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Final Evaluation of Hurricanes Operation 2004

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Final Evaluation of Hurricanes Operation 2004 FINAL EVALUATION OF HURRICANES OPERATION 2004 Cayman Islands, Cuba, Grenada, Haiti, Jamaica, and Trinidad and Tobago Prepared for: IFRC Secretariat Evaluation Department Prepared by: Teresa Gamarra Sheila Reed John Wilding Final Report August 2005 Table of Contents i Map of the Hurricane Affected Areas ................................................................................................ii Acronyms ............................................................................................................................................iii Executive Summary..............................................................................................................................v 1 Evaluation Background................................................................................................................ 1 1.1 Evaluation Purpose and Motivating Factors .......................................................................... 1 1.2 Users of the Evaluation ........................................................................................................... 1 1.3 The Evaluation Team .............................................................................................................. 1 1.4 Work Schedule and Statement of Work................................................................................. 1 1.5 Constraints Experienced.......................................................................................................... 2 1.6 Multi-Method Approach ......................................................................................................... 3 1.7 Triangulation and Bias Reduction Methods .......................................................................... 3 1.8 Incorporation of Gender and Vulnerable Group Perspectives.............................................. 4 2 The Hurricanes and the Context and the Impact........................................................................ 5 2.1 The Hurricanes.......................................................................................................................... 5 2.2 The Context and the Impact ..................................................................................................... 6 2.1 The Involvement of the Federation in the Americas (Latin America and the Caribbean).. 8 2.2 The Appeals ............................................................................................................................. 8 3 Evaluation Findings ...................................................................................................................10 3.1 Relevance and Appropriateness............................................................................................11 3.2 Effectiveness ..........................................................................................................................17 3.3 Efficiency ...............................................................................................................................24 3.4 Sustainability/Connectedness ...............................................................................................24 4 Recommendations......................................................................................................................26 Country Reports...............................................................................................................................35 Cayman Islands.................................................................................................................................. 35 Cuba....................................................................................................................................................42 Grenada............................................................................................................................................... 52 Haiti ....................................................................................................................................................70 Jamaica ............................................................................................................................................... 91 Good Practices and Lessons Learned Workshop: Hurricane Ivan................................................102 Annex 1: Terms of Reference .........................................................................................................107 Annex 2: Inception Report ..............................................................................................................111 Annex 3: Community Survey Instrument.......................................................................................115 Annex 4: Persons Consulted ...........................................................................................................116 Annex 5: Documents Consulted ..................................................................................................... 119 i Map of the Hurricane Affected Areas Charley: 9 – 17 August Frances: 25 August – 15 September Ivan: 2 – 24 September Jeanne: 13 September ii Acronyms ALNAP Active Learning Network for Accountability and Performance BRCS British Red Cross Society CCORC Caribbean Cooperation of the Red Cross (National Societies) CDERA Caribbean Disaster and Emergency Relief Agency CDPT Community Disaster Preparedness Training CDRT Community Disaster Response Team CIRC Cayman Islands Overseas Branch of the British Red Cross CRC Cuban Red Cross DREF Disaster Relief Emergency Fund DFID Department for International Development (United Kingdom) DMC Disaster Management Coordination Division (IFRC Secretariat) DMIS Disaster Management Information System ECHO Humanitarian Aid Department of the European Commission ECLAC Economic Commission for Latin America and the Caribbean EOC Emergency Operations Center ERU Emergency Response Unit FACT Field Assessment and Coordination Team FRCS French Red Cross Society GRCS Grenada Red Cross Society HIV Human Immunodeficiency Virus HNRCS Haitian National Red Cross Society IAC Inter-American Conference IFRC International Federation of Red Cross and Red Crescent Societies JRC Jamaican Red Cross MOU Memorandum of Understanding NEMA National Emergency Management Office (Trinidad and Tobago) NERO National Emergency Relief Office (Grenada) NGO Non-government Organization NIT National Intervention Teams NS National Societies OCHA United Nations Office of Coordination for Humanitarian Affairs OECD DAC The Organisation for Economic Co-operation and Development, Development Co-operation Directorate ODPEM Office for Disaster Preparedness and Emergency Management (Jamaica) OFDA The Office of US Foreign Disaster Assistance ONS Operating National Societies PADRU Pan-American Disaster Response Unit PAHO Pan American Health Organization PNS Participating National Societies RD Regional Delegation RFU Regional Finance Unit RRU Regional Reporting Unit RIT Regional Intervention Team RLU Regional Logistics Unit iii UNDAC United Nations Disaster Assessment and Coordination Team UNDP United Nations Development Programme UNICEF United Nations Children’s Fund USAID United State Agency for International Development VCA Vulnerability and Capacity Assessment iv A Final Evaluation of International Federation of the Red Cross Hurricane Operations 2004 Cayman Islands, Cuba, Grenada, Jamaica, Haiti, and Trinidad and Tobago Undertaken by Teresa Gamarra, Sheila Reed, and John Wilding, March to April 2005 Final Report August 2005 (The views expressed in this report represent those of the authors.) Executive Summary Background The International Federation of Red Cross and Red Crescent Societies launched appeals and requests for assistance to respond to the effects of Hurricanes Charley, Ivan and Jeanne in August and September of 2004. Hurricane Charley destroyed or damaged 90,000 houses in Cuba. Hurricane Ivan devastated Grenada, destroying or damaging 90% of the homes, damaged 34,000 homes and destroyed 5,000 in Jamaica, and damaged 80% of homes in the Cayman Islands. The floods resulting from Jeanne killed 3,000 in Haiti and affected 300,000 people. The Regional Delegation in Panama, PADRU, the Sub-regional office in Trinidad and Tobago and the National Societies implemented operations to respond to the disasters. Evaluation Terms of Reference, Team and Methodology IFRC wishes to provide Secretariat management and the National Societies with lessons learned and good practices on the subject operations. The criteria for the evaluation are Relevance and Appropriateness, Effectiveness, Efficiency, and Sustainability. Three people formed the evaluation team, two external evaluators and one ONS staff. The methodology for the evaluation included a document review, structured key informant and focus group interviews with communities, volunteers, donors, government organizations and NGOS and a lessons learned workshop. Major constraints to the analysis were insufficient time in the countries visited, exclusion of some countries from data collection visits and a TOR which asked for investigation into numerous aspects of operations for which time was not allocated. Main Findings Relevance/Appropriateness Federation humanitarian relief efforts during the hurricanes operations have saved many lives and prevented chaos and suffering. The heroic efforts of Secretariat and National Society staff and volunteers working in the Americas deserve profuse praise. Their overall efforts have been effective and dedicated. v Issues regarding
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