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Best Available Copy Best Available Copy She 0ff;ce zf Fzrelgn L~saatsr-4ssrstszce and The Cf f ice nf" heA. T . - - Rs;;resenta~:~.-e 3;. S. .Agemc:. for I~ernarionai De*,-eiapment, Ya~uts,Yczamb~que Submitted b:*-: EXECUTIVE SUMMARY The current situatici~ in Yozambique is an anomaly. On t one hand, its rapid execution of and initial successes with an Economic Rehabiliiation Program are fast turning it into a favored example of the internationai :4onetary Fund. On the other hand, over 2.2 million Xozambicans are affected by severe shortages af food a~dother rtems essential to thelr surx.rvai, and a further I.! have been dlspiazed from thelr homes due t~ a contl~c~ngcyoie of drought, floods, and an aetrve and xraes~reaa Lar of destablllzatlcn. it is thus currently one of -Africa's more p~~3m:srr,gsuccesses cr ma:Dr disasters, depending on ane's pornt of ** re%. The C.S.-based non-governmenral organrzation CARE Interna- t~onalhas uorked in Yo~arnb~quesrnce 1984, assisting in the creaclcz of a Loglstres Support Unit (LSUI within the governmen- tal Department of the Prevention and Combat of Satural Calamities rDPCf3 t. The aiancate of the LSL 1s to manage ana transport emergenc,v food dnd non-food commodities throughout the nation tc at-risk populatnns. CARE'S uork has been supported since 1984 by a serles of grants totalling approxlrnately U.S@S9 million from A.I.D.'s Offrces of Forelgn Disaster Assistance IOFD.4) and Faod For Peace IFFPI. Prlor ro provrding additional funding, these offices ccntrzcted for this Evaiuasion of CARE'S perfor- mance to date. The Evaluation assesses the Grant activities ~ithinbeth spneres of interest to A.I.D., :.e. the emergency situation and the o\erail economlc environment. It thus analyzes CARF;s perf~rmancein rerrns of overaik effecflveness in meeting human:- tartan gbjectlxes as weli as efflciencles uhich have and have nst been obtalned ir. terms of creating a ?jozambican disaster pre- parv+nsss inst;tutron that can be sustained over time. -LE conci~jesthat C.W4 has made a strong contributior, tc dex-eiii;mer,c of an effect~veand ueli-equipped Yozamb~candisaster reLlef structure, of wh~ckthe LSL 1s but one part. CARE'S careful attenrlon to a system's approach to :he rieeds xiii have a vsr: hign payoff in the medlum and Long tera. CARE has been less concerned xlth efficiencres of tne operation in the short ~erm. glven the mass~~erieecis. As C-AilE has done ~eii~n estabilsfi~ng an effective s>-sten,so :t nou must turn to tne fine-tuclng CG enable the Yozambleans to maintsln that sFstem in the furare. The period 1984-1987 is eharacterizcu as one of high gr?weh: - In t984 emergency assistance was delivered to only three of Yozambique's ten Provinces; by 1987, nine nere benefitting from CAR4 and DFCCS services. "Phase I"' of a CARE Yaster ?lan of Operations tracking commodities from the dunors to the Provrnciai level was installed accountability for approximately 70 percent of commodities to the Provincial level was achieved; the valuation proposes a target for 1988 of 95 percent accountability to tbe Provincial level, which appears reasonable. - Beyinnlng ~n July, 1987, "Phase 2" of the ?laster Pian Gas nitrated xlth the appointment and trarning of Deiegates in 50 of Yozambique's accessible distrrets. Another 20 %ill be recruited and trained in 1988. This means that 61 pelcent of Yozamblque's affected dis- trrces (1.e. all those that are accessible) will be fill ly accountrng far commoditres in the near future. The evaluatron proposes a target of 50 pereenr accoun- tahliity for these sltes for 1988, ~hichseems optlmis- TLT grven the low skiLis level of the District Dele- -gates. k;th a recommended strong refocussing on tralni:ig, accountability at the District level snould ~nzreasedramatlcaliy in 1989. - i~ 1982 the DPCCN/LSC managed 61,550 tons of donor commodities to five Provrnces; by 1987 the total had grovn to 153,253 tons In nine Provlaces, for an almost 250 percent ~ncreasern quantity and an over 50 percent lnerease ~n covezSage. It must be emphasized that the 98,000 tons of :he 1987 contrlbutisn that xas cereais, represents adeq,~ateratlons for only appr-oxrmateiy 390,000 of Yozamblque's 3.3 million at-r:s~ persons; sbsolute avsllablllty of food 1s th-us still a ccc- strar~t. - Sit.-en groxth of widespread terrorist activitses and zc~=~rn:tantdlfflcultles kith lnternai transport roLtes, LSL,ICA.?RE relies ari use of id points of er,tr: . -, _ commodltles around the coun:r>-, i.~.the three za:cr ports, sexPera: rnlnor ports, and numerous sa:L an2 r,;ab en~r:- polriis from the rnterlor. Thls compounds problems urrn accountsblliiy and increases costs, DUX ;s considered apprcprlate 13 terms of a h~gndegree -3: effettrveness in rea2nrnp at, risk pop~lat~ons; - In 1984 the D?CCS/LSL fleet to move the carnmcditles from points of entry to the Provinces and Districts co2sisted of 61 vehicles In varying states of repair; by 1988 it had a total of 489 trucks, tractors and lrghz vehicles, of xhich 65 had been desrroyed, 35 sf these by terrorist mine explosions; and - In 1984 DPCCS storage capacity throughout the country zas about 5,000 tones; by 1988 it managed over 60,000 Best Available Copy iii tons of storage capacity in Provincial and District headquarters. This growth has been supported by over 40 non-governmental organizations, CN agencies, and multilateral and biLateral donors, which in 1987 alone provrded more than S 325 mik'xon d~ilarsof emergency asslctance. It has been managed by the rncreas~nglyeffective DPCCN, which serves as the lmplementnng agency of a mulci-trei-ed GPRY emergency management str~~cture. CARE professranals partielpate on several of the committees and have made a posltixe contrrbutron to acquisition of donlor comrnodltles and egurpment. By 1987, .A,I.D." ccctrrbution to the LSC/C.ARE opera~~ngbudget had decreased to less than 50 prcent nf the total. The overall effectiveness has been accomplished through esmbllshing LSC as a vertically integrated logistics unit, coverzng planning, collection of baseline information, and ernphasjs on deveioplng a full "in-house" transport capacity. Given the "institutionalization"' of the emergency and related groutb of other structures, as well as the slight up-turn and cauticus confidence in the economy, the Team recommends that the LSt begrn "horizontal" integration in the interests of increased efflc~ency. The key area in which the LSL can deveiop efficiencies and, In the process, help the nation move ~owardsa recovery mode ;s In use of private sector transport. The Evaluation Team's data coilection and anaiysrs indicate that use of private truckers fo long-hac? and relatively safe routes ~ouibreduce LSU-dxrect cargo by approximately 10 percent and would save OFDA and FFP ap- praslmatefy S 132,000 in hard currency ~n the flrst year. Optrons beyond simpie contract which involve more rnvestrgacron) but which would greatly lncrease LSL efflzrency over tine 1r;c:ude: !I: selling DPCCZ trucks tc the prrvaee sector and :he:. contracting whth lccal currency for food iransposc; ,i: seci~ri5 9PCCY's large trucks and replacing them kith shori-haul, robus: vehlcles for the Dlstrrct roads iuhth pril-ate transporters handling tne Provinciai runs;; (;hi) pro7;lding trucks and/or spare parts directly to the prlvate sector through an 4.1.3. Commodity Im~ort-typeProgram; andior tlv) conrracting a tra7,s- port management firm ts rnltiate 9 hlre-purchase scheme for pr~vatetransporters. Other areas for "horizontal'>lntegration include shifting af the LSU Information Section into a newiy created Department of Projects, Information and Planning in the DPCCS, increased use cf other rtzdes of transport, particularly cabotage (i.2. coastal. barges) and river, and increased use of private sector vehicle repair facilities as these are rehabilitated, The key recommendation for the short term is to move into s "no growth'phase, witn emphasis on making uhat has been created work more efficiently. The Team strongly recommends that the fleet not be increased beyond rts present levels. It further reccrnnends no nex initiatives or additronal expatriate personnel ulthln ",e LLSI for CARE. Emphasls must be on rrnproved CGS~ account~ngto rdentlfy opportunixies for cost savings and or. sasrly increased, organized tralning a.t all levcls. in this regard, the Evafuat-cn examines three optlons for improved accauntabrilty thraug? end-use verification. It strongll- recommends that the LSL- npt extend ltself any furt . adding ancther level of personnel at the sub-districz-t, uazt~i Phase : idonor-to-Province) and Phase 2 (Province-to-District) are reaching acceptable levels sf acca~untability~ It provides anai-sis xhich ~ndlcatesthat a separate end-use system Tor ali cornrncdities ~ocldbe very costl>-. It recommends instead a "lox cost-no ccs:' option of the DPCCS enlisting the assistance of rDapc--ating >GO'S and LN agencies in a more formalized random spot check system. This wril improve end-use confidence vhile not over-stralnrng already fragile systems. For L-.S. Title I1 commodities, the Team cautions against\ OFDA suppartlng the creation of costly parallel structures by <- ve L, X's. I: recommends instead encouraging NGO's who are m:onslgnees of -;lc?e 11 food to develop District-basea programs ~zici-:emphasize end-use \eriflcatlon of commoditres delivered by 22CC.',iLS:- at the iet-el rc.hlrh it does not operate. Based cr: tn:s massive 'h gh groxth" phase, skills transfer a: tire rnanager~allevb-ei has been rnadequate and the Team recorn-'. xecbs :sat C?F~~~/FF~plan to fund CARE at present levels fcs 1 ancther 2 >-ears and reevaluate the situation in Apr~l,:990.
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