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Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Southern and Central Somalia

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Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Southern and Central Somalia Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Southern and Central Somalia Report Humanitarian Outcomes team comprised of: Kerren Hedlund, Nisar Majid, Dan Maxwell, and Nigel Nicholson This evaluation was commissioned by UNICEF. The evaluation process was guided by a steering committee that comprised representatives from: ACTED, DFID, ECHO, FAO, Oxfam, the Somalia Cash Consortium (ACF, Adeso, Danish Refugee Council, Save the Children) and UNICEF. Disclaimer: The opinions expressed in this report are those of the evaluation team and do not necessarily represent those of the agencies being evaluated or the evaluation steering committee. The evaluation team takes responsibility for any errors reported herein that are based on its own independent data collection. Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Somalia Acknowledgments The evaluation team would like to thank all those who have provided their support and input to this evaluation. We are particularly grateful to the over 30 Somali enumerators, the Somali Women’s Study Centre, Horn Research and Development and Qoran Noor who facilitated interviews with hundreds of Somalis affected by the crisis. We are grateful for the constructive inputs and feedback from the evaluation steering committee; UNICEF, FAO, DFID, ECHO, the Somalia Cash Consortium Coordinator Olivia Collins, Oxfam, and ACTED; the wisdom and advice of Humanitarian Outcomes experts, Paul Harvey and Adele Harmer; and the very open collaboration with Mike Brewin, Sophie Dunn, and Catherine Longley of the ODI team. We are also grateful for the support from the UNICEF country office; Claire Mariani, particularly in her role as evaluation manager, and Jacinta Oluoch, as well as Adeso, the Danish Refugee Council, and Save the Children Somalia for their assistance in organising meetings, workshops and field trips in Nairobi, Mogadishu and Puntland. Thank you to DFID, ECHO and USAID (OFDA/FFP) for their financial and moral support throughout the evaluation. We are particularly indebted to the agency staff, beneficiaries and non-beneficiaries, particularly to those who risked repercussions for speaking the truth, and the many individuals who provided their time and insights through interviews, focus groups and workshops. And finally, the NGOs – both Somali and international – who consented to be part of this evaluation, and because of whom, through their commitment to transparency and learning, humanitarian programming in Somalia will become more appropriate and effective for the Somali people. Humanitarian Outcomes i CONTENTS I. Introduction ................................................................................................................................... 1 II. Background to this Evaluation .................................................................................................... 3 III. Scope of the Evaluation ............................................................................................................... 5 IV. Methodology.................................................................................................................................. 8 V. Historical and Contemporary Context of Aid in Somalia ........................................................ 11 VI. Appropriateness ......................................................................................................................... 14 A. Early Warning, Delayed Response and a Debate over Modalities ........................................ 14 B. Response Analysis ................................................................................................................. 16 VII. Coverage and Targeting ............................................................................................................. 23 A. Needs, Overall Response and Overall Coverage .................................................................. 23 B. Targeting Effectiveness of Socio-Economic or Community-Based Targeting ........................ 32 C. Targeting Effectiveness Using Nutrition-Based Criteria ......................................................... 36 VIII. Mogadishu ................................................................................................................................... 38 IX. Connectedness and Coherence ................................................................................................ 44 X. Efficiency ..................................................................................................................................... 52 A. Implementing with Local Partners .......................................................................................... 56 XI. Effectiveness ............................................................................................................................... 61 A. Value for Money ..................................................................................................................... 61 B. Diversion and Fraud ............................................................................................................... 66 The Case of Adeso, AFREC and Amal .............................................................................. 67 C. Remote Management and Risk Management ....................................................................... 73 D. Monitoring .............................................................................................................................. 81 XII. Impacts ........................................................................................................................................ 84 A. Food Security Impacts ........................................................................................................... 86 Household Dietary Diversity Score. ................................................................................... 87 Household Hunger Index. .................................................................................................. 91 Proportion of Expenditure Spent on Food. ........................................................................ 92 Reported Indebtedness and Debt Repayment as a Proportion of Transfer Expenditure. .. 93 Regression Analysis Results ............................................................................................. 94 Humanitarian ii Outcomes Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Somalia B. Livelihoods Impacts and Market Multipliers ........................................................................... 99 C. Market Impacts .................................................................................................................... 102 D. Cash and Women ................................................................................................................ 104 XIII. Accountability ........................................................................................................................... 107 XIV. Conclusions .............................................................................................................................. 110 XV. Key Recommendations ............................................................................................................ 112 XVI. References ................................................................................................................................ 118 XVII. Annexes ..................................................................................................................................... 125 Humanitarian Outcomes iii ACRONYMS ACF Action Contre la Faim ACTED Agence d’Aide à la Coopération Technique et au Développement AFREC African Rescue Committee, a Somali NGO ALC Agriculture and Livelihoods Cluster AMISOM African Union Mission in Somalia AS Al Shabaab AYED Action for Youth and Development CAP Common Appeals Process CBRWG Cash Based Response Working Group CED Center for Education and Development, a Somali NGO CFW cash for work CHF Common Humanitarian Fund COOPI Cooperazione Italiana CPD Centre for Peace and Democracy, a Somali NGO CRS Catholic Relief Services CSI coping strategies index CVMG Cash and Voucher Monitoring Group DANIDA Danish International Development Agency DFID Department for International Development United Kingdom DRC Danish Refugee Council ECHO European Community Humanitarian Office EMOP Emergency Operation FAC Food Assistance Cluster FCS food consumption score FEWSNET Famine Early Warning System and Network FFP Food for Peace (USAID) FSC Food Security Cluster FSNAU Food Security and Nutrition Analysis Unit HARDO Humanitarian Action for Relief and Development Organisation HCO Humanitarian Coordination Office (OIC) HCT Humanitarian Country Team HDDS household dietary diversity HHI Household Hunger Index (or Scale) Humanitarian iv Outcomes Final Evaluation of the Unconditional Cash and Voucher Response to the 2011–12 Crisis in Somalia HIJRA Humanitarian Initiative Just Relief Aid, a Somali NGO HVF high-value food IAO international agency/organisation ICC inter-cluster cash coordination ICRC International Committee of the Red Cross IDP internally displaced person IFM independent field monitoring IFPRI International Food Policy Research Institute ILO International Labour Organisation INGO international NGO IOM International Organisation for Migration IRC International Rescue Committee IRW Islamic Relief Worldwide KPMG Klynveld,
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