nfi sector strategy 2015 damascus syria working...

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


Strategy 2015


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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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

http://reliefweb.int/report/syrian-arab-republic/syria-integrated-needs-assessment-december-2013-enartr

http://reliefweb.int/report/syrian-arab-republic/multi-sector-needs-assessment-quneitra-governorate-and-sa-sa-and-beit


Strategy 2015


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,


Strategy 2015


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.


Strategy 2015


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



Sweater for child between the age of 10-13 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


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


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


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

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