Supplies and Food Aid - Field Handbook (UNHCR, 1989, 296 p.) CHAPTER 2 - PROVISION OF FOOD AID 2.1 Food Aid Requirements (introduction...) Chart 2.A: Organizational Liaison for Food Aid Planning, Monitoring and Reporting 2.2 UNHCR Responsibilities for Food Aid 2.3 Assessment of Refugee Food Aid Needs (introduction...) Chart 2.B: Considerations in Assessing Food Aid Requirements Chart 2.C: Nutritional Characteristics of Common Food Aid Commodities* Calculation of Food Needs Chart 2.D: Calculation of Food Needs - An Example 2.4 Food Aid Submissions and the UNHCR Global Food Plan (introduction...) Internal Transport, Storage and Handling (ITSH) Implementing Instruments 2.5 Food Commitments and Donations (introduction...) Contribution Advice Forms (CAFs) 2.6 Food Aid Channelled Through WFP 2.7 Shipping Modalities for Food Aid Contributions (introduction...) EC Food Donations 2.8 Food Purchases 2.9 Emergency Food Aid

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

CHAPTER 2 - PROVISION OF FOOD AID

2.1 Food Aid Requirements

2.1.1 The objective of the food aid sector of refugee assistance programmes is to maintain satisfactory nutritional levels through the provision of food to refugees where it is needed, at the right time, in adequate quantities, and in the right commodity mix, avoiding waste through loss, spoilage or misuse.

2.1.2 Refugee food needs are divided into three main categories:

(a) Basic Food - refers to essential foodstuffs generally supplied by WFP, including staples (cereals), sources of energy (edible oil, fats), and sources of protein (pulses, canned fish or meat, DSM).

(b) Complementary Food - means other food commodities, possibly available locally, which are added to the Basic Food ration to meet dietary requirements. These commodities should conform to the traditional food habits of the refugees, and may include dried or fresh vegetables, fruit, fish, meat, sugar, salt and other spices, coffee and tea.

(c) Supplementary Food - refers to the additional food requirements of vulnerable groups with nutritional deficiencies. Distributed through intensive feeding programmes organized at feeding or health centres, these rations are usually a mixture of Basic and Complementary Food commodities with specially enriched ingredients, such as cereal blends or fortified milk products. Therapeutic feeding programmes rely on the availability of supplementary foods for the treatment of severe malnutrition, as well as medicines to correct vitamin deficiencies.

2.1.3 Standard rations for ongoing refugee situations currently provide minimum nutritional standards of 1,900 Kcal energy and 50 gm protein per person per day. The development of population-specific standards by TSS at Headquarters will elaborate on different ration scales according to circumstances, including digressive scales as an emergency evolves into a more stable situation.

2.1.4 Food aid for refugees comes through a number of channels. WFP provides about 70 per cent of basic food aid requirements, and their role in this key programme sector has been increasing recently. Multilateral and bilateral donations through UNHCR, and direct bilateral contributions account for most of the remainder. Some special food commodities are purchased from approved annual project budgets.

Chart 2.A: Organizational Liaison for Food Aid Planning, Monitoring and Reporting

2.2 UNHCR Responsibilities for Food Aid

2.2.1 As part of our mandate to provide international protection and assistance to refugees, UNHCR has primary responsibility for food aid planning, submission of requirements to donors and delivery to the refugees. Coordination and cooperation between all the parties involved, at Headquarters and in the field, is essential to plan needs, identify sources of supply, schedule consignments, and oversee delivery, storage and distribution.

2.2.2 The effectiveness of food aid is compromised when shipments are too large, too small or not timely, are unloaded at the wrong port or take a round-about route, or are inappropriate, unacceptable or of limited nutritional value for the beneficiaries. Food can also deteriorate, or be damaged or stolen, due to insufficient protection between the port of loading and the distribution site in the field. Remedial measures are often expensive solutions. Losses can be minimized if all UNHCR personnel concerned, with the assistance of our donors, and implementing partners, exercise adequate foresight and planning, due care and attention to details.

2.2.3 Each geographic desk in the Regional Bureaux at Headquarters is the focal point for food aid for the geographic area for which it is responsible. The geographic desk must ensure that each field office is provided, in a timely manner, with all the necessary information to plan, monitor and control the availability and delivery of food aid within their area of operations.

2.2.4 UNHCR field offices perform a key role in the food aid management system. Field offices begin the process by assessing refugee needs, in consultation with the local WFP field office. Technical assistance is also available from TSS. SFAS can provide cost estimates, specifications and standards related to procurement, and information about transportation, insurance, inspection, handling, storage and distribution of food. Field offices must ensure the effective completion of the supply process by receiving, controlling and reporting on food aid in their refugee programme, in cooperation with officials from WFP, our implementing partners and the host government.

2.2.5 SFAS coordinates food aid and food deliveries to UNHCR programmes worldwide. Two Food Aid Coordination Officers and a Professional Assistant work in close collaboration with the geographic desks, WFP in Rome, the EC in Brussels and, through FRS, other major donors and suppliers, to consolidate the UNHCR global food plan, coordinate the timely supply of food aid, and track food shipments through to their final destinations. Together with nutrition and health specialists from TSS at Headquarters or in the field, they also assist UNHCR field offices to identify food aid requirements in terms of composition of the food basket, quantities, related costs, funding and supply sources, and delivery schedules. A computerized Food Tracking System is used for food aid programming and monitoring.

2.2.6 FRS solicits food aid contributions, in kind and in cash, directly to UNHCR or channelled through WFP, to help meet the requirements identified in the approved global food aid plan. FRS maintains close relations with UNHCR's donors from initial commitment of assistance to final distribution to the refugees. FRS follows through to report to donors on the suitability and usefulness of their donations, in appreciation of their assistance and continuing support.

2.3 Assessment of Refugee Food Aid Needs

2.3.1 Assess refugee needs for food aid, whenever possible, on a calendar year basis and in accordance with the UNHCR programming cycle. Consult with nutritional experts, health, agricultural, marketing and logistical personnel from the host government, our implementing partners and the local WFP field office, as appropriate. For large-scale operations, or newly emerging situations, joint field assessment or review missions may be undertaken, involving staff from UNHCR Headquarters and WFP in Rome.

2.3.2 To increase the credibility of appeals for donor assistance to refugees, use accurate data to serve as a basis for determining food commodities and quantities. Governments hosting refugees in their countries retain responsibility for determining the numbers of refugees. UNHCR and WFP field personnel must endeavour, however, to assess the volume of assistance required with the highest degree of accuracy possible. For ongoing situations, review previous distribution records and nutritional surveillance reports to obtain data on use, adequacy and deficiencies to plan food aid needs more effectively.

2.3.3 Consider local harvests and seasonal availability of food commodities. Determine if quotas for local consumption or export exist, as these quotas may affect availability. Local purchases from export quotas in convertible currency may avoid the need to import internationally acquired foodstuffs.

Chart 2.B: Considerations in Assessing Food Aid Requirements

1. Nutritional status of the refugees and identification of vulnerable groups. Quantify the particular groups within the refugee population considered to be vulnerable: children, pregnant and lactating women, the sick, the elderly, new arrivals or the culturally/socially Isolated. Medical and nutritional specialists can help to Identify the extent of malnutrition, anaemia and other health conditions affected by or resulting from dietary deficiencies.

2. Food habits, preferences and taboos. Determine the traditional food habits of the refugee population, the items usually consumed, and how they are prepared. What taboos are practised that would make certain commodities or food distribution methods unacceptable? What are the dietary staples and other familiar foodstuffs which can provide a nutritionally balanced diet for the refugees?

3. Number, location and description of the refugees. Assess these factors to establish the overall quantities of food aid to be provided, the destination(s), and the related delivery and storage requirements. A demographic breakdown of the population is essential for determining energy requirements, expressed as the percentage under 5 years, 5 to 14, 15 to 45, over 45, and male and female. When planning, also anticipate refugee Influx and departure rates to provide adequate, but not excessive, food stocks.

4. Alternative sources of supplies. Assess the adequacy of local or national agricultural production, harvests and market supplies to meet food aid needs. International sources include WFP, UNHCR donors, purchases and other international organizations. Immediate needs can be met by local purchase, local donations or borrowed stocks (for later replacement) or air-lifting international supplies. Longer-term needs can come from national or external sources, and refugees may be encouraged to become more self-sufficient by participating in agricultural activities, food-for-work projects, or finding local employment if permitted.

5. Food preparation requirements: kitchen utensils, water and cooking fuel. Determine these needs carefully because a lack of these items can adversely affect refugee food consumption and nutritional status. Failure to provide fuel often results in the destruction of local vegetation, causing lasting environmental damage and friction with the local population. Also consider providing fuel-efficient stoves or, possibly, communal cooking facilities.

6. Definition of requirements. Specify the ration levels, total quantities, commodities, possible sources of supply and scheduling for planned food aid distributions to the general population and for the special feeding programmes required by vulnerable groups. The timeframe for distribution and location of the beneficiaries must be considered, as these factors will affect sourcing and delivery modalities. Remember to include forecast balances of food stocks on hand. Depending on urgency, short-term solutions may be necessary to meet immediate needs until longer-term solutions and supply provisions can be implemented.

7. Organizational responsibilities and logistics. Coordinate refugee feeding programmes, to establish and delegate related responsibilities to ensure that defined objectives are achieved, including the important aspects of sourcing, receiving, transporting, storing and distributing food aid, and nutritional surveillance. Involve the refugee community itself in planning and organizing food aid operations.

Chart 2.C: Nutritional Characteristics of Common Food Aid Commodities*

* Adapted from the UNHCR Handbook for Emergencies and UNICEF Assisting in Emergencies.

Food Type	Approximate Energy/100g	Approximate Protein/100 g	Vitamins and Minerals	Remarks
1. Cereals (wheat, rice, maize, sorghum, oats, etc.)	350 Kcal	8 to 12 g	Vitamin B and iron. Milling reduces vitamins - the whiter the flour, the greater the loss of vitamins.	Cereals are the main source of both energy and protein in most diets. Grinding facili- are essential if whole grains are distributed.
2. Legumes/pulses (beans, peas, lentils, soya, groundnuts, etc.)	350 Kcal/500 to 700 Kcal. Provides energy in a compact form but is relatively expensive and requires careful storage	20 to 25 g Some beans can be up to 40% protein by weight, e.g., soya	B complex vitamins. Most contain significant quantities of iron and calcium.	Legumes are particularly beneficial when eaten with cereals, as the proteins complement each other. Fast cooking pulses (e.g., lentils, split peas) and most recent crops are preferable to avoid need for prolonged cooking.
3. Fats and oils	900 Kcal	NIL	Rich sources of concentrated calories, enhance the absorption of Vitamin A.	The most concentrated energy source, these are used to increase energy intake without increasing bulk of diet. Also improve palatability and help in food preparation. Acceptability testing is necessary for edible oil.
4. Fish, dried	300 Kcal	63 g	Rich source of calcium and iron. Also contains B vitamins.	A concentrated source of protein for those who like it, acceptability trials are essential before use.
5. Meat, milk and dairy products. DSM**, eggs, etc.	150 to 550 Kcal, depending on fat content	10 to 20 g, except for liquid milk, 3 to 6 g	Good source of B vitamins. Milk and eggs provide significant amount of calcium.	Body uses these foods more readily than proteins of vegetable origin. Are usually consumed in very small quantities in normal times, but provision can improve the quality and palatability of the diet. DSM distribution is only acceptable to nomadic populations.
6. Whole tubers and roots (yams, taro, cassava, potatoes, etc.)	75 to 110 Kcal In flour form, 300 to 350 Kcal	Very low in protein	Variable, but generally low.	Bulk and low protein usually make them unsuitable for refugee food rations.
7. Vegetables and fruits	Low in energy	Low in protein	Important source of vitamins and minerals, with variable quantities of B and C vitamins. Dark green leaves or yellow/red pigmentation usually indicate Vitamin A compounds.	Refugees should be encouraged to grow their own, in ongoing situations. May also be available in the local market.
8. Sugar	400 Kcal	NIL	NIL	Sugar is a good energy source, but contains little nutritional value. Improves palatability of diet, but is difficult to store and absorbs moisture easily.

** Provision of DSM to refugees is discouraged because of Its potential health hazards if not properly mixed and administered. Separate guidelines on DSM are forthcoming from TSS.

Calculation of Food Needs

2.3.4 Include the calculation of food needs in the food sector of the project submission which covers overall assistance for a specific refugee caseload. The planning figures for food aid must show the total quantity by commodity for each beneficiary group and the associated costs, based on:

(a) the number of beneficiaries for each category of food - Basic, Complementary or Supplementary;

(b) the standard daily per capita ration for each commodity; and

(c) the planning period. This is usually one year, except in an emerging situation where an initial response might involve a shorter timeframe and higher ration levels.

2.3.5 Use the local price of each commodity as the unit cost for planned local purchases. For foodstuffs to be acquired internationally, use the current WFP average food price list. Copies of the WFP price list, updated periodically, are available from SFAS at Headquarters.

Chart 2.D: Calculation of Food Needs - An Example

1. Number of beneficiaries:

Basic Food:	25,000 in the northern region and 10,000 refugees in the east
Complementary Food:	as above
Supplementary Food:	800 in the northern region and 250 in the east

2. Standard daily per capita ration:

Basic Food:	Wheat	500 g
	Edible oil	30 g
Complementary Food:	Sugar	20 g
Supplementary Food:	Cereal blend	100 g
	DSM	20 g
	Edible oil	10 g

3. Time period for planned needs:

1 year, or 365 days

Calculations:

Total quantity of each commodity:

Commodity	Northern Region	Eastern Region	Total Requirement
Wheat	500 g x 25,000 x 365 = 4,562.5 MT	500 g x 10,000 x 365 = 1,825 MT	6,387.5 MT
Edible Oil	30 g x 25,000 x 365 = 273.75 MT	30 g x 10,000 x 365 = 109.5 MT	383.25 MT
Sugar	20 g x 25,000 x 365 = 182.5 MT	20 g x 10,000 x 365 =73 MT	255.5 MT
Cereal Blend	100 g x 800 x 365 = 29.2 MT	100 g x 250 x 365 = 9.1 MT	38.3 MT
DSM	20 g x 800 x 365 = 5.8 MT	20 g x 250 x 365 = 1.8 MT	7.6 MT
Edible Oil	10 g x 800 x 365 = 2.9 MT	10 g x 250 x 365 = 0.9 MT	3.8 MT

Estimated cost* of commodities:

Wheat	6,387.5 MT x US $140	= US $	894,250
Edible Oil	(383.25 MT + 3.8 MT) x US $1,100		425,755
Sugar	255.5 MT x US $320		81,760
Cereal Blend	38.3 MT x US $300		11,490
DSM	7.6 MT x US $320		2,432
TOTAL Cost for Food Aid Commodities		= US $	1,415,687

* Approximate 1987 WFP commodity prices per MT, used here to determine value.

2.4 Food Aid Submissions and the UNHCR Global Food Plan

2.4.1 Food aid planning for ongoing refugee programmes begins early in the current year. The total planned programme requirements for the upcoming planning year are formulated and forwarded to Headquarters in April. Summarize the key findings in food plan submissions by identifying the food needs for each project/refugee group -composition of the food ration, commodities, quantities, known or potential sources, related costs and delivery scheduling. Specify forecasted stock levels on hand at the end of the current year, netted against planned commodity requirements. Include an explanation of any local conditions which may affect food aid scheduling or delivery, such as climatic/seasonal conditions which would necessitate earlier provision of food and storage of buffer stocks.

2.4.2 The Food Aid Coordination Officers in SFAS at Headquarters consolidate food aid submissions to prepare the UNHCR global food plan for the upcoming planning year, defining refugee food requirements by country/region, commodity, quantity and planned delivery. Global requirements are then broken down by known and potential sources of food aid - in-country stocks, WFP. EC and donor countries' cash contributions for UNHCR/WFP purchases of food, in-kind contributions and known bilateral aid. As a last resort, the costs to purchase needed food not met by in-kind or earmarked cash contributions are included in project budgets.

2.4.3 SFAS assists the geographic desks at Headquarters to determine sources of planned food aid for their programmes, in collaboration with FRS, PMS and WFP. Much of the Basic Food for refugee programmes comes from WFP. For the remaining Basic Food needs, FRS seeks specific contributions in cash or in kind. Only in exceptional circumstances can these Basic Food commodities be acquired under project budgets. During the annual programme review, sources of Complementary and Supplementary Food are considered. Depending on the types, quantities and availability of the commodities involved, these needs may be met by WFP, the EC or other donors, or funds may be allocated under project budgets.

2.4.4 As part of the UNHCR programme and planning cycle, update food aid submissions in September. Include any revised information about increases or decreases in the forecasted number of refugees, significant changes in their location or changes in their degree of self-sufficiency. Also, update projected foodstock balances that will be on hand at the end of the year, including shipments in transit or undelivered pledges. Provide data on transport and storage capacity, locations and related costs.

Internal Transport, Storage and Handling (ITSH)

2.4.5 Budget the total estimated costs of internal transport, storage and handling of food aid under the Transport/Logistics Sector of the project budget. See Chapter 5, Field Logistics Operations, to establish transportation, storage and handling needs. The budget and accounting systems must identify ITSH costs related to the provision of food aid and paid by UNHCR, as these costs may be fully or partially recoverable from donors and WFP.

2.4.6 WFP delivers food aid up to the port of discharge, expecting the government or UNHCR to arrange and pay for receiving, storing and transporting each consignment to its final destination. Where WFP provides food aid to refugees situated in Least Developed Countries*, and subject to the availability of WFP donor funding, UNHCR may claim up to 50 per cent of the ITSH costs incurred.

* Least Developed Countries (LDCs), as approved by the UN General Assembly, qualify for special subsidies and consideration from all UN agencies.

2.4.7 UNHCR field offices located in Least Developed Countries must compile ITSH cost data related to WFP food aid for refugees. On an annual basis, submit verified invoices and claims for these ITSH costs to the local WFP field office. After being approved locally, the claims are forwarded to WFP Headquarters where donors are requested to make cash contributions to reimburse up to 50 per cent of these costs. Where there is no local WFP field office, send documented ITSH claims to the geographic desk at Headquarters. These claims are submitted through SFAS to WFP in Rome.

2.4.8 Where the EC provides food aid in cash or in kind, they will reimburse UNHCR for the total related ITSH costs (within prescribed limits), when UNHCR presents a documented claim and the relevant distribution reports. Other donors have made similar commitments. UNHCR field offices must collect ITSH cost data and distribution reports from EC and other food donations. Submit these claims annually to the geographic desk at Headquarters. SFAS forwards documented ITSH claims to the EC and other donors for reimbursement.

Implementing Instruments

2.4.9 Approved food aid needs appear in the annexes attached to implementing instruments which cover overall assistance to a particular refugee caseload, regardless of the planned source. Where the source of food aid is other than purchases from funds made available under the project budget, the source will be indicated in place of the commodity value.

2.4.10 Complementary and Supplementary Food may be included in the budget annexed to the relevant implementing instrument. Should FRS subsequently obtain a contribution to meet any of these requirements, the equivalent value of the budget item will be reduced accordingly as the contribution must be recorded separately as non-cash or extra-budgetary income.

2.5 Food Commitments and Donations

2.5.1 The global food plan, prepared by SPAS at Headquarters, forms the basis on which food commitments are negotiated and obtained. Continuous feedback to SFAS from the geographic desk, field offices and FRS is essential to record exact types, quantities and costs of acceptable commodities, WFP and donor commitments, planned local, regional or international purchases, and planned and actual timing of food deliveries.

2.5.2 Refugee food aid needs are supplied and funded from the following sources:

(a) WFP contributions in kind, resulting from agreements between WFP and the host government. UNHCR may facilitate the request, approval and distribution of these food supplies to the refugees. They are included in the UNHCR global food plan, but the value of the food is not accounted for under UNHCR assistance programmes.

(b) EC and other donors' contributions in kind or cash, to be channelled through WFP or to be recorded under UNHCR programmes.

(c) Purchases from project budgets, in exceptional cases when no other possibility exists.

2.5.3 Approximately two-thirds of the annual food aid requirements for refugees come from WFP. In recognition of WFP's mandate for the mobilization and logistics of international food aid, cooperation between UNHCR and WFP, though traditionally close, is increasing. Organizational and procedural changes in WFP are being made to improve flexibility in meeting refugee requirements, in terms of commodities and quantities supplied, speed of delivery and countries served. UNHCR must retain certain capabilities, however, to appeal for refugee needs to donors, to make food aid purchases and to deliver food aid to refugee sites. UNHCR must be able to respond quickly to general requests for assistance and to continue to exercise its own humanitarian initiative.

2.5.4 Another major source of food aid for UNHCR programmes is the EC. FRS negotiates with the EC on the types of commodities, quantities and recipient countries in consideration of the needs identified in the global food plan. The flexibility of the EC's pledges permits UNHCR to draw amounts from the global tonnage quotas for listed recipient countries as they are required. Changes in allocations are allowed within the EC's overall commitment. The EC is also prepared to make donations on a case-by-case basis for refugee emergencies. Efforts are currently underway to channel some or all of the EC contributions for refugees through WFP, while retaining the special flexibility which UNHCR and the EC have shared in the past in meeting the needs of the refugees.

2.5.5 FRS approaches other potential donors to contribute to UNHCR's global food aid needs, and to fill the gaps in the food plan which will not be met through the commitments of WFP and the EC. Donors are encouraged to contribute in kind or in cash, with a minimum of conditions attached to their contribution. In-kind contributions may be channelled through WFP. Cash to purchase food commodities is essential in situations where local food preferences or regulations make local purchasing necessary, commodity quantities are insufficient to warrant international shipments, emergencies require it, or economic conditions impose it.

2.5.6 Assess each proposed donation carefully. Some donor countries tie their cash contributions to purchases in their own country, region or zone. Such conditions may be too restrictive to competitive bidding, or may limit procurement to a single supplier. Exercise caution in accepting in-kind donations of proprietary products from manufacturers who may be motivated, in part, by the potential to establish future market demand for their product.

2.5.7 All donations of food aid, in kind or in cash, must be reported to and accepted by FRS in Geneva before the donor arranges to deliver their contribution to the intended refugee group. Forward information concerning donations initiated in the recipient country to Headquarters. FRS, in consultation with the geographic desk and SFAS, confirms the suitability of the donation for its intended purpose, as well as the timing and terms of its delivery. Donations determined to be unacceptable are politely declined.

2.5.8 The UNHCR Guide to In-Kind Contributions in Emergency Situations provides useful information on UNHCR policy for in-kind contributions. This publication includes a list of recommended emergency donations, along with a list of unacceptable items, instructions for packing, labelling, quality control, shipping, documentation, customs clearance and insurance, and procedures for communications between donors and UNHCR.

Contribution Advice Forms (CAFs)

2.5.9 FRS records the details of each contribution to UNHCR on a CAF (see Annex IV for an example). Valuation of in-kind contributions, including associated shipping costs, is made at realistic market prices. FRS distributes copies of the CAF to all officers concerned, both at Headquarters and in the field. Related field office responsibilities and instructions are communicated in implementing instruments prepared at Headquarters.

2.5.10 SFAS coordinates detailed information on in-kind contributions concerning quantities, packaging, timeframe, costs and modalities of delivery, point of handover to UNHCR, insurance and inspection arrangements, and reporting requirements. Donors are encouraged to provide consignments on a C&F (cost and freight) basis, with insurance coverage under the UNHCR Worldwide Open Cover Marine Cargo insurance policy, provided the cost of insurance premiums can be recovered from the donor. Alternatively, donors may provide in-kind contributions free, unloaded at port of discharge, as is the case with EC donations. SFAS also makes international purchases from cash contributions according to the donors' conditions and defined project requirements.

2.5.11 To maintain UNHCR's credibility with its donors, every effort must be made to fulfil the terms of the donor agreement within the established timeframe. Particularly for cash contributions, donors may cancel funds not disbursed during their fiscal or budget year, or require unspent balances to be reimbursed at the end of a specified period.

2.5.12 If the UNHCR consignee is unable to use a donation, for whatever reason, inform the geographic desk at Headquarters immediately. Indicate what new factors have led to refusal of a donation previously accepted, and propose a solution to redirect or dispose of the goods if they have already been shipped or received. FRS must obtain the donor's approval for the recommended redirection or disposal action, for their sale or exchange, and the, use of any funds generated. Do not proceed without confirmation from Headquarters. On completion, submit to Headquarters a report concerning the disposition for forwarding to the donor.

2.6 Food Aid Channelled Through WFP

2.6.1 WFP food aid for refugees is provided to the government of the host country following a formal request from the government to WFP. UNHCR's role is primarily as a facilitator, advising on the suitability of various food commodities for refugees and identifying the required assistance levels. UNHCR and WFP officials in the field should also help governments to formulate their requests to WFP in Rome for emergency and longerterm assistance for refugees.

2.6.2 Most of WFP's refugee assistance comes from the International Emergency Food Reserve (IEFR), through which donors channel their multilateral emergency food aid. WFP donors' meetings are held annually where donors are requested to announce food pledges and the period of availability. WFP has also created a special category of food aid, called Directed Refugee Contributions (DRCs), to channel donor contributions which were made directly to UNHCR in the past.

2.6.3 WFP in Rome gives priority to the shipment of food for refugees and informs the SFAS Food Aid Coordination Officer at Headquarters of WFP food assistance for each emergency operation (EMOP) as it is approved. SFAS reciprocates by reporting regularly to WFP on all food aid contributions being channelled through UNHCR.

2.6.4 SFAS maintains contact with all focal points for refugee food aid at WFP in Rome, to know what food shipments are in process, the commodities and quantities involved, destinations and delivery schedules. The consignee for WFP food aid is normally the host government. Pertinent details are communicated to UNHCR field offices through the geographic desk. Information on WFP food shipments is necessary to coordinate the total food programme in the area of operations and to liaise with local WFP officials, the host government and implementing partners.

2.6.5 WFP food shipments are handed over to the consignee government at the port of discharge. Unless stated otherwise in the WFP/government Letter of Understanding, the government is responsible for discharging WFP food aid promptly from the carrier, customs clearance, adequate storage, inland transportation and distribution, as well as related expenses, taxes and duties. Deliveries are also subject to inspection by WFP or its appointed agents. At the field office level, when WFP notifies UNHCR concerning refugee food shipments en route, confirm that appropriate arrangements have been made with the government and implementing partners for prompt clearance and inland transportation to operational sites.

2.6.6 Where the government is unable to pay all or part of the inland transportation costs, UNHCR may pay these costs. UNHCR will be reimbursed up to 50 per cent if a WFP ITSH subsidy is subsequently approved. UNHCR must request this reimbursement, providing full supporting evidence of the delivery of the WFP food aid to the point of final destination. Therefore, record all local UNHCR transportation costs for WFP food aid.

2.6.7 With large quantities of basic foodstuffs on hand locally or in transit. WFP is often willing to allow UNHCR to borrow or exchange commodities needed immediately by the refugees. Borrowed in-country WFP stocks may be replaced when the next consignment arrives. Make such arrangements carefully, however, to avoid possible added ITSH costs if WFP requests the imported goods to be transported to the point of pick-up of the borrowed food supplies. WFP may also agree to exchange imported commodities against locally available food products. Exchange ratios must be carefully established in accordance with the respective values of the exchanged goods, and not simply on a straight ton-for-ton basis.

2.7 Shipping Modalities for Food Aid Contributions

2.7.1 For donations in kind, on receipt of the CAF and the donor agreement, SFAS establishes contact with the donor to coordinate and monitor the delivery of the food. Depending on the delivery terms of the donor agreement. SPAS may have to arrange for inspection services, insurance coverage or onward transportation at the port of discharge, in consultation with the UNHCR consignee field office. Instructions are provided to the donor, supplier or his agent which specify the necessary shipping documents and their required distribution to the consignee field office and UNHCR Headquarters. Copies of all communications are relayed to the consignee field office for information.

2.7.2 On receipt of the shipping documents for an in-kind contribution, SFAS prepares a memorandum to the consignee, referencing the applicable CAF, detailing the receiving and distribution reports required by Headquarters, and attaching one copy of all shipping documents and the UNHCR Distribution Report to be completed. These documents are sent to the consignee by the fastest means, usually by courier.

2.7.3 The UNHCR consignee field office is responsible for receiving and clearing the shipment, and reporting on its condition to SFAS at Headquarters promptly. See Chapter 4, Receipt of Shipments. Obtain a Takeover Certificate when the consignment is turned over to the implementing partner responsible for the refugee assistance project. See Chapter 8. Distribution and End-Use. Comply with the distribution reporting requirements stipulated in the CAF. A checklist to assist you in monitoring and reporting donor contributions is included in Annex V.

EC Food Donations

2.7.4 All EC food donations to UNHCR are provided «ex quay». UNHCR is not involved in the supply process, except as the consignee. The EC supplier must arrange, at his own expense, to transport the goods to the named destination, bearing all risks to the goods until they are unloaded, and all costs, including wharfage and unloading at the port of destination and any detention or demurrage charges. Where goods are supplied in cargo containers, they are delivered «free at terminal», and UNHCR is responsible only for destuffing the containers. UNHCR must also pay any costs or charges relating to customs formalities on importation of EC donations.

2.7.5 The supplier provides his own transport insurance coverage. Responsibility for filing insurance claims on EC shipments rests with him, and not UNHCR. Insurance coverage ceases when:

(a) the goods enter a UNHCR-rented warehouse in the port area; or

(b) the goods are placed, at UNHCR's initiative, on a vehicle or wagon for removal from the port area; or

(c) if neither of the above apply, 30 days after the date of completion of the discharge.

2.7.6 For each shipment, the EC appoints an inspection company, at its own expense, to check on loading that the quantity, quality and packaging comply with the provisions of the EC/supplier agreement. Inspection agents conduct the same checks at the port of discharge. When the inspections are completed, the company issues a certificate of conformity. SFAS, the supplier and the inspection company keep the UNHCR consignee field office informed on the progress of the shipment.

2.7.7 The UNHCR consignee field office takes delivery in the port of discharge or other named destination, having received the following documents:

(a) certificate of conformity;

(b) certificate of origin of the goods;

(c) commercial invoice, establishing the value of the goods and their transfer to UNHCR free of charge;

(d) gift certificate (if required);

(e) delivery note; and

(f) copy of the transport insurance certificate.

2.7.8 Provide an EC Taking-Over Certificate (see Annex VI) to the supplier, with a copy to SFAS at Headquarters, only for those goods and quantities received in good order.

2.8 Food Purchases

2.8.1 To meet the global food needs of refugees, UNHCR must purchase some quantities of food to augment supplies available from WFP and the contributions in-kind received from donors. Food purchases may be funded from earmarked cash donations received by FRS and recorded on a CAF or, in certain exceptional cases, as sectoral assistance from project budgets. Two kinds of purchases may be authorized:

(a) local or regional purchases by a UNHCR field office, when required food is known to be available in sufficient quantities and at a competitive cost, and the purchase may benefit the local economy; or

(b) international purchases by SPAS at Headquarters. From time to time, SFAS may seek purchasing assistance from WFP, when WFP can help UNHCR expeditiously and purchase at a lower cost.

2.8.2 Occasionally, donors may agree to supply commodities which UNHCR sells in the host country to provide funds to buy local surpluses of other products for refugees. This is most effective in countries which lack hard currencies to buy international foodstuffs in demand among the local population. As an example, the UNHCR field office in one African country obtained a donation of wheat flour. With the agreement of the donor, this consignment was sold in the host country and the proceeds were used to purchase local sorghum, preferred by the refugees.

2.8.3 Each UNHCR food purchase must comply with all purchasing, shipping, insurance and reporting requirements, including:

(a) specifications of the commodity, quantity, packing and labelling;

(b) preparation of a Quotation Request and competitive bidding;

(c) selection of the supplier and placement of the order;

(d) insurance and shipment;

(e) ensuring that the goods delivered meet the terms of the purchase agreement with respect to quantity, quality, price and delivery, and that a quality inspection is carried out immediately upon receipt;

(f) reporting receipt and condition of food purchases, and filing insurance claims as necessary; and

(g) distribution reporting, as specified in the LOI or the CAF.

2.8.4 All UNHCR food consignments are subject to an independent professional inspection of their quality and packaging, with a thorough laboratory analysis if there is any cause for suspicion that food is contaminated and unfit for human consumption. Contracts for food supplies stipulate that payment is subject to satisfactory inspection of the quality, quantity and packaging of the goods for the conditions of transit and storage.

2.8.5 Provide copies of all relevant documentation to the SFAS Food Aid Coordination Officer at Headquarters, for monitoring and tracking purposes.

2.9 Emergency Food Aid

2.9.1 When an immediate response is required, the focal point for UNHCR emergency food aid is in the UNHCR field office, in close consultation with the geographic desk at Headquarters and other personnel assigned to coordinate the emergency. Conduct an assessment of food needs for the refugee emergency with the assistance of local nutritional and health experts and WFP officials. Request additional resource personnel from Headquarters, as necessary. Consider the following options to meet emergency food needs:

- Borrow food supplies on hand, from the government, WFP or other international organizations, to be replaced as soon as possible by WFP or UNHCR.

- Purchase food locally, an excellent option if sufficient and sound foodstocks are available. Avoid causing significant local price increases, however. Do not buy supplies intended for and needed by the local population, and do not compete for supplies with other aid organizations. Beware of buying commodities which have already been donated free of charge under other aid programmes in the host country.

- Request an airlift of international supplies to meet immediate short-term needs.

- Request re-direction of international shipments en route to other destinations.

2.9.2 Determine the extent of WFP's capability to assist with the emergency. Involve local WFP officials in assessing, screening and registering the refugees. If SFAS at Headquarters and the local WFP office indicate that WFP in Rome can help to meet emergency food needs, cooperate with local WFP officials to help the host government establish an emergency food aid request and agreement with WFP.

2.9.3 In an emergency, normal management processes and organizational requirements can be accelerated on a priority basis, but they cannot be ignored. FRS and SFAS at Headquarters approach the normal sources of refugee food aid - WFP, the EC and other donors - to meet the emergency needs expeditiously, sometimes by a special appeal. The systematic planning and coordination of global food aid in SFAS permits a degree of flexibility which can allow for sudden changes in refugee situations. Assessing what food aid is in the delivery pipeline and what food stocks are on hand at various refugee locations can result in a decision to re-route food shipments to the refugee emergency.