NFI Sector Damascus – Syria Working Group
Strategy 2015
Shelter/NFI Strategy 1
Status
Strategy Status Version Status Effective date
1 Endorsed January 2015
NFI Working Group Structure
Working
Group Lead UNHCR
Sector
Coordinator
Name: Jason Hepps
Email: [email protected]
Mobile: +963993374232
Sector
Info. Mgmt.
Officer
Name: Muhammad Shahzad
Email: [email protected]
Mobile: +963988005095
Sector
Secretariat
Name: Hanadi Al-Mubayed / / Firas Asaad
Email: [email protected] // [email protected]
Mobile: +963992224174 // +963949689522
Strategic
Advisory
Group
(SAG) -
Agencies
Responsibilities of the SAG: set strategic priorities and endorse projects proposed for funding
(pooled funds). It is a decision making body of the sector led by the WG Coordinator or a person
chosen by consensus. The SAG also functions as an Advocacy group in relation to major partners
and structures, and links directly to the Whole of Syria SAG.
Sector
Members Action Against Hunger Première Urgence UNDP
ADRA Syrian Arab Red Crescent UNFPA
Danish Refugee Council Secours Islamique France UNHCR
GOPA SOS UNICEF
International Medical Corps Syria Trust for Development UNOCHA
IOM Terre des Hommes UNRWA
Technical
Working
Group
(TWiG) and
“Task Teams”
Responsibilities of TWiG: establish technical standards and guidelines and other technical tasks
as requested of the SAG and/or a majority of Working Group members.
Responsibilities of “Task Teams”: Time-limited teams of two or more WG members which
complete assignments (e.g. position paper, concept note, other) at the request of the WG. Existing
Task Teams at the time of writing are:
Task Team 1: NFI Assistance Monitoring - current practices and recommendations (formed
13/1/15; members: IOM, GOPA, DRC, NFI Sector coordination team).
Task Team 2: Analysis of NFI assistance - quality/appropriateness/options. (Review of current
assistance package and modalities, analyse appropriateness, and make
recommendations/suggestions as to a way forward to best serve those in need). Task Team
formed 13/1/15, members: IOM, SARC, DRC, NFI Sector coordination team.
NFI Sector Strategy
Situation
In the fourth year of the conflict, estimates indicate that 12.2 million people are in need of
humanitarian assistance, 7.6 million of whom are IDPs, and over 3.8 million have fled to
neighbouring countries. An estimated 4.8 million are in hard-to-reach areas in Syria. Due to the
multiple displacements, 9.9 million people are in need of life-saving and essential NFIs.
A number of drivers, including the crisis, economic and financial measures imposed on Syria, and
a deepening economic decline and reduced availability of basic services have contributed to the
exacerbation of the humanitarian situation over the past year. Given the dynamics of the conflict
in Syria, the movement of relief actors and access to those in need continue to be a major
NFI Sector Damascus – Syria Working Group
Strategy 2015
Shelter/NFI Strategy 2
impediment to providing assistance. Proliferation of checkpoints, active frontlines, tactics of
besiegement and insecurity prevent the delivery of assistance. Movement restrictions are more
severe in urban areas and in areas experiencing frequent and high intensity conflict.
Markets have been severely disrupted, preventing communities from accessing essential non-food
items. In areas where items are available for purchase, prices have increased due to interruptions
in the supply chain, and vulnerable families have lost their sources of income and are not able to
buy essential items.
NFI Sector member agencies have, since 2012, been responding to the needs of IDPs and conflict-
affected persons. In 2012 the sector reached 400,000 persons; in 2013, 3.2 million persons were
assisted out of 3.67 million targeted, and; in 2014 the target of 4.7 million persons was exceeded,
with 5.7 million reached. The sector has focused efforts on hard-to-reach and underserved areas,
and some successes have been noted - such as the use of airlifts and new land routes to access
certain areas. These practices and lessons are being applied further in the response; however, the
challenges mentioned throughout this document persist.
Strategic
Response Plan
(SRP)
Objectives
This framework is in line with the 2015 Strategic Response Plan for the Syrian Arab Republic and
its Strategic Objectives, which are:
1. Promote protection of and access to affected people in accordance with International law,
International Humanitarian Law (IHL) and International Human Rights Law (IHRL).
2. Provide life-saving and life-sustaining humanitarian assistance to people in need, prioritizing
the most vulnerable.
3. Strengthen resilience, livelihoods and early recovery through communities and institutions.
4. Strengthen harmonized coordination modalities through enhanced joint planning, information
management, communication and regular monitoring.
5. Enhance the response capacity of all humanitarian actors assisting people in need in Syria,
particularly national partners and communities.
NFI Sector
Objectives
This framework is also in line with the 2015 SRP’s NFI sector-specific objectives:
1. Provide life-saving and life-sustaining shelter and NFI support to people in need (Supports
Strategic Objective 2).
2. Strengthen resilience of individuals, families, and communities through recovery-promoting
and livelihood-strengthening shelter/NFI response (Supports Strategic Objective 3).
3. Strengthen coordination between all relevant stakeholders to promote cohesion and
accountability through adequate and timely delivery of shelter/NFI response (Supports
Strategic Objective 4)
4. Capacity building of actors responding to the humanitarian crisis in Syria, including NGOs,
local NGOs, and other stakeholders (Supports Strategic Objective 5)
Key Issues/
Constraints
Access to populations in need
Timely delivery constrained related to/mainly derived from: approval process, funding,
planning.
Ensuring consistently coordinated, harmonized, and as appropriate as possible assistance
Reliable information and credible assessments
Clear monitoring approach and reports.
Complexity of and delays resulting from formal and administrative procedures for provision
of NFI assistance (see procedures detailed in Annex 2)
Lack of data (and/or access to/sharing of data on needs)
Lack of beneficiary database being made available to actors (leading to inability to properly
monitor/verify assistance delivery).
Capacity (training needs, skills, knowledge) of local partners for distribution, assessment,
application of do no harm, PRT mainstreaming, monitoring.
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Strategy 2015
Shelter/NFI Strategy 3
INGO not allowed to officially partner with local partners (limited to SARC)
Need for strategic mapping of sector agencies’ capacities (e.g. re preparedness, emergency
stockpiling in strategic areas)
Assessments
SINA (Syria Integrated Needs Assessment – November 2013) reported that 2.4mm persons in
need of NFIs.
The MSNA (Multi-Sector Needs Assessment, October 2014) reported that 2.8 million persons
are in need of NFIs, including over 205,000 people in acute and immediate need. This
document was used as a basis to establish the Humanitarian Needs Overview (HNO) for the
2015 Response Plan. As per MSNA, the main NFI priorities quoted by beneficiaries and local
leaders include household items such as blankets, mattresses, and seasonal clothing in view of
the approaching winter season.
Sector members have carried out cash programmes (for the most vulnerable and for NFIs in
limited instances). As per the below point, the sector will approach all agencies with this
experience for further information and assessments (and planning thereof) on market analysis
and market absorption capacity for cash programmes. Cash issues are also considered further in
the Task team 2 mentioned above.
Sector members report to have carried out a number of assessments depending on location,
access, capacity, and information needs. In 2015, the sector aims to gather all assessment
reports which members make available, to analyse, cross-check (when applicable), and
synthesise the findings for the use of all sector members.
Many challenges and weaknesses remain in relation to assessments. A complete and widely
agreed mapping of needs and gaps is somewhat feasible, but understanding of the humanitarian
purpose and need for this information amongst all partners must be improved. Access continues
to be a key constraint to allow for full and complete assessments. Disparate efforts by multiple
actors needs to be better coordinated and reliable and useful information, better synthesised for a
wider use amongst concerned actors.
Monitoring
and
Evaluation
4W is used as a primary tool for monitoring of the NFI assistance provided. Sector member
agencies share their progress on monthly basis, which is used to analyse needs, geographical
coverage and gaps.
Individual agencies have a number of tools and practices which they use for monitoring. These
include Post-Distribution Monitoring, field visit reports, project reports, and others. UNHCR is
developing a Project Tracking Database (web-based) tool.
As mentioned above, the WG has formed a Task team on NFI Monitoring practices and
recommendations. The Task team paper is in process at the time of writing, and will be
annexed to the strategy once complete. While it will be further detailed in the paper, in 2015
the Sector Coordination Team is committed to compiling, reviewing and synthesising the
findings of all monitoring reports to be shared by sector members.
In terms of evaluation, in 2015 the Sector Coordination Team will survey all member agencies
planning evaluations and ensure findings are shared as possible.
Coordination
The Syria NFI Sector Working Group (“NFI WG”) is composed of organizations that provide NFI
assistance to people in need inside Syria, and commit to participate in coordination arrangements.
The NFI working group lead agency is UNHCR, and there is a dedicated Coordinator and
Information Management Officer in Damascus. NFI Sector WG meetings occur once each month
(additional meetings can be held ad-hoc as needed). Unless otherwise detailed in the agenda,
meetings are strategic in purpose and action-oriented.
The NFI WG coordinates with other sectors in Damascus both on a bilateral and multi/inter-
sectoral basis. The NFI WG, through its sector lead, also coordinates with hubs based in Amman
and Gaziantep through the Whole of Syria approach. NFI assistance/packages are harmonised
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Strategy 2015
Shelter/NFI Strategy 4
amongst agencies and hubs (Amman excluded at time of writing).
The NFI Sector Coordination team ensures inter-sectorial collaboration and coordination, through
efforts directly with other sectors and through regular and active participation in inter-sector
meetings. This is particularly important with regard to cross-cutting issues, e.g. Protection and
Gender Mainstreaming (Protection Sector) as well as hygiene, water and other assistance kits
(WASH Sector).
Needs
The 2015 SRP notes that 9.9 million people are in need of life saving and essential NFIs.
According to the MSNA in 14 out of the 114 sub-districts assessed the NFI situation is life
threatening. According to the SINA 16% of the sub-districts assessed in November 2013 reported
life threating situation with regards to NFIs. Notwithstanding these assessments, complete,
reliable, and fully-detailed information on needs throughout the country are difficult to access due
to the above-mentioned constraints related to data (access, reliability, sharing). Ref. the above
section on assessments.
The Sector members acknowledge that needs vary depending on location, timing of displacement,
and category (e.g. IDPs, “affected population”, persons in need).
Sector
response
The response of agencies is based on available capacity, needs identified, seasonal needs, and
ensured access and ability to deliver items. Delivery is coordinated based on the sharing of two-
months forward operations/delivery plans by sector agencies. These plans are consolidated by the
sector, any potential overlap is identified by the sector and addressed between agencies.
In 2015, the sector will work closely with field (outside of Damascus) actors to further formalise a
light coordination amongst the agencies in each field location to ensure a better and more tailored
assessment, planning, assistance, and support as needed to the specifics of each location. This
should result in greater sharing of assessments/needs, and improved planning and prioritisation of
interventions.
Details on the standard NFIs are included in the annexes.
Targeting and
Beneficiary
Selection
Aid is concentrated in accessible areas with a priority given to underserved sub-districts. Sector
members focus on assistance for vulnerable groups with beneficiaries varying from IDPs, host
communities, returnees, and Palestine refugees. NFI sector agencies also focus on people living in
hard to access areas and areas under control of opposition groups. For the cross-line or hard-to-
reach areas, UNOCHA is responsible for planning and coordinating inter-sector convoys targeting
people in need.
Each displaced family should receive an NFI kit upon displacement. In case of multiple
displacement or other demonstrated need an NFI kit can be provided to a family that has already
received one. Note that the provision of an NFI kit is accompanied by provision of a hygiene kit of
consumable items; their provision is coordinated by the WASH sector.
Efforts are to be made in 2015 by the sector and member agencies, as data becomes more widely
available, to ensure a joined-up prioritization/targeting approach amongst Persons in Need.
Scenarios and
Contingency
Planning
As detailed in the 2015 SRP, the Sector Working Group acknowledges that the humanitarian
situation is likely to further deteriorate; therefore enhanced contingency planning involving pre-
positioning of stocks and emergency capacity mapping is being and will continue to be pursued to
effectively and rapidly respond to emergencies and new displacement.
In line with the SRP, Sector WG members will make efforts to: 1) strengthen risk assessment and
monitoring to identify the likelihood and impact of selected emergency risks in Syria; 2) ensure
minimum preparedness actions on the basis of the identified needs and threats; 3) participate fully
in the development of contingency response planning countrywide and, whenever possible,
NFI Sector Damascus – Syria Working Group
Strategy 2015
Shelter/NFI Strategy 5
governorate-level contingency planning; and, 4) contribute to the development of SOPs (within
the Syria based group and the WoS approach) to ensure an effective and coordinated response to
emergencies across all actors responding to needs inside Syria.
In 2015, through its Information Management capacity, the sector will ensure a mapping of fixed
stocks for emergencies, including their locations and custodians.
NFI Sector Damascus – Syria Working Group
Strategy 2015
Shelter/NFI Strategy 6
Response Plan
Sector Log-Frame/Response Plan (to be completed using the logframe from SRP as a basis)
OBJECTIVES OUTCOMES INDICATORS MEANS OF
VERIFICATION
Strategic Objective 1: Provide life-saving and life-
sustaining, shelter and NFI support to the people in
need
Activity 1.4:
NFIs provision and distribution to the people in need
NFI requirements of 960,000 house hold are
met
# of vulnerable beneficiary
households assessed and
served
- 4W reporting
- Monitoring reports and
field visits by individual
agencies
Activity 1.5:
Cash based assistance for essential NFIs for vulnerable
groups
Cash based assistance for essential NFIs are
provided to 20,000 households.
# of households receiving
cash assistance
Activity 1.7: Distribution of regular cash- for-NFI and
in-kind assistance to conflict-affected Palestine
refugees
92,000 Palestine refugees’ households
assisted with Regular cash for NFI and in-
kind assistance.
# of Palestine refugees
receiving monthly cash for
NFI grants
Annexes:
Annex 1: NFI Package contents
Annex 2: Procedures for NFI Movement
Annex 3: NFI Sector Working Group, Working Paper - NFI Assistance Review (also issued as a separate paper)
Annex 4: NFI Sector Working Group, Working Paper on NFI Assistance Monitoring (also issued as a separate paper)
7
Annex 1 – NFI Package contents
1. NFI Harmonised Package: The harmonized NFI package is detailed below. The NFI package
also includes a “hygiene kit,” and can be supplemented by a “baby hygiene kit.” The hygiene
kits include consumable items and should be regularly replenished (as opposed to the one-off
distribution of the standard NFI kit to families). The replenishment of hygiene and baby
hygiene kits is coordinated by the WASH sector. Information is regularly shared between the
WASH and NFI sectors.
Standard NFI package: family size of 5 persons
Qty / family
Blanket, Medium or High Thermal (season-dependent) 5.00
Mattresses / Sleeping Mats 3.00
Kitchen Sets 1.00
Plastic Sheeting 1.00
Jerry Cans (10L, Collapsible) 2.00
Solar Lamp (optional) 1.00
Winterization items (seasonal)
Qty/family
Waterproof floor cover / extra-plastic sheeting 1.00
Winter Clothes kit (see below) 1.00
Winter Clothing Kit Contents (Indicative/can vary) Qty / family
Adult Female Sweater 1
Adult Female Underwear 1
Adult Male Sweater 1
Clothing set including hat for 0-2 years Babies Set 1
Sweater for child between the age of 3-5 years piece 1
Socks for child between the age of 3-5 years piece 1
Hats for child between the age of 3-5 years piece 1
Sweater for child between the age of 6-9 years piece 1
Socks for child between the age of 6-9 years piece 1
Hats for child between the age of 6-9 years piece 1
Sweater for child between the age of 10-13 piece 1
Socks for child between the age of 10-13 years piece 1
Hats for child between the age of 10-13 years piece 1
*The contents of the package and modalities for distribution are under discussion by the
sector and member agencies, details of which are to be found in the NFI Assistance Review
paper.
8
Annex 2: Procedures for NFI Movement
UN AGENCY-Specific
(as of 26 Feb 2015)
1 Agencies agree with technical partners on distribution plan.
2 A monthly plan is then required to be submitted to the Ministry of Social Affairs for
approval.
3
The Plan should then be translated into a two week delivery / loading plan and submitted
to the Ministry of Social Affairs for approval.
4
A detailed facilitation letter must be submitted to the Governor of the area of dispatch :
Setting cargo on board
Truck registration plate number
Driver name , mobile phone
Final destination route , partner of dispatch to place of delivery
5
After approval is received, a representative from the security and the Syrian Arab Red
Crescent will observe loading and ensure that each truck is in accordance with governor’s
approval.
6
Once loading is complete the Syrian Arab Crescent and Security will:
Seal the container
Register the seal number on the way bill
Sign the facilitation letter
7
Once supplies reach the destination the recipient partner will sign the facilitation letter and
waybill. The signed facilitation should be returned by the partner to the governor office at
that area.
9
Description of International NGO-Specific Processing Steps for NFI Assistance Delivery1,2 (as of 26 Feb 2015)
1. NFI arrives from international supplier at the border. Consignee SARC (INGO has previously
prepared a donation letter of the goods to SARC), delivery location INGO at INGO
warehouse;
2. Goods are stored at INGO Warehouse;
3. SARC staff come to the warehouse to take samples of the NFI kit received and then INGO
and SARC staff check the quality of the items received against the tender sample;
4. SARC issue the quality approval for distribution;
5. INGO through SARC HQ get the distribution plan for the items received. At this level the
distribution plan is per Governorate only;
6. INGO calls all relevant SARC branches and tries to get a detailed distribution plan;
7. INGO presents a two weeks loading plan to SARC.
8. SARC sends 2 week loading plan to High Relief Committee Chair for approval (the plan must
be presented twice a month, one week before the loading starts. E.g. Monday 1st for
distribution starting on Monday 8th for two weeks, and again on Monday 15th for distribution
starting Monday 22nd;
9. If the plan is approved by High Relief Committee (note: normally approval can take >1 week,
so INGO will have to reschedule the distributions in shorter timeframe) INGO has to get
facilitation letters from the Governorate where the warehouse is located by providing
(according to the approved plan) truck plate number, list of items loaded per truck, name of
the driver;
10. With the facilitation letters in hand the loading of the NFIs can start at INGO warehouse;
11. When the goods are loaded (at loading 2 security personnel from GoS must be present as well
as a SARC volunteer), the truck is sealed by the security officers, and the facilitation letters
are stamped and signed by the security and SARC staff;
12. Truck proceeds to destination, and the goods are offloaded at SARC warehouse in the final
location;
13. SARC distributes the items;
14. INGO staff monitors (or if not present for monitoring, receives other (e.g. phone
confirmation) on) distributions;
15. SARC sends monthly distribution report per governorate mentioning number of beneficiaries
and locations targeted.
1 The procedures described are generally applicable to INGOs at the time of writing, and may vary in specific
instances. 2 Procedures related to National NGOs vary depending on a number of factors.
10
Annex 3
NFI Sector Working Group
Working Paper - NFI Assistance Review
Since 2012, humanitarian agencies have been providing Non-Food Item (“NFI”) assistance to
persons affected by the Syrian conflict. While the modalities and type of NFI assistance have
been adjusted to a certain degree over this period, the overarching aim (assist as many
persons as means and access allow) and form (in-kind NFI provision) of the assistance has
remained relatively static.
In January 2015, the NFI Sector Working Group formed a Task Team to analyse the current
assistance package and look into the different options, opportunities, and constraints related
to making adjustments with aims of better serving those persons in need and
improving/identifying efficiencies. The Task Team is formed of NFI sector agencies and the
sector coordination team. The team also consulted with agencies involved in other, related
sectors.
1. Current NFI Assistance Package
NFIs are provided as a one-off assistance to displaced families and conflict-affected
population. Any time a family is displaced, it is eligible for a new package based on the
assumption that each displacement results in the loss and need for replenishment of essential
NFIs.
In 2013, sector agencies agreed on a harmonized NFI package, as well as a seasonal
“winterization” package which families receives prior to/at the beginning of winter
depending on access and resources available. Details of the packages are below.
Kits Core NFI Package: family size of 5 persons per family
1 Blanket, Medium/High Thermal (depending on season) 5
2 Mattresses/Sleeping Mat 3
3 Kitchen Set 1
4 Plastic Sheeting 1
5 Jerry Cans (10L, Collapsible) 2
Kits Supplementary Items Given based on Need and Resources per family
1 Solar Lamp (optional) 1
2 Winterization package, including: 1
2a Waterproof floor cover / extra-plastic sheeting 2b Winter Clothes set, one each of the following: 2c Adult Female Sweater and Underwear 2d Adult Male Sweater
2e-h Clothing sets for children aged 0-2; 3-5; 6-9; 10-13
The harmonized NFI package also includes a “hygiene kit”, and can be supplemented by a
“baby hygiene kit.” The hygiene kits include consumable items and should be regularly
replenished (as opposed to the one-off distribution of the standard NFIs to families).3
2. Protection Mainstreaming and Sub-National Coordination:
3 The replenishment of hygiene, baby hygiene kits, and diapers is coordinated by the WASH sector.
11
Protection matters are mainstreamed in the NFI assistance through using the principles of
impartiality and neutrality to select areas of inclusion and targeting of groups, and through
localized targeting with package contents to ensure individual needs are addressed. The items
included in the package address specific needs related to vulnerability, climate, and basic
needs.
Furthermore, as advised by the Protection and Community Services Sector, the following
elements are taken into account in the context of this review and NFI assistance generally:
a. Prioritize safety and dignity, and avoid causing harm, preventing and minimizing as
much as possible any unintended negative effects of NFI distribution;
b. Arrange for people’s safe and unhindered access to assistance and services – in
proportion to need and without any barriers (e.g. discrimination), paying special
attention to individuals and groups who may be particularly vulnerable or have
difficulty accessing assistance and services;
c. Set-up appropriate mechanisms through which affected populations can measure the
adequacy of interventions, and address concerns and complaints; and
d. Support the development of self-protection capacities and assist people to claim their
rights.
The NFI and the Protection and Community Services Sectors note a gap (and opportunity) in
inter-sector efforts, and specifically for harmonized protection mainstreaming (i.e.
collaboration with the Protection Sector). Efforts are to be made on this front, particularly to
develop specific guidelines and criteria to mainstream the above protection considerations
into the activities of the NFI Sector members.
In early 2014, NFI Sector Partners agreed to a “decentralized approach” in order to be closer
to beneficiaries and to enhance rapid response, outreach and monitoring capacity and to have
more flexibility if the security situation worsens. Varied (more and less formal) approaches
are taken in relation to coordination and planning at the subnational level, though all are
aimed at improved targeting of delivery. The Sector Coordination team is, at the time of
writing, making efforts to further formalize the sub-national coordination.
While care is taken on selecting areas of intervention, there is, however, no
harmonized/sector-wide, protection-based targeting of beneficiaries at household level for
NFI assistance. It is generally provided to the affected population at-large. Those families
which receive the package more than once receive it on a needs-basis. Individual agencies
with protection-related staff ensure mainstreaming in their individualized programmes.
3. Feedback from Beneficiaries
Sector agencies have promoted a participatory approach through consultations with
beneficiaries in order to improve and assess the quality and level of assistance provided.
Based on sector members’ field visits and discussions with displaced Syrians and their host
families NFI assistance was adjusted beyond the original package to include jerry cans,
plastic sheets, solar lanterns, and hygiene kits.
Nevertheless, receiving of feedback, monitoring and assessment of beneficiaries’ satisfaction
with the NFI assistance is challenged by a number of constraints, the most important of which
is access. The security situation is extremely limiting in terms of accessing beneficiaries and
receiving their feedback. In addition, the imperative to deliver assistance quickly and
whenever possible leads to a prioritization of delivery over exercises such as review,
12
assessment, evaluation, and shifting of approaches. A number of agencies do have monitoring
systems; however, their robustness varies amongst agencies, locations, resources, and
methodology. The systems also function in isolation of each other, missing a sector-wide
analysis and synthesis of findings which could support and improve the work of all sector
agencies. The specific exercise of this task team, as well as the work of a separate NFI Sector
WG task team on NFI Assistance Monitoring4, represent efforts of the NFI Sector to address
these gaps and constraints.
4. Potential Opportunities
a. Geographic Tailoring/Decentralisation
The NFI package was harmonized among agencies based on balancing essential needs of
IDPs and affected persons with the capacity for procurement, distribution, and funding.
While there is a harmonized NFI package country-wide, beneficiary needs can vary from
location to location. In some places, there is a balanced need for all NFIs in the package, in
others the provision of NFIs is not a priority, and in others only some but not all items
available in the NFI package are in need. NFIs are provided on a needs and resource-
availability basis, and a number of locations justifiably adjust the package contents (aka
“kits”) on this basis.
NFI Sector Working Group members have been discussing the opportunities and challenges
related to tailoring the package at the distribution point. This would require detailed
information on varied needs in each location, as well as increased accountability and capacity
at the local/distribution level for selection of items to distribute. This could also translate into
the local/distribution level being even further empowered to consider
procurement/distribution of other items which may be “supplementary” to the current
harmonized package, but which from the beneficiaries’ point of view are even more essential
than what is on offer. This would – on its face - be an improved practice for the individual
beneficiaries, and this has been highlighted by a number of agencies working at the
local/distribution level. On the other hand, there are risks and constraints which other
agencies have highlighted, for example the variation in packages could create bottlenecks and
slow down procurement and dispatch. There is also an increased burden of reporting and
accounting with each variation on the harmonized programme – which could result in slow-
down of delivery. The NFI Sector Working Group and its members are committed to
continuing this dialogue with an operational focus in mind.
b. Moving from In-Kind Assistance (to cash/voucher):
Cash assistance-based humanitarian programmes do exist inside Syria. In relation to IDPs,
these programmes are generally focused, small-scale, and targeted toward the most
“vulnerable” individuals. “Cash-for-NFIs” has not been implemented as of yet (in large-
scale), and limited, small-scale voucher programmes remain in proposal phase. Relatively
large-scale cash assistance programmes for refugees are in place and while the IDP
programmes can learn from and might use some of the infrastructure from these programmes.
While a large-scale cash or voucher assistance programme for IDPs is theoretically feasible,
the major challenges for moving away from in-kind assistance (and especially cash) are
related to registration and tracking of assistance provision. This is the fundamental difference
from the refugee programmes. Safeguarding against repeat provision of cash assistance to the
4 Ref. NFI Assistance Monitoring Working Paper.
13
same families is difficult without a reliable and shared registration system and/or access to
more detailed information. The lack of registration and tracking of cash assistance provision,
combined with the fungibility of cash (and less so vouchers), lead to important risks of
misuse in Syria’s fluid conflict situation. While NFI assistance may present similar risks (in
terms of repeat provision and sale of items), the nature of the in-kind assistance is assumed to
greatly mitigate these risks. Experience has also shown that efforts to specifically target
individuals for cash assistance can result in the politicization of the assistance, as assistance
must be provided based on beneficiary lists (which must be approved by relevant local
authorities). Other constraints relate to modalities for cash/voucher delivery (e.g. delivery of
cash tender in mass quantities is not feasible, therefore banking systems must be in place).
Finally, the evidence of market absorption capacity based on a detailed analysis is a
prerequisite to large-scale programmes and the above-mentioned constraints also apply.
Nevertheless, some agencies have implemented and are still pursuing limited cash
programmes for IDPs.
Since 2012 UNHCR has supported IDP families with cash assistance to meet select winter
needs (e.g. additional clothing, personal hygiene items, cooking requirement and dietary
supplement, contribution to heating and electricity costs for the ones in host families). Cash
for NFIs was also provided to IDPs in some governorates where markets were available but
security/access issues hindered in-kind delivery. Since 2013, UNHCR has provided one-off,
limited cash assistance to IDPs based on vulnerability criteria. This programme will continue
in 2015.
UNICEF plans, in 2015, to support 20,000 vulnerable IDP and host families through cash
assistance to meet essential basic needs, including non-food items. The modalities for
selection of beneficiaries and targeting this assistance are being worked out at the time of
writing.
As mentioned above, cash assistance programmes for refugees by UNRWA and UNHCR has
been in place for a number of years. Independent evaluation of UNRWA’s cash programming
in 2014 demonstrated that cash assistance was the most effective response to NFI needs. Cash
assistance allowed families to procure essential NFIs at local markets (where available). In-
kind NFI Assistance guaranteed access to essential products ensuring minimum level of
provision in the cast that local market were inaccessible or lacked certain items. This strategy
will be replicated in 2015, with 460,000 Palestine refugees receiving NFI support through a
combination of mostly cash grants and in-kind assistance.
UNRWA’s and other cash assistance programmes demonstrate that cash or voucher
assistance programmes can work and markets do exist (in some locations) to absorb them.
c. Comparative, Detailed Review of NFI Package Contents and Harmonisation
While there is a harmonized package, and each agency ensures its own flexible approach
based on needs, capacities, and assessments, improved efforts can be made by the Sector to
ensure agencies take advantage of lessons learned and best practices with the NFI Package.
The NFI Sector Coordination Team plans to further detail the specifics of the different NFIs
provided amongst all agencies, this would include all useful details which agencies agree to
provide, e.g. weight, measurements, photos of the items, procurement and delivery details,
and most importantly the views/satisfaction of beneficiaries (and their recommendations for
adjustment/improvement). The provision of this information should lead not only to
14
information-sharing, but allow agencies involved in NFIs to consider adjustment of their
items for improved quality and use of funds.
5. Next Steps/Recommendations
a. Geographic Tailoring
i. NFI Sector missions to be fielded to interagency hubs to discuss NFI assistance
response and identify opportunities and risks for adjustment/improvement of the
assistance.
ii. Working Group members support initiatives by field-based colleagues for
adjustment of NFI package when, based upon existing evidence, they are
deemed appropriate, reasonable, and non-interruptive of existing efforts.
iii. NFI Sector Working Group notes that the current distribution practice in the
field, being needs-driven and done by multiple agencies, can vary and in some
places already results in tailoring of the package and separate delivery of
individual items/kits. This practice, when driven by beneficiary needs, is
recognised and endorsed by the Working Group as a good and potentially more
cost-efficient practice. Working Group members commit to sharing information
on the practice for further understanding amongst members.
iv. Based on the above, NFI Sector Working Group to review the contents of the
harmonised package and consider if a different/more flexible approach/
harmonisation should be applied, and detail what the risks and opportunities of
such an approach would be (for beneficiaries, programmes, procurement,
delivery, funding, quality of items, etc.). This should include
consideration/endorsement of a practice allowing for an “ad-hoc”/“local kit” for
items outside the harmonised package, but deemed essential based on the
locally-determined needs.
b. Moving from In-Kind Assistance
i. While noting that expansion of cash and/or voucher programmes in the current
environment require increased safeguards and access to information, the sector
WG agrees to engage with other sectors and the ISC to further discuss
cash/voucher-assistance programming and seek to identify ways, means, and
opportunities to collectively address and/or mitigate the related risks.
ii. Support sector member agencies, upon request, to identify opportunities for
provision of cash/voucher-for-NFIs in the Syria response (small to large-scale)
and facilitate sharing of information as needed.
iii. Review amongst the NFI [and other] sector WG colleagues existing
cash/voucher programmes and document successes, challenges, and lessons
learned for use by member agencies.
c. Survey of and Detailed Information-Sharing of NFI Specifics
i. NFI Sector will survey all agencies supplying NFIs and collect detailed
information (measurements, weight, prices), photos, etc. and make a user-
friendly, visual NFI information note for all sector members to review and
consider.
ii. Based upon the breadth and variation detailed in the NFI Information note, the
NFI sector members may propose a physical demonstration of all items,
recommend changes to the NFI specifications/harmonisation, or other
15
appropriate measures in line with improving beneficiary assistance and
programme efficiencies (e.g. establishing/reviewing minimum specification
standards).
d. Monitoring and Ensuring Feedback from Beneficiaries
i. While noting the NFI Assistance Monitoring Practices paper, the Task Team
specifically recommends that all sector members ensure a “client/beneficiary
satisfaction survey” to be conducted during distributions. Those agencies
already completing such surveys will share information. The Sector Information
Manager will work with the agencies to identify best practices and common
manners in which to report and facilitate compiling and sharing the information
amongst members for incorporation into programmes across the sector.5
e. Increase Inter-sector, Namely Protection, Collaboration
i. NFI Sector will further approach and incorporate Protection Sector input and
mainstreaming in its efforts through formal inclusion in this Task Team and
requesting analysis, feedback, and review of activities to ensure mainstreaming.
ii. NFI Sector will approach the Early Recovery sector for specific engagement on
potential for mainstreaming livelihoods-related practices for local procurement/
production.
iii. NFI Sector will approach all other sectors through the ISC for consideration and
inputs as relevant .
f. Updating of this paper/Task Team
i. No later than six months from the finalisation of this working paper, review and
update its content, and take stock of progress on the above recommendations.
Endorsed by NFI Sector Working Group, 9 March 2015
5 This recommendation is also included in the NFI Assistance Monitoring Practices paper.
16
Annex 4
NFI Sector Working Group
Working Paper on NFI Assistance Monitoring
The Non-Food Item (“NFI”) Sector is the second-largest sector (in terms of dollar value) for
the humanitarian response in Syria. In 2014, 5.7 million persons were reported to have
received non-food items through sector agencies’ response. While there are sizeable pressures
to deliver assistance to the population in need in a rapid manner, the NFI sector members also
are very much aware of the need for proper monitoring of activities toward ensuring
accountability to the affected population and donors, and in order to track the successes,
challenges, and impact of our work toward a more efficient NFI sector response.
In January 2015, the NFI Sector Working Group agreed to look specifically into the issue of
NFI assistance monitoring. Over the month of February 2015, the Sector Coordination Team
surveyed all sector members (through interviews and email correspondence) requesting
information related to their monitoring practices – including current arrangements,
constraints, plans, and ideas for improvement. The following provides a brief summary of the
findings and identifies areas to jointly consider as a way forward amongst the sector. At the
end of the document, an annex contains inputs by sector members.
This working paper has the following purposes:
Increase awareness of NFI monitoring practices amongst sector members, other
sectors, and other stakeholders (internal and external) with an interest in the NFI
sector response.
Through information-sharing, provide opportunities for cross-fertilisation and
application of monitoring practices between and amongst agencies.
Through the sector, agree to pursue specific activities, agreements, or discussions on
proposed recommendations by member agencies.
Summary of Findings
As evidenced by the detailed feedback in the annex, NFI Sector member agencies are actively
monitoring their NFI programmes. This is done through on-site post-distribution monitoring,
beneficiary interviews, receipt and review of reports, cross-checking of stocks, data
collection, implementing partner monitoring, and other means.
However, it is also clear that most member agencies would like to do more, and many have
plans to do so. International NGOs recently received permission to team their own monitors
with SARC’s during distributions. Two agencies are developing databases which will provide
detailed mapping of their interventions. Other agencies are sustaining and/or beefing up
existing, reliable monitoring practices.
Most agencies expressed an interest in increased, collective efforts on monitoring. In the
2015 Sector Strategy, member agencies agreed that the Sector Coordination Team compile,
review, and synthesise the findings of all monitoring reports shared by sector members.
Sector members would like to see a collective agreement by all agencies that, at minimum, a
“client/beneficiary satisfaction survey” is conducted during distributions – and the sector
information management will facilitate the sharing of existing surveys and development of a
simplified tool with common information for use by all actors. Many agencies work mainly
17
through SARC and would like to see increased efforts to ensure sufficiently detailed and
timely monitoring and related reporting.
A number of agencies would like the sector (or individual agencies) to consider using an
independent/third-party monitoring partner. This is, however, noted as a more controversial
idea which not all agencies agree with.
Recommendations
1. NFI Sector Coordination team will request all monitoring reports, templates, etc. from
sector members and – based on the information provided - will develop a report
synthesising the findings.
2. Agencies developing electronic mapping tools commit to providing a presentation at a
future NFI Sector Working Group meeting on their tool.
3. All sector members that do not already include a “client/beneficiary satisfaction
survey” during distributions will seek to include this practice. Agencies already
completing such surveys will share their practices. The Sector Information Manager
will work with the agencies to identify best practices and common manners in which
to report and facilitate compiling and sharing the information amongst members for
incorporation into programmes across the sector.
4. SARC and the agencies working with and monitoring through SARC, commit to
working on the existing monitoring practices to improve timeliness and content of
monitoring reports so they can have an increased impact on programmes in real time.
5. Those agencies interested in pursuing independent/third-party monitoring partners
commit to holding a separate meeting – including the Sector Coordination team – to
further discuss and tease out the competing issues around this option.
6. NFI Sector will pursue discussions bilaterally with other relevant sectors, and within
the ISC to share monitoring practices and identify opportunities for collaboration
between sectors.
18
Annex: NFI Sector Agencies Monitoring Survey (as of February 2015)6
Agency Current monitoring practices Future planned monitoring activities Constraints Proposed way forward
ACF -
Spain
ACF requests facilitation letters from SARC HQ for
staff to attend distributions in SARC branches, ACF
staff observe the distributions without receiving lists of
beneficiaries, Feedback is received from SARC
branches and sometimes ACF staff is able to talk to
beneficiaries to get their feedback, Photos are taken
when agreed with SARC branches and HQ.
ACF is planning monitoring of Hygiene kits
distribution during the months of February
and March in: Daraa, Rural Damascus,
Damascus and Hama. ACF will maintain
the regular current procedures.
Due to ACF security
restriction and concerns,
ACF staff are not able to
go to some distribution
areas such as Aleppo and
Idleb
ACF will continue with the same
monitoring methodology for NFI
distribution
In regard to Aleppo and Idleb
governorates, ACF agreed with
SARC to hire a field monitor in
Aleppo to follow up both areas
distributions
IOM
Registration, Direct observation for around 70 % of the
activities (due to security reasons and approvals), Post
evaluation and satisfaction survey.
Monitoring and evaluation are going to be
more involved in NFI distribution, members
of monitoring team will be there, checking
specification, distribution, criteria of
distribution, in addition to warehousing
monitoring, to check the items randomly
before distributing them to beneficiaries,
whether the warehouse belongs to IOM or
the partners.
The security situation,
Approvals, Local partners
capacity, the spread of
IDPs and their multiple
displacement.
Agree on a standard tools for the
sector, Assess the capacity of the
local partners and enhance it in
terms of self-monitoring and
evaluation, Conduct a joint
monitoring visits, Shared
evaluation reports and results
during the sector meetings,
Conduct a shared impact study.
UNDP
Procurement of NFIs is done based on identified needs
at area based level through local NGOs and field teams.
Field teams attend the distribution process and take
photos, conduct interviews with beneficiaries and
document stories. UNDP receives post distribution
reports from local partners including number, name and
gender of beneficiaries. Results are accordingly
integrated in the 4W
UNDP will maintain the previous
procedures. No future planned activities.
Since UNDP adopts a
local procurement
approach, some delays in
delivery could occur due
to limited production
capacity. To overcome
this, UNDP increases its
technical assistance and
capacity development of
the local workshops
through its livelihoods
restoration programme.
Third party monitoring can be
promoted in areas where UN
agencies has no presence.
6 The following information was collected by the sector coordination team from agency staff through email and/or interviews. Other member agencies’ inputs are pending at the
time of writing.
19
Agency Current monitoring practices Future planned monitoring activities Constraints Proposed way forward
PU
Until May 2014: NFI monitoring activities were
conducted by SARC volunteers (3 per Governorate)
trained and contracted by PU, in each SARC branch
(with 1 monitoring form).
Since May 2014: SARC did not allow INGOs/PU to
have Monitors. INGOs must rely on monthly reports
provided by SARC. (this decision is recently changed,
see next column).
SARC recently agreed to allow INGOs to
have 1 NFI Distribution Monitors per
Governorate. PU is now launching the
recruitment for Monitors accordingly, who
will monitor a part of the distributions done
by SARC. They will use a common
questionnaire, also approved by SARC
recently.
According to the current
irregularity and
geographical spread of
distributions, PU and its
donors cannot fund 1
fully dedicated Monitor
per governorate in all its
areas of interventions, as
requested by SARC.
As a first step, 3 Distribution
Monitors will be hired and will
monitor a selection of
distribution points.
SOS
Meeting local Communities, Family Visit, Assessment,
Registration,Direct observation, Post evaluation and
satisfaction survey.
The same process and practices used at
present.
Governmental Approvals,
Security Situation.
Standard Kits, Assess the
capacity of the local partners and
enhance it in terms of self
monitoring and evaluation,
Shared evaluation reports and
results during the sector meeting,
Conduct a shared impact study
and assessments, For distributing
items to be more effective share
Budget and items for each sub
districts before distribution So
each organizations takes the
responsibility of a group of sub
districts.
Syria
Trust
Depends on the area/location; if it is included in Syria
Trust plan there will be Staff team for assessment, if
not, the Syria Trust will depend on local NGOs to
make the needs assessment in order to fulfill the needs.
In the case of distribution, the distribution (and PDM)
reports format of UNHCR is used, as well as taking
photos.
Syria Trust data will be used for electronic
mapping detailing who takes what and
where. The map, based on the ST database,
will provide details on
who/what/when/where in relation to the
beneficiary.
No monitoring
constraints reported.
Maintain the previous measures
for now.
SARC Monitoring through field visits, Questionnaire,
Surveys, and Feedback forms
Continue with same practices Security situation,
timeliness and content
accuracy
Refine and double-check on field
visits.
20
Agency Current monitoring practices Future planned monitoring activities Constraints Proposed way forward
GOPA
GOPA’s registration department registers the number
of beneficiaries and their specific needs according to
individual meetings in which every family will declare
their needs for this month. After registering they have a
card issued by GOPA with a barcode,
misuse/duplication is prevented through this
mechanism. After distributing the kits there is a team
with a specific role to call the beneficiaries by phone
and receive feedback about how this kit is suitable and
if any problems occured. Another team does random
visits in the field collecting the feedback.
GOPA will make no changes to the current
monitoring practices.
GOPA does not
participate in
InterAgency Convoys, as
they are not allowed to
have beneficiary lists;
they will not participate
unless they are free to
monitor the distribution.
Other constraints are
security concerns.
will maintain the previous
measures for now.
UNHCR
UNHCR staff carry out monitoring during NFI
distributions when / where possible. UNHCR generally
conducts field monitoring visits among IPs upon their
receipt of NFIs. IP monitoring forms indicate the
current stock of the partner plus the targeted
beneficiaries and other details which allow for
checking. UNHCR relies on its operational partners to
do the monitoring in the inaccessible areas and is being
done through the stock monitoring form on weekly
basis.
UNHCR through partners and UNHCR staff carries out
limited post-distribution monitoring to collect feedback
from beneficiaries. This is done through a PDM form,
and information such as item satisfaction and preferred
new/additional NFIs are collected.
In addition to continuing the currect
practice, UNHCR will soon launch a
"Prjoect Tracking Database" for use by all
partners. It is a web-based programme
initially developed as a remote monitoring
project for the Iraq operation. The "PTD"
requires distributing agencies to upload
geographic details, photos, and descriptions
for every distribution (including the end-
delivery point/place of use by the
beneficiary). Details on the "PTD" are
available with UNHCR. Opportunities for
sharing the database will be shared with the
sector, however, at this time the PTD is set
to the UNHCR RBM system.
lack of access to hard-to-
reach areas, plus lack of
Armored Vehicles (need
due to security regs)
which will allow for more
field visits. Need for
improved capacity
amongst partners doing
the monitoring (number
and knowledge/skills for
monitoring).
Maintain previous measures,
pursue use of the PTD
TDH
Monitoring missions conducted by a team of staff
members to distribution points, Reports from
implementing partner.
Maintain current practices Approvals or permissions
for the monitoring
missions especially when
expatriates are involved,
conflicts or clashes,
access to the besieged
areas.
Possibility to have third party or
employees in the various
locations (aid employee could
function as monitor for more
than one agency, particularly in
hard to reach areas).
21
Agency Current monitoring practices Future planned monitoring activities Constraints Proposed way forward
DRC
DRC is monitoring NFI distributions through phone
calls to the different SARC branches and through field
visit (few) done by national and international staff. Ad
hoc visits of 1-2 days at distribution points and SARC
branches;
DRC has been authorized by SARC to
employ one NFI monitor per governorate of
operation (so for DRC 4 staff: Homs (1),
Aleppo (1), Damascus and Rural Damascus
(1), Dara’a (1)). The monitors will liaise on
a daily basis with SARC branches and visit
the distribution points, and ideally talks to
beneficiaries. All operation will be
implemented through a monitoring form.
DRC would also like to install a feed-back
box in each SARC distribution point (or in
as many as possible) with monitoring form
to be filled in by the beneficiaries.
SARC did not previously
authorize DRC to have
field monitors. Few
request for field visits
were approved;
Agencies should pursue having
an umbrella monitoring
mechanism shared by all
agencies working in NFIs,
approved by SARC which
constitutes the monitoring
framework, and inside it each
agency have its own monitoring
mechanism. In this way some
monitoring can be done inter-
agency or shared. Also
information can be shared
among agencies working in
NFIs.
UNRWA
All distributions are carried out by UNRWA staff at
UNRWA distribution points, and senior and
international staff conduct regular spot checks to assess
compliance with SOPs. Various logistical systems
(warehouse manifests, load notes, goods received
notes, etc.) are used/ compared against programme/ops
data to ensure consistency.
Recently established Area Support Officer
programme, which will deploy international
staff to each of the areas (North, Central,
South, Damascus) –will improve ability to
monitor and manage distributions, feeding
into operational policy.
Access and field
assessment availability.
Ref. Area Support Officer
Programme.
Endorsed by NFI Sector Working Group, 9 March 2015