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UNIT 12 DISTRIBUTION OF RELIEF MATERIAL

Structure
12.0 Learning Outcome
12.1 Introduction
12.2 Steps in Relief Distribution
12.3 Types of Programmes and Distribution Systems
12.4 Logistics
12.5 Problems in Relief Administration
12.6 Conclusion
12.7 Key Concepts
12.8 References and Further Reading
12.9 Activities

12.0 LEARNING OUTCOME

After studying this Unit, you should be able to:
z Highlight the modalities of relief material management and distribution;
z Understand various types of relief activities and planning required for relief operations;
and
z Explain the process of relief in detail, including issues like logistics.

12.1 INTRODUCTION
Relief means meeting the immediate needs for food, clothing, shelter and medical aid for
disaster victims. It provides assistance to save lives and alleviate suffering in the hours,
days and weeks following a disaster. For high impact rapid onset disasters like earthquakes,
relief operations have to be launched at very short notice and at very large scale. For
creeping disasters like droughts the relief period may prolong to months or even years.
The two-dominant/critical issues in relief distribution are politicisation of relief and the
problem of ‘scarcity amidst plenty’. In this Unit, there shall be an endeavour to
understand the two problems and explore ways to evolve a better mechanism of relief
distribution/procurement by understanding of constraints in the present arrangements.

12.2 STEPS IN RELIEF DISTRIBUTION

z Planning for Relief Distribution
Keeping in mind the panic that arises during any disaster, it is essential to plan before
hand to ensure that the distribution of relief material in the immediate aftermath of a
disaster is efficient and effective. An effective relief operation is more realistic if correlated
with an efficient disaster preparedness plan. Every major disaster’s impact could be
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240 Disaster Management

contained effectively to a certain extent and the loss minimised if a good preparedness
plan is in force. Given below are some of the steps that should be taken before the
disaster.
1) Establishment of Early Warning Systems
Science and technology in India have advanced and developed considerably to a state
whereby early warnings in case of disasters like floods and cyclones are a reality. All
agencies involved in disaster relief operations should monitor the information discharged by
the early warning system and should be in touch with the concerned government agencies
at regular intervals for up-to-date information on the setting-in and the progress of
disasters like cyclones and floods. This would facilitate relief agencies to get prepared and
ready for effective disaster relief operations. Agencies working in the areas should monitor
the updates from the forecasting and warning agencies and should pass the information on
to the others.
2) Liaison at the District Administration Level
Liaison with the various concerned departments at the district level in the disaster-prone
areas prior to the manifestation of the disaster would open up better opportunity for the
coordination, preparedness and relief operations. Coordination with the local government
agencies is very essential for an effective operation and for the related formalities. A
healthy relation with the government departments would also ensure the possibility to avail
the infrastructure back up available with them. Entry into a disaster zone, if declared
prohibited due to some reasons, would be easy if a healthy and positive relation is
maintained with the district administration and they are aware of the credentials and
capabilities of the organisation.
3) Planning with the “population-at-risk”
Planning with the ‘population- at- risk’ is very important in disaster preparedness and
relief activities. This would enable the identification of the local resources, capabilities and
existing facilities of the target or hit-areas. An interaction with the ‘population- at- risk’
would also generate a confidence in them to play a positive role in the relief operations
in the aftermath of a disaster. A positive attitude thus generated within the population itself
would contribute towards the disaster preparedness. It would also enable the planning of
an effective relief operation, should the need arise.
4) List of Contact Persons
List of contact persons is an important element of disaster relief preparedness. List of
responsible people from various concerned fields of operation in the probable disaster
zones will help the coordination of the post-disaster activities there. Most of the relief
agencies that rush to the disaster areas find it difficult to establish themselves during the
first few days. Local contacts will enable a smooth entry to the disaster zone. The list
of contact persons may be drawn from local emergency organisations, nodal government
officials, non-governmental and community based organisations, prominent citizens of the
locality who are interested in the issue, or those who are employed or involved with
educational, religious and social service organisations.
5) Pre-Stocking
Pre-stocking of relief materials is always useful in making relief operations effective
immediately. Pre-stocking will avoid the last minute rush to procure the materials, which
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Distribution of Relief Material 241

invariably would be in short supply after a disaster and will require time to procure, pack
and transport. Materials for pre-stocking may include food grains, blankets, basic medical
supplies, clothing, utensils, tents and other back-up equipment.
6) Alternate Routes
Alternate routes for the movement of the relief materials form other parts of the district,
state or country into the disaster zone should be well worked out in advance. There is
a chance that the direct route linking the disaster site with the regional centres would be
cut off or else choked with traffic of outbound survivors or inbound relief teams.
Continuous supply chain of the relief materials to the field teams is very critical and must
be ensured through back-up routes.
7) Training And Education
Training and education is a very important component for ensuring sound disaster relief
preparedness that will help make relief operations efficient. Training and education is
essential both for the population ‘at- risk’ and the implementing personnel. The training
and education aspect will have to be of a continuing nature to keep the system operational
at its most efficient level at all times by keeping people reminded of their roles and by
training and educating any new people that join at any time.
8) Mapping
Mapping is useful for coordination as it provides spatial distribution of information items
including hazards, vulnerabilities and capacities. Maps should be prepared and maintained
in an updated state in advance, with the following information marked on them:
z Hazards
z Natural features
z Settlement details with housing and other activity areas
z Vulnerable areas (high density, poor buildings, low-lying, etc.)
z Availability of materials
z Communication routes: Road/Rail/Air/Water
z Alternate routes
z Areas for evacuation
z Locations for potential relief camp sites
z Source/alternate source for water/food
z Location for warehousing/facilities
The Maps may be prepared at the following levels:
z Village/neighbourhood level
z Taluk /mandal/ town level
z District level
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242 Disaster Management

z State level
z Zonal level
z National level
z Time Factor
Time factor is an important aspect to be considered in an immediate disaster relief
operation. An effective relief operation should be launched within hours and may need to
continue for up to a few weeks, depending on the intensity of the disaster. A speedy
operation would be more beneficial to the disaster victims since their very life and survival
is at stake after a disaster.

12.3 TYPES OF PROGRAMMES AND DISTRIBUTION

SYSTEMS
I) Feeding Programmes
Feeding programmes aim to provide individuals with free food to make up the difference
between supplies at hand and basic needs. Where feeding is considered necessary for
particular population groups, it may be provided in the form of cooked meals or dry
rations. In practice, if feeding is necessary at all, an integrated package of measures
should be envisaged, which is appropriate to local socio-economic situation as well as
observed nutritional needs. The very clear separation, which is often made between
general, and supplementary feeding, may not always be appropriate. The feeding
programme, either the distribution of dry ration or arrangements for the distribution of
cooked food, should be limited to the shortest possible duration. The duration may be ten
days to fifteen days after the onset of disasters like floods and cyclones. For drought, a
different strategy may be adopted, whereby a long-term food support programme may be
necessary.
There are three types of feeding:
z General Feeding: Basic food/meals are provided for all members of all households
within particular population groups affected by the disaster. Locally available food
and which is more acceptable is provided. General feeding can be of two types: (1)
Distribution of dry ration, (2) Distribution of cooked food.
z Supplementary Feeding: Additional food is given to select nutritionally vulnerable
individuals to compensate for specific deficiencies. Usually, supplementary feeding is
given to children and expectant/lactating mothers. Supplementary feeding can be in
the nature of distributing high-energy biscuits/cakes or powder mix. However, proper
instructions for the consumption or dosage should be well explained to the beneficiaries
before distributing the same.
z Therapeutic Feeding: This type of feeding is usually undertaken for nutritional
rehabilitation. Special intensive feeding is provided under close medical supervision for
severely mal-nourished persons, usually children and old persons.
II) Distribution of Dry Ration
Distribution of dry ration is suitable where the disaster victims can cook themselves. It is
also good since it involves the beneficiaries and keeps them busy instead of their sitting
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Distribution of Relief Material 243

idle and thinking of their trauma. It is better that the distribution is limited to ten to fifteen
days’ ration. Taking the logistic considerations, it is advisable that the ration quantity for
the whole intended period is given to the victims at a time.
The procedure for the distribution may be as follows:
z Survey door-to-door in the target area/village and distribute tokens to each household
against their acknowledgement on the beneficiaries list;
z Seek the help of local level government and local leaders while surveying. This will
help eliminate duplications and identify the genuine beneficiaries;
z Ask the beneficiaries to collect the ration against production of the token handed
over to them, collectively from the distribution point at an appointed time and place;
z Ensure that the distribution is made in the presence of a local government worker
deputed by the District Administration. This is to facilitate transparency with the
community as well as government authorities;
z Enforce strict crowd management while distribution takes place. If necessary seek the
assistance of police;
z Distribution sites may be a public institution in the area, centrally located or the base
camp office.
III) Distribution of Cooked Food
Logistic and management problems are more while attempting the distribution of cooked
food to the disaster victims. It is always a healthy practice if victims themselves can
organise the cooking and distribution process for their community. Distribution of cooked
food should be resorted to only when there is no capacity in the families to cook their
food, and it should be continued for the shortest possible time. The procedure may be
as follows:
A) Where community cooking/feeding is possible:
z Organise the disaster victims to formulate a committee and assess the food/cooking
requirements for the community to be fed;
z Concentrate on simple diet consisting of food items that are easily available in the
market or at least in the district headquarters;
z Assess the number of days for which food aid is necessary and supply the
community with at least 5 to 7 days of food stock and cooking requirements at a
time;
z Cooking vessels may be purchased and provided to the committee. The community
may use these vessels in the future for common purposes;
z Enforce strict supervision in regard to hygiene during cooking of the food and its
distribution. Enforce discipline and crowd management systems;
z Ensure availability of good drinking water and maintain all sanitary/hygiene aspects in
the kitchens;
z Open the kitchen for feeding at pre-determined timings only; and
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244 Disaster Management

z Food to be cooked should be on a thorough calculation of the required quantity in

order to avoid wastage.
B) Where community cooking and feeding is not possible:
z Cook the food in a central kitchen and transport the same to the community;
z Food may be transported in bulk in vessels and distributed to the victims in the
vessels they bring;
z Ensure that the vessels used for transportation of the food are properly closed during
the transportation to avoid contamination;
z Also ensure that the vessels the beneficiaries bring to collect the food are clean. If
necessary, arrange a drum with water to wash them before collecting their food;
z The food may be packed into required packets and the packets transported to the
community and distributed to each individual;
z Seek the assistance of the community representatives in the cooking, transportation
and distribution process;
z Cooked food should be distributed at the earliest to the beneficiaries, to avoid
spoilage and bacterial contamination. It should be ensured that the beneficiaries
consume the food soon;
z If packed in individual packets, the packets should be of good quality material and
packing done in very clean environment;
z Every food packet should have a uniform quantity of food, as per planned ration
rate;
z It is always advisable to prepare one type of food, avoiding varieties in order to help
easy management of cooking process. However, it should be a different type of food
at the next distribution round;
z Records have to be maintained as to how many people benefited from the feeding;
a beneficiary list may be developed.
IV) Distribution of Standard Relief Material
Post-disaster material distribution should be very appropriate and need based. Instead of
doing many rounds and giving random items on ad-hoc basis, complete family kits should
be prepared and distributed in one go. One standard relief set usually consists of the
following materials:
z Clothes for adult male and female, appropriate to local climate and culture;
z Clothes for male and female children, appropriate to local climate and culture;
z Mats and blanket/bed-sheets depending on local weather;
z Basic utensils for cooking, storing and eating;
z Tent or tarpaulin if needed;
z Dry rations to last for two weeks;
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Distribution of Relief Material 245

z Essential commodities like torch, footwear, storage bags;

z Soap, and toiletries based on needs and local practices; locally appropriate materials
for women’s sanitary needs; and
z Special provisions for families with infants.
All the above items are packed into one set and handed over to each household. The
distribution process may be as follows:
z All the affected families in the selected disaster area should be considered for the
relief assistance, irrespective of caste, creed and religion.
z The distribution process should not be influenced by religious or political motivations.
z Staff and volunteers will do door-to-door survey of the area affected by the disaster.
z Assistance of the local officer and local leaders/elders should be sought while
undertaking the survey. Identification of the beneficiaries along with the help of local
leaders will eliminate possible duplications and identify the genuine victims. It will also
avoid complaints of biases.
z If there are doubts or complaints, names of the beneficiaries should be verified with
the latest voters-list or with the village/municipal list at the village/municipal/ district
office.
z In cases where the group is very large or confusion is anticipated in the distribution
process, a distribution token system should be used. After verification of the name
of the beneficiary, her/his name should be written in the beneficiaries list with all the
particulars required therein. Her/ his signature should be obtained in the list against
her/ his name and a serially numbered token issued. The token should be countersigned
by the issuing officer.
z The beneficiary should be requested to collect the relief packet from the distribution
point at the pre-determined time against token issued to him/her.
z At the distribution point, the relief packet should be issued or released to the
beneficiary against the token produced. The token may be collected and cancelled
to avoid double distribution against one token.
z As a general policy, either all equally deserving victims at a distribution center should
get relief, or none of them.
V) Distribution of Other Material
Materials, other than the standard relief packets also could be distributed, provided:
z Material or item to be distributed is identified as needed and vital for survival
z Materials are available in the market to avoid delay in supply
z Logistic arrangements are made for procurement, delivery and distribution within the
shortest possible time frame.
The distribution procedures could be the same as in the distribution of the standard relief
packets.
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246 Disaster Management

Distribution Procedures
Time
Relief distribution should be carried out at the earliest possible, after the disaster. The first
seventy-two hours are most critical for the community to survive due to exposure, injuries
etc. This is the time within which they may need material support to cope with the shock.
However, there may also be some local resources like retrieved items and local aid that
may support them with food and basic items for this duration, and these may run out after
the first two or three days. Hence, essential commodities should reach immediately, and
longer-term material aid should reach within seventy-two hours. When following the token
system for distribution, material should be distributed to the beneficiaries within twenty-
four hours of the distribution of the tokens to them. If there is too much of a time gap,
the beneficiaries may lose their tokens. This is likely since they are living in ruins or make
shift camps in times of crisis and confusion.
Point
The distribution point may be sited in a convenient location. It is always better to fix the
distribution point at a public place like a school or a community centre. Distribution for
one or more nearby villages or hamlets or urban neighbourhoods may be arranged in one
place. This would avoid transportation of the materials to various centres and thus save
considerable time and money. However, the selected place should be within walking
distance from all target-settlements.
Process
At the completion of the survey, the number of sets that are to be distributed would be
known. The supplier agency office is then informed about the requirement of the materials,
the point of distribution and time, through a material requisition form. Once the distribution
decision is finalised, the following tasks need to be carried out:
z At the appointed/ fixed time, the required quantity of relief materials should reach the
distribution point. Logistics for the same are to be organised systematically when
there is more than one distribution point;
z The token holders or the beneficiaries should queue up and collect the materials
against production of the tokens at the distribution points;
z Material or the relief packet should be handed over to the beneficiaries against the
collection of the token. The token is then cancelled to avoid reuse of the same to
collect the relief packet again;
z The collected tokens should then be counted and verified against the beneficiaries list
and the number of packets distributed;
z After the distribution is over, the beneficiaries list should be verified once again, and
the distributing officer or staff and local elder or leader as a witness, sign over it,
declaring that the materials have been distributed. The representative of the local
government revenue department also signs as a witness of the process; and
z This list is then produced at the local government revenue office and a distribution/
utilisation certificate obtained from the officer-in-charge.
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12.4 LOGISTICS
Logistics is the practical art of supplying material support to a defined group of
beneficiaries. Supplies and food aid must be delivered to the beneficiaries who are often
located in remote geographical areas. Local transportation and communication infrastructures
may have to be reinforced and a process of control and information feedback must be
introduced to ensure that the material supplies reach the beneficiaries at the destination in
the quantity and quality provided/prescribed. The field logistics systems must deal with the
linear flow of material assistance from the origin to the final destination. It involves the
transportation of supplies and their storage at key transit points, with control throughout
the system until they are finally distributed to the beneficiaries.
Components of Logistics System
The necessary hardware to move and store the goods, including transport fleet, rail
wagons, boats, barges, airplanes or other transport units, warehouses and other storage
facilities constitute the relief logistics system. In addition, the following things are also
covered:
z Records and reports to control the flow of goods through the system, including
dispatch challans, requisitions, release orders, issue vouchers, take over certificates,
stock registers, stock control cards, receiving reports and distribution reports.
z Personnel to monitor the system by conducting checks and inspections to manage
and supervise the operation at key control points, and adequate support staff.
z When material is obtained locally, suppliers should deliver them to the control point
in the logistics system nearest the location where the goods will be needed. In this
way, local supplies into the main logistics system can be controlled from the receiving
point also.
Considerations in Logistics Planning
Development of a planning formula for estimating future overall supply is needed. The
system may not be designed to react to only the immediate needs, so it should be known
where the system would be needed and for how long. The following issues need to be
kept in mind:
z Plan alternate routes for transportation in case of local disruption such as destruction
or collapse of roads and bridges.
z The logistics system should be simplified in order to reduce transit time, to minimise
the number of stops and transfers and to consolidate facilities.
z Locating warehouses centrally in the areas they intend to serve.
z Maintaining of buffer stocks. Enough supplies should be kept available to meet the
needs when logistics operation cannot keep up with demand.
z Contingency plans should be made before the situation arises. Development of
alternate routes and readiness should start using them as soon as the problem is
evident on the primary route. It is imperative to have alternate routes planned in
order to avoid disruption in the delivery.
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248 Disaster Management

Transport by Road
When moving supplies inland, trucks generally provide greater flexibility than rail wagons,
water barges, boats or aircrafts in terms of capacities, scheduling and routing. Depending
on whether destinations can be reached by road or track, appropriate vehicle selection
is determined by:
z The condition of the terrain and weather that will be encountered en route;
z The nature and quantity of goods to be transported;
z The time-frame and frequency of each trip and the duration of the supply requirement
at particular destination;
z The availability of fuel, spare parts and servicing facilities;
Drivers transporting supplies should check their load carefully to ensure that the quantities
and condition of the cargo coincide exactly with the information in the dispatch -challan.
Otherwise they may be held responsible for damage or shortage. The receiver of the
shipment must sign the truck challan to acknowledge delivery. Any loss or damage should
be noted on the challan, indicating that the carrier is held liable for such losses.
Transport by Rail
If an adequate rail network exists between the disaster site and the place of procurement,
rail is usually the cheapest alternative, especially for transporting large bulky consignments
such as food. Whereas trucking rates vary with changing market conditions, rail rates are
usually fixed for the given period. However, rail terminals and depots are rarely located
exactly where they are needed. Rail transportation usually also requires road transportation
at both ends to pick the material from its origin and deliver it to the distribution point.
Transport by Water
Navigable waterways often go where there are no rail and road routes, and the only
remaining option is expensive airlifting of supplies or moving beneficiaries to the more
accessible location. Relief supplies to small islands mostly have to be transported by
boats.
Selecting this mode of transport depends on:
z Existing practices and current use of waterways;
z Availability of cargo carrying boats, their number, capacity and state of condition;
z Availability of personnel to handle boats;
z Docking facilities and personnel at the point of departure and destination for mooring
and for handling, storing and transporting the cargo;
z Documentation requirements and permits to carry the cargo;
z Constraints and seasonal considerations;
z Cost and contractual options; and
z Availability of necessary insurance coverage.
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Distribution of Relief Material 249

Transport by Air
Aircraft are the fastest, most reliable means of transport, but airlifting supplies is
expensive, and should only be considered as a last resort, when supplies are urgently
needed in a location where no other solution is feasible. Transport by air may be used
to supplement land or water transportation where the disaster site is geographically vast
and land routes or waterways are long. Air transport is used for movement of high
priority personnel and high value, low-volume supplies. In emergencies, airlifting may be
an initial response to the situation, but funds are better spent providing the means to move
much larger quantities of supplies using other modes of transport.

12.5 PROBLEMS IN RELIEF ADMINISTRATION

Problem of Over-Response
Though recent trends show an increased availability of resources for disaster response, it
is not so for all disasters and for all aspects of disaster management. The belief that there
were increasing resources available for disaster management was based on the outpouring
of resources in the immediate aftermath of the South Asian Tsunami of December 2004.
In the following months, the resources that flowed from all parts of the world broke all
previous records of funding for disaster response, and also for the first time, the amounts
from private sources exceeded government funding for disaster relief. However, this was
an exceptional event and thus it prompted exceptional response. In the following months,
when hurricane Katrina, a devastating tropical cyclone, hit New Orleans or when a killer
earthquake hit the Kashmir region, the extent of response from the world donor
community was far less. It must thus be carefully considered that resources will normally
be far less than required, and therefore, careful planning and execution is needed for
mobilising and utilising them in the event of emergencies.
Disasters are generally understood as events, which occur in the face of inadequate
coping/response activity on the part of the sufferers. There are five main reasons that
explain the problem of over-response during disasters (Training programme, 2002,
Lucknow):
z The resources surviving in the disaster stricken community are greater than expected.
z People react to disasters with a spirit of concern and generosity. Assuming that
disasters are deficient and the community is incapacitated; outsiders send resources
into the disasters area in large amounts even if they have not been specifically
requested.
z The determination of responsibility and establishment of procedures for assessing the
overall resources needed are often neglected.
z Because of lack of clearly defined contact points, absence of compatible radio
frequencies, non-functional or overloaded telephone circuits, and communication
overload, it is often difficult for those offering help to contact someone who can tell
them whether or not they are needed. Assuming that it is almost certain that help is
needed and that too many resources are better than too few, they choose in favour
of responding.
z It is often difficult for the recipients of unsolicited response to refuse it.
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250 Disaster Management

Problem of Scarcity amidst Plenty

Well-targeted relief, however, can provide a secure platform from which the disaster-
affected can begin the slow process of recovery. Most of the development relief is ill-
directed and too much. There are instances of corruption as well. It is now felt that
instead of unplanned relief, relief could be administered with long-term resilience in view,
which mandates honest and transparent administration.
Red Cross ‘developmental relief’ in Orissa, for example, included distributing saline-
resistant seeds (plus the tools, fertilizers and agricultural training needed to make them
grow) and promoting disaster-resistant housing for the most vulnerable. Communities
themselves selected who should receive a ‘model’ house and villagers were taught how
to construct them by skilled local masons. Rather than courting donors and governments,
humanitarian organisations must advise and inform them, lead them to where the need is
greatest, argue the case for assistance, and mobilise public opinion simultaneously. If
donor or host government interest is misguided, agencies must be honest and courageous
enough to say so (Sparrow, 2001).
Plugging the leaks means paying for labour and resources locally, instead of buying in
ready made replacement infrastructure, housing and services from outside contractors.
Plans for disaster recovery need to be employment-rich and locally rooted, rather than
relying on flying in aid from abroad. Small, locally-based enterprises will be at the heart
of rebuilding infrastructure and services. They also help absorb and retain incoming
financial assistance.
If all the aid going into a post-disaster region is spent on externally supplied goods,
services and consultants, then new money will quickly leave the area. If it is spent on
services that are locally supplied, then aid will continue to circulate in the local economy.
The International Federation of Red Cross and Red Crescent Societies (in The
Economist, 2005) has made the following recommendations to donors, especially logistics
companies to make relief a viable enterprise:
z The organisation structure of most agencies involved in disaster reduction efforts
suggests that relief and development are two divorced activities. That should be
suitably remedied to promote integration of the two functions/divisions.
z Innovation should be promoted in reporting and evaluation mechanisms, which speaks
of a developmental approach.
z Local structures should be strengthened, promoted, and worked through, to avoid
antipathy that might possibly arise in case of mismatch.
z Constant learning and development approach should be adopted by all relief agencies
with a view to bettering organisational functioning through periodic reviews.
Politicisation of Aid
Commercial and philanthropic interests often clash, which are being exacerbated by
globalisation. Impacts of globalisation and climate change are draining recovery resources.
Deregulation of investment is making it harder for host countries to keep profits in the
place they were created. The poorer and more risk-prone a country is, the higher is the
rate of return demanded by investors – up to 30 per cent in Sub-Saharan Africa.
Meanwhile, factors boosting disaster resilience (for example, strong health and education,
diverse local economies) are undermined by the structural adjustment programmes that
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Distribution of Relief Material 251

poor nations are encouraged to pursue. These programmes squeeze social-sector resources
and concentrate on economic specialisation and primary commodity exports (Simms,2001).
Recent United Nations (UN) research suggests global warming could raise sea-level
appreciably, thereby submerging or inundating many major cities. Poorest regions are most
at risk, as agricultural yields drop and disasters increase. Estimates for the costs of
weather-related disasters over the next 20 years range from US$ 6 trillion to 10 trillion,
ten times the likely aid flows. Meanwhile, aid to the world’s least developed countries has
fallen a third since 1991. The poorest are most exposed to disasters, yet their
contributions to warming the atmosphere are negligible. Hence, pulling people out of the
poverty spiral is the best safeguard against disaster. Since livelihoods are being threatened
by the current tide of globalisation, deregulation and hence, unfair market competition,
generating sustianable livelihoods by proactive action in this regard would be the viable
answer to the problem. Sustainable livelihoods may even hold the key to peace in war-
torn countries. The poorest can best recover from today’s disasters and conflicts on the
foundations of strong, inclusive and diverse local economies, rather than trusting to the
vague promises of the global economy.
Problem of Volunteers
To quote a section from the World Disasters Report of 2004 as per Milligan (2004-
05);
“Too much help made a mess here,” explained one spontaneous helper who drove to
Golcuk, Turkey, following the 1999’s massive earthquake, which killed 17,000 people.
Hoping to bring relief, thousands of ‘volunteers’ created a 20-mile traffic jam obstructing
rescue vehicles and equipment. Four years earlier, an earthquake destroyed much of
Kobe in Japan, killing 6,400. The quake prompted over one million Japanese to
spontaneously volunteer. Kobe’s volunteers organised themselves. But the flood of Turkish
helpers overwhelmed emergency services. Coordinating volunteers is a key challenge in
rapid-onset disasters.
Rita Chick of the American Red Cross (ARC) says it’s essential to match these
volunteers with needs in affected areas. Following Hurricane Mitch, some first-time foreign
volunteers, lacking language skills or training, were a burden. Local students proved far
more useful and saved many lives. Some local Red Cross volunteers responding to recent
disasters in Latin America found themselves more vulnerable than those they were helping.
Yet they were denied food and plastic sheeting for their homes. Says one delegate:
“Because they are volunteers they are treated as second-class victims” (Chapter 7, World
Disasters Report, 2001).”
This brings to light some of the problems faced with and by volunteers during disaster
relief operations. Successful disaster response depends on good volunteer management
systems, which include identification, recruitment, retention, involvement and recognition.
There are three essential requirements in volunteer management: understand exactly why
an organisation needs volunteers; design meaningful volunteer assignments; and elaborate
a recruitment strategy. When the disaster is over, they leave. To retain volunteers,
organisations must recruit them to other, more permanent tasks. Attracting volunteers
means showing people a pressing need and how they can make a difference. Retaining
them requires ongoing training, strong supervision, feedback and recognition.
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252 Disaster Management

12.6 CONCLUSION
Disasters strike with little or no warning. They leave destruction, suffering and turmoil in
their wake. The survivors need immediate support in terms of physical assistance and
relief material. For efficient relief distribution, advance planning and preparedness is a
must. There should be early warning systems, liaison with the government, involvement of
the community, local contact lists, identified alternate routes and basic training and
education to the local support personnel or volunteers. Distribution can include feeding
programmes, distribution of dry rations and distribution of cooked food. Under non-food
items there are standard relief kits comprising essential commodities for families. If the
need is felt for other items, these are also distributed depending on the capacity of the
relief agencies. The relief distribution procedure has to take into account issues of timing,
distribution methodology, and location. Relief logistics is a highly systematic process of
ensuring smooth transportation of personnel and handling of relief material from its point
of procurement to the point of distribution.

12.7 KEY CONCEPTS

Food distribution : Food is an essential requirement in the immediate
aftermath of disasters as home and essential
requirements are all ‘under siege’, be it war or natural
disasters. Maintaining uninterrupted food supply is the
most important requirement in the post disaster situation,
as on it depends the number of people who will
survive the difficult time.
Logistics : Logistics involves materials management, including
procuring, supplying and distributing goods. Logistics
is an essential aspect of disaster management. Two of
the widely accepted definitions are given below:
“The organisation of any project or operation, including
transportation and housing, for example, the
warehousing of goods as they are being transferred
from one country to another (www.scottish-
enterprise.com/sedotcom_home/help/help-glossary.htm)”.
“The management of both inbound and outbound
materials, parts, supplies, and finished goods. Includes
such activities as; production scheduling, forecasting,
customer service, order entry, inventory control, and
product allocation among customers”
(www.crowley.com/glossary/default.asp).
Non-food items : Non-food items include, clothing, medical supplies and
other essential items like blankets, heaters, and tents,
etc., which are necessary for disasters resilience.
Population at risk : Population at risk depends on vulnerable segments
that are at relative greater risk due to physical or
socio economic vulnerability. Certain segments may be
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Distribution of Relief Material 253

more pone to suffer illnesses like malaria, dengue etc.

because of their physical location and poor socio-
economic status.
Standard Relief Kits : Standard relief kits contain certain minimum essential
items requirements that are commonly applicable in
case of any/every kind of disaster, for example,
common drugs, such as antibiotics, pain killers, first
aid equipment such as cotton wool ointments for
dressing wounds, vaccines for inoculation against
diseases etc.

12.8 REFERENCES AND FURTHER READING

“Resource Management”, Training Programme on Disaster Management, 2002,
Department of Public Administration, University of Lucknow.
Church’s Auxiliary for Social Action (CASA), Disaster Response: A Book for Emergencies
Milligan, Jean, 2004-05, in World Disasters Report, IFRCRCS.
Simms, Andrew, et.al, 2001, “The Ecology of Disaster Recovery”, Chapter-2, World
Disaster Report, 2001, International Federation of Red Cross and Red Crescent Societies,
Geneva.
Sparrow, John, 2001, in World Disasters Report, International Red Cross and Red
Crescent Societies.
The Economic Intelligence Unit Briefing Paper, Sponsored by DHL-Asia-Pacific, 2005
“Disaster Response Management: Going the Extra Mile: Thailand and Indonesia, ” The
Economist.

12.9 ACTIVITIES
1) Considering that you have to plan a relief operation for an earthquake hit area with
50 families in one village, draw a flowchart of activities that will need to be done
to complete a successful relief operation of two weeks duration. It must start from
the initial assessment of the area up to the final distribution of relief material.
2) For your village or neighbourhood, prepare a map and put the following information
on it:
z Natural features
z Vulnerable pockets (buildings and areas that are more likely to get affected in
terms of building damage, water logging, fire, etc.)
z Availability of relief materials (markets, places of worship, community centres)
z Access routes from outside
z Alternate routes
z Possible locations for relief material storage sites
z Possible locations for relief distribution sites.