Annex I

Terms of Reference

Assessment of Institutional and Financial Management Capacity of Social Cash Transfer Payment Agencies and Feasibility of Payment Delivery Modalities in

Summary

Assess institutional and financial management capacity of social cash transfer Purpose payment agencies to recommend on the most appropriate and feasible payment delivery modality in Yemen.

(i) Assess institutional and financial management capacity of social cash transfer payment agencies and feasibility of payment modalities to deliver social cash to Social Welfare Fund (SWF) beneficiaries across all governorates of Yemen. (ii) Assess potential risks, including fiduciary ones, and risk management/mitigation measures applied by existing payment agencies in delivering social cash, and identify opportunities for putting in place Specific Objectives additional, if required, financial controls and assurances to timely and effectively deliver SCTs to SWF beneficiaries. (iii) Recommend on the most appropriate affordable and feasible SCT delivery modality at governorate and district level, including in inaccessible and remote areas, by examining and weighting the costs and benefits of different payment delivery options from the perspective of both the payment delivery agent and the recipient. Type of contract Local, short-term institutional contract Budget Financial proposals to be submitted Location Strategy on geographic scope is to be proposed by an institutional contractor Duration Three months Start Date 01 February 2017 Reporting to Chief Social Policy (OIC), UNICEF Yemen Country Office Project and Activity Codes tbc

1. Introduction UNICEF Yemen Country Office (YCO) invites qualified institutions to participate in the bidding process to assess institutional and financial management capacity (incl., financial procedures and controls) of existing payment agencies across a few governorates of Yemen1; and to recommend on the most appropriate and feasible SCT payment delivery modality. This Terms of Reference (ToR) has been developed to guide interested institutional contractors on the purpose and objectives of this exercise as well as the scope of work, key aspects of the methodology to be used, and expected deliverables and qualifications of potential applicants.

1 The geographic scope strategy is to be proposed by an institutional contractor. It is suggested to choose one governorate in each region (e.g., Hadramaut, Marib, Abyan, Sa’ada, Taiz, Sana’a, , Hodeidah), and 3-4 districts in each governorate with one being urban and the rest diverse rural districts. The strategy is suggested to focus on classifying governorates along some characteristics (to be proposed by an institutional contractor) that would matter for social cash payment delivery.

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2. Background The SWF was established in Yemen in 1996 as a vital social protection mechanism. The SWF used to provide unconditional cash transfers (UCTs) to 1.5 million of the poorest and most vulnerable households (HHs) or 7.9 million direct and indirect beneficiaries (about 35% of the total population) across all 22 governorates. In 2012-2013, UNICEF Yemen Country Office (YCO) initiated a National Social Protection Monitoring Survey (NSPMS) that was aimed at evaluating the impact of the SWF’s UCT programme. The Survey has found that at least 70% of SWF beneficiaries depended on UCTs to purchase food and strengthen their livelihoods; cash assistance prevented vulnerable HHs from resorting to negative coping strategies; and social cash transfers helped beneficiaries improving their access to basic social services, including health, nutrition, water and sanitation, and education. The escalation of the crisis in March 2015 and a follow-on suspension of the SWF operation have resulted in leaving vulnerable people without any social protection support. Increasing prices of food and non- food basic commodities, loss of assets and livelihoods, and internal displacement, has further exacerbated the situation.

In light of the above, emergency reactivation of the SWF cash transfer programme, as interim means of delivering cash transfers to vulnerable Yemenis on the SWF beneficiary list, has been recognized as a critical strategy to prevent the collapse of a key government social protection system, and as a confidence building measure. UNICEF currently collaborates with key partners on resuming the SWF cash transfer programme in Yemen. It is proposed that initially the overdue SWF social cash payments of 2015 will be resumed. A follow-on operation of the second year to cover payments related to 2016 is possibly envisaged.

One of the key financial assurance activities associated with the emergency reactivation of the SWF cash transfer programme is the assessment of institutional and financial management capacity of existing and potential cash payment delivery modalities. Given the current armed conflict as well as the poor development and low accessibility of the Yemeni financial sector in general and in the rural areas in particular, finding a reliable and cost effective system for social cash transfers is a key challenge. This challenge is exacerbated by poorly developed payments and telecommunications as well as damaged physical infrastructure, and limited access to formal and informal financial services. The assessment will include the following social cash payment agencies: General Authority for Post and Postal Savings (GAPPS) and its Post Offices, Cooperative Agricultural Credit Bank (CAC), and Al Amal Bank (these three entities were used by the SWF in the past when delivering UCT to their beneficiaries), as well as Al Kuraimi Islamic Microfinance Bank (AIMB)*, Yemen Bank for Reconstruction and Development (YBRD)**, National Bank of Yemen (NBY)**, International Bank of Yemen (IBY)*, and Tadhamon International Islamic Bank (TIIB)2*.

This exercise aims at assessing institutional capacity and financial management processes of payment agencies. The assessment also aims to identify the key weaknesses and gaps as well as strengths and opportunities, so that, if required, additional financial assurances are put in place, including more frequent financial spot-checks and audits. Besides, it intends to identify the most appropriate and feasible SCT cash payment delivery modality/-ies (by using clear criteria that also recognize existing safety and security concerns and social norms) from the perspective of both the SCT payment agent and the recipient. UNICEF and their partners

2 * Private bank ** Public bank

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intend to ensure that cash assistance to be provided to eligible beneficiaries in an effective, secured, efficient, flexible, transparent and accountable manner. At the same time, it is intended that such exercise would contribute to streamlining institutional mechanisms to enable joint ownership and maximize efficiencies and strengths of each of these stakeholders, thereby ensuring maximization of benefits to Yemen’s population.

3. Purpose and Objectives The main purpose of this exercise is to assess institutional and financial management capacity of SCT payment agencies, and recommend on the most appropriate and feasible payment delivery modality in Yemen.

Specific objectives are as follows: i) Assess institutional and financial management capacity of SCT payment agencies and feasibility of payment modalities to deliver social cash to SWF beneficiaries across all governorates of Yemen. ii) Assess potential risks, including fiduciary ones, and risk management/mitigation measures applied by existing payment agencies in delivering social cash and identify opportunities for putting in place additional, if required, financial controls and assurances to timely and effectively deliver SCTs to SWF beneficiaries. iii) Recommend on the most appropriate, affordable and feasible SCT delivery modality at governorate and district level, including in inaccessible and remote areas, by examining and weighting the costs and benefits of different payment delivery options (using clear criteria/assessment checklist to be suggested by a contractor) from the perspective of both the payment delivery agent and the recipient.

4. The Assignment a. Scope of the Work The institutional contractor is tasked to assess institutional and financial management capacity of local payment agencies delivering social cash transfer assistance to the poorest and most vulnerable people in Yemen, and recommend on the most appropriate, affordable and feasible payment delivery modality.

The assessment aims at focusing on various social cash payment agencies and payment delivery modalities, including the ‘traditional’ ones (i.e. used previously by the SWF), such as GAPPS/POs, CAC, and Al Amal Bank, and non-traditional ones, including AIMB, YBRD, NBY, IBY, TIIB (the existing cash transfer delivery modalities and its geographical distribution are enlisted in Annex I), at both central and local levels. In addition, it would be also important to interview a cohort of SWF beneficiaries to hear their prior experiences related to receiving cash to get insight on effectiveness existing payment delivery modalities. UN agencies, INGO, NGOs and other stakeholders are also meant to be interviewed to learn their experiences on dealing with social cash payment agencies and payment delivery modalities.

The assessment will map out social cash payment agents and understand whether they have required institutional and financial management capacity and arrangements to deliver and monitor SCT payments to SWF beneficiaries at central and local level in Yemen. Thus, the assessment would focus on: (i) the overall institutional and administrative capacity, (ii)

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budgeting and financial management policies, processes, and procedures, as well as existing administrative and financial structures; (iii) social cash delivery and disbursal; (iv) costs (direct and indirect) associated with delivering social cash transfers to beneficiaries; (v) associated risks and risk mitigation strategies; (vi) staffing and human resource management; (vii) networking and coverage by cash delivery agent’s services; (viii) degree of knowledge of/relationship with SWF; and (ix) internal institutional monitoring and auditing processes and practices.

Specifically, the exercise will understand the presence, geographic coverage of SCT payment agencies nation-wide, and available infrastructure (i.e. whether the agency is still functioning or not), given the fact that an armed conflict has resulted in massive damage and disruption of public and private assets and facilities. The assessment would also understand whether the SCT payment agencies have sufficient qualified and gender-sensitive3 staff to manage and implement the SCT payment throughout the country, and clarify their roles and responsibilities. Besides, it will look into the current availability and application of minimum financial and procedural safeguards in order to ensure confidence in effective processing of cash assistance (funds flow arrangements, accounting and auditing policies/standards, risk control measures, disbursement speed and delivery options, reporting and monitoring, and information systems). The management of the local liquidity crisis by local cash payment agencies will also be assessed. The assessment will also review safety and security safeguards in place to minimize potential risks to staff and recipients.

It is critical to emphasise that the assessment is supposed to evaluate the status of current, i.e. early 2017, institutional and financial management capacity of social cash payment agents and payment delivery modalities. Thus, it is essential to understand and analyse any social cash transfers processed by those cash payment agencies in 2015-2016. b. Specific Tasks In elaborating of the above scope of work, the exercise suggests the following specific tasks: 1. Phase I: Preparation  Complete a desk review of all available documentation provided by UNICEF, the World Bank, EU and all potential cash payment agencies on the existing SCT payment delivery modalities (including, amongst others, a review of mobile banking directives/guidelines issued by the Central Bank of Yemen and understand how payment agencies could benefit from that in cash transfer delivery) in Yemen. Review all other documentation that can be useful for the purpose of this exercise.

 Prepare an inception report that would outline a detailed sampling methodology (both qualitative and quantitative methods) and draft outlines of instruments to be used, strategy for geographical scope (parameters/characteristics that would allow classifying governorates and districts to meet this terms of reference), work-plan and a list of key criteria for assessing institutional and financial management capacity of social cash payment agencies, and advising on the most appropriate, affordable and feasible payment delivery modality in Yemen. The inception report

3 For the purposes of this ToR, ‘gender-sensitive’ staff: at distribution sites, female bank tellers are present to verify the identity of female beneficiaries, as the majority of women are veiled; female security guards are present in all cash distribution sites, to manage the queues.

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should also provide a list of field visits and planned meetings/consultations with payment agencies, recipients, and other critical stakeholders.

2. Phase II: Assessment of institutional and financial management capacity of SCT payment agencies, and recommendations on the most appropriate, affordable and feasible CT payment delivery modality/-ies:

 Conduct interviews and consultations with payment agencies and undertake initial assessment of all potential payment delivery modalities in the field (field distribution sites to be proposed by an institutional contractor), including GAPPS/POs, CAC, Al Amal Bank, AIMB, YBRD, NBY, IBY, TIIB to understand their institutional capacities and existing financial processes, procedures and controls of funds transfer operation. Explore on and assess the use of mobile banking modality (and other, if available, innovative modalities) by these cash payment agencies. Identify the status of facilities and the existing infrastructure of each cash payment agency at governorate and district level. Explore on the most appropriate, affordable and feasible social cash payment delivery modality. Conduct interviews with a cohort of SWF beneficiaries to hear their prior experiences of receiving social cash to assess effectiveness (effectiveness criteria to be suggested by the contractor) of SCT payment delivery modalities. Assess, when possible, the level of their financial literacy.

 Conduct interviews with the UN agencies, INGOs, Social Fund for Development (SFD) and other users of cash transfer modalities in Yemen to learn from their experience on the existing payment agencies.

 Develop a first draft report that would assess institutional and financial management capacities of social cash payment agencies focusing on the overall institutional and administrative capacity, budgeting and financial management policies, processes, and procedures as well as existing administrative and financial structures, social cash delivery and disbursal, costs (direct and indirect) associated with delivering social cash transfers to beneficiaries, associated risks and risk mitigation strategies, staffing and human resource management, networking and coverage by cash payment agency’s services, degree of knowledge of/relationship with SWF, and internal institutional monitoring and auditing processes and practices. The report should also provide information on how payment agencies currently manage local currency liquidity crunch, including foreign currency exchange. The report would also provide a set of recommendations on the most appropriate, affordable and feasible SCT payment delivery modality. Specifically, the report must:

o Identify financial management policies, processes, procedures and controls in relation to the funds transfer arrangements between a funds administrator and the CT payment agency to determine strengths and weaknesses as well as opportunities to improve social cash delivery at both central and local level, and advise on the need, if any, to put additional financial controls and assurances.

o Identify fiscal and accounting policies and procedures and assess their adequacy for maintaining accurate and complete records of cash disbursement receipts. Review internal control/audit systems and functions, determine if they

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are in accordance with the relevant professional standards, and identify potential risks and risk mitigation measures.

o Identify the differences in costs, both direct and indirect, and time required to deliver cash assistance at all levels.

o Assess the size of transactions, available databases, technologies and innovative solutions of each payment delivery modality, as well as robustness of identity procedures, the ways of dealing with liquidity constraints and other insecurities.

o Assess organizational and staff capacity of each payment agency to deliver social cash to SWF beneficiaries as well as their ability to adequately supervise the cash distribution process and handle complaints related to payment disbursement.

o Assess the governance redress mechanism applied, if any, by each entity including existence and quality of mechanisms for transparency and accountability to beneficiaries.

o Assess strategies and mechanisms applied by each assessed payment agency in managing the local currency liquidity crunch, including liquidity availability as well as the currency exchange.

 Develop a pre-final report incorporating comments and feedback from UNICEF YCO and other key partners engaged in the initiative, and participate in the respective validation meeting(s). The pre-final report should also provide a set of recommendations on the most appropriate, affordable and feasible social cash transfer payment delivery modality (on either adoption of a single (sole source) or multiple financial service provider strategy)4. Recommendations should also advise on monitoring implementation of payment delivery modality/ies.

Phase III: Final Report

 Finalize and submit a final report on assessing institutional and financial management capacity of social cash transfer payment agencies, and recommending on the most appropriate, affordable and feasible modality(ies) for CT delivery at scale in Yemen.

5. Suggested Methodology The institutional contractor will submit an inception report that would outline a detailed sampling methodology (based on mixed, qualitative and quantitative assessment methods, sampling), geographical scope sampling strategy, work-plan and lists of assessment criteria to address the terms of reference.

4 The following factors need to be considered when making recommendations on the most appropriate and feasible social cash disbursement modality: appropriate systems, including strong financial management ones, available supporting infrastructure, networks or availability of various payment channels to ensure reach out of beneficiaries and scalability, the management of complicated relationships, complex deal negotiations, technology, staffing, and resources for the cash transfer programme before it is scaled country-wide.

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The contractor must carry out field assessment of cash distribution points, and is expected to conduct a general assessment of social cash payment agencies’ internal controls according to the internal control standards. An example of established internal control standards is available from the Organization of Supreme Audit Institutions (INTOSAI). The INTOSAI Guidelines for Internal Control Standards could be found at the INTOSAI website: www.intosai.org

The contractor must also meet with/interview relevant staff of payment agencies to ensure full understanding of processes and procedures of payment delivery modalities as well as agencies’ institutional capacities. The institutional contractor should pay special attention to the records and documentation related to the latest social cash transfers made by each payment agency in 2015-2016.

The contractor should meet a cohort of SWF beneficiaries to hear their prior experiences (prior to the SWF suspension in 2015) and all other relative stakeholders to assess effectiveness of potential CT payment delivery modalities.

6. Expected Deliverables, Timeframe and Budget Reports should be submitted in both and English languages (Times New Roman, Font 12, 50 pages maximum). # Deliverable Timeframe Duty-Station Budget 1. Phase I: Inception report 0.5 month Sana’a, Yemen 20% 2. Phase II: Draft report 1.5 months Sana’a, Yemen 30% 3. Phase III: Final report 1 month Sana’a, Yemen 50% Total 3 months Total 100%

7. Reporting The institutional contractor will be supervised by UNICEF Yemen Country Office (Social Policy Programme) and will be responsible for submitting bi-weekly brief progress reports (3 pages maximum) in both English and Arabic. The contractor will also coordinate and work to the extent required with SWF at central and local levels given the focus on social cash delivery to the beneficiaries on the SWF list. The contractor is supposed to address all possible concerns, feedback and comments related to their work in a timely and reasonable fashion.

8. Contract details, terms and conditions The contractor will be engaged under a local short-term institutional contract on a full-time basis, immediately after the completion of the contracting procedure, for estimated period of 3 (three) months tentatively from 01 (first) February 2017 to 01 (first) May 2017. The detailed schedule of work is to be proposed by the institutional contractor. The Terms of Reference is an integral part of the institutional contract signed between UNICEF and the contractor.

The consultancy fee should correspond to the contactor’s qualifications and experience.

The payment is supposed to be against deliverables submitted on the agreed dates/schedule, and will be divided by the following stages:  20% will be paid upon submission and acceptance of the Inception Report

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 30% will be paid upon submission and acceptance of the Draft Report, and  50% will be paid upon submission and acceptance of the Final Report

A local institutional contractor is invited to partner with an international institution/sub- contractor (this international sub-contractor can be suggested by a local institutional contractor) that will support a local institutional contractor in undertaking the assignment. Hiring an international institution will be a sole responsibility of a local contractor. In case an international contractor travels to Yemen, UNICEF YCO will not be responsible for visa, accommodation, transportation (local transportation for field visits from and to Sana’a) and an international travel to and from Yemen (i.e., all these will be a sole responsibility of a local contractor). All costs associated with hiring an international institution as well as other associated costs should be an integral part of a financial proposal to be submitted by a local contractor.

9. Requirements and application a. Qualification and experience of institutional contactor’s team  More than 10 years (for team leader) and 5 years (for team members) of professional experience in performing similar roles and responsibilities (assessments related institutional and financial management capacity); experience of conducting collection and analysis of qualitative and quantitative data; Institutional contractor must have an adequate team/staff to carry out the assessment at all targeted geographic locations. The staff should possess advanced academic degrees from recognized universities, and appropriate professional qualifications and experience in ISA and or INTOSAI standards (CVs of a team leader and team members must be attached to the technical proposal; CVs shall include details of audits carried out by the staff, including any ongoing assignments);  Team leader and team members, including those in the field, should have excellent facilitation, analytical and research skills;  Field staff should demonstrate strong communication skills and culture-sensitivity. Ability/mobility to freely move within Yemen  Field team should be gender-balanced to enable reaching out to both male and female beneficiaries; Fluency in written and spoken English for team leader and other key members of the team. Arabic language skills for non-native speakers are highly desirable (especially, for team leader). Knowledge about Yemen context, social protection systems of Yemen, and SWF in particular, is highly preferable. b. General Conditions  An institutional contractor will work under direct supervision of Social Policy Programme, and in close coordination with the Deputy Representative.  The contractor will not be based at UNICEF premises.  State if a local contractor will include other benefits: No  State if a local contractor has right to stay in UNICEF property: No  Should a local contractor provide their materials, if required: Yes  Is a local contractor authorized to have access to UNICEF transport: No  State if flight costs would be covered and at what standard: If required, should be included in the financial proposal.  A local contractor is not entitled to payment of overtime: All remuneration must be within the contract agreement.

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 No contract may commence unless the contract is signed by both UNICEF YCO and the institutional contractor.

10. Payment terms UNICEF does not provide advance payment. The bidder will suggest a payment schedule for the contract, linked to unambiguous contract milestones. All prices/rates quoted must be exclusive of all taxes as UNICEF is a tax-exempt organization.

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Annex A of Annex I: CTs Modalities Used in Cash Transfer Delivery, 4 Quarter 2014

1. Post Offices (POs) at Governorate and District level

Districts The Current Number POs at that Number of Status No. Governorates of Governorate have Employees Districts Level Active Closed POs 1 Ibb 20 19 29 99 27 2

2 Abyan 13 10 12 29 5 7 Sana’a Secretariat 3 10 10 38 289 37 1 https://en.wikipedia.org/wiki/Sana%27a

4 Al Bayda 20 7 8 22 4 4

5 Taiz 23 20 43 136 14 29

6 Al Jawf 12 2 3 3 1 2

7 Hajjah 31 15 15 33 13 2

8 Al Hudaydah 26 18 27 83 27 0

9 Hadramaut (Almokalla) 10 10 24 65 18 6

10 Hadramaut (Siyauin) 17 11 21 58 18 3

11 Dhamar 12 11 17 38 13 4

12 Shabwah 17 8 10 19 5 5

13 Sa'dah 15 6 6 10 2 4

14 Sana'a 16 10 11 35 10 1 15 Aden 8 8 23 114 16 7

16 Lahij 15 9 13 39 4 9

17 Ma'rib 14 4 5 22 1 4

18 Al Mahwit 9 8 9 25 8 1

19 Al Mahrah 9 4 4 11 3 1

20 'Amran 22 15 16 24 15 1

21 Ad Dali 9 8 10 22 9 1

22 Raymah 6 5 7 12 7 0 23 2 2 3 7 1 2 Total 326 210 354 1195 258 96

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2. Cooperative & Agricultural Credit (CAC) Bank

Branch activity Status # # District S Office name Address quo Staff Functional Closed 1 Sana’a Command street- Saba junction 57 Functional 2 Ardh Hemyiar Madhbah – Off Attorney General 10 Functional Office 3 Sana’a airport Sana’a Int’l. Airport Functional Closed 4 Hadda Hadda St. – before Hadda hotel 40 Functional 5 Al Zubeiri Zubeiri St. beside the Ministry of 42 Functional Youth & Sport Capital 6 Dhahban Dhahban central market beside Closed 1 Sana’a Iman University 7 Movenpick Nuqom – Dahr Hemyiar Functional Closed 8 Bab El Sallam Bab El Sallam, Off Al Thawra 9 Functional hospital 9 Baghdad 60 meters St. – Beside Kamaran 27 Functional Company 10 Algeria Baghdad St. – beside YALI 5 Functional institute 11 22 of May Taiz St. – Off Baynoun street. 31 Functional 12 Al Asbahi 40 meters St. after the culture 8 Functional junction 13 Mogadishu Mogadishu St. 23 Functional 14 Daris Airport St. after Daris bridge 5 Functional 15 14 of October Taiz St. beside orphans home 30 Functional 1 Queen Arwa Ibb – Odain St. beside MTN 25 Functional 2 Ibb company 2 Governorate Beside Al Sabahi Martyr School 5 Functional

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3. Al Amal Micro-Finance Bank

Involvement Staff Branch Status quo in the Disbursing Functional Closed disbursement Branch the SWF # Governorate Address of SWF Remarks Name payment payment for (staff + the 4th volunteer) quarter, 2014 .1 Baghdad Capital Baghdad St. – Yes 19 Functional branch Sana’a off YALI institute .2 Al Thawra Capital Sheraton St.- Yes 9 Functional branch Sana’a Mareb street junction .3 Al Wahda Capital Taiz St.- Off Yes 11 Functional branch Sana’a Sharja Mall .4 Al Tahrir Capital Tahrir, beside Yes 8 Functional branch Sana’a Sam Hotel .5 Airport Capital Airport road, Yes 9 Functional branch Sana’a beside Daris market .6 University/F Capital 30 Meters Yes 43 Working Operating irst area Sana’a street, beside occasionally from the first branch Mathbah area bridge headquarter, Baghdad street as the bridge closed the area .7 26 of Taiz 4th point- Yes 17 Working Operates September/ command occasionally from the Second area Street, beside second area branch Al Saeed headquarter hospital in Wadi Al Qadhi because it is located near the security department .8 22 of May Taiz Jamal St. – Yes 24 Functional branch Wadi Al Qadhi entrance .9 14 October Taiz Hawban Yes 18 Functional branch crossroad

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Involvement Staff Branch Status quo in the Disbursing Functional Closed disbursement Branch the SWF # Governorate Address of SWF Remarks Name payment payment for (staff + the 4th volunteer) quarter, 2014 beside MTN company .10 Ibb branch Ibb Odain St.- Off Yes 27 Functional CRA office .11 Sheikh Aden Sheikh Yes 24 Functional Othman Othman, beside branch Jeddah hotel .12 Crater Aden Crater – Yes 6 Functional Temporary branch Stadium beside operating municipality from Sheikh market Othman branch due to unfolding events .13 Hodeida Hodeida Nakheel St., Yes 47 Functional branch beside Hodeida Pearl Hotel .14 Mukalla Hadhramo Bajuma’an St., Yes 16 Functional branch ut beside Al Fardous water .15 Hajja branch Hajja Al E’thra zone, Yes 21 Functional Sana’a St. – Off Sabafon .16 Abs branch Hajja Main road – Yes 43 Functional Shafra area .17 Dhamar Dhamar Sana’a St., Yes 21 Functional branch beside Al Mazna’ai junction

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