lessons learnt from early recovery ctps for flood response

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BANGLADESH CASH WORKING GROUP LESSONS LEARNT FROM EARLY RECOVERY CTPS FOR FLOOD RESPONSE

January 2015

The DeSHARI Consortium, NARRI Consortium, German Red Cross, WFP and bKash brought their learning from implementing 3-month-long Cash Transfer Programmings for early recovery for flood response in NW and Hatiya. From the onset of disaster 13 agencies sought to coordinate under the Cash Working Group in terms of location, rate and market monitoring. In total 64,682 families received unconditional cash grant, conditional cash grant for livelihood and shelter based on assessed needs. A half of cash was delivered via mobile money transfer. This paper is a summary of the presentation and discussion, which took place in the CWG monthly meeting in January.1 It was the first time that multiple agencies shared outcomes of their cash intervention in open and systematic way. Summed up, there was much achievement made. Most organizations had smooth and successful operation to meet the immediate needs of beneficiaries from the planning and implementing CTPs.

- Achievement in common : increased effectiveness, smooth implementation of CTPs in tight schedule, participatory approach, regular market price surveys, high satisfaction of beneficiaries, few technical problem reported by beneficiaries in using MMT, no duplication, and effective coordination among agencies

However, there was persisting gap to be filled for more effective operation.

- Challenges in common : insufficient amount of CTP to cover the affected population, short time given to implement CTP in emergency, operational obstacles for MMT set-up, higher workload of field staffs to register beneficiaries, and absence of MMT sensitization to beneficiaries by companies

Agencies had different obstacles when it came to setting up mobile money transfer process and others.

- Mixed experience : relations with local authorities, negotiation, speed, efficiency of MMT set-up, SIM procurement, beneficiary ID problem, exchange rate loss, and transition to recovery project

Based on the learning, a number of actions were recommended to take in the future.

- Recommendations : Orientation to MMT agent in field, pre-disaster SOP/contingency plan, simulation, comparative analysis of CTP modalities, coordination with local authorities, information sharing at all stage of the project, clear guidelines for beneficiaries, and pre-negotiation with financial service providers

1 Most agencies had finished their implementation by the time of the event but still documenting the lessons from the field. Please consult an individual agency for more thorough evaluation outcomes and learning from non-cash assistance which was combined in some cases.

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DeSHARI

Achievement Challenge

• Contributed to ensure the food security of the most vulnerable families, better access to the local market.

• A significant percent of beneficiary have invested the cash grant livelihood support for IGA options.

• A wide participatory approach was exercised for beneficiary selection.

• Livelihood Recovery Plan/Business plan have been completed 100%

• Approx. 150 market price surveys completed pre and post distribution.

• 100% cash distribution completed with the project timeframe as committed.

• Representation of government, LGI and PIC were ensured during cash distribution.

• Cash distribution figure ensured accountability.

• Project duration in comparison to the number of targeted beneficiaries

• Selection of right beneficiary among the total affected families

• Gaps between resource available and the need (family coverage)

• Pressure from local influential/political groups. • Beneficiaries and community people were not

much interested to submit written complain through CRM process.

• List of pregnant women & disable (PWD) and vulnerable women were not available.

Key lessons for future response

• Increase the package amount as it was not possible to cover entire targeted families due to resources limitation.

• Coordination and extensive support from local community, Union Parishad and local administration • Proper planning and prioritized the actions • Proper information sharing, involved community in beneficiaries selection process, household visit and

validated by PIC, UP • Participation, information sharing and coordination at all stage of the project, workshop, bill board,

signboard, banner, CRM and meeting at community level.

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NARRI


• Transparency, visibility and accountability of the projects was high

• Effectiveness is high in terms of achieving results of the project

• Cash Transfer was done in time. Only 2% of the surveyed HHs faced some difficulties to get cash timely due to some technical problem of MMT wallet.

• Coordination with relevant stakeholders was high in order to avoid duplication.

• Cash Based Intervention (CBI) was very effective due to the opportunity of need based use.

• Cash transfer to women influence the power dynamics within the families. 59% cases, women and men jointly taken decision to utilize the cash while nearly 39% cases women took the decision alone.

• 99% of the surveyed beneficiaries utilized the cash support effectively in a diversified way.

• Sustainability is lower due to the short term of the projects and continuation

• Linking current early recovery projects with next phase and bridging the gap

• Higher work load ( usual allocation should be 200-250 HHs/per field staffs)

• Getting Acknowledgement from Chairman • Affected people is higher than recipients • Distribution within 1st one month is not possible

( 1.5 months required for beneficiary selection) • b-Kash registration is long, security is a big

problem, and they are not shouldering the role (in CWW field).

• Transportation of field staffs. • SIMS and bKash registration (1000HHs within 4

days for B-kash registration is required and same time for SIMS).

• MMT is not suitable for any short term project if there is no prior preparedness.

• Getting competent consortium manager • Exchange rate loss


• Coordination with other agencies allows for greater, more comprehensive and immediate coverage avoiding duplication of efforts.

• Educating beneficiaries on Mobile Money Transfer reduces the risks of misappropriation of money during cash withdrawals.

• Cash transfer to women of the family increased the voice of the women in the decision making process of the families.

• INGOs need to influence and engage private sector to join in the Humanitarian Diplomacy • A study need to be initiated on MMT Vs Direct cash support to see the comparative analysis of

effectiveness, cost-benefit, efficiency and replicability. • Mobile Financial Service providers can take step to pre-design the Mobile Money transfer approach for

post-disaster situation • CRM process and achievements need to be separately documented by respective agencies

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German Red Cross


• Successful disbursement of cash through MMT • High satisfaction of beneficiaries • The provision of mobile set • Quick assessment with local authorities • Use of the previous lessons from Mahasen

response • The process of signing an agreement with

Grammen was quick and the SIM provision was easier and faster thanks to similar deals made by other agencies

• Staff and volunteers supervised the cash out process

• Difficulty to convince the local authorities • Longer than expected bKash registration and

agreement closing time • Most beneficiaries lacked national ID • Time consuming and labour intensive to deploy a

large number of staff to complete the registration process and monitor

• Only 5% beneficiaries purchased hygiene materials although 1,000tk was distributed for such purpose along with unconditional cash grant.


• Preparation of SOPs for CTP • Pre-disaster agreements with financial service providers • Strengthened advocacy towards government • Development of cash delivery mechanisms, systems and human resources

WFP


• Almost seamless transition from phase 1 to phase 2

• Mobile banking- Accounts in the name of female HH member

• Based on evidence • Highlighted strong communications • Rapid • Robust beneficiary feedback mechanism

• Donor dependency


• Develop an orientation module for mobile cash transfers • Ensure all CPs in disaster prone areas are adequately briefed on the module which should include: • translation in English and Bangla • practical information on mobile banking process, cash out processes, fees and other bank related

information • rights of beneficiaries, examples of what to watch out for • feedback mechanism (hotline) • a clear guideline to delivering the module and any necessary materials so that the information is delivered

consistently across different CPs and locations

DeSHARI

EARLY RECOVERY ASSISTANCE TO

FLOOD AFFECTED COMMUNITY IN N-W

PART OF BANGLADESH

14,580 HHs

ACF

CA

DCA

MA

SCI

Bogura

Gaibandha

Jamalpur

Kurigram

Sirajgonj

20th Oct to 19th January

196 HHs

DeSHARI

KEY ACHIEVEMENTS

A total of 14,580 beneficiaries family were benefitted by the Early Recovery

project to the NW.

Each family received BDT 3000 as unconditional cash grant support and BDT

2000 for livelihood initiation input support.

Contributed to ensure the food security of the most vulnerable families, better

access to the local market.

A significant percent of beneficiary have invested the cash grant livelihood

support for IGA options.

Established good coordination among the local stakeholders

24 most affected unions covered by the project support

A wide participatory approach was exercised for beneficiary selection .

DeSHARI

Contd…

Livelihood Recovery Plan/Business plan have been completed 100%

Approx. 150 market price survey completed, pre and post distribution.

Union wise households survey completed 100%

MoUs done with the PICs

Community Consultancy meetings/FGDs completed in the working area.

100% cash distribution completed with the project timeframe as committed.

Representation of government, LGI and PIC were ensured during cash distribution.

DeSHARI

CHALLENGES

Project duration in comparision to the number of targeted benefiaceries

Selection of right beneficiary among the total affected familes.

Gaps between resourse available and the need (family coverage)

Pressure from local influential/political groups.

DeSHARI

OVERCOME STRATEGY

Proper planning and prioritized the actions

Followed participatory approach and household visit was exercised for proper

beneficiaries selection

Proper information sharing, involved community in beneficiaries selection

process, household visit and validated by PIC, UP

Participation, information sharing and coordination at all stage of the project,

workshop, bill board, signboard, banner, CRM and meeting at community

level.

DeSHARI

LESSON LEARNT

Community participation and sharing of information with all relevant

stakeholders reduced many challeges while implementing the project.

Beneficiaries and community people were not much interested to submit witten

complain through CRM process.

Cash distribution figure ensured accountabiity: Union Parishod representative stated

that, ‘UP never dare to hang list for complaint, but the project make it happen’.

Local administration and Union parishad provided necessary support during

cash distribution and carrying cash from bank to distribution points with their

vehicles and staffs for security. It was possible as they were tranparent about

project and their accountability.

DeSHARI

Increase the package amount as it was not possible to cover entire targeted

families due to resources limitation.

List of pregnant women & disable (PWD) and vulnerable women were not

available.

Coordination and extensive support from local community, Union Parishad and

local administration

LESSON LEARNT

DeSHARI

Necessary inception at upazilla and UP level were done and in time

No complaint received and not a single beneficiary have lost beneficiary card but

only one beneficiary lost his SIM, which reflect that the distribution and briefing

before distribution was good.

Transparency was ensured through list hanging at public places

Participation of local authority/elected representatives

Local authorities presence was ensured at each distribution point

Beneficiaries were oriented properly

Covered a wide range of geographical area and in island/isolated rural area

WHAT WENT WELL

DeSHARI

FUTURE PLANNING / ACTION

DBBL should ensure presence of cash out agent in time, they should carry

sufficient cash (according to distribution plan).

Follow up the beneficiaries about their resource utilization

Address old beneficiaries in next phase to further support as post recovery

Address the uncovered families those were not listed due to resource limitation

Cash For Work (CFW) for the beneficiaries to repair rural link roads for

improved communication

Consider WASH support for the beneficiaries.

Provide awareness raising training on disaster risk and preparedness issues.

To provide guidance to follow strictness during handling political pressure

regarding inclusion of unentitled households.

DeSHARI

Thanks

Venue: Hotel Dhaka Garden Inn Date: 28th Dec,2014

eb¨v `yM©Z RbM‡bi †gŠwjK Pvwn`v `ªæZ cybiæ×v‡ii cÖ‡Póv Early Recovery Efforts to Flood Affected People to Meet Their Immediate Basic Needs (Funded By ECHO)

&

evsjv‡`‡ki DËi-cwðgvÂjxq eb¨v `yM©Z RbM‡bi Rxebgvb cybiæ×vi cÖKí Recovery for flood-affected people in Northwest Bangladesh (Funded By DFID)

Beneficiary Selection

%

Distribution of cash for

meetig basic Food needs %


restoring livelihood/agri

%


disability mainstreaming

%

Distribution of cash for Shelter

reparing at Bogra %

Distribution of Hygiene Kit %

Repairing of TW %

Staffs Training on disability

mainstreaming by HandiCap

Int. %

9

0

0

0

0

0

0

10

0

10

0

0

0

0

0

0

0

10

0

0

0

0

0

0

0

0

10

0

80

0

0

0

0

0

0

10

0

Agency wise % of achievement

CARE CWW IR OXFAM

Timeline: October,2014 Target Vs Achievement

Timeline: November, 2014 Target Vs Achievement


%

Distribution of cash for meetig

basic Food needs %

Distribution of cash for restoring livelihood/agri %

Distribution of cash for disability mainstreaming %


reparing at Bogra %


Repairing of TW %

64

36

36

42

64

0

10

0

87

0

17

0

62

61

10

0

10

0

10

0

0

29

10

0

0

10

0

10

0

10

0

0

10

0

0


CARE CWW IR OXFAM

Timeline: December, 2014 Target Vs Achievement


%

Distribution of cash for meeting basic Food needs

%


restoring livelihood

/agriculture %


disability mainstreaming

%


repairing at Bogra %


Repairing of TW %

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0

10

0


CARE CWW IR OXFAM

Cash Transfer Modalities

MMT Direct Hand Cash

28

72

10

0

0

0

10

0

10

0

0

Agency wise Cash Transfer Modality

CARE CWW IR OXFAM

Women’s Access & Control over Resources/Cash

99 99.5

87 93 95

1 0.5

13 7

4

CARE CWW IR OXFAM Average Total

% of Beneficiaries Ratio- Women & Men

Women Men

Food 38%

loan repay 4%

Medicine/ Health 7%

Education 3%

Shelter 5%

Assistive device for Disable/ Medicine/ Health for

Disability/ extra nutritional foods for Disable person

0%

Cloths 4%

Savings 3%

Purchase poultry / livestock 20%

Small Business 3%

Agriculture 12%

Transport 0%

Paid to BKASH / DBBL Agent 0%

Others 1%

Utilization of Cash

Average HHs Food Consumption Status ( Poor: 0-21, borderline: 21.5-35, acceptable- above

35)

0.0

5.0

10.0

15.0

20.0

25.0

30.0

35.0

5.8 4.8

6.4

0.3

8.1

2.1 0.4

3.5

0.0

31.4

Complain Response Mechanism

• All member agencies set CRM at Office and field level

• Modality : Complaint boxes, accountability banner and bill boards, key contact

person’s mobile on the back of beneficiary card, register books and automated

voice recorder .

Consortium Level Challenges and Learning

• Linking current early recovery projects with next phase and bridging the gap

• Higher work load ( usual allocation should be 200-250 HHs/per field staffs)

• Getting Acknowledgement from Chairman is a big challenge (IR)

• Affected people is higher than recipients

• Distribution within 1st one month is not possible ( 1.5 months required for

beneficiary selection)

• b-Kash registration is long, security is a big problem, and they are not

shouldering the role (in CWW field).

• Transportation of field staffs.

• SIMS and bKash registration (1000HHs within 4 days for B-kash registration is

required and same time for SIMS). MMT is not suitable for any short term project if

there is no prior preparedness.

Consortium Level Challenges and Learning – Conti…

•Temporary migration of affected people is a challenge in beneficiaries selection.

• To get competent staffs for Consortium as these contracts are very short term.

• Kick-off of the project was a bit delayed (almost 15 days) because of Eid vacation

and a weeklong hartal that hindered the overall progress.

• Field staffs have to spend more time for local travel due to remoteness

• Unavailability of warehouse at field level to keep hygiene kits.

• Minimizing exchange loss by each member agencies

Photo Gallery

Photo Gallery Cont.

Early Recovery support to flood 2014

By NARRI

NARRI ( Oct’ 14 – Jan’15) • Implementing INGOs: Oxfam, CWW, CARE and IR

( Led by Oxfam)

• Total beneficiaries: 17300 HHs ( Oxfam-5742, IR- 4320, CWW- 4738, and CARE - 2500)

• Locations: Kurigram, Gaibandha, Sirajgonj and Bogra.

• Interventions :

Cash grant @ BDT 3000 for immediate food security to 17300 HHs

Cash grant @ BDT 2000 for livelihood support to 17300 HHs

Cash grant @ BDT 3000 for NFI to 2000 HHs in Bogra

Continue......

Disability grant @ BDT2500 to 87

extremely people

Hygiene kit distribution to 12743 HHs

Tube well repairing (1592 tube well)

Donors : ECHO ( 1 million EURO)

DFID ( GBP300,000)

Thanks

For CWG January 2015

Ready to Eat Food &

Mobile Cash Transfers

2014 Floods in Northwest Bangladesh

Key Points

Phase 1: HEB Distribution Reaching 21,290 families 24th August - 6th September

• Lessons from past floods about the immediate need for ready to eat food • Contingency stocks of HEB available • CPs (development partner NGOs) ready and willing to participate

WFP’s Initiative: A Response in 2 Phases

Key Points

Phase 2: Unconditional cash transfers delivered through mobile financing services 19,463 HHs received 9,000 BDT Distributed in 3 rounds (3 x 3,000 BDT)

• Beneficiary selection began on 23rd September • Cash withdrawals began on 1st October • Response concluded on 20th November • Banking partner: DBBL • Mobile phone partner: Grameen Phone • NGO partners were the same as in phase 1

WFP’s Initiative: A Response in 2 Phases

• HEB distribution took place prior to and during the JNA

• Almost seamless transition from phase 1 to phase 2

• Cash transfers were unconditional

• Mobile banking

• Accounts in the name of female HH member

• Based on evidence

• Highlighted strong communications

• Rapid

• Robust beneficiary feedback mechanism

• Effective in addressing the objective

• Donors: ECHO and DfID

Key features

A Response that was Timely and Effective

Underlying assumptions:

In-line with the preparedness work and guidelines of the FSC and based on a rapid market assessment by the cluster.

That if households were given the freedom to make their own choices, household food consumption scores would increase. If the markets were functional cash would be a more appropriate modality than in-kind distributions. The Rapid Market Assessment confirmed the JNA findings that markets were largely open and their had not been price hikes.

Cash Transfers Were Unconditional

Mobile Banking

Experience in Bangladesh shows that it is the female members of a household who make the decisions about food at the household level. Accounts were thus opened in the name of a female HH member.

The women were given a mobile sim card which was linked to their bank account. They received messages when the cash was deposited and could also use the sim to check their balance and to make withdrawals at cash agents in their locality.

Mobile Banking in a Woman’s Name

Evidence Base

The response was based on information from a range of sources. This included the FSC Joint Response Plan

• Regular field reports from WFPs staff on the ground • Joint Needs Assessment (multi-sector, multi-stakeholder) • Rapid Market Assessment by the FSC • Knowledge of the impact of similar disaster events in Bangladesh • Preparedness work of the FSC was used to design the response

A Response Based on Evidence

Accountability

Hotline to the WFP Country Office

The hotline was a widely advertised service that beneficiaries could feel safe and secure about because the number reached a phone in Dhaka and the call was not going to be received by anyone in their local area. All calls were followed up on. Over 200 calls received.

Robust Beneficiary Feedback Mechanism

During preparedness initiate discussions with all key partners to ensure clarity and predictability. Including:

• pre-agree information required for funding proposals

• establish stand-by agreements with partner NGOs

• with banking partners document the steps involved in account opening and other mobile banking processes

• establish framework agreements with banking partners and mobile service providers

• ensure annual review of emergency procedures including mobile cash transfers with staff at Dhaka and partner NGOs

• carry out a desk-top simulation exercise on a scale up of emergency cash transfers to determine response capacity

• review relevant WFP HQ processes, adapt to Bangladesh context and have these approved by HQ

• work with the FSC and the CWG on sharing lessons from the response

Overarching recommendations

Selected Recommendations

Develop generic beneficiary selection guidelines as part of preparedness in such a way that promotes consistent application of these. Guidelines should:

• Include proxy indicators that can be realistically implemented in the field in a rapid time-frame

• Determine the approximate the time required for beneficiary selection so that the work load can be anticipated

• Consider several tiers of beneficiary that would be used depending on resource constraints

• Acknowledge that the usual expected roadside displacement may not always be the best proxy indicator of need If assistance

Raise awareness of beneficiary selection criteria and process among stakeholders, including: Local Elected Bodies, Union Parashad, Upazila Disaster Management Committees and partner NGOs.

Beneficiary selection and registration

Response Implementation Recommendations

Develop an orientation module for mobile cash transfers

Ensure all CPs in disaster prone areas are adequately briefed on the module which should include:

– translation in English and Bangla

– practical information on mobile banking process, cash out processes, fees and other bank related information

– rights of beneficiaries, examples of what to watch out for

– feedback mechanism (hotline)

– a clear guideline to delivering the module and any necessary materials so that the information is delivered consistently across different CPs and locations

Orientation of Participants (Beneficiaries)


• Develop simple documentation of all the steps required to open a mobile bank account

• Clarify the number of new accounts that can be opened per day and ensure this is communicated in discussions around the potential to “scale up” this kind of response

• Regularly engage with banking partners and mobile partners to build stronger partnerships and share information on contingency planning including the anticipated caseloads for response

• Consider a joint annual pre-monsoon planning event

• Discuss options for bank “surge capacity”

• Explore the status and potential of the National ID Card Database being developed by the GoB in collaboration with the World Bank

Opening bank accounts


• Ensure the use of a hotline system is replicated in future responses (based at Dhaka level)

• Include the hotline in planning documentation

• Investigate the most appropriate technology for the hotline

• Ensure hotline calls are free to beneficiaries.

• Establish strong connections to the banking partner for any complaints regarding cash agents

• Ensure that all partners and stakeholders are aware of the hotline system as a way of promoting accountability to beneficiaries

Hotline: beneficiary feedback that is innovative, non-threatening and immediate


• Determine the costs of accessing HtR areas so these can be discussed in advance and included in pre-agreements

• Explore and consider committing to WFP being the “provider of last resort” within the cluster

• Explore how to ensure adequate funding for such operations

Hard to Reach Areas


Within the FSC and/or the CWG review the JNA Union level findings in terms of their utility for targeting.

• Consider if a faster JNA that delivered findings only granulated to the Upazila level would have been sufficient

• Use this exercise to determine the information required to improve geographic targeting and how this information could be obtained

• Work closely with those involved in taking forward the work on JNA on this

Targeting

Response Design Recommendations

• Discuss with donors their requirements and information needs in rapid funding proposals with the aim of having as much pre-agreed as possible

• Discuss collective advocacy strategies

Resourcing the Response


• Document SOPs for this kind of response and use this to estimate capacity required

• Update WFP’s contingency plan to include mobile cash transfers for emergencies

• Ensure annual orientation and simulation exercise

• Identify the training and capacity building requirements of stand by NGO partners and look at how this can be designed, delivered and resourced

• Self-reflection within WFP on the range of capacities required for such an operation, the degree to which these exist and any measures needed to strengthen them

• Advocacy to ensure resourcing is appropriate to the tasks involved in ensuring sufficient capacity

Capacity


• Document SOPs. This will be the key document for planning

• Review and update internal agency emergency management roles and responsibilities

• Revisit and update FSC contingency plan and associated guidelines based on lessons learned and changing circumstances (e.g. rising costs)

• Ensure participation of all partners in key discussions on preparedness

• Ensure participation of all key partners in an action planning meeting at the outset of response (including banking partners and mobile phone service providers)

Planning and Processes


• Continue providing (along with FAO) leadership to the cluster

• FSC take a stronger collective advocacy role for resources in order to meet needs

• Discussions on advocacy should become part of preparedness so that an advocacy plan is already in place

• Form stronger relationships with government

• Collectively review FSC ToR and guidelines so members are clear on what they have committed to (revise if needed)

• Continue attempts at coordination with other clusters

• Consider WFP’s potential role as “provider of last resort” to fill key gaps

• Use the real-time coordination platform to ensure timely information to all organizations (who cannot be present at all meetings)

Food Security Cluster (FSC)

Coordination Recommendations

• Commit to consistent and active WFP participation in the CWG (by the Enhancing Resilience (ER) Section)

Cash Working Group

Coordination Recommendations

Local (sub-national/district) level coordination • Work with FSC to document the roles and responsibilities of District

Coordination Focal Points to ensure that field level coordination is taken seriously from the outset of the response.

• Determine which agency will lead in which district.

Even when things are good, they are not perfect and should be improved upon

The response was seen as “joined up” in terms of WFP and the FSC was seen as an umbrella for an overall consistent response. The (FSC) Joint Response Plan was seen as exactly what the cluster should be doing and is likely to be a bench mark for future responses.

• This was a new way of responding to disasters, documenting processes for future should enhance predictability and stream-line processes

• Use the FSC and CWG so that stakeholders work collectively on aspects of collective interest and don’t re-invent the wheel

• Quality assessments and joint response plans are now part of the way we do business; make maximum use of these for collective advocacy for resources and for attention to the disaster

Conclusion

World Food Programme World Food Programme

lessons learnt from early recovery ctps for flood response

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