Does ‘Manna from Heaven’ help? The role of cash transfers in disaster recovery—lessons from Fiji after Tropical Cyclone Winston

This paper contributes to the evidence on the effectiveness of shock-responsive social protection systems in helping affected households recover from the negative consequences of disasters. It evaluates the influence of the top-up cash transfers provided by the Government of Fiji to poor households in the wake of Tropical Cyclone Winston, which struck the Pacific Island country on 20 February 2016. The impact evaluation strategy incorporates a sharp regression discontinuity design to define treatment and control groups, based on the eligibility threshold of the poverty benefit scheme. The results indicate that treatment households—that is, those that received cash transfers—are significantly more likely to report quicker recovery from various shocks. Female-headed households are more likely to recover from the ramifications, whereas households with older heads are less likely to do so. The presence of a functioning market appears to be a major factor aiding the speed of recovery. Finally, the evidence points towards strong district effects on recovery.     

Targeting vulnerability after the 2005 earthquake: Pakistan's Livelihood Support Cash Grants programme

The 7.6 magnitude (Richter scale) earthquake that struck northern Pakistan on 8 October 2005 was devastating. This paper gauges success in targeting vulnerable families during the transition from relief to reconstruction through cash assistance provided by the Livelihood Support Cash Grants (LSCG) programme. Families without a male member, with a disabled male member aged between 18 and 60 years or with more than five children, defined as vulnerable, were provided with USD 50 per month for six months via a bank transfer. The LSCG scheme enrolled around 750,000 families and selected 267,402 vulnerable families to whom it disbursed a total of USD 86.95 million. Using a community‐based survey, this paper assesses leakage and under‐coverage (exclusion). Approximately 30 per cent of families received the cash grant. However, only one in two was eligible for the benefit, and one in two deserving families was excluded. This is a matter of grave concern.     

Does money work? Cash transfers to ex-combatants in disarmament, demobilisation and reintegration processes

This paper analyses the relevance and potential of cash transfers as part of the disarmament, demobilisation and reintegration (DDR) assistance packages provided to ex-combatants in transitions from war to peace. To this end, a theoretical framework is established that permits the identification of the advantages and disadvantages of using cash in DDR. Subsequently, an empirical analysis is carried out to compare selected theoretical assumptions on the use of cash with the reality of lessons learned from recent experience in Sierra Leone and other African countries. The study shows that some theoretical drawbacks commonly associated with the use of cash in DDR processes may indeed bear out in practice. At the same time, though, the paper argues that the utility of cash transfers in DDR is affected by a variety of factors that go far beyond the simple choice of employing cash, most notably decisions on payment location, eligibility criteria and targeting.     

‘Are you prepared?’ Representations and management of floods in Lomanikoro,Rewa (Fiji)

The islands of Fiji, in the Western Pacific, are exposed to a wide range of natural hazards. Tropical storms and associated floods are recurring natural phenomena, but it has been regularly alleged that Fijians lack preparation, over‐rely on state assistance in post‐disaster situations or engage in risky behaviours that aggravate the negative impact of floods. Risk reduction strategies, which are now implemented by government authorities and international organisations, heavily promote the principle of ‘community preparedness’. Both community awareness programmes and capacity‐building programmes are conducted throughout the country in the most vulnerable communities. This paper analyses how the inhabitants of Lomanikoro village, in the low areas of the Rewa Delta, perceive and manage existing flood risks. It examines social and cultural factors that contribute to shape risk response locally—in particular, why villagers may be reluctant to adopt some recommended preparedness measures and resettle in higher, safer zones.     

Humanitarianism,Pluralism and Ombudsmen: Do the Pieces Fit?

A variety of codes and standards for humanitarian assistance have been put forth in recent years. Many NGOs have agreed to abide by these codes. There is uncertainty, however, about if and how these codes are actually being put into practice. Have we moved from words to action? One response to this concern has been a proposal to establish a humanitarian ombudsman. This paper analyses two choices facing an eventual ombudsman: whether to attempt to take punitive actions to enforce the codes and standards, or whether instead to facilitate agencies' own internal efforts to improve accountability to their beneficiaries. It proposes a pluralistic approach, wherein a variety of methods, structures and local perceptions are accepted as potentially appropriate, but where a clear moral stance is still maintained. Some suggestions are outlined for how flexible forms of policy analysis may be used to combine an acceptance of the validity of a vast range of humanitarian actions while still retaining a strong stance against practices that may harm beneficiaries or feed the causes of conflict. Realism about each agency's room for manoeuvre is essential, especially local institutions. A modest but principled stance will involve helping actors to consider the impact of their work on conflict and to find ways to improve the quality of their interventions as perceived by beneficiaries.     

Investigating the key indicators for evaluating post‐disaster shelter

This study sought to identify the primary indicators for evaluating shelter assistance following natural disasters and then to develop a shelter evaluation instrument based on these indicators. Electronic databases and the ‘grey’ literature were scoured for publications with a relation to post‐disaster shelter assistance. Indicators for evaluating such assistance were extracted from these publications. In total, 1,525 indicators were extracted from 181 publications. A preliminary evaluation instrument was designed from these 1,525 indicators. Shelter experts checked the instrument for face and content validity, and it was revised subsequently based on their input. The revised instrument comprises a version for use by shelter agencies (48 questions that assess 23 indicators) and a version for use by beneficiaries (52 questions that assess 22 indicators). The instrument can serve as a standardised tool to enable groups to gauge whether or not the shelter assistance that they supply meets the needs of disaster‐affected populations.     

Food Targeting in Darfur: Save the Children Fund's Programme in 1986*

Emergency food aid has usually, if at all, been targeted through feeding centres. In Darfur, Sudan, SCF targeted food aid to the population on the basis of comprehensive household data. The decision to use this approach was taken in 1986 following the failure of both feeding centres and general distribution to meet emergency needs in 1984/85. This report outlines the development of the food targeting system and the types of data used for making allocations. Further research is required in order to find solutions to questions raised by the experience, such as: How can NGOs and government authorities arrive at a definition of need which is acceptable to local government and donors?; What is the most practical method for implementing a targeted programme to a proportion of the population?; Should individuals be given assistance which will enable them to remain in non-productive areas?; and would direct market intervention, food for work, or cash distribution be a more effective and less disruptive form of emergency aid in famine areas?     

Agricultural and non-agricultural settlements for drought-afflicted pastoralists in Somalia

The severe drought of 1973–1975 in Somalia had major impacts on pastoral populations, many of whom moved into specially established camps where food, water and medical assistance were provided by the government and international agencies. At the end of the drought it was decided to settle the remaining 120,000 people in six settlements, three of which were agricultural and three oriented towards fishing. This paper analyzes these settlements, with particular attention paid to agricultural systems, organization and socioeconomic characteristics. Some of the problems facing the settlements included their location, administrative structure and relative overemphasis on social services as opposed to development of production and income generating activities. It is shown that the socioeconomic viability of settlements would be enhanced if careful studies were undertaken beforehand and if a diversified development strategy were employed.     

Emergency seed aid in Kenya: some case study insights on lessons learned during the 1990s

This article reviews the effectiveness of seed-aid distributions in Kenya during the 1990s. It analyses the internal process and effects, i.e. the performance of the aid itself as well as the external process and effects, i.e. how seed-aid intervention affected farmers' broader agricultural management strategies. During the drought emergency of 1997, Kenyan farmers favourably judged many of the immediate seed-aid features such as crop and variety appropriateness and seed quality--even through the overarching goals of the seed assistance were muddled, ranging from assistance to the poor, to generalised gift-giving to stimulating progressive farming practice. However, the longer term analyses, drawn from recollections of a decade of relief activity, showed no concrete evidence that seed aid, per se, had strengthened their farming systems, nor that those who have received it once were less likely to receive it again. Thus, while seed aid has been promoted to lessen the effects of an 'acute' stress, drought, Kenyan farmers, in practice, have been experiencing much wider, 'chronic' seed system problems. This article ends by exploring this distinction between acute and chronic seed system stress and suggests a range of interventions appropriate to each.     

Transformative experiences for Hurricanes Katrina and Rita disaster volunteers

The massive destruction caused by Hurricanes Katrina and Rita in 2005 provided an opportunity for many volunteers to be involved with disaster relief work. Exposure to devastation and personal trauma can have long‐lasting and sometimes detrimental effects on people providing help. This qualitative study explored the experience of volunteer relief workers who provided disaster relief services after the hurricanes. Three major themes emerged: emotional reactions that included feelings of shock, fatigue, anger and grief as well as sleep disturbances; frustration with leadership; and life‐changing personal transformation. Stress reactions were noted but appeared to be mitigated by feelings of compassion for the victims and personal satisfaction in being able to provide assistance. Suggestions are provided for further research.     

The effectiveness of forecast-based humanitarian assistance in anticipation of extreme winters: a case study of vulnerable herders in Mongolia

This paper presents evidence relating to a forecast-based cash and non-food item distribution among vulnerable herder households during the 2017–18 dzud (extreme winter) season in Mongolia, and analyses the results of a quasi-experimental study evaluating its impacts. An innovative approach in disaster risk reduction, forecast-based financing (FbF) can have short- and long-term benefits to vulnerable households but remains understudied. The paper contributes information on a multimodal FbF programme offering one-off cash grants and in-kind veterinary kits. The data found significant effects of reduced mortality and increased offspring survival in some types of livestock, and that the timing of FbF assistance is crucial, as reported early assistance correlated to positive outcomes in terms of reduced animal mortality. These findings can be used to design more effective FbF interventions, to understand better the appropriateness of FbF designs, and to use early warnings and early actions to help people prepare and withstand disasters such as dzuds.     

Insiders and outsiders: local government and NGO engagement in disaster response in Guimaras,Philippines

This paper examines local government and non‐governmental organisation (NGO) engagement in disaster response in the wake of the M/T Solar 1 oil spill in Guimaras, Western Visayas, Philippines, on 11 August 2006. It assesses the response activities of these two entities as well as the institutional factors that affected their interaction on the ground. Local government and NGO engagement was shaped by multi‐layered, overlapping, and oftentimes contending government‐designed response frameworks. Within these frameworks, government actors played the role of primary implementer and provider of relief, allowing them to determine who could be involved and the extent of their involvement. The absence of formal roles for NGOs in these frameworks not only undermines their ability to work in a setting where such institutional set‐ups are operational but also it reaffirms their ‘outsider’ status. This study of the Guimaras oil spill illustrates the complexity and the institutional difficulties inherent in disaster response and coordination in the Philippines.     

Formal and informal material aid following the 2010 Haiti earthquake as reported by camp dwellers

Following the 2010 Haiti earthquake, more than two million people moved to temporary camps, most of which arose spontaneously in the days after the earthquake. This study focuses on the material assistance people in five Port‐au‐Prince camps reported receiving, noting the differences between assistance from formal aid agencies and from ‘informal’ sources such as family. Seven weeks after the earthquake, 32% of camp dwellers reported receiving no assistance whatsoever; 55% had received formal aid, typically a tent or tarpaulins; and 40% had received informal aid, usually in the form of cash transfers from family living abroad. While people were grateful for any material aid, cash was more frequently considered timely and more effective than aid‐in‐kind. Should this study be indicative of the greater displaced population, aid agencies should consider how they might make better use of cash transfers as an aid modality.     

Cash-based interventions: lessons from southern Somalia

Commodity distributions, the predominant relief response, are subject to growing criticism, while donors and humanitarian actors are increasingly viewing cash-based interventions as a viable alternative. This paper aims to contribute to the current debate on cash-based interventions by drawing on the experience of Action Contre la Faim in southern Somalia, where it has implemented cash for work programmes since 2004. The authors conclude that cash-based interventions are a feasible option in complex emergencies as well as in highly insecure environments as long as appropriate modalities are employed and objectives are clearly set in accordance with the needs and the context. Cash as a relief response offers wide-reaching possibilities for the future from both the perspective of the donor/agency and the standpoint of the beneficiary. It enables the beneficiaries to take control of the relief themselves and to adapt it to their individual requirements in a timely manner.     

Uncovering local perspectives on humanitarian assistance and its outcomes

This paper draws on a study of Angolan refugees in Zambia to suggest ways that the perspectives and interests of the local population can be included in the assessment of relief interventions. Taking an actor-oriented approach, the paper suggests stepping back from the categorisation of the situation as an emergency and particular groups of people as the beneficiaries. Such categories are imposed from outside and may not reflect local people's outlook on the situation. In the case of Angolans in Zambia, the category of refugees had dissolved in the border villages to the extent that it was practically impossible to distinguish between refugees and hosts. This was in contrast to the official settlements where people were marked out as refugees and the label was maintained and reproduced over many years. Investigating outcomes in the border villagers in terms of refugees and the refugee problem would have been futile. The paper calls for evaluations of humanitarian assistance in complex emergencies to look beyond the 'beneficiaries' and to investigate the wider context of 'normality'. Neglecting the life and world of local people will make it impossible to understand the process by which external interventions are mediated at the local level to give particular outcomes, and valuable lessons which could help alleviate suffering will be lost.     

International NGOs and the role of network centrality in humanitarian aid operations: a case study of coordination during the 2000 Mozambique floods

In February 2000, Mozambique suffered its worst flooding in almost 50 years: 699 people died and hundreds of thousands were displaced. Over 49 countries and 30 international non-governmental organisations provided humanitarian assistance. Coordination of disaster assistance is critical for effective humanitarian aid operations, but limited attention has been directed toward evaluating the system-wide structure of inter-organisational coordination during humanitarian operations. Network analysis methods were used to examine the structure of inter-organisational relations among 65 non-governmental organisations (NGOs) involved in the flood operations in Mozambique. Centrality scores were used to estimate NGO-specific potential for aid coordination and tested against NGO beneficiary numbers. The average number of relief- and recovery-period beneficiaries was significantly greater for NGOs with high relative to low centrality scores (p < 0.05). This report addresses the significance of these findings in the context of the Mozambican 2000 floods and the type of data required to evaluate system-wide coordination.     

Of timelines and timeliness: lessons from Typhoon Haiyan in early disaster response

Typhoon Haiyan struck the Philippines on 8 November 2013 with maximum sustained winds of 235 kilometres per hour, adversely affecting at least 11 million people and displacing some 673,000 in the central regions of the country. The disaster clearly overwhelmed the Philippine government despite its seemingly well‐crafted disaster management plan. Using timelines of different organisations, this paper identifies gaps in the government's response, mainly due to its failure in coordinating and managing relief operations, which adversely affected its effectiveness and efficiency in the delivery of critical goods and services following the disaster. The paper also demonstrates how non‐governmental organisations (NGOs), the United Nations, foreign governments and other organisations provided assistance, mainly through aid niching, to cover the government's shortcomings. The paper recommends a paradigm shift in the government's disaster response by integrating collaborative arrangements between government agencies and NGOs, and giving local governments the lead role, with the national government as support, in disaster planning and response.     

The role of social support and place attachment during hazard evacuation: the case of Sandy Lake First Nation,Canada

This paper examines how and if the post-disaster distribution of housing assistance in two cities of Bam, in Iran, and Bhuj, in India, fulfilled the broad aim of enabling the stricken population to achieve housing recovery. Drawing on interviews with stricken households and officials as well as document review, the paper provides an account of the housing assistance distribution policies in these cities as they were formed, evolved, interpreted, and implemented as well as the ways they were experienced by disaster-stricken people. The paper investigates who did not receive assistance, who did not recover (yet) despite receiving assistance, and – in contrast to these groups – who recovered/accumulated new assets during the recovery process. While in both cities public policies of assistance distribution expanded the capacity of the majority of the stricken people to recover, they failed to provide a timely and appropriate support for the recovery of lower income groups, tenants, and squatters, in line with their needs and priorities.     

Cash and voucher assistance along humanitarian supply chains: a literature review and directions for future research

This study reviews research on cash and voucher assistance (CVA) by applying a humanitarian supply chain management perspective. A systematic literature review was conducted to identify, analyse, and synthesise past academic research. The content, context, and process framework was used to structure the content analysis. The findings reveal that the outcomes of CVA programmes are dependent on critical context-specific variables that influence feasibility and operability. Humanitarian actors must consider factors that are external (the nature of disaster, politics, economy, and infrastructure) and internal (local market availability and accessibility, supplier/donor interest, supplier/vendor selection and contracting, and beneficiary preference) to the supply chain. The delivery process is influenced by them, impacting on programme responsiveness and cost-efficiency. The results provide insights that humanitarian practitioners can utilise to reconsider their supply chain strategies when deciding on the selection and implementation of CVA programmes. Potential literature gaps are identified, and recommendations for further research are provided.     

Information Exchange in the Disaster Zone: Interaction Between Aid Workers and Recipients in South Sudan

The author's experience of information collection and analysis in the Bahr-el-Ghazal region of south Sudan is reflected on here. The paper suggests that existing strategies of needs assessment are often based on misunderstandings about the cultural, social and economic conditions of war-affected communities. Furthermore, the needs assessment process has taken on a life of its own: for the intended beneficiaries it is often a wearying experience, but one which can yield benefits if the 'correct' answers are provided to sometimes ridiculous and often insensitive questions. For the assessors, participatory patterns of data collection provide an apparently scientific justification for decision-making in contexts characterised by complex political and moral dilemmas and organisational confusion.