General
10 The provisions in this eManual section refer to the in-country transport and distribution of goods in the emergency supply chain.
20 Transport refers to the activities involved in moving supplies in the country from point-of-origin partners and/or beneficiaries.
30 Distribution is the process during which control over the commodity passes from the organization holding the stock to the intended beneficiaries and/or partners.
40 Distribution usually commences at the in-country warehouse or another storage facility, but for urgent consignments, distribution can begin at the port of entry or from the supplier. In any case, distribution concludes with the consignment being delivered to the right place, at the right time, in the correct quantity and condition.
50 Distribution is the transaction that concludes the supply chain process, where the Subject Matter Expert (SME) customer or their designated representative checks, signs for the delivery documentation, and receives the items requested through the Statement of Need (SON).
Key stages
60 The transport and distribution process involves planning and conducting the dispatch, transport and issuing of the requested items to the respective consignees at the point of need. The OSL team is responsible for organizing the distribution phase, but this process requires close coordination with the SME customer.
70 The four key stages in distribution are shown in the flow chart below:
- Distribution planning: The distribution plan, drawn up by the Operations Support and Logistics (OSL) team, details what is to be delivered, where, when and how, considering the priorities of the SME, the Health Operations team and the overall WHO plan. It lists all the documentation to accompany the consignment, specifies the type of transport required and identifies when the distribution responsibilities are transferred from one individual or organization to another.
- Picking/packing: The OSL team ensures that all the items of a particular consignment have been assembled and correctly packed, taking into consideration any special packing measures. Once all consignment items have been assembled, they are checked off against the packing list before being loaded onto pallets or into boxes and wrapped.
- Transport execution: The transport phase is organized by the OSL team. The consignment must be physically secured and protected from the elements, and all measures are to be taken to ensure the consignment arrives at its destination safely and intact. The consignment should accompany the necessary transport documents (waybill, packing list, etc.). For transport execution, the OSL team should consider using existing UN, partner NGO or host nation transport before considering a commercial solution.
- Handover: Once a consignment has reached the point of need, it is handed over to the SME customer (or their representative/or partner), who must check it for condition, correctness and completeness. Once checked and received, the consignee should sign the transport documents, a Goods Receipt Note (GRN), and a donation certificate if the consignment is delivered to partners as a donation.
Roles in the transport and distribution process
80 The distribution process is coordinated in-country by the OSL team. At each stage, the OSL team coordinates the process with the SME. The SME maintains communication with the OSL and the consignee for the delivery planning and for informing stakeholders of any changes in the situation as soon as necessary.
90 The OSL team is responsible for:
- Establishing a distribution and transport plan based on requirements provided by the SME or based on operational needs.
- Ensuring that all the items of a particular consignment have been assembled and correctly packed in coordination with the stock manager.
- Organizing the transport and the delivery. OSL should identify transport routes to the key distribution locations. Estimated transit times, seasonal challenges and route restrictions should be documented and factored into planning activities.
- Providing a budget estimate to address transport needs.
- Preparing and handing over the necessary accompanying documentation for the delivery.
- Checking that the carrier has loaded the consignment correctly, in accordance with the nature of the items in the consignment.
- Ensuring the consignee is informed of and has agreed to the consignment's arrival.
- Preparing the site for equipment installation, as required (with the SME).
- Providing a distribution report, as required.
- Setting up an appropriate archiving system for transport documents (contracts, waybills, proof of delivery etc.).
100 The SME is responsible for:
- Based on the SON, providing to the OSL team detailed information to draw up a distribution plan (quantity of items, destination, consignee, timing of the distribution, etc.).
- Authorizing the stock release for distribution (SME or Stock Owner).
- Coordinating the delivery with the OSL team and the consignees (delivery date and any specific space, handling and installation requirements, etc.).
- Ensuring at the reception that the consignment is checked for condition, correctness, and completeness. The SME (or representative/recipient) signs the reception documents (waybill, GRN, etc.) as proof of delivery. Any issues or discrepancies should be recorded on the waybill accompanying the shipment.
- Training staff in commissioning and operating equipment and supplies, as required.
- Monitoring the distribution and the use of supplies.
Transfer of responsibilities
110 While the OSL team retains overall responsibility for the delivery of the consignment, there are two in-country transfers of responsibility during the distribution phase, regardless of whether the consignment is moving directly from the port of entry to the recipient or leaving a warehouse. These transfers involve the sender (OSL team or designated sender), the carrier and the recipient (SME or designated recipient).
120 The sender is responsible for handing over the consignment and accompanying documentation to the carrier. The sender is deemed to have transferred responsibility to the carrier once the carrier has signed the waybill, confirming that the consignment has been loaded onto the transport in accordance with the nature of the items being carried.
130 The carrier is responsible for the safe carriage of the consignment from the in-country collection point to the point of need. The carrier is deemed to have transferred responsibility to the recipient once the recipient has signed the waybill and the GRN, confirming that the consignment has been delivered.
140 The recipient is responsible for formally accepting the consignment at the point of need. S/he is also responsible for ensuring the presence and access to a suitable storage facility for storing the consignment. Once the carrier has transferred responsibility to the recipient, the recipient signs off on all the relevant documentation and retains copies for local accounting. Should the recipient find that items have been lost or damaged, the claim procedures in place at the country office level should be followed.
Monitoring and reporting
150 In the distribution phase, a consignment is monitored using the accompanying documentation, and any issues arising during distribution are recorded on the waybill.
160 All distributions, with details of each shipment (items, quantity, value, weight, volume, estimated time of arrival (ETA), etc.) should be registered in a monitoring file and/or in the WHO software system (Global Inventory Management System (GIMS) or Business Management System (BMS)).
170 Consumption data should be the primary source of information to support the forecasting process. If unavailable, valuable information can be derived from distribution data to determine trends and forecasting information supporting procurement planning. This distribution data should be shared to ensure trends and forecasting data are available to health operations staff and the information management system.
180 There is an expectation that the customer will provide feedback to OSL on how the supply chain performed. This feedback is used specifically to identify what areas of the supply chain need to be improved to ensure it provides the highest service standards.
190 For monitoring the delivery of equipment, particularly in hard-to-reach areas, the WHO Country Office (WCO) may ask third parties (partners, contracted private sector entities, etc.) to verify the goods reception, installation condition and equipment use. This process should be supported by photos, videos and an explanatory note sent to the SME.
Contracting local carriers
200 Local movements within a specific country will usually involve road transport. However, rail, air, river and sometimes sea transport can occur in domestic movements.
210 Third-party transport companies can usually be sourced locally, even in the early days of an emergency response, although the quality of vehicles and roads may vary. The WCO should follow all due diligence when soliciting and selecting third-party transport companies and follow internal procurement procedures when contracting local carriers. The WHO-approved procurement policy, processes and procedures cover the selection process adopted for acquiring all services. The WCO should implement subsequent monitoring and control of the providers selected. In addition, domestic transport requires actors to follow all local laws and safety regulations.
220 Consideration should also be made for using existing UN, partner NGO or Host Nation transport to benefit from free-of-charge transport when available.
- Contracting: A formalized contracting process for local transporters should be coordinated through the WCO. The most efficient way is to sign some Long-Term Agreements (LTAs) with local transporters instead of asking for a quote for each trip. The LTAs can be prepared by requesting pricing for loads to specific sets of destinations from different origins. Operational requirements, volumes, and market availability should be considered when defining the LTAs. Rates can be calculated per trip, day, or load (Kg). Any contract should have suitable management controls in place.
- Vehicle selection: It is important to select the appropriate vehicle for the required purpose even if, at a later stage, it is necessary to revise this choice to reflect the availability of transport assets. The vehicle's overall size is largely tied to the load in question. Many factors might limit the weight of a vehicle, including local infrastructure, road conditions, local laws and even the overall quality of the vehicle itself.
- Sanctions (UN or others): When contracting local carriers, there has been an increasing level of attention given to the ethical standards of the contractors, including their facilitation and participation in what would be considered violations of state and national laws, human rights abuses or involvement with parties to the conflict.
- Temperature-controlled trucks: Often, trucks with temperature-controlled capacity are in short supply in emergency markets; therefore, special attention should be paid to analyzing the market and searching for reefer trucks and containers (for +15/+25 C° and +2/+8 C° shipments). Other solutions, like using cool boxes, may be needed to transport temperature-sensitive products.
- Dangerous goods: National transport regulations of dangerous goods (DG) vary greatly depending on the countries of operation. WHO should endeavour to maintain minimum safety standards for the transport of DG and remain in compliance with any regulations that may pertain to the geographic areas of response. DG transported should be labelled throughout the supply chain, including warehousing, and be fully disclosed on shipping documents such as packing lists and waybills. Service providers, storage facilities and handling staff should be suitably trained, equipped and qualified to handle these items.
- Route planning: This is the process of planning the movement of a particular quantity of goods in vehicles of known capacity. It recognizes that vehicle operation restrictions occur due to such factors as constraints on working hours, safety and security constraints, the total length of daily travel possible and the volume that can be moved within a normal working day. Route planning involves the evaluation of all possible routes.
- Vehicle tracking: Using information from the contracted transporters and direct communication with drivers and staff at the distribution point, OSL teams should monitor and track delivery vehicles, particularly in security-sensitive situations, to monitor progress, ensure cargo security and identify issues like breakdowns or accidents that impact distribution plans, temperature sensitivity and load security. This is especially important for any multi-day deliveries.
- Documentation: Domestic cargo movement can be tracked in various ways, but the most common is a waybill. The correct documentation, including transport waybills and packing lists, should accompany all consignments. Additional supporting documents, like dangerous goods certificates, may also need to be present.
- Vehicle suitability: All vehicles should be inspected before loading to ensure they are clean, mechanically sound and suitable for transporting the consignment. Any unsuitable vehicles should not be loaded, with replacement vehicles requested from the transporter. Vehicles with WHO cargo should not be transporting any other consignments.
- Primary and secondary transport:
- Primary transport involves movements between two specific locations. This may be between two warehouses in a network or from a port or rail-head to a warehouse.
- Secondary transport involves movements that may include multiple deliveries within a defined area, such as a regional or local warehouse, to extended delivery points.
In both cases, the emphasis is on fully utilizing the resources used: filling the vehicle to capacity, minimizing the distance travelled and optimizing the hours the driver is paid to work.
- Losses, damages and claims: Any losses or damages should be recorded on the waybill and compensation claimed from the responsible transporters. Cases should be recorded and monitored to identify trends needing further investigation.
Specific considerations for transport and distribution
230 The following should be considered for transport and distribution.
- Dispatch planning: A daily dispatch plan should be prepared to ensure all stakeholders (including the warehouse and SME customer) are well informed of delivery schedules and arrangements to ensure the correct number and type of vehicles are available for the day's delivery.
- Documentation: All consignments should be accompanied by the correct documentation, including packing lists, transport waybills, GRN and, if applicable, donation certificates. Additional supporting documents, such as dangerous goods certificates, may also need to be present. Regarding final delivery, the following information must be recorded: date, detailed description of goods, quantity and name and signature of sender/carrier/recipient.
- Labelling: Labelling for transport is an important consideration. Knowing that cargo is often broken down or shipped loose means that shippers must adequately mark cartons to facilitate cargo tracking, especially for cargo transported by air.
- Selecting the mode of transport: Local movements within a specific country usually involve road transport; however, rail, air, river and sea transport can occur in domestic movements. It is important to fully recognize the operational characteristics of each mode of transport. It is also necessary to consider the vehicle type or equipment used within that mode. Before deciding on the mode of transport, there are some factors to consider in the rating:
- required delivery date
- cost of transport service
- reliability and service quality
- shipment size and item type
- anticipated transit time
- number of transhipment points
- range of different services offered by a third-party provider
- geographical factors, as they may remove the opportunity to use a particular mode.
- Emergency airlifts: Due to accessibility issues or long delivery distances, an emergency airlift (rotary or fixed-wing aircraft) may be considered to deliver commodities to the distribution sites. The UN Humanitarian Air Service (UNHAS) usually provides these services within the UN system. Ideally, the SME team should include an experienced Air-Ops manager if many of these services are used. UNHAS implements one of three primary service provision cost models:
- free for the user, under a specific donor or agency agreement paying for the full service
- partial recovery when the funding/donor contribution is not enough or as part of the donor agreement
- full-cost recovery, paid by the agency of the user directly.
- Local aircraft contracting: WHO may require ad-hoc cargo movement using local air operators in certain operating environments. Identifying and understanding the proper aircraft or service provider can be challenging, especially at local levels operating with limited time and budgets.
- Inland waterways and rivers: In certain circumstances, it may be necessary to transport goods by river, delta, marshes, canals or other form of inland waterways. The mode of transport will be informed by the nature of the inland waterway, including depth, water current, the necessity for speed of delivery and the ability to load/offload at remote locations and destinations. Third-party riverway shipping should be treated the same as any local third-party transport.
- Inter-agencies logistics services: In some countries of intervention, platforms of shared logistics services funded by donors operate to support the logistics needs of humanitarian actors. Shared transportation services are based on a collaborative approach and aim to leverage the advantages of centralized coordination and sharing of assets. This reduces costs, increases the speed of intervention and helps the humanitarian community reach hard-to-access areas.
- Logistics Cluster transport service: When deployed in an emergency, the Logistics Cluster usually provides local transport services where commercial capacity is not available or is insufficient to meet the needs of humanitarian actors. WHO can request transport services to the Logistics Cluster if the service is activated as a common service, free of charge to the user.
- SME customer feedback: Irrespective of whether a problem has arisen with the delivery of a consignment or it has been delivered exactly as the customer requested, the SME customer is encouraged to provide feedback to the OSL team on the service provided by the supply chain to allow improvements to be made. There is no established format or feedback report: a simple email would suffice, with comments on how the customer rated the service received.
- Assets registering and tracking: For equipment to be distributed/donated, tracking and updating assets in the asset register system (with copies of all relevant documentation) is important. All assets shall be identified with an end user or custodian to facilitate tracking and responsible use. If an asset is donated to a partner, the transaction must be documented by issuing a donation certificate, and the WCO's asset register must be updated accordingly. Tracking assets should be carried out through the regular WHO system, per the Asset Management SOP (OSS.SOP.XIII.002D Fixed Assets (Equipment) Tracking, Verification and Reporting).
