Before we start…

Our aim here is to highlight some basic safety and security practices that should be applied to all distributions. Of course, additional measures may be needed based on the security risk assessment. Most organisations have guidelines for planning and implementing effective, safe and fair distributions.

Use Checklists

There are over 50 points to consider when planning a safe distribution, therefore it’s good practice to use a checklist.

Why do problems usually occur?

Relief distributions are considered a high-risk activity because managing large crowds in emergency settings tends to be difficult and risky. This is especially true in densely populated areas since they can quickly attract massive crowds (via social media and word of mouth). Poorly managed distributions can result in looting, riots, assault, trampling, and crushing events that can injure and kill community members, staff and volunteers. The safety of everyone involved is our responsibility and must always come first, even in emergency settings.

In our experience, problems arise when:

• Planning and preparation is rushed.

• The community is not sufficiently involved.

• The process is not clearly understood.

• There is a lack of information shared before and during the distribution.

• There are not enough staff and volunteers on hand to manage the crowd.

• When there are not enough information staff on hand who speak the local language(s).

• People have to stand and wait for a long period of time.

• It is hot and there is a lack of shade and access to water.

• Crowd control falls apart and people start jumping the line, etc.

• The site get swamped by onlookers, especially in high density areas.

• The perimeter is not adequately secured from theft.

• There are no or insufficient emergency exits, especially in enclosed areas.

• Distributions do not finish before nightfall.

• Security forces intervene forcefully to restore order.

• Armed groups are present on site or in the area.

• Protection and safeguarding mechanisms are not in place.

• Staff and volunteers are not briefed on the Code of Conduct and PSEA.

• Staff and volunteers don’t know how to resolve or deal with disputes or incidents.

• At the end of the distribution, when there are “leftovers” that seem up for grabs.

• There is an insufficient number of items for distribution, and insufficient planning for back-up.

Good community engagement is the first and most important step in ensuring a safe distribution.

Community engagement and accountability (CEA) is a Red Cross Red Crescent approach that helps put communities at the centre of what we do, by integrating communication and participation throughout the programme cycle or operation.

Checklist:

Here are a few CEA guidelines that apply to safe distributions:

• Consult with the communities before doing assessments and engage them in the planning. In the past, many incidents have stemmed from this lack of engagement and consultation at the start of the process.

• Learn about the community structures to ensure all community members are represented in the discussions and that you are working with leaders that are recognized by the community. Failing to include stakeholders will often lead to security issues.

• Learn about the local information ecosystem (the communication methods used by the community) so that information about the distribution is shared efficiently and widely within the community. This is one of the best ways to avoid problems and overcrowding on distribution day.

• Get community leaders involved in arranging security and crowd controllers at the distribution sites. Every area and community has distinct security challenges, practices and regulations therefore their input is crucial.

• Act on community feedback and use it to improve our activities and security. Monitor if people feel informed, engaged and listened to. Ask them to raise safety concerns they may have about the distribution. It is much (much) easier to address problems before the distribution.

• Agree on the security conditions required for the distribution to go ahead. You must agree to stop immediately if there are serious security concerns or if the crowd gets out of control.

• Ask community leaders be present during the distribution and to act as the first level of problem-solvers. If they cannot be present at the distribution, ask who can serve in their place and discuss the best approach to resolve conflicts before and during the distribution.

Do not forget! The local Red Cross or Red Crescent branch must be fully involved in all IFRC distribution planning and implementation. They also need to have a representative present in all community meetings.

If you want to learn more about IFRC’s approach to Community Engagement and Accountability (CEA) , click here.

Checklist:

The distribution site should be selected on the basis of safety and security. Here are some basic criteria to look for:

• Sufficient space to avoid the beneficiaries being too crowded.

• External fencing or walls (limits/borders) around the distribution site to facilitate access control.

• Written approval to use the site by the authorities and the landowner, and get this acceptance in writing.

• Proximity to the main road to ensure quick ressupply and emergency evacuation. It should not however be so close as to cause traffic delays or put pedestrians at risk.

• Reachable in all weather conditions (rainy season, winter, etc.).

• If possible, the site should have several alternative access routes.

• Radio/telecommunications coverage. You need to be able to communicate with all staff on site and to the main office or base camp.

• Have space nearby for essential services such as drinking water stations, waste disposal, latrines, first-aid stations and shelters or shaded areas to reduce weather exposure problems.

• Avoid sites that are prone to disasters such flooding, landslides, avalanches and other dangerous hazards.

Checklist:

Accurate and frequent information sharing is vital for a safe distribution.

Always explain:

• What they will receive. Be specific and clear about the items, quantity and quality.

• Who will receive what and why. If some individuals or groups are prioritised, explain why.

• When and where the distribution will take place.

• How it will be conducted (start time, process, rules, etc)

• Where to address questions and complaints.

• Reasons for delays and changes. If there is delay or a change on distribution day you must decide whether to postpone the distribution until you can meet expectations, or distribute what you have and explain that there will be a supplementary distribution later. Changes must always be communicated to the community to avoid creating frustration and anger.

• The safety rules. Explain that distributions will be suspended or stopped if personnel or community members are threatened or placed at risk.

While the above is a good start get in the habit of asking what information is missing or unclear, and feeding it back into the info sharing process. This habit will also help identify warning signs and problems before distribution day.

Checklist:

In order to ensure security at the distribution site, follow these basic guidelines:

• Fencing and walls. Perimeter fencing or walls are important during large distributions because they help control access, especially in densely populated areas. Assign staff to supervise the perimeter.

• Communications coverage. All staff and volunteers must be able to communicate with one another. Since phone coverage is poor, we will assign radios to each team and use whistles for emergencies.

• Wear clearly marked clothes. Make sure all staff and volunteers are wearing vests or clothes (and hats if possible) that make them easy to identify in a crowd.

• Make emergency plans and identify rapid exits. Make a plan to manage incidents and evacuate the area in an emergency. Show staff and volunteers the emergency signals, exits and procedures.

• Create a secure parking area. Point vehicles towards the exit and instruct drivers to stay nearby.

• Maintain an overview. The manager, or someone they designate, must find an (elevated) position with a good overview of the site. The manager must be able to communicate with all personnel.

• Use a buddy system. Personnel should work and travel in pairs during large distributions. All pairs have a means of communication in case of emergency.

• Use signs and have enough personnel on hand to direct people and keep an eye on the crowd.

• Provide the controllers with training on how to conduct themselves towards the beneficiaries.

• Ensure all personnel are wearing clearly marked clothes, jackets or vests.

• Ensure there is sufficient space and divide people into smaller groups. Avoid overcrowded lines and confined space without emergency exits, to avoid crushing and trampling if the crowd gets out of control.

• Set up a corridor system (using plastic sheeting, fences, sticks, walls, etc.) to facilitate the task of channelling the beneficiaries through the distribution site in a disciplined way.

• Identify the site correctly with the appropriate logo or emblems.

• Corridors. Make corridors to control flow, minimize wait times and prevent crowding. Have volunteers give directions at each step of the process.

• Buffer stock. Running out of items is a common yet preventable cause of incidents. Make sure resupply deliveries arrive well before the stock gets low, and maintain a backup “buffer” stock either a short drive away or on-site and out of view.

• Provide essential services. Providing access to latrines and setting up shaded areas, water stands and first aid stations helps maintain calm and order during lengthy distributions.

• Community leaders. Make sure community leaders and branch representatives are on-site. They are crucial to crowd control, dispute resolution and good communication.

• Staff and volunteers. Have enough staff and volunteers on-site to manage the crowd, and make sure extra staff are on standby in case the crowd is larger than expected.

• Finish well before dark. It is much (much) better to start early and finish early. Managing crowds in the dark is unacceptably dangerous and not permitted.

• Use crowd watchers. It is nearly impossible to bring a crowd back under control once looting or rioting starts, so every effort must be made to spot and resolve disputes or problems early. Identify agitators and talk to them well away from the crowd. This requires personnel who are designated as crowd watchers who have direct communication with the community leaders or dispute response team.

Distribution managers are responsible for the above, but do not hesitate to speak up if you spot something missing or have

We generally avoid using security forces such as police, military or private security at distribution sites because we often cannot control how they respond (yet be held responsible for their actions).

If we do use them, it must be carefully planned and approved by the senior field manager, based on a security risk assessment. If the situation becomes dangerous, it is usually better to leave the area area under protection of the security forces than trying to force the crowd/situation back under control. Using force to take back control often leads to harm and goes against our principles.

Checklist:

If security forces are deemed necessary as a deterrent or for protection, then do the following:

• Hold a meeting with the local police, security forces, military leaders, etc., before the distribution to explain our plans and agree on how to handle security incidents in a way that is in line with the Fundamental Principles of the International Red Cross and Red Crescent Movement. Confirm that the distribution and the use of security forces are compatible with the laws of the host country.

• Assess whether security personnel should remain low profile as a back-up, or highly visible as prevention. The presence of security forces can sometimes act as a destabilizing factor or may be seen as a provocation. It is often best to keep them nearby and unarmed with the possibility of a more significant back-up.

• Check that the security forces and all others involved with the distribution and crowd control understand the procedures and rules.

• Arrange to have direct contact with the leader of the security forces in order to help you control the situation better.

• Make sure your personnel know the emergency signal, exits and procedures and do a practice run before the start of the distribution. If security forces are present, then the risk must be high enough to warrant practicing the emergency evacuation.