Joint Publication 9 CARE Madagascar Title II Final Evaluation Report of Findings Prepared by Richard Caldwell, TANGO International, Inc. and Sarah Fry, USAID-funded Environmental Health Project January 2003 CARE Madagascar: Title II DAP Final Evaluation Page i Table of Contents Acronyms.......................................................................................................................... iii Executive Summary......................................................................................................... iv I. Introduction......................................................................................... 1 II. Objectives of the Evaluation.............................................................. 2 III. Evaluation Methodology .................................................................... 5 III.A Review and Analysis of Key Documents...............................................5 III.B Key Informant Interviews......................................................................6 III.C Primary Data Collection in the Field ....................................................6 III.D Project Site Selection and Participant Interviews ...............................7 III.E CARE Staff and Counterpart Participation in the Evaluation Process..................................................................................7 IV. Evaluation Findings............................................................................ 8 IV.A Mahavita..................................................................................................8 IV.A.1 Strategic Objective 1 .............................................................................8 Income Generation and Assets Training – Personal Empowerment and Livelihoods Savings Component FFW Activities IV.A.2 Strategic Objective 2 ...........................................................................14 Developing Community-based Structures Fokotany Selection Empowering Structures de Developpement SD Activities and Management IV.A.3 Strategic Objective 3 ...........................................................................18 Infrastructure Development Water/Sanitation/Washbasins Hygiene Promotion Enabling Environment IV.A.4 Strategic Objective 4 ...........................................................................23 Health Sector Malnutrition IV.B CYPREP (Cyclone Preparation on the East Coast) ..........................25 IV.B.1 Intermediate Result 1 ..........................................................................25 Strategic Orientation 1: Strategic Orientation 2: Fokontany Development Plans (PDF) Cyclone Preparedness Plans (PPCs) Strategic Orientation 3: CARE Madagascar: Title II DAP Final Evaluation Page ii Mitigation Activities IV.B.2 Intermediate Result 2 ......................................................................31 Strategic Orientation 4: Strategic Orientation 5: Accomplishment of CVS Tasks IV.B.3 Intermediate Result 3 ......................................................................33 Strategic Orientation 6: The Commune Emergency Management Committee Capacity-building of Social Mobilization Agents IV.C Food Aid Management Systems & Internal Controls .......................35 IV.D Food Distributions in FFW Programs ................................................35 V. Conclusions................................................................................... 36 V.A Mahavita................................................................................................36 Strategic Objective 1: Strategic Objective 2: Strategic Objective 3: Strategic Objective 4: V.B East Coast Programming – CYPREP.................................................39 Intermediate Result 1: Intermediate Result 2: Intermediate Result 3: V.B.1 Other CYPREP Conclusions ...............................................................43 VI. Recommendations for DAP II .................................................... 43 Urban Development/Governance Environmental Health Health Guiding Principles for DAP II Environmental Health activities Enhancing Food and Livelihood Security on the East Coast Annexes Annex A CDD (James Garrett) ....................................................................................50 Annex B Evaluation Terms of Reference ....................................................................59 Annex C List of Persons Contacted .............................................................................65 Annex D Mahavita Fokotanys......................................................................................66 Annex E Qualitative Survey Sites for CYPREP..........................................................67 Annex F Qualitative Research Site Visits ...................................................................68 Annex G Engineering Report (in French) ....................................................................70 CARE Madagascar: Title II DAP Final Evaluation Page iii Glossary and Acronyms ADC Agent de Développement Communautaire AMS Assistant de Mobilisation Sociale (Field/Extension Agent) APIPA Autorité pour la Protection contre les Inondations de la Plaine d’Antananarivo CARE Cooperative for Assistance and Relief Everywhere CCS Conseil Communal de Secours (Commune Emergency Management Committee) CFW cash-for-work CLS Conseil Local de Secours (niveau sous-préfecture) (District Emergency Management Committee) COGES Comite de la Gestion et Suive (Management and Monitoring Committee) CYPREP Cyclone Preparation Project CUA Commune Urbaine de Antananarivo CVS Comite Villageois de Securite (Village Security Committee) DAP Development Assistance Program EHP Environmental Health Project (USAID) FALAFA Famakafakana Lalina ny Fiainana eny Ambanivohitra (Malagasy acronym for HLS analysis) FAMOA Fanadihadiana Miaraka ny Olana sy ny Alaolana FFP Office of Food for Peace FKT Fokotany (the lowest administrative unit in the Government of Madagascar) FMG Francs Malagasy (approximately 6,200 FMG = $1.00 U.S.) Fokontany Malagasy word for village or community FFW food-for-work GOM Government of Madagascar HIF Hygiene Improvement Framework HLS Household Livelihood Security IFPRI International Food Policy Research Institute ISIKI Io no Sehatra Ifanakalozan-Kevitra sy Andrindran’Asa LOP life of project MOH Ministry of Health PAIQ Programme d’Appui aux Initiatives de Quartier PDF Plan de Developpement du Fokotany (Fokotany Development Plan) PDQ Plan de Developpement du Quartier (Neighborhood Development Plan) PL Public Law (480) PPCC Plan de Préparation Cyclonique Communal (Commune Cyclone Preparedness Plan) SCVM Sécurité des Conditions de Vie des Ménages (HLS) SD Structures de Developpement USAID United States Agency for International Development VCT vivre contre travail (food-for-work) CARE Madagascar: Title II DAP Final Evaluation Page iv Executive Summary CARE Madagascar’s Title II DAP began in 1998 and included two sub-programs - Mahavita and CYPREP. Mahavita was operational in 30 of Antananarivo’s poorest neighborhoods and aimed at sustainably improving household food and livelihood security. Its primary delivery mechanism was a well-orchestrated, community-based approach. CYPREP assisted rural communities throughout Tamatave Province on the east coast of Madagascar in risk management through planning and preparing for natural disasters. This evaluation provides findings from the evaluation of both components, as well as conclusions regarding the impact of the program and recommendations for future work in both rural and urban settings. The program set out to facilitate the creation of community-based structures (SDs) empowered to identify, plan, implement, coordinate and sustain activities that would contribute to the well- being of residents. In this Mahavita made significant progress in empowering communities and the majority completed community plans to guide development over the coming years. Many residents express a feeling of being part of an important process and that their efforts will result in improved living conditions. Mahavita’s efforts to improve income and savings in poor households could have been done more effectively, and as a result there is little evidence that incomes have increased due to new employment opportunities for the urban poor. The FFW component, however, was very successful in targeting poor households and in providing a safety net in the form of cash and food. This was particularly critical during the political crisis of 2002 when food wages made an important economic contribution to households. Most of the community SDs are now struggling with ‘next steps.’ Members still appear highly motivated, and some SDs are now seeking their own funding with limited success, but there has been no coordinated effort on the part of Mahavita to develop alternative strategies and capacity for such action. This will be a key area to reinforce in the follow on DAP. Mahavita also facilitated improvements in the environmental health of Fokotanys (neighborhoods) through training and infrastructure development. Infrastructure development followed community empowerment, and it is more likely infrastructure will be maintained by the community. Where program activities have been active the neighborhoods are noticeably cleaner. Residents speak of noticeable health improvements in areas such as skin disease, children’s diarrhea, and even infant mortality. Despite positive gains in environmental health, more work is needed in water and sanitation, especially as it applies