OVERSEAS DEVELOPMENT ADMINISTRATION EVALUATION REPORT Ev568 EVALUATION OF ODA'S RESPONSE TO THE 1991·1992 SOUTHERN AFRICAN DROUGHT Edward Clay, John 80rlon, Sanjay Dhiri Anil Das Gupta Gonzalez and Carlo Pandolfi VOLUME 11 April 1995 EVALUATION DEPARTMENT OVERSEAS DEVELOPMENT ADMINISTRATION 94 VICTORIA STREET LONDON, SW1E SJL Volume II Abbreviations & Acronyms i i i Annex 1 Mozambique Case Study 1 Annex 2 Zimbabwe Case Study 37 Annex 3 Lesotho Case Study 77 Annex 4 Terms of Reference 97 Annex 5 References 101 i ABBREVIATIONS &ACRONYMS AGRITEX Ministry of Agriculture, Department of Extension (Zimbabwe) ATP Aid and Trade Provision BHC British High Commission BoP Balance of Payments BRCS British Red Cross Society CAFOD Catholic Fund for Overseas Development CA Christian Aid CADEC Christian Catholic Agency for Development CARE An international confederation of NGOs CARITAS An international confederation of Catholic NGOs CC Christian Care CCM Christian Council of Mozambique CCPCCN Co-ordinating Committee for the Prevention and Control of Natural Calamities Mozambique) CENE National Executive Emergency Commission (Mozambique) CGIAR Consultative Group on International Agricultural Research COE Committee of Emergency Operations (Mozambique) CSAD Central and Southern African Department CSFP Child Supplementary Feeding Programme (Zimbabwe) CTE Technical Committee for the Emergency (Mozambique) DANIDA Danish International Development Agency DDF District Development Fund (Zimbabwe) DEC Disasters Emergency Committee DESA Drought Emergency in Southern Africa DHA (United Nations) Department of Humanitarian Affairs DPCCN Department for the Prevention and Control of Natural Calamities (Mozambique) DRIG Drought Relief Implementation Group DRSS Directorate of Research & Scientific Services (Zimbabwe) DRTF Drought Relief Task Force DSM dried skim-milk powder DWA Department of Water Affairs ECFAD European Community and Food Aid Department EDRMP Emergency Drought Recovery and Mitigation Project EFF (IMF) Extended Fi nanci ng Faci 1ity EMAD Emergency Aid Department ESAP Economic Structural Adjustment Programme (Zimbabwe) ESRT Evaluation success Ratings Table FAC Food Aid Convention FAO Food and Agriculture Organisation of the United Nations FAS Free alongside vessel FEWS Famine Early Warning System FHI Food for the Hungry International FPMU Food Programming and Monitoring Unit of CARE FRELIMO Mozambique liberation Front FSU (SADC) Food Security Technical and Administrative Unit GAA German Agro-Action GIEWS (FAO) Global Information and Early Warning System GMB Grain Marketing Board (Zimbabwe) Gol Government of lesotho GoM Government of Mozambique GoZ Government of Zimbabwe ICRC International Committee of the Red Cross ICRISAT International Crops Research Institute for the Semi-Arid Tropics IDA International Development Association IEFR International Emergency Food Reserve i i i IFRCS International Federation of Red Cross and Red Crescent Societies IMF International Monetary Fund IRWSS Integrated Rural Water Supply and Sanitation nSH internal transport, storage and handling IlK International Wheat Council JFS Joint Funding Scheme LCN Lesotho Counci 1 of NGOs LFDG Logistics and Food Distribution Group LRC Lesotho Red Cross LSM Life Sowing Ministries MRCS Mozambique Red Cross Society MSF Medecins sans Frontieres MSF-CIS M§decins sans Frontieres Celula Inter-Sec~oes information system NAC National Action Committee (Zimbabwe) NANGO National Association of NGOs (Zimbabwe) NCPCC National Civil Protection Co-ordinating Committee (Zimbabwe) NGO non-governmental organisation NOVIB The Netherlands Organisation for International Development Cooperation ODA Overseas Development Administration ODI Overseas Development Institute ORAP Organisation of Rural Associations for Progress (Zimbabwe) PEM Protein-Energy Malnutrition RENAMO Mozambique National Resistance SACU Southern African Customs Union SADC Southern Africa Development Conference (formerly SADCC) SCF Save the Children Fund SIDA Swedish International Development Agency SSFP Schools Supplementary Feeding Programme (Zimbabwe) TC Technical Co-operation UNHCR United Nations High Commission for Refugees UNICEF United Nations Childrens Fund UNILOG United Nations Logistics Task Force USAID United States Agency for International Development VWSS Village Water Supply and Sanitation WA Water Aid WASA Water and Sewerage Authority WDC Water Development Consultants I1FP (United Nations) World Food Programme WHO World Health Organisation ZYMCA Zimbabwe Young Men's Christian Association iv Evaluation of ODA's Response to the 1991-1992 Southern African Drought Annex 1: Mozambique Case Study Map A.I - Mozambique INDIAN OCEAN " ZIMBABWE " \, G I j. 20 MOZAMBIQUE o r-.:aljo"~ capital I I o p,ov;r.<:e capital \ o To".... , village " R.lil!03d INHA\IBANE Main road i 0I:-'e1 road SOUTH AFRICA IS' lNOfAN oeEA.''! ".'.f.~ ','l ).) .• ~""'I () '.11 (,0·.~ "P'''' "J~I i i 1. INTRODUCTION AND METHOD OF STUDY 1.1. Introduction 1.1.1. Mozambique was selected as one of the case-study countries for two reasons. First it received a substantial share (22%) of the bilateral assistance provided by ODA in response to the drought. Approximately £10.8m of drought­ related assistance was provided during Financial Year 1992/93. Only Zimbabwe and Zambia received larger amounts - £12.3m and £11.4m respectively. Secondly, ODA chose to concentrate its bilateral food aid assistance on Mozambique and Malawi and of the two Mozambique received the larger share. In all, just over 42,000 tonnes of food commodities, principally maize, were provided in the financial year, April-March 1992/93. 1.1.2. Section 2 of this case study examines the drought and the way in which it impacted upon an economy and society already profoundly affected by the (then) ongoing conflict. Section 3 briefly describes the response to this drought by the Government of Mozambique (GoM) and the international community as this provided the context in which ODA's response was undertaken and indicated the overall response of which ODA's was just one part. Section 4 describes ODA's response in more detail than is given in the Main Report, and assesses actions in distinct types of activity or 'sector', i.e. food and logistics, water, agriculture, rehabilitation and health. 1.2. Method of Study 1.2.1. Material for the Mozambique case study was gathered in London by John Sorton and Sanjay Dhiri of ODI and in Mozambique principally by Anil Das Gupta Gonza 1ez. The materi a1 collated and written up by Anil Das Gupta Gonza 1ez was subsequently edited by John Sorton with assistance from Margaret Cornell. 1.2.2. An examination of the files of the Central and Southern Africa Department (CSAD), the Emergency Aid Department (EMAD) and the European Community and Food Aid Department (ECFAD) of ODA was begun in November 1993, and interviews were also conducted with the personnel of these Departments. At an early stage it became apparent that it was difficult to distinguish between those actions by ODA that constituted a response to the drought and those that formed part of the response to the ongoing emergency. An attempt was therefore made to identify the remit of the evaluation in relation to particular actions. During interviews with ECFAD staff it was agreed that the evaluation should cover all food aid actions funded during 1992/93. During interviews with CSAD staff it was agreed that the eva 1ua t ion shoul d cover all actions funded from the 'Drought' fundi ng line, together with those actions funded from other funding lines that showed substantial overlap with the 'Drought' actions or which could be considered to have constituted responses to the drought. 1.2.3. Fieldwork in Mozambique was undertaken between 12 January and 6 February 1994 by Anil Das Gupta Gonza 1ez, a management consultant who had previ ous 1y worked as the Country Representative of SCF-UK between 1984 and 1988 and who spoke fluent Portuguese. Prior to his visit a nutritionist previously employed by Medecins Sans Frontieres in Maputo, Austen Davies, collated information, principally nutritional and socio-economic surveys of the situation in the principal areas of the country where ODA assistance had been distributed. Of the 34 days of fi e1 dwork 23 were spent in Maputo and 11 in the Provi nces. The select i on of Prov i nces and proj ects to be vi sited was based on the assumpt i on that the food aid and 'Drought'-funded actions constituted the principal actions to be evaluated and it was intended that Gaza, Sofa 1a, Maputo and Zambezi a 1 Provinces would be visited. In the event Gaza was dropped from the itinerary because of the absence of key individuals and overlap with actions undertaken by the same agencies in Maputo and Sofala and because the type of action would have yielded only limited insights. 1.2.4. During the initial meetings with Embassy and NGO staff in Maputo it became apparent that the difficulties of distinguishing between the drought responses and the ongoing emergency programme were even greater than had been envisaged in London. It was decided that, in order to judge what constituted a drought response among the non-' Drought' funded act ions, it woul d be necessa ry to gather information on all the actions funded from the 'Emergency' and 'Rome' actions (see paras 4.1.4&5 below) Section 4.1) during 1992/93 as well as all the 'Drought' actions. All agencies supported by ODA from these three funding lines were therefore vi sited, together with those in recei pt of ECFAD food aid, and also UNICEF which