leaders in crowd control ¶ Agree with local leaders to help in organizing and assisting in maintaining crowd

control. ¶ Security personnel should be chosen from the beneficiaries themselves. ¶ Organize people outside the “distribution site waiting perimeter” into groups

according to their communities. ¶ Allow only a small number of people to enter the distribution site at a given time.

4 This section is adapted from WFP Draft Guidelines, November 2002.

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¶ Ask people who are waiting to enter the distribution site to sit down and wait for their names to be called.

¶ Position sufficient crowd control personnel strategically to ensure the orderly progression of people.

¶ Ensure adequate supervision and assistance during waiting period and distribution to vulnerable (elderly, women with children, people with disabilities).

¶ Keep people passing by and others at a suitable distance from the entrance of the distribution site.

Determine the appropriate level of security provision

¶ In principle the communities receiving the food should be responsible for ensuring good order and security at the site. This is the case at most FDPs where the village committees and volunteers from the community provide security.

¶ Where Community Policemen5 are used they may be paid for any expenses incurred whilst on duty and for extended periods of duty – such as the overnight guarding of commodities delivered before the day of actual distribution

¶ Where a higher level of security is required the Malawi Police Force should be requested to provide one or more officers. The request should be channelled through/made in conjunction with the District Commissioner. Police are only entitled to claim a meal allowance if they are not spending the night. If they are spending the night away from their working place they are entitled to a subsistence allowance.

Communicate information during the entire distribution process: ¶ When shortages are expected, let local leaders know in advance. Discuss how to

deal with it. ¶ Hire male and female animators who speak the local language. They will occupy

those waiting, act as crowd movers and information officers. ¶ Keep beneficiaries informed as to how long they have to wait and the reasons for

any delays should they occur. ¶ Parents should be discouraged from bringing their children along to the Distribution

site.¶ Hold activities in the waiting area such as focus groups discussions: health workers

could take random sample measurements of children; monitoring staff could discuss on food security issues while beneficiaries are waiting.

Staff Management ¶ Schedule distribution in such a way to minimize waiting and queuing. ¶ Make sure that one agency and one person is in charge. That person is the ultimate

arbiter in cases of disputes and is the one deciding to stop the distribution and evacuate staff if necessary.

¶ Give a detailed job description and explain to staff their specific role. ¶ Give clear communication lines and call –signs (if needed) between staff. ¶ Provide a helper for handicapped who are unable to move easily. ¶ Never surprise the population with a sudden change in the system (e.g. mass

verification). ¶ Deal promptly and fairly with cases of cheating and disorder. 5 Volunteers selected and provided by the community to maintain law and order during the distribution or provide security for delivered commodities.

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Show entitlements to beneficiaries ¶ Ensure that beneficiaries know their entitlements – the use of posters to inform them

of their entitlements in the local languages is strongly recommended ¶ Show beneficiaries their commodities being measured out. ¶ Provide beneficiaries with weighing scales at the end of the distribution line.

Basic indispensable material you must have to help you control your crowd ¶ Hand-held megaphone, whistle and click-counters ¶ Identify distribution staff by using colourful caps, vests or any visible distinguishing

material. ¶ Rope or fencing to delineate the food distribution perimeter.

Safety of stored commodities ¶ Separate and store the commodities out of sight from the beneficiaries. ¶ Strict entry control procedures.

What to do if the crowd becomes agitated and security becomes an issue? If the crowd control fails and it results in disorder, there is probably little to be done other than to ensure the safety of the staff in the distribution centre and to withdraw as quickly as possible.

¶ The food commodities should be secured ¶ If confronted by a crowd while you are driving in the vehicle, do not get out. Lock the

doors and drive away. ¶ If you need to talk to the crowd, do it in a poised manner. Never show anger. ¶ The relevant authorities (police, DC, NGO supervisors and WFP Sub-Office) should

be informed.

If the security situation worsens at distribution sites the following steps should be considered:¶ Inform the police and discuss the situation with them ¶ Have a car on stand-by equipped with a radio. ¶ Design a relocation plan (routes in/ routes out) for your field staff – inform all partners

of this. ¶ Bring a list of all staff to do a head count check if all have evacuated safely. ¶ Know the radio frequencies, call signs or telephone numbers of key personnel and

police services ¶ Make routine radio or telephone contacts on a fixed schedule to the closest sub-

office.¶ Personnel should make use of radio handsets when operating in a volatile distribution

site environment.

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SECTION 8. MONITORING AND REPORTING

8.1 Definitions and Types of Monitoring

Monitoring seeks to ensure that resources are properly used and food reaches the target beneficiaries. It also detects changes in the situation that might call for the adjustment of objectives, plans or procedures. Essentially monitoring tracks the situation of what is being done and whether the programme is making a difference.

Monitoring also involves analysing the data gathered. Not only is it important to the organisation, but it is required by the donor. Donors are increasingly interested in programme monitoring as it ensures: ¶ Better information for decision making ¶ Greater accountability in the use of resources ¶ Greater focus on the achievement of results ¶ Gives increased importance to learning and the sharing of knowledge

Monitoring provides information needed to manage an effective programme. It provides data that will help an organisation get both a “snap shot” and the evolution of community issues. It helps one to understand both the Situational Monitoring, or the “Big Picture”, and Programme Monitoring, or the “Small Picture”.

A. Situational Monitoring addresses the Programme Context: ¶ What is the situation in the target community/ies? ¶ What assistance is needed and by whom? (By finding this out we know which groups

to target and what assistance to bring. Do we need to assist everyone or only certain groups? What are the characteristics that help us recognise these groups?)

¶ Does it meet the needs of the beneficiaries? ¶ Has the situation changed? (If so, is the programme still relevant given the changes

in the situation?) ¶ Are we meeting our programme objectives? ¶ What is the impact of the programme activities? (Are we helping people or making the situation worse? Are we bringing them the assistance they need and is the help sufficient to meet individual or community needs? Is the programme impact as we planned at the beginning of the operation?)

B. Programme Monitoring addresses the Programme Activities: ¶ What are the programme activities? (What actual activities are going on? Are we

doing all the activities that we planned or only some?) ¶ How are programme activities carried out? (Are they in accordance with JEFAP

guidelines and our expectations? Are people experiencing difficulties in receiving the food? Are the trucks doing what we expect, when we expect?)

¶ Who are the beneficiaries? (Are we reaching the people we are targeting?)¶ What quantity of food are these people receiving? (Are they receiving and keeping

the full ration?)

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¶ Why are they being helped? (Is it because they are the groups that we are targeting or because they are part of the chief’s family for example?)

Monitoring verifies programme effectiveness and provides information that can help strengthen a programme. Information can be used to make programme adjustments, or to advocate for commodity or implementation changes.

Monitoring is done by many people. Monitoring food-related matters is critical in Malawi and is undertaken by a range of different organisations: ¶ The Government of Malawi ¶ The VAC ¶ UNDP / Department of Poverty and Disaster Management Affairs (formerly DDPRR) ¶ UNICEF ¶ World Food Programme ¶ The JEFAP partner organisations

While there may be some overlap between the activities of each organisation, they all have particular roles to play. All of them are looking at specific aspects of the programme. The Government of Malawi is looking at food security across the whole country, which among other things helps them know how much food to bring in for resale through ADMARC. UNICEF is looking very specifically at child health needs. WFP must report to its donors about state of the beneficiary and the quantities of the commodities distributed. JEFAP partner organisations are monitoring the implementation and impact of the distribution programme to determine if other community interventions should be strengthen or initiated.

Monitoring should happen all the time. However it is common to select particular sites and specific types of activity to monitor these are usually:

¶ On Site Monitoring: the purpose of monitoring at the distribution centre is to check on the distribution process, and what beneficiaries are actually receiving. By monitoring the programme activities the implementation of the programme can be checked and ways in which the programme might be improved suggested. Particular attention is paid to:

- Management of food commodities; quantity, quality, amount distributed, losses etc

- Actual beneficiaries; number, gender and age breakdown etc - Performance and co-operation of different partners - More specific programme requirements such as commitment to women,

relationships with local authorities etc

¶ Off Site Monitoring: The purpose is to learn about the actual use and effects of the food aid, and any changes in the food security situation. This usually takes place in the beneficiary communities and is done either in group meetings or individual household interviews. In the JEFAP programme off-site monitoring covers Pre-distribution monitoring, Post-distribution monitoring and Non beneficiary monitoring. While this frequently gives the most reliable and interesting information, it is often the most complicated to carry out because of the time and logistic capacity it needs to visit people in their community. However visiting people in their homes is a very good way to monitor since the interviewee

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feels secure in their own environment and the monitor can verify visually many of the answers that the interviewee is giving. Typical elements of PDM include:

- Verifying the targeting and vulnerability of the beneficiary family - Understanding the beneficiary selection mechanism within the community - Gaining a clearer understanding of beneficiary household profiles and their

linkage with vulnerability - Assessing the vulnerability of the household both through their dependants

(elderly, orphans etc) and looking at the indicators such as the assets they have in the house

- Food usage monitoring (see below) - Food security monitoring (see below)

¶ Food Usage Monitoring: This activity looks at the way the beneficiaries use the food they have received from the distribution and how they complement this food with supplies they have produced or procured themselves. This can also be part of the post distribution monitoring report. For this we particularly look at:

- What use is made of this food? - Why did the beneficiary use the food in the manner in which they did? - How long does the food last?

¶ Food Security Monitoring: FSM determines the impact of the food aid at village level and the need for assistance. In other words, is the situation improving or still deteriorating with the assistance? Questions on this subject include:

- The use of the food assistance - Community agricultural patterns and productivity - The sale of household assets - Household income and expenditure

¶ Food Basket Monitoring: This involves collecting prices, and talking with key informants such as the maize importers and ADMARC officials. It helps programme personnel understand important issues within the food market which are indicators for the size and type of the programme needed.

Monitoring is accomplished through asking a series of questions in either a formal, structured way or through more general conversations with either individuals or groups. The approach used will differ depending on what information is required.

Informal information gathering takes place as one drives through the district, notices the state of the crops, notices the items sold in the market, and assesses the general health of the people along the road.

Another information collection tool is called Qualitative Assessments/Monitoring.These usually take the form of individual or group interviews. The questions that are asked are not questions that can be answered with a yes or no. Rather they describe situations, attitudes or opinions.

Then there are data collection tools used in Malawi. The JEFAP Consortium requires that 3 monitoring forms be filled out. They are in the form of a Quantitative Monitoringtool, because they ask for one-word, definite answers. They are found as annexes, or attachments to the Agreement that the NGO has signed with WFP. The forms used were

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revised at the end of 2002, with the new monitoring forms implemented from January 2003.

The new monitoring guidelines are therefore as follows:

On site monitoring: ¶ Aims to monitor 3% of the total beneficiary households per month ¶ Aims to cover 15% of the FDPs in each district ¶ Average time taken per interview – 5 minutes ¶ Data gathered through interviews to be entered by the JEFAP partners into a

database submitted to WFP as part of the monthly report The On-Site Monitoring Form and guidance on how to complete the form is shown in the Annex to Section 8.

Beneficiary post-distribution monitoring: ¶ Aims to monitor 0.5% of the total beneficiary households per month ¶ Aims to cover 15% of the FDPs in each district ¶ Average time taken per interview – 15 minutes ¶ Data gathered through interviews to be entered by the JEFAP partners into a

database submitted to WFP as part of the monthly report The Beneficiary Post-Distribution Monitoring Form and guidance on how to complete the form is shown in the Annex to Section 8.

Non-beneficiary post-distribution monitoring: ¶ Aims to monitor 0.25% of the total beneficiary households per month ¶ Aims to cover 15% of the FDPs in each district ¶ Average time taken per interview – 5 minutes ¶ Data gathered through interviews to be entered by the JEFAP partners into a

database submitted to WFP as part of the monthly report The Non-Beneficiary Post-Distribution Monitoring Form and guidance on how to complete the form is shown in the Annex to Section 8.

These forms/databases are then submitted to WFP on a monthly basis together with the monthly reports. The main conclusions from the monitoring activities should be highlighted in the report narrative together with any actions taken that may have been required.

8.2 The Practice of Monitoring & Reporting

In practice the activities of monitoring and reporting fall into distinct phases: a. Preparation b. In the Field c. Back in the Office d. Analysis e. Feedback f. Reporting

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a. Preparation Phase Training – staff training is essential if the staff are to understand the reasons why monitoring is an important programme activity and gain the skills to monitor effectively. Training should therefore ensure that the staff:

- Understand what the monitoring exercise is trying to accomplish - Have a good understanding of the questions and can translate them into the local

dialect - Receive training in ‘people skills’

By improving the monitoring standards, the programme benefits directly due to the improved quality of information and the better communication of findings and recommendations.

Prepare a Monitoring Plan – so that the staff know which areas they will be visiting, the objectives of the visit, and the number of interviews they are required to conduct etc. When planning the activities, the following items need to be considered:

- The objectives of the visit - The travel times- Background information - Time taken for the interview. (Approximately 20 minutes for Post distribution

monitoring and less for on-site and non-beneficiary interviews). - Staff requirements to meet the required objectives. Should one person be used

for eight hours or two for four hours?

Preparation for the day - prior to leaving for the field for monitoring activities, consideration should be given to:

Planning and Scheduling – monitoring may require considerable resources, particularly the number of people and the transport necessary to move them. The impact of these activities on the organization should be discussed and scheduled so that the necessary resources can be allocated without impacting on other activities.

Checklists are often a good way for staff to prepare their activities so that nothing is forgotten. Some items on a Monitors checklist should include: Pens Blank forms to be completed Clipboard Waterproof cover (or polythene bag) List of beneficiaries to be interviewed (if pre-selected before departure)

b. In the Field Once out in the field either at a distribution site or conducting interviews in a village, regardless of the type of monitoring, the location of the interviews should be comfortable to everyone involved both for physical comfort and allowing the interviewee to speak freely.

The actual forms that the monitors will use depend on which type of monitoring they are completing. However they should be encouraged to obtain both the required quantitative information and include their own qualitative comments. Staff can also obtain considerable background data and operational knowledge through discussion with key informants such as local authorities and village headmen.

Final Draft -JEFAP Manual 30/3/03

68

c. Back in the Office The field interviews are only part of the monitoring activity. Once back in the office, the information needs to be consolidated, processed and analysed. Analysis answers the question “So What? Now that we have this information, what does it tell us and how do we use it?” These are good questions, and are often not answered, especially to those who are gathering the information. They frequently have very little feed-back after the reports have gone from their offices.

Consolidation of Information This may sound technical, but it means bringing all information together and gathering the information onto one form. This makes it easier to understand the activities taking place. Some hints for consolidating the data are to create a database. This is usually done on a computer, but can be done on by hand in a spreadsheet format.

d. Analysis Once all the data is summarized, it needs to be interpreted; “what does this information tell us?” This analysis can be: ¶ Descriptive – the most basic analysis uses tools like percentages and averages to

describe the findings without any further breakdown or explanation of the reasons behind the findings

¶ Stratified descriptive – this analysis continues to use tools like percentages and averages to describe the findings but breaks the information down by particular variables such as geographical location, age or gender

¶ Inferential analysis – moves beyond description to explain the reasons for the data and look for linkages between the information.

The way in which the information is analysed depends on the quantity and complexity of the information gained through the monitoring. Simple data can be analysed using an excel spreadsheet but for more complicated and inter-linked data, it may be necessary to use a specific statistical computer package such as SPSS or Epi-info. The findings then need to be triangulated (ie compared) with other information sources to gain a more holistic / all-encompassing picture.

Under the revised JEFAP monitoring, there is a database for the monitoring results which needs to be entered at the partner level. The partner can then use this information for local analysis while WFP will compile the entered data and analyse it for national results. WFP will then prepare a monthly report of the conclusions and recommendations drawn from this data analysis.

Some areas of interest to the JEFAP programme in Malawi are: ¶ What is the average age of the beneficiaries? ¶ How large are the families being served? WFP uses 5.5 as the average

family size, however in some districts the families are larger, and therefore more people are being served. This could be useful when determining the ration size.

Final Draft -JEFAP Manual 30/3/03

69

¶ Do the communities have predominately orphans, chronically ill or aged as the most vulnerable? This information helps with follow-on programs and gives the organization statistics of vulnerable group for further funding opportunities.

¶ How long are the distributed rations lasting? This should be linked with the family size, but it could also verify voluntary or forced re-distribution, which could indicate exploitation issues.

Every level of staff ought to have an opportunity to see the results of the monitoring process. This is known as Feedback

e. Feedback During the regional review workshops, there was a common comment that very few field level staff, those doing the monitoring, ever heard back from the managers regarding the monitoring that was done. Furthermore, they indicated that they would like to have some information, or at least an acknowledgement that the forms were received and completed properly (or otherwise).

If the NGO working in the district is an Implementing Partner (IP), they send the collected forms to the Lead NGO (who is a member of JEFAP). The data is consolidated, analyzed and sent to WFP. WFP is accountable to country donors, so they use the information to make their reports, which in turn helps justify the need, and the request for further resources.

However, in most cases the feedback to the field level monitors is the missing link. It is important that those working in the districts have access to the information. In addition, many NGO’s use the consolidated information to report to the District Officials in an effort to keep them informed of the progress of the program. Communication is critical to a smooth running operation, and a free flow of information will strengthen the staff in the programme.

f. Reporting Many organisations request a report from the field staff after their daily, weekly or monthly activities. However if the monitoring activities have shown an important discrepancy, the field team should write a report immediately on their return to the office so that their supervisor (and if relevant, their partners) are aware of this problem as soon as possible.

Following the analysis of the data, the main findings (together with the corrective actions if required) should be included in the monthly monitoring reports which now give space for a narrative with conclusions drawn and actions taken as well as the submission of the monitoring data.

Monthly Programme Reporting The lead partners need to submit a report to WFP by the 5th of the month, briefly covering the activities that have taken place in their district(s) in the preceding month. The reports should be submitted to the WFP sub-offices and copied to the country office in Lilongwe. The reports also need to cover the activities implemented by the assisting partners.

Final Draft -JEFAP Manual 30/3/03

70

Until February 2003, there was a system of weekly, monthly and quarterly reports in place following the templates that were given as annexes in the MoU between WFP and the lead partners. The reporting system was revised in February 2003 and there are now four principal sections to the report:

1. Narrative This uses the same template for all partners and should be kept as short and informative as possible. It can be completed either as bullet points or in a more narrative style. Any information / action required from WFP should be very clearly delineated in each section, with (if appropriate) a reasonable date by which the information is needed or action needs to be taken. A sample narrative report is shown in the Section 8 Annex.

2. Stock report A full stock report should be submitted by the 5th of each month using the set template. Data entered for each FDP cumulates automatically in 2 summary pages that show a full commodity report for the district and a table of discrepancies between what should have happened with commodities and what actually happened. A sample stock report is shown in the Section 8 Annex.

3. Monitoring data Monitoring data should be submitted by the 10th of each month on disk or by e-mail in the access databases for WFP to analyse and report back. A summary of the main findings and actions taken (if appropriate) should be included in the narrative section as explained under monitoring above.

4. Trucking report This gives a full breakdown of the transport situation for deliveries during the month. A sample Trucking Report is shown in the Section 8 Annex.

If there is something that needs to be communicated to WFP without waiting to the end of the month, ad hoc reports can be submitted as necessary.

These reports are one of the principal means for WFP to gain feedback on the implementation of the programme throughout Malawi. As such it is very important that they contain relevant information and are submitted in a timely manner so that the information can be used and responded to if necessary. This information is used to inform programme operations, planning and policy formulation as well as communication with the donors. A successful reporting structure ensures that information derived from partners in the field can reach people based far from Malawi.

An

nex

es t

o S

ecti

on

8

a) T

he

On

-Sit

e M

on

ito

rin

g F

orm

an

d g

uid

ance

on

ho

w t

o c

om

ple

te t

he

form

On

sit

e m

on

ito

rin

g f

orm

Ben

efic

iary

rat

ion

car

d n

o.:

Par

tner

:

Dis

tric

t:E

PA

:F

DP

:G

VH

:V

illag

e:

Fer

mal

eM

ale

< 5

5 to

18

18-6

0>

60T

hera

peut

icfe

edin

gS

uppl

emen

tar y

feed

ing

HIV

/AID

SS

choo

lfe

edin

g

Hea

d of

Hou

seho

ld in

form

atio

n

Hou

seho

ld m

embe

r in

form

atio

n (t

otal

s)

2H

ow lo

ng d

id it

take

you

to w

alk

here

toda

y?

3D

o yo

u kn

ow w

hat y

ou w

ill b

e re

ceiv

ing

toda

y?Y

esN

o

If ye

s –

wha

t

(sur

veyo

r to

list

wha

teve

r in

terv

iew

ee s

ays

with

out s

igna

ls a

s to

rig

ht/w

rong

)

4H

ow d

id y

ou g

et th

is in

form

atio

n (w

ho to

ld y

ou th

is)?

5D

o yo

u fe

el s

afe

on s

ite?

Yes

No

If no

why

?

6D

o yo

u fe

el s

afe

on y

our

way

hom

e?Y

esN

oIf

no w

hy?

7Is

this

the

first

rat

ion

rece

ived

at a

dis

trib

utio

n?Y

esN

oIf

no, w

hen

did

you

last

rec

eive

?

8W

hat d

id y

ou r

ecei

ve la

st ti

me?

Pre

pare

d by

:S

igna

ture

D

ate

2 m

onth

s ag

o3

mon

ths

ago

M

aize

Par

tner

sta

ff

1 m

onth

ago

Oth

er (

stat

e):

VR

CV

HG

VH

kg

Oth

er

kg

Pul

ses

Liku

ni P

hala

kgkg

1

Likh

uni P

hala

Oth

er

hour

s

Mai

zeB

eans

TA

:

Gen

der

Age

Abl

e-bo

died

Dis

able

dO

rpha

ns

Chr

onic

ally

ill /

HIV

A

IDS

(kud

wal

ika)

Cur

rent

ly r

ecei

ving

food

thro

ugh

othe

r ac

tiviti

es

kgkg

kgkg

31.

01.0

3

Final Draft -JEFAP Manual 30/3/03

72

Instructions for Completing On-Site Monitoring Form One form for each beneficiary household.

Completing the Form:

Using 3% of the beneficiary population from a cross section of at least 15% of the districts FDP’s.

The form is for beneficiaries only. It is often the case that beneficiaries wait in queues at the distribution site. This provides a perfect opportunity for monitors to fill out this form. It is possible that if it is a smaller distribution site that one of the distribution team may be co-opted to help the monitoring team.

It is important that we do not prompt answers. We should help the people we are interviewing to understand the questions but not suggest any answers.

Do not ask questions such as “is the ration size 50Kg of maize?” Instead you should just ask, “What should you be receiving today”.

The purpose is to find out whether or not we have sensitized the community well enough. It is not a problem if people do not know. Just record their answers.

Make sure the whole form is filled out!

Completing the form: 1. Introduction a) Partner - ensure that the name of your implementing agency is filled in b) Beneficiary Card Number - ensure that the number printed on the ration card held the beneficiary is filled in on this form c) Location - complete the name of the village TA, EPA (since the VAC works by EPA), FDP and GVH and District.

Beneficiary Details

1. Head of household:

¶ Head of household – mark any of the boxes in this row that apply to the head of household only. There is no name required here but information on age, gender, and grouping are important.

¶ Other members – the row of boxes under this should be completed with the number of family members who fall into the categories listed above. (ie. The number of males/females, the number of family members that fall under the age group, etc.)

Final Draft -JEFAP Manual 30/3/03

73

2. Length of time to walk to Site This should be an approximation.

3. Do you know what you will be receiving? ¶ Do not ask questions such as “Is the ration size 50Kg of maize?” This question is

to determine the beneficiaries understanding. Record whatever answer is given as the understood weight for each commodity.

4. How did you get this information? ¶ This question allows us to understand if information about the distribution is being

given correctly and by whom.

5. Do you feel safe on the site? ¶ This question show us if there are any security problems in the site that we may

not be aware of. It is possible the beneficiary feels a threat from our staff or volunteers but more likely from others who may be at the site to get what doesn’t belong to them.

6. Do you feel safe on your way home? ¶ This question show us if there are any security problems along the way to and

from the site that we may not be aware of. It is possible that the location of our site requires people to come and go through unsafe areas. This is information we should know.

7. Is this the first ration received at a distribution?

8. What did you receive last time? ¶ Do not ask questions such as “Was the ration size 50Kg of maize?” This question

is to determine the beneficiaries understanding. Record whatever answer is given as the understood weight for each commodity.

The name of the reporter and the date of the report are important for coordination purposes. It also helps the data entry staff to know who to go to for any clarification.

JEFAP Feb 03

8 (b

) The

Ben

efic

iary

Pos

t-Dis

trib

utio

n Fo

rm a

nd g

uida

nce

on h

ow to

com

plet

e th

e fo

rm

Ben

efic

iary

Pos

t Dis

trib

utio

n M

onito

ring

Form

Ben

efic

iary

ratio

n ca

rd n

o.:

Part

ner:

Dis

tric

t:EP

A:

FDP:

GVH

:Vi

llage

:

1

Ther

apeu

ticfe

edin

gSu

pple

men

tary

feed

ing

HIV

/AID

SSc

hool

feed

ing

1 2 3 4 5 6 7 8 9 10

* Ben

efic

iary

Cat

egor

y C

ode

Able

-bod

ied

0O

rpha

n:

1H

IV A

IDS

/ Chr

onic

ally

ill:

2D

isab

led:

3

2D

o yo

u kn

ow w

hy y

ou w

ere

targ

eted

?Ye

sN

o

Und

er w

hich

crit

eria

is th

e ho

useh

old

targ

eted

?O

rpha

n(C

ircle

app

ropr

iate

cat

egor

y)

3W

ho d

ecid

ed th

at y

our f

amily

wou

ld re

ceiv

e ra

tions

?

4W

ere

you

invo

lved

in th

at d

ecis

ion?

Yes

No

5W

ere

you

aske

d to

giv

e an

ythi

ng in

exc

hang

e fo

r bei

ng p

ut o

n th

e di

strib

utio

n lis

t?Ye

sN

o

If ye

s –

wha

t?

Aske

d

Did

you

pay

? (Y

/ N

)

Mon

ey

Had

2 y

ears

of c

rop

failu

re

Shar

e fo

odSe

x

Chi

ldre

n re

ceiv

ing

supp

lem

enta

ry /

ther

apeu

tic fe

edin

g

TA:

Hea

d of

Hou

seho

ld

TOTA

L

Cur

rent

ly re

ceiv

ing

food

thro

ugh

othe

r act

iviti

es

Com

men

t

Chi

ld h

eade

d ho

useh

old

Chr

onic

ally

ill /

HIV

AID

SFe

mal

e he

aded

Hou

seho

ld

No

Sex

F /

M

Bene

ficia

ryC

ateg

ory

Cod

e*

Nam

e(F

irst ,

sec

ond

and

fam

ily n

ame)

Age

(> 6

0 ye

ars

old)

Elde

rly H

eade

d H

ouse

hold

VRC

Villa

ge h

eadm

anG

VHO

ther

(ple

ase

stat

e)

Labo

urO

ther

(ple

ase

stat

e)

31.

01.0

3

6H

ow lo

ng d

id y

ou h

ave

to w

ait a

t the

dis

tribu

tion

site

to re

ceiv

e yo

ur la

st ra

tion

from

whe

n yo

u ar

rived

on

site

?

7W

ere

you

aske

d to

giv

e an

ythi

ng in

exc

hang

e fo

r rec

eivi

ng fo

od?

Yes

No

If ye

s –

wha

t?

Aske

d

Did

you

pay

? (Y

/ N

)

8H

ow m

uch

food

did

you

rece

ive

last

tim

e?

9H

ow lo

ng d

id th

e m

aize

last

?4

wee

ks

10H

ow d

id y

ou u

se th

e fo

od re

ceiv

ed?

Trad

ed /

sold

Shar

edor

gani

sed

by

villa

ge

Plan

ted

or k

ept f

or

seed

Soci

alob

ligat

ion

Brew

ing

Qua

ntity

(%)

%%

%%

%

11If

you

shar

ed fo

od, w

as th

is w

ith

12D

oes

your

fam

ily re

ceiv

e an

y fo

od fr

om a

nyw

here

els

e?Ye

sN

oIf

yes,

is th

isgi

ftga

nyu

13H

as th

e fa

mily

take

n in

any

orp

hans

sin

ce th

e la

st d

istri

butio

n?Ye

sN

oIf

yes,

how

man

y?

14D

o yo

u ha

ve c

hild

ren

unde

r 5 y

ears

of a

ge in

you

r fam

ily?

Yes

No

If ye

s, h

ave

any

of th

em b

een

adm

itted

to a

NR

U s

ince

the

last

dis

tribu

tion?

Yes

No

15H

ave

you

or a

ny o

f you

r fam

ily m

embe

rs b

een

sick

sin

ce y

ou la

st re

ceiv

ed d

istri

butio

nYe

sN

o

If ye

s, fo

r how

long

wer

e yo

u or

you

r fam

ily il

l?>

4 w

eeks

16Si

nce

the

last

dis

tribu

tion,

has

any

one

in y

our f

amily

mig

rate

d to

look

for w

ork?

Yes

No

Mal

eFe

mal

eC

hild

ren

17H

ave

any

of y

our f

amily

mem

bers

die

d si

nce

you

last

rece

ived

dis

tribu

tion?

Yes

No

If ye

s, h

ow m

any

in e

ach

age

grou

p ?

18Si

nce

the

last

dis

tribu

tion,

has

you

r fam

ily s

old

19W

hat h

ave

you

eate

n ov

er th

e pa

st 2

4 ho

urs?

Nsi

ma

Ndi

wo

Mea

tFi

shIri

sh P

otat

oPu

lses

Cas

ava

Eggs

Frui

tTe

a (w

ith

milk

and

su

gar)

Ric

eBr

ead

(mai

ze)

Cak

e

Mai

n M

eal

Snac

k

Hou

seho

ld it

ems

M

aize

Pul

ses

Liku

ni P

hala

kgkg

Con

sum

ed

3 w

eeks

3 da

ys –

4 w

eeks

Oth

er fa

mily

mem

bers

Poul

tryAn

imal

s

< 5

year

s5

– 18

2 w

eeks

1 w

eek

kg

Peop

le in

Villa

gePe

ople

not

from

villa

ge

> 4

wee

ks

Peop

le re

late

d to

the

dist

ribut

ion

team

Sex

Shar

e fo

odLa

bour

Self

> 60

yea

rsMor

e th

an 3

hou

rs1

– 3

hour

sLe

ss th

an 1

hou

r

Oth

er (p

leas

e st

ate)

Mon

ey

Shar

ed o

rgan

ised

by

hous

ehol

d

%%

Fam

ily M

embe

rs

Leng

th o

f Illn

ess

< 3

days

If so

, how

man

y

Cro

psO

ther

Oth

er

kg

Oth

er (p

leas

e st

ate)

%

18 –

49

50 –

60

31.

01.0

3

Mon

itor's

opi

nion

20Is

this

hou

seho

ld a

mon

g th

e p

oore

st o

f the

poo

r (os

auki

tsits

a / o

vutik

itsits

a)

Yes

No

In y

our o

pini

on, i

s th

is h

ouse

hold

cor

rect

ly ta

rget

ed?

Yes

No

in th

e co

mm

unity

?

Prep

ared

by:

Sign

atur

e D

ate

Rev

iew

ed b

y:Si

gnat

ure

Dat

e

31.

01.0

3

Final Draft -JEFAP Manual 30/3/03

77

Instructions for Completing the Beneficiary Post Distribution Monitoring Form

One form for each beneficiary household.

A. Completing the Form: ¶ Using 0.5 % of the beneficiary population from a cross section of at least 15% of

the district’s FDP’s.

B. Definition of a household: ¶ People staying or eating with the beneficiary Head of Household on a normal

basis (in Chichewa this translates to: ‘Anthu amene mumakhala nawo ndi kudya nawo mbele imodzi)

C. How should this form be completed? ¶ This information is captured by the implementing partner monitors in the villages

that are associated with each FDP.

Completing the form: Introduction

a) Partner - ensure that the name of your implementing agency is filled in b) Location - complete the name of the village, TA, EPA (since the VAC works with

EPA’s), FDP and GVH

1. Household details – to be listed for each individual

a) Names: ¶ Head of household – complete first name, second name (if they have one)

and family name ¶ Other members – complete first name only ¶ If there are more than 12 names to be included, please continue on the back

of the page

b) Sex: ¶ Insert ‘F’ if the person is female ¶ Insert ‘M’ if the person is male

c) Age: ¶ Insert the person’s actual age. ¶ If they only know the year of birth, then please calculate the age. ¶ If they do not know either the age or the year, please use a best estimate so

that the family member is in the correct age category of under 5, 5-18, 18-60 or over 60.

d) Beneficiary category code: ¶ Please list for each individual member one of the following codes in line with

the codes listed below the main matrix: ¶ Able-bodied as ‘0’.

Final Draft -JEFAP Manual 30/3/03

78

¶ Orphans as ‘1’, (The definition of an orphan is under 18 years of age with both parents dead, ‘m’masiye’ in chichewa)

¶ Chronically ill / HIV AIDS sufferers as ‘2’ (The definition for chronically ill is ‘kudwalika’ in chichewa).

¶ Disabled family members as ‘3’ (Defined as those who are incapable of work)

e) Currently receiving food through other activities: ¶ If any member of the family is receiving food under any of these other

programmes, please tick / check the appropriate box. ¶ Therapeutic and supplementary feeding – since the beneficiaries will not

understand these terms, the best way to establish this is through the following questions:

- Are any members of the family receiving food from the hospital or the health centre?

- If ‘No’, then no-one is receiving supplementary or therapeutic feeding - If ‘yes’ then ask if the person is admitted to the hospital / health centre or

being given the food to take home? - If they have been admitted, this is therapeutic feeding which is only given

to children under 5 and their carers - If they are taking this food home then it is supplementary feeding which is

given to children under 5 but only to their mothers if they are pregnant or lactating

¶ HIV / AIDS programme – the best way to establish this is by asking: - Is anyone in the family receiving food through the community based home

care programmes normally operated through Community or Village AIDS Co-ordination Committees (CACC or VACC)?

- These feeding programmes are currently operational in Lilongwe, Blantyre, Chiradzulu and Palombe districts.

¶ School-feeding – currently the WFP school feeding programmes are only operating in Dedza, Salima, Ntcheu, Thyolo and Nkhata Bay districts. However from 1 January 2003, this will be expanded to Lilongwe, Mangochi and Kasungu districts.

f) Remarks: ¶ Remarks are not compulsory but anything relevant to the beneficiary household

member could be included here if thought necessary.

2. Targeting – basic understanding of targeting

a) Knowledge ¶ Please circle the appropriate answer – yes or no – as to whether the family knows

why it was targeted

Final Draft -JEFAP Manual 30/3/03

79

b) Criteria ¶ Please circle the appropriate criteria under which the family understands it has

been selected. ¶ These categories correspond to the criteria under which the existing beneficiaries

should have been selected. A beneficiary household may know this but if they don’t, the VRC representative should be able to give this detail.

11. Targeting – who made this decision?¶ The beneficiary may or may not know who made the decision for them to be

on the list. This is simply to find out the extent of their knowledge.

¶ Ensure that they are not just telling you who informed them which may be someone other than those that made the decision.

12. Targeting – was the beneficiary involved?

13. Dignity – was the food free to the beneficiary?

¶ The monitors should be careful that this question is not asked in a leading way. If the beneficiaries have anything against the targeting/registration staff, volunteers or others in their village, this could be seen as an opportunity for ‘payback’.

¶ If the answer to the first part of this question is no then there is no need to inquire farther. This part is where the question can become a ‘leading’ one.

14. Dignity – how long was the beneficiary required to wait?

The monitor should be looking for an approximation not a precise time. This question is to help understand the beneficiary’s perception of the required wait.

15. Dignity – was the food free to the beneficiary?

¶ The monitors should be careful that this question is not asked in a leading way. If the beneficiaries have anything against the distribution staff, volunteers or others in their village, this could be seen as an opportunity for ‘payback’.

¶ If the answer to the first part of this question is no then there is no need to inquire farther. This part is where the question can become a ‘leading’ one.

16. Re-distribution – how much food did you receive last time?

¶ The beneficiary should know approximately the amount of each commodity their household received. This question could identify possible situations of forced sharing.

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80

9. Re-distribution – how long did the food you received last?

If the answer to this question shows that the food is not lasting very long it could indication of either sharing or a larger household.

10. Re-distribution – how was the food you received last used?

¶ The beneficiary should be able to identify how the commodities received were used. Approximately what percentage went for what purposes?

11. Re-distribution – with whom did you share?

¶ This question is to establish a basic understanding of how re-distribution, if it is happening, takes place.

¶ The beneficiary should understand that there is no penalty for answering these questions.

12. Resources – does your family receive food anywhere else?

¶ The beneficiary should understand that they will not be penalized for answering this question.

13. Resources – has your family taken in orphans?

¶ This is short-term question that has only to do with the previous month (or since the last distribution).

14. Health Conditions – does your family have under children less than 5 yrs of age?

¶ This question helps us find out the number of households with fewer than 5 children and the state of their nutrition.

¶ The monitors must be careful not to ask this question in a ‘leading’ way as beneficiaries may think it is way for them to get more food.

¶ It is important to know about admission to the NRU as this indicates severe malnutrition.

15. Health Conditions

¶ This is a basic question to establish levels of household illnesses (chronic or not)

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81

16. Changing dependencies – recent hunger-related migration

¶ This question is aimed at the short-term again, the last month (or since last distribution). Are people who could work in the fields, going elsewhere to get work.

17. Changing dependencies – recent hunger-related deaths

¶ Again this should not be a ‘leading’ question. We are not asking if anyone has died of starvation but the answers may help us identify a trend.

18. Changing assets – recent hunger-related unloading of assets.

19. Available food assets – what have you eaten?

This question is to establish eating habits more specifically. It replaces the question about the number of meals per day. The premise is that culturally food is not considered a meal unless it includes nsima.

20. Monitor’s Opinion

Vulnerability ¶ Please circle the appropriate answer – yes or no – as to whether the family is

among the poorest of the poor (‘osaukitsitsa’ or ‘ovutiksitsa’ in Chichewa). ¶ The recent targeting review showed that many VRC’s had understood the

targeting according to category (such as female or orphan-headed families) but that the household sometimes was not actually vulnerable eg a ‘rich’ household that was also female-headed. By asking whether the household is among the most vulnerable in the village should help reinforce the concept that beneficiaries need to be vulnerable as well as fitting one of the criteria such as child or elderly-headed household.

Signatures In order to encourage ownership of the targeting and responsibility for those beneficiaries selected, it is important the person collecting this information should sign the form especially if they are part of the VRC.

JEFAPFeb 03

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Final Draft -JEFAP Manual 30/3/03

83

Instructions for Completing Post-Distribution Non-beneficiary Monitoring Form

One form for each non-beneficiary household.

Completing the Form:

Using 0.25% of the beneficiary population from a cross section of at least 15% of the districts FDP’s.

The form is for non-beneficiaries. This information is captured by the implementing partner monitors in the villages that are associated with each FDP.

It is important that we do not prompt answers. We should help the people we are interviewing to understand the questions but not suggest any answers.

Do not ask questions such as “is the ration size 50Kg of maize?” Instead you should just ask, “What should you be receiving today”.

The purpose is to find out whether or not we have sensitized the community well enough. It is not a problem if people do not know. Just record their answers.

Make sure the whole form is filled out!

Completing the form:

Introduction a) Partner - ensure that the name of your implementing agency is filled in b) Location - complete the name of the village TA, EPA (since the VAC works by EPA), FDP and GVH and District.

Non-Beneficiary Details

1. Head of household: ¶ Head of household – mark any of the boxes in this row that apply to the head of

household only. There is no name required here but information on age, gender, and grouping are important.

¶ Other members – the row of boxes under this should be completed with the number of family members who fall into the categories listed above. (ie. The number of males/females, the number of family members that fall under the age group, etc.)

2. How is this family providing for its food needs? ¶ This is a question to determine whether the non-beneficiaries have any stock from

the last harvest and if not what means are they using to obtain food.

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84

3. Targeting - Are others in their village beneficiaries? ¶ This is to determine if this household is a non-beneficiary because they haven’t

been selected or are they possibly in a village that has not been targeted.

4. Targeting – Do they know who does the targeting?¶ If the non-beneficiary says ‘yes’, then what is their impression of who it is?

5. Targeting – Do they know why the beneficiaries are targeted?¶ Again, if they answer ‘yes’, the monitor must determine whether the reason they

give is a good one. For instance, they describe one of the JEFAP targeting criteria.

6. Targeting – Do they know who does the targeting?¶ Are the non-beneficiaries aware of the VRC’s?

7. Targeting – Is the process fair and transparent? ¶ These two questions should be asked carefully. There is a perception that

‘fairness’ would require that everyone get a little and that targeting by nature is unfair.

8. Dignity – these questions are the same as those asked of the beneficiaries. Is the food free to the beneficiary?

¶ The monitors should be careful that this question is not asked in a leading way. If the beneficiaries have anything against the targeting/registration staff, volunteers or others in their village, this could be seen as an opportunity for ‘payback’.

¶ If the answer to the first part of this question is no then there is no need to inquire farther. This part is where the question can become a ‘leading’ one.

9. Changing dependencies – recent hunger-related migration

¶ This question is aimed at the short-term again, the last month. Are people who could work in the fields, going elsewhere to get work? If so in what numbers?

Monitors Opinions – these questions are not to be asked of the non-beneficiary but should be answered by the monitor.

10. Vulnerability ¶ Please circle the appropriate answer – yes or no – as to whether the family is

among the poorest of the poor (‘osaukitsitsa’ or ‘ovutiksitsa’ in Chichewa).

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85

¶ The recent targeting review showed that many VRC’s had understood the targeting according to category (such as female or orphan-headed families) but that the household sometimes was not actually vulnerable eg a ‘rich’ household that was also female-headed. By asking whether the household is among the most vulnerable in the village should help reinforce the concept that beneficiaries need to be vulnerable as well as fitting one of the criteria such as child or elderly-headed household.

11. Would this family fit the targeting criteria? ¶ This is based on the evaluation of the monitor. It is considered an opinion, not a

final deciding factor. If in the monitor’s opinion the family meets the criteria the monitor should identify under what category.

12. Should this family fit the targeting criteria? ¶ The answer to this question is more critical and should be considered carefully.

The name of the reporter and the date of the report are important for coordination purposes. It also helps the data entry staff to know who to go to for any clarification.

JEFAP Feb 03

d) J

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89

May Monthly Report Narrative

Name of District Mulanje Name of Implementing Partner

Oxfam Report by Overtoun Mgemezulu, Distribution Manager Date of Report June 2, 2003 Reporting period May

1. Executive summary ¶ Distributed food to 8383 beneficiaries without any logistical problem. ¶ Received flour instead of maize grain. There was no notification about the

change. ¶ Peer educators conducted HIV/AIDS sensitisation campaigns at five FDPs ¶ Continued with community campaigns on the Prevention of Sexual

exploitation and Abuse. ¶ Reduced the number of Field Monitors from 8 to 4

2. Security ¶ There haven’t been any major security concerns. All the commodities

reached the respective FDP’S safely. However, at Mlomba fdp five bags of LP went missing.

3. Beneficiary Data

¶ Planned number of 7460 beneficiaries was lower than the actual number of beneficiaries 8383 who received the food. Food delivery for Samson took place at the end of April as a result distribution took place at the beginning of May. Similarly, the remaining beneficiaries at Pasani fdp who did not get their April food ration received it at the beginning of May. In addition 10 beneficiaries at Mlomba did not receive their LP ration entitlement.

¶ All beneficiaries interviewed this month indicated that none of their family members had migrated mainly because of the improved food security.

4. Food Aid ration ¶ Planned food aid ration was 25kg maize, 12.5-kilogrammes Likuni Phala and

5 kilogrammes of Pulses. ¶ Actual ration was 25kg corn flour, 12.5kg LP and 5kg Pulses.

5. Logistics and Stock Position ¶ Delivery was timely and well co-ordinated. However, the committees

explained that most bags of flour were susceptible to breakages. The sacks were loosely sealed as such they could easily break during loading and offloading.

¶ Discovered two bags of flour which were brownish instead of the usual yellow flour.

f) Sample Narrative Report

90

6. Distribution Exercise 6.1 Distribution Achievements

¶ Committees were able to reduce the number of beneficiaries and target the most vulnerable in a fair and transparent manner.

¶ Finished distribution without any acts of violence ¶ There has been continued praise and satisfaction from the community about

the methodology. ¶ The beneficiaries greatly applauded the drama skits on the Prevention of

Sexual Exploitation, child abuse and HIV/AIDS.

6.2 Distribution Constraints ¶ Loss of five bags at Mlomba was a major set back. The committees explained

that they did not properly tally and count the bags during offloading. ¶ Since beneficiaries have started harvesting their produce most of them

reported very late at the distribution point. Field monitors had to wait long hours before they turn up. Similarly, it seems their commitment and participation has to some extent slackened for instance during offloading.

¶ The quantities of flour were very varying. Ranging from 48kg to 53kg. Consequently, some beneficiaries got either more or less than the required ration entitlement.

¶ In addition most bags of maize flour were loosely sealed as such they easily broke. However, the problem was not all that huge. Beneficiaries could still share whatever quantity was on the bag. Some beneficiaries therefore received less than their entitled ration.

7. Monitoring ¶ Finished collecting data on on-site, non-beneficiaries and post distribution

monitoring. Completed entering the information on the database. ¶ According to on site monitoring 76.3% of the beneficiaries were female

headed, 5.3 % were disabled, 13.2% were chronically ill and 26.3% were elderly headed households.

¶ Data from the post distribution monitoring indicate that 1.9% of the beneficiaries sold their assets that are either crops or livestock.

8. Gender issues including the participation of women ¶ Conducted drama plays on the prevention of sexual exploitation and Child

Abuse at Chikhwaza School. Over 900 people watched the plays. The communities’ response was encouraging. They explained that they were interesting, educative and informative. This was evident by ululations, cheering and handclapping at the end of each scene. At the same time they could relate the plays with the reality on the ground. However, when asked if this was actually happening in their communities people were pointing their fingers at the chief but could not give any clue. It was also reported that the plays were long overdue.

¶ Peer educators from the Mulanje Youth Department sensitised beneficiaries on HIV/AIDS through interactive drama, songs, poems and traditional dances. Communities highly appreciated the message such that they did not want to miss part of the action. For example, at Manjomo one committee member from Mussa village wanted to stop his village from watching the plays. The people categorically refused to follow him. They explained that while hunger is a threat to life it is HIV/AIDS which was killing more people than hunger. Therefore messages on HIV/AIDS were equally important as

91

food. In fact they said that it is food for the soul which could redeem people from the peril.

9. Support from Community/Local Authorities/Village committees ¶ Local community leaders continue to provide vital support in the distribution

process. With the phase down strategy particularly in the reduction in numbers they have been helpful in passing important information to the team and the community. They have been instrumental in mobilizing the community.

10. Beneficiary Feed-back ¶ Although we distributed flour instead of maize grain, the change did not bring any

negative repercussion among the beneficiaries. Instead some beneficiaries preferred flour to maize grain. They explained that flour was better than maize grain because there are no milling costs involved. Others reported that yellow flour tastes better than normal white maize flour.

¶ Beneficiaries continue being grateful for the food aid assistance and its far-reaching impact for example it has a direct role in reducing incidences of theft particularly of crops and livestock.

¶ At Chingoli one village headwoman summarized it like this: “Maukwati alimba chifukwa cha chakudya chaulere”. (Food aid has helped to maintain social cohesion particularly marriages).

¶ Even those beneficiaries who were trimmed were not bitter because they understood the reasons behind the reduction.

10.1 Food Security Situation ¶ Most people have finished harvesting their crop in Mulanje. With these

developments a number of points have emerged where people are selling and buying maize. The average price has gone up to MK 7 from MK6 per kilogramme last month. At the border with Mozambique private traders are still selling their maize at MK400 per 50-kilogramme bag.

¶ In addition, there are a number of fresh crops on the market including sweet potatoes and cassava tubers. Such developments have greatly improved the food situation in the area.

¶ However, in TA Nkanda and Mlomba area in particular the situation is exactly the opposite. From snap observations there is high crop failure due to drought.

10.2 Personnel Reduced the number of Food Monitors from eight to four. The four will be responsible for carrying out monitoring activities and any other preparatory activities for JIFSAN.

11. Lessons learned ¶ Communities are capable of reducing the number of beneficiaries (targeting the

most vulnerable among the targeted) provided they are given proper information. Even those removed from the list do not have ill feelings if the process is fair and transparent.

¶ Community participation in food intervention programmes is directly intertwined with the need. If the need is huge people will actively participate. This is evident by the late turn up of beneficiaries at the fdps despite being informed in good time. Partly, this can be attributed to the fact that they have something to eat at home.

¶ In some parts of Mulanje like TA Nkanda and Juma, the hunger crisis is likely to continue because of adverse weather conditions. (Can be verified using visual assessment as you travel by road to Mlomba FDP.

92

¶ Drama can be a quick and effective tool in the dissemination of information to communities.

¶ There is a reduction in the number of non-beneficiaries turning up at the distribution point. It can be suggested that either they are getting used to the methodology or they have food from their produce.

12. Recommendations. ¶ Need to conduct a rapid assessment in TA Nkanda and Juma to assess the food

situation. ¶ Need for community sensitisation on food management and the consequences of

selling food crops.

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93

8 (g) Monthly Stock and Distribution Report

Name of District Name of Implementing Partner Report by Date of Report Reporting period

1. Executive summary ¶ Captures any significant events (good or bad, with in the food programme

or external but affecting the programme)

2. Security ¶ Any security incidents in the district that affected / might affect the

programme

3. Beneficiary Data ¶ Planned / actual beneficiary numbers ¶ Migration / influx in or out of the district, displaced by flooding etc

4. Food Aid ration ¶ Planned / actual ration¶ Changes in ration

5. Logistic and Stock Position ¶ Delivery ¶ Condition of commodities ¶ Weather conditions ¶ Stock at FDPs/ transfer (comments only as will be full stock table) ¶ Transport (including road conditions)

6. Distribution Exercise 6.1 Distribution Achievements 6.2 Distribution Constraints

7. Monitoring ¶ Main findings ¶ Corrective actions taken (if necessary)

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94

8. Gender issues including the participation of women

9. Support from Community/Local Authorities/Village committees

10. Beneficiary Feed-back

11. Lessons learned / Recommendations

12. AOB

References and Useful Resources

Doyle, M. (1999) ‘Recommended Guidelines for Implementing Community Managed Targeting and Distribution of Food Aid in Tanzania’ Prime Minister’s Office:Dar es Salaam.

Acacia Consultants (2002) ‘A Review of the Community Based Targeting and Distribution System Used in Kenya 2000-2002’ Final Report, November. Accacia Consultant: Nairobi (admin@accaciaconsultants.org).

CARE International (1997) ‘A Guide to Commodity Management During Emergencies’ CARE International Sierra Leone: Freetown.

CARE USA (1995) ‘CARE Food Resources Manual’ Food Security Unit, CARE USA:Atlanta.

Concern Worldwide (1997) Commodity Distribution in Emergencies Overseas Support Unit, Concern Worldwide: Dublin.

Lopez J and Kamowa O. (2002) ‘Review of Mchinji and Salima Food Distribution Experiences Between March and July 2002: Analysis of Food Distribution and Monitoring Information’ Save the Children UK: Lilongwe

JasparsS and Shoham.J (1999) ‘Targeting the vulnerable: A review of the necessity and feasibility of targeting vulnerable households’ Disasters 23.4, December Blackwells:Oxford.

Rideot.M (1999); Community managed targeting of emergency food aid: Does it ever work. Field Exchange Issue 6 (18-20) Emergency Nutrition Network:Dublin.

WFP (1999??) Food and Nutrition Guidelines Chapter 10 General Food Distribution WFP:Rome.

WFP (2002) ‘Food Distribution Guidelines’ 1st Draft’ (4/12/02) OHA, WFP: Rome.

WFP/Government of Kenya (2002) ‘Field Manual for Community Based Food Aid Targeting and Distribution in Kenya’ Accacia Consultants (admin@accaciaconsultants.org).