Title: Protect the livelihoods and restore self-reliance of flood-affected households

Transcription

1 1 Emergency Operation Burkina Faso Title: Protect the livelihoods and restore self-reliance of flood-affected households BURKINA FASO EMOP Number of beneficiaries 77,000 Duration of project 4 months (1 October January 2011) Food tonnage WFP food cost WFP cash/voucher cost Total cost to WFP 607 mt Cost (United States dollars) US$333,260 US$1,687,500 US$2,756,609

2 2 As a result of exceptional rainfall in July-August 2010, floods have occurred in five regions of Burkina Faso, affecting more than 105,000 people and causing damage to key infrastructure. In response to the Government s request for emergency assistance, WFP provided general food rations to 65,000 flood victims living in temporary shelters or with host families under an immediate response emergency operation. The latest Government/ United Nations Country Team/non-governmental organizations (NGOs) emergency needs assessment indicates that flood victims have adopted detrimental coping strategies, which could seriously hamper their recovery. 1 Food-insecure floodsaffected families require a comprehensive relief assistance package to meet their acute needs, restore self-reliance and protect livelihoods. Based on the prevailing household food security and market situation, as well as on last year s flood response experience, the Government and stakeholders are strongly supportive of shortterm cash-for-work activities. This assistance modality will i) protect households livelihoods; ii) help them meet their essential food needs; and iii) retain people in their respective communities thus facilitating early recovery. Moreover, it will complement recovery interventions implemented by the Food and Agriculture Organization of the United Nations, the United Nations Children s Fund and NGOs and stimulate consumers demand, hence boosting the local economy. WFP piloted cash transfers in Burkina Faso in 2009 to respond to the high food prices crisis and the flood emergency. The impact evaluation highlighted that cash transfers protected beneficiaries access to food and health-care. For most households, it also created the conditions to undertake more sustainable income-generating activities enhancing self-reliance and enabling the phase out of WFP assistance. Cash-for-work activities will be implemented in the three most affected regions (Centre- North, Sahel and East). To prevent a surge in acute malnutrition, WFP will also provide blanket supplementary feeding to children 6-59 months and targeted supplementary feeding for malnourished pregnant and lactating women. Nutrition activities will target only Sahel and East regions as Centre-North is already covered under the ongoing protracted relief and recovery operation (PRRO ). This EMOP is in line with the United Nations and Government plans and strategies to respond to the floods. It will address WFP Strategic Objective 1 (Save lives and protect livelihoods in emergencies) and contributes to Millennium Development Goals 1 (eradicate extreme poverty and hunger) and 4 (reduce child mortality). Its specific objectives are to: i) 1 Government/UNCT/NGOs: Emergency Needs Assessment in the flood affected areas, August 2010.

3 3 ensure adequate food energy and micronutrient intake and stabilize acute malnutrition among children under 5 and pregnant and lactating women; and ii) protect households livelihoods and restore self-reliance. The overall context 1. Burkina Faso is a Sahelian country highly exposed to natural hazards (drought and floods) compounded by the recent economic and high food prices crises. It is one of the world s poorest countries, ranking 131 out of 135 in the Human Poverty Index and 177 out of 182 in the Human Development Index Over the past ten years the frequency of floods with devastating consequences, including the 2009 floods that severely affected the capital Ouagadougou, has sharply increased. In July-August 2010, five regions (Centre-Nord, Hauts-Bassins, Est, Sahel and Plateau Central) recorded exceptional rainfall, over 200 mm per 24 hour. Official figures, issued by the Ministry of Social Affairs, indicate that more than 105,000 people were severely affected and 17 have lost their lives. 3. Severe damage was reported to homes and infrastructure such as bridges, roads, health centers, schools and wells/boreholes. Damage to infrastructure has been extensive. The dams of Tougouri and Yalgo have burst, a number of roads and bridges have been washed away, local markets have been destroyed and in some cases entire villages were under water for several weeks. 3 Many flood victims are staying with host families while some remain near or in their damaged homes. In August, the Government made an official request for emergency assistance to the United Nations Resident Coordinator (RC). Through an immediate response emergency operation (IR-EMOP ), WFP provided general food rations to 65,000 flood victims living in temporary shelters or with host families in August/September. 2 UNDP, Human Development Report, Bouroum local market damage and losses are estimated at US$200,000.

4 4 The food security and nutrition situation 4. Since late-2007, food security in Burkina Faso has been adversely affected by a series of shocks including the high fuel and food prices and declining cotton prices on the international market. Furthermore, increased weather hazards have resulted in frequent floods and droughts. The lack of national safety net programs and an annual population growth of more than 3 percent have hampered the Government s capacity to significantly reduce poverty. In response to shocks, poor households have reduced food consumption, raising nutritional risks for children under 5 and pregnant and lactating women in both urban and rural areas. 4 Regular food security monitoring by the Ministry of Agriculture, WFP, Famine Early-Warning System Network (FEWSNET) and other partners have consistently reported the very low purchasing power of the population and the precarious livestock conditions. 5. The recent floods have hit some of the most vulnerable and food-insecure regions (Center-North, Sahel and East). They occurred at the start of the lean season, when a large part of the affected population was already surviving on one meal a day. They lost their homes, assets, food stocks, crops and livestock. Damage to agricultural land has left the poorest small-scale farmers with no source of income until next year s harvest. 5 Given the high prevalence of poverty and food insecurity in the affected areas (the 2008 comprehensive food security and vulnerability analysis found that almost 50 percent of households are exposed to high levels of food insecurity), the pressure upon host families in terms of accommodation, food and other basic needs such as medicine is unsustainable. 6. The August 2010 government/unct/ngo emergency needs assessment drew attention to the negative coping strategies being adopted by the flood victims to cope with the emergency. The quantity and quality of food consumption has declined for both adults and children, many households are selling their livestock and indicated that they will not be able to afford to enrol children in school in October. 7. Preliminary findings from the recent (April/May 2010) WFP nutrition baseline survey 6 highlighted a rapid escalation of acute malnutrition among children under 5 in the most foodinsecure regions as a result of the November 2009 production shortfall. In the Sahel and East regions, 20 percent of children under 5 were found to be wasted compared to 13.2 percent and 12 percent respectively in August/September Given the alarming nutritional situation and the limited availability of income-generating activities in the northern regions, the recent floods are a major threat to the lives and food security of the affected households. The August 2010 Government/UNCT/NGOs emergency needs assessment confirmed that short-term cash-for-work (CFW) activities focusing on protecting households livelihoods and community productive assets 7 would: i) help households meet their basic food needs; ii) protect households livelihoods; and iii) discourage out-migration which further hampers communities capacity to quickly recover. CFW will also stimulate consumers 4 Ministry of Agriculture, Water and Fisheries: Comprehensive Food Security, Vulnerability and Nutrition Analysis (CFSVA), Government of Burkina Faso, 2010 Floods Emergency Response Plan, August WFP: Nutrition survey in the five priority regions (Sahel, North, East, Center-west and South-west) targeted by PRRO , June Examples of community assets include low-land plots for horticulture, water-management facilities, feeder roads for trade and market supply.

5 5 demand thus boosting the local markets, which were found to be functioning well despite the cereal harvest shortfall in these regions; they have been regularly supplied and prices have remained stable as a result of the Government s large-scale subsidized sales, negotiations with traders to avoid hoarding, and exports limitation. Scenarios 8. The rainy season will last until early/mid-october and there is a high probability of new floods displacing additional households and putting an unbearable strain on communities kinship and social support mechanisms. It is expected that communities will be back to their pre-crisis situation by early 2011 if the emergency assistance is provided on time. Policies, capacities and actions of the Government 9. The government contingency plan was activated at the onset of the emergency. A government reconnaissance mission including the Minister of Social Affairs, Minister of Agriculture, and Minister of Decentralization and Regional Administration along with the President of Burkina Faso Red Cross, visited the affected regions within the initial 48 hours. A rapid emergency needs assessment mission was also deployed by the Ministry of Agriculture with WFP participation. 10. The National Council of Relief and Rehabilitation (CONASUR) distributed some 141 mt of cereals and 3 mt of cooking oil. This assistance, though inadequate to meet the overall food needs, was timely to address the immediate food needs of the displaced households. Considering its limited resources, the Government sent in August a formal request for emergency assistance to the United Nations Resident Coordinator. Policies, capacities and actions of other major actors 11. In response to the government request for assistance, the humanitarian country team prepared an Emergency Humanitarian Action Plan (EHAP) in consultation with the Government. The EHAP issued early September plans to cover the needs of 105,000 floods-affected people. The appeal amounting to US$14.2 million includes projects from United Nations organizations and NGOs. 12. The main government partners for the immediate response and early recovery were the United Nations Children s Fund (UNICEF), WFP, the national Red Cross, and NGOs such as Save the Children Canada, Plan International, Caritas/Organisation Catholique pour le Développement et la Solidarité (OCADES), Action Contre la Faim (ACF Action against hunger) and Christian Aid. 13. UNICEF, the World Health Organization (WHO) and the United Nations Population Fund (UNFPA) supplied essential non-food items (mosquito nets, water purification, etc.)

6 6 to reduce the spread of diseases and improve the living conditions of flood victims in the temporary shelters. Coordination 14. According to the National Multi-Hazard Disaster Preparedness and Response Plan approved in April 2010, the overall humanitarian response is being organized through the Humanitarian Country Team headed by the RC. The RC, in collaboration with WFP, chairs the inter-agency humanitarian working group which also includes CONASUR, the Government s relevant departments, United Nations agencies, the Red Cross and Red Crescent Movement and NGOs. OBJECTIVES OF WFP ASSISTANCE 15. This EMOP is in line with WFP Strategic Objective 1 - save lives and protect livelihoods in emergencies. It will also contribute to the achievement of the Millennium Development Goals 1 (eradicate extreme poverty and hunger) and 4 (reduce child mortality. 16. The specific objectives are to: ensure adequate energy and micronutrient intake and stabilize acute malnutrition among children 6-59 months and malnourished pregnant and lactating women through supplementary fortified food rations; and protect the livelihoods of affected communities and restore households self-reliance by implementing conditional cash transfers (cash for work). 17. Cash for work: An estimated 8,000 households or 65,000 people in the three most affected regions (Centre-North, Sahel and East) have either lost their houses or were compelled to abandon them. Considering the high prevalence of food insecurity in these regions, 8 all displaced people are presumably food-insecure and in need of relief food assistance. WFP will assist them through CFW activities aimed at protecting livelihoods and enhancing self-reliance and complementing FAO and UNICEF recovery programs in the livestock and education sectors. 18. Based on last year s experience in responding to the flood emergency, local stakeholders are unanimously in favour of short-term conditional cash transfers to assist beneficiaries. Cash-based interventions are expected to be most appropriate to rapidly enhance the population s self reliance. Analyses have also shown that cash can be marginally more 8 Ministry of Agriculture, Water and Fisheries: Comprehensive Household Food Security, Vulnerability and Nutrition Analysis, Ouagadougou, 2008.

7 7 cost efficient than food transfers. Finally, cash transfers were found to more practical than vouchers in the targeted rural areas where households buy food from daily/weekly markets and where the number of shops and their credit capacity is very limited. 19. WFP piloted cash transfers in 2009 to respond to the high food prices and flood emergencies. The impact evaluation highlighted the protective effects of cash on beneficiaries in terms of access to food and health care. The majority of households had increased the number, quantity and quality of their meals. Moreover, 55 percent of the beneficiary households reported that cash transfers had enabled a shift toward sustainable sources of income thus enhancing their self-reliance and facilitating the phasing out of assistance. The impact on the local economy was also positive although the amount of cash transferred to households was only percent of the lowest quintile income Supplementary feeding: Given the very high malnutrition rates, WFP will also provide blanket supplementary feeding to all children 6-59 months. Targeted supplementary feeding will benefit malnourished pregnant and lactating women. 10 Nutrition activities will be implemented only in Sahel and East regions as Centre-North is already covered under the ongoing protracted relief and recovery operation (PRRO ). This component will complement UNICEF interventions to address severe acute malnutrition and micronutrient deficiencies. The joint WFP/UNICEF response will tackle the various forms of undernutrition with the appropriate products (vitamin A supplementation, fortified foods, plumpy nut, etc.) to effectively save the lives of children in the affected regions. TABLE 1. BENEFICIARIES BY ACTIVITY TYPE Activity Male Female Total Supplementary feeding - Children 6-59 months Supplementary feeding Pregnant and lactating women 10,750 10,750 21,500 3,500 3,500 Cash for work* 32,000 33,000 65,000 Total** 35,000 42,000 77,000 * One or two members per household will participate in CFW, i.e. 15,000 participants. **The total beneficiary figure has been adjusted downwards to avoid overlap of beneficiaries assisted under both activities. 9 This refers to EMOP Emergency response to High Food Prices in Burkina Faso main cities which assisted very poor households for 18 months. Cash transfer assistance to respond to the 2009 flood emergency was short-term (three months). 10 Targeting criteria for pregnant women is mid-upper arm circumference <21 cm and for lactating mothers Body Mass Index >16 and <17 or with a less than 6 months old underweight baby.

8 8 21. Under CFW, WFP will target people living in temporary shelters or with host families, having lost their productive assets, whose main source of income is from subsistence agriculture and/or livestock. They will be selected by WFP cooperating partners to undertake community works. WFP staff will randomly verify the beneficiary selection and their eligibility to receive assistance. However, a certain degree of self-targeting is also expected given that participants will receive the minimum daily wage. 22. CFW activities will be labour-intensive, small scale and of short-duration - three months - starting immediately after the harvest in October/November. The emergency needs assessment indicated that markets should perform normally. 11 The short duration of assistance and the relatively small amount of money transferred to each participant on a fortnightly frequency will keep inflation risk to the minimum. Although market prices are expected to remain stable, as the cash transfer will be undertaken during the post-harvest season, WFP will regularly monitor market prices. 23. To maximize the effectiveness of the assistance to the affected population, a maximum of two persons per household will be eligible to take part in the CFW program. Exceptions will be made for very large polygamist households where each woman and her children will be considered as one household. About 8,000 displaced households are eligible for relief assistance, 12 and the expected number of participants is around 15,000. Based on an average household size of eight in rural areas, the estimated number of beneficiaries is 65, The monthly cash transfer corresponds to about 65 percent of Burkina Faso s minimum wage. Taking into account the average share of household expenditure for food in the targeted areas, this corresponds to almost 100 percent households food needs. 13 Cash transfers are conditional upon participation in community works and the amount is proportional to the number of worked days. It is estimated that participants will work about 15 days per month and they will receive the monthly cash transfer in two instalments. 25. As fortified foods are not available in village shops and markets, these will be directly distributed to the vulnerable groups. Supplementary food rations for children 6-59 months and moderately malnourished pregnant and lactating women will include enhanced micronutrient-rich commodities such as improved corn-soya blend (CSB) and vegetable oil. 14 In compliance with the National Protocol for Malnutrition Management, all beneficiaries will be assisted for 3 months. 11 Government/UNCT/NGOs: Emergency Needs Assessment in the flood affected areas, August Government/UNCT/NGOs emergency needs assessment s findings, August If converted into cereal equivalent the monthly cash transfer corresponds to 100 kg during the lean season and 150 kg at the harvest. 14 Fortified with vitamins A and D.

9 9 TABLE 2: DAILY FOOD RATION/ CASH TRANSFER BY ACTIVITY (person/day) Commodity/ Cash Supplementary feeding (g) Cash for work (US$) CSB 250 Vegetable Oil 20 Cash (US$ /person/day) US$ 2.5 Total 270 US$ 2.5 Total kcal/day 1,127 % Kcal from protein 12% % Kcal from fat 28% TABLE 3: TOTAL FOOD/CASH REQUIREMENTS BY ACTIVITY (mt) Commodity / Cash Supplementary feeding Cash for work Total (mt / US$) CSB Vegetable Oil Cash transfers (US$) 1,687,500 1,687,500 Total 607 mt US$1,687, Cash for work: Technical assistance, tools and inputs will be delivered by national and international NGO partners, including Save the Children Canada, Christian Aid, Helvetia, Red Cross, Oxfam and others, which have experience with CFW in rural areas. Prior to the implementation, orientation sessions will be organized to inform community members on the modalities of the operation. Cooperating partners will be responsible for producing participants lists, including an identification number for identity verification when the cash is transferred. WFP will issue individual beneficiary cards used to register and receive the cash transfer. Cooperating partners will facilitate the creation of a management committee in each targeted community which should include at least 50 percent women. The committee is responsible for recording on attendance sheets the people who worked and for how many days. 27. WFP has developed procedures to ensure beneficiaries and cooperating partner staff s safety when distributing cash and to reduce fraud and theft risks. Monthly wire transfers will be made to the bank closest to distribution sites. WFP will sign a field-level agreement with a microfinance organization which will be responsible for payments to participants clustered into relatively small groups and at different payment dates to reduce the amount of cash at the distribution site. Beneficiaries will sign (finger print) both the beneficiary card and the distribution list to confirm that they received the correct amount of cash. WFP monitors will make verification visits to check beneficiary lists, entitlements and distribution modalities.

10 Supplementary feeding: Children 6-59 months and undernourished pregnant and lactating women will receive monthly supplementary rations of 7.5 kg of CSB and 600 g of vegetable oil through government health centres. Health centre personnel will conduct complementary activities for nutrition rehabilitation and malnutrition prevention. Given the limited quantities of locally produced, micronutrient-fortified commodities, WFP will procure most products internationally. 29. The comprehensive monitoring and evaluation (M&E) system developed for the 2009 voucher distribution and the on-going PRRO will be used to report on the operation results. Given the short duration of the assistance, M&E activities will focus on measuring households access to food and the nutrition situation. 30. WFP staff will regularly assess the appropriateness of the response and food security trends. Post-distribution monitoring will inform on the use of assistance by beneficiaries. Cooperating partners will be responsible for reporting on outputs, including the number of participants, amount of cash distributed, assets rehabilitated, etc. 31. At the end of the operation, monitoring data will be used to draw lessons to enhance the effectiveness of similar interventions in the future. An impact study will also be undertaken to evaluate the direct benefits of the cash transfer on households food security. 32. The operation aims at facilitating early recovery of flood-affected communities and households. It is expected that communities will be back to their pre-crisis situation by early 2011 if the emergency assistance is provided on time. 33. Measures to prevent or mitigate the impact of future similar shocks remain of paramount importance. WFP country programme ( ) will address structural food insecurity which typically prevents communities from being able to put in place such measures. Furthermore, as the lead agency on emergency preparedness and response under the United Nations Development Assistance Framework joint programme, WFP will ensure that a capacity-building strategy is clearly defined by the end of 2010.

11 11 Hazard and Risk assessment 34. The political situation in Burkina Faso is stable and there are no signs that this will change in the short term. Therefore, it is unlikely that security issues will prevent or limit the implementation of this operation. 35. WFP cooperating partners have proven their ability to implement the planned activities. The success of the operation will depend on timely funding. The lack of timely resources will prevent the timely implementation of CFW activities, compromising the recovery process. Preparedness Planning 36. WFP chairs the inter-agency humanitarian thematic group and it is also a key technical partner in the national early-warning working group. An inter-agency emergency contingency plan is available and regularly updated by the inter-agency humanitarian group. 37. Given Burkina Faso s stable political situation, minimum operating security standards (MOSS) and minimum operating residential security standards (MORSS) for countries under United Nations security phase zero are applied to ensure the security of WFP staff, partners, beneficiaries and supplies. 38. The Deputy Executive Director, COO - Operations and Management Department is requested to approve the proposed emergency operation (Burkina Faso EMOP ) under the delegated authority of the Executive Director. Amir Abdulla Deputy Executive Director and COO Date:

12 12 ANNEX I-A Food 15 PROJECT COST BREAKDOWN Quantity (mt) Value (US$) Oil and fats 45 43,830 Mixed and blended food ,430 Total food ,260 Cash transfers 1,687,500 Subtotal food and transfers 607 2,020,760 Value (US$) External transport 40,109 Landside transport, storage and handling 137,461 Other direct operational costs 202,077 Direct support costs 16 (see Annex I-B details) 175,863 Total direct project costs 2,576,270 Indirect support costs (7%) ,339 TOTAL WFP COSTS 2,756, This is a notional food basket for budgeting and approval. The contents may vary. 16 Indicative figure for information purposes. The direct support costs allotment is reviewed annually. 17 The indirect support cost rate may be amended by the Board during the project.

13 13 ANNEX I-B DIRECT SUPPORT REQUIREMENTS (US$) Staff and staff-related costs International Professional Staff 32,990 International GS Staff Local Staff - National Officers 15,000 Local Staff - General Service Local Staff - Temporary assistance 57,733 Local Staff - Overtime 3,200 Hazard Pay & Hardship Allowance International Consultants 26,400 Local Consultants 9,167 Non Staff HR: UNV Commercial Consultancy Services Staff duty travel 6,789 Subtotal 151,279 Recurring Expenses Rental of Facility 480 Utilities General 385 Office Supplies and Other Consumables 940 Communications and IT Services 2818 Equipment Repair and Maintenance 980 Vehicle Running Cost and Maintenance 3055 Office Set-up and Repairs 390 UN Organization Services Subtotal 9,048 Equipment and Capital Costs Vehicle leasing 6,800 TC/IT Equipment 8,736 Local Security Costs Subtotal TOTAL DIRECT SUPPORT COSTS 175,863

14 14 ANNEX II - LOGICAL FRAMEWORK SUMMARY Burkina Faso EMOP Results-Chain (Logic Model) Performance Indicators Risks, Assumptions STRATEGIC OBJECTIVE 1: Save lives and protect livelihoods in Emergencies Outcome Stabilize acute malnutrition of children under 5 in targeted emergency-affected populations Output Food and non-food items distributed in sufficient quantity and quality to targeted women, men, girls and boys under secure conditions Outcome Improved food consumption over assistance period for targeted emergency-affected households Prevalence of wasting among children under 5 <= 10% (weight-for-height) Number of women, men, girls and boys receiving food and non-food items, by category and as % of planned figures Tonnage of food distributed, by type, as % of planned distribution a) Quantity of fortified foods, complementary foods and special nutritional products distributed, by type, as % of planned distribution b) Quantity of fortified foods, complementary foods and special nutritional products distributed, by type, as % of actual distribution Quantity of non-food items distributed, by type, as % of planned distribution Total amount of cash distributed, as % of planned distribution Number of security incidents Household food consumption score Timely and adequate pledges to assist beneficiaries according to operation plan. Supplementary feeding beneficiaries and cash-for work participants are able to regularly participate in planned activities. Market supply and prices remain stable; Additional demand does not create inflation;

15 15 Output 2 See Output 1.1 See Output 1.1 indicators Supplementary feeding beneficiaries and cash-for work participants are able to regularly participate in planned activities.

16 16 ANNEX III - LIST OF ACRONYMS CFSVA CONASUR CSB EMOP FAO FEWSNET M&E MORSS MOSS NGO PRRO UNCT UNDAF UNFPA UNICEF WHO Comprehensive food security, vulnerability and nutrition analysis Conseil National de Secours d Urgence et Réhabilitation Corn-soya blend Emergency operation Food and Agriculture Organization Famine Early Warning System Network Monitoring and evaluation Minimum Operating Residential Security Standards Minimum Operating Security Standards Non-governmental organization Protracted relief and recovery operation United Nations Country Team United Nations Development Assistance Framework United Nations Population Fund United Nations Children s Fund World Health Organization

17 ANNEX IV MAP 17