The charge is necessary to unite the townspeople and encourage them to move on from the disaster.

How about putting the charge on TEPCO's tab?

Rather passive-aggressive behaviour on the town govt.'s part. They don't want to be seen as refusing to provide food to those in need, but they do want to stop doing so. I wonder if there's more to this - do they consider those taking the bentos as being scroungers, who are just taking advantage of the free meals despite being able to afford it? Can the recipients afford to pay for them? And why are people still living at shelters, a year and a half later?