Joint monitoring mission Mozambique 2009

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DFID/FEDERATION INSTITUTIONAL STRATEGIC PARTNERSHIP - III
DG ECHO / FEDERATION CAPACITY BUILDING PROGRAMME 2009/10
JOINT IFRC/DG ECHO/DFID/BRITISH RC - REVIEW MISSION
TO
SOUTHERN AFRICA (ZONE) AND MOZAMBIQUE
25-29 May, 2009
Team members:
- Tiziana Bonzon, DM Programme Coordinator, IFRC
- John Roche, Operations Coordinator for Africa, IFRC
- Anna Bergeot, Policy Coordinator, DG ECHO, Brussels
- Denis Heidebroek, DG ECHO, Nairobi Sector Support Team
- Jack Campbell, DRR Adviser, DFID
- Igor Hodson, Humanitarian Policy Officer, British RC

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Table of Contents
1. Introduction
2. Findings and recommendations
Methodology and joint framework for analysis
• Disaster Preparedness and Disaster Risk Reduction
• Disaster Response
• Early warning / Information management,
• WASH, Shelter and Recovery
Acknowledgements
Annexes
List of acronyms and abbreviations

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1. Introduction
The DG ECHO Capacity Building programme and the DFID IS III are essential global funding
streams that contribute to the strengthening of the International Federation humanitarian preparedness
capacity worldwide. These global, regional and national investments allow the organization to build,
consolidate and implement disaster preparedness and risk reduction methodologies, approaches and
systems, emergency preparedness for response and early recovery mechanisms and tools, a global and
regional logistics set-up and supply chain as well as coordinating capacities within the Emergency
Shelter Cluster. Impact of these actions is more and more noticeable at national level in good
institutional capacity for disaster preparedness and risk reduction, good staff and volunteer response
capacity, and increased use of beneficiary focused planning, monitoring, evaluation and accountability
mechanisms (see IFRC/DFIDIS3 Annual Summary review, 2008).
The overall thrust of both grants1
is global; however a number of priority actions are carried out in
given regions and countries, as listed in the respective funding application / institutional framework.
As part of the monitoring component for both programmes, a joint DG ECHO, DFID, British RC and
IFRC review was carried out 25-29 May, 2009 to South Africa and Mozambique.
The scope of this review was threefold:
• To review IFRC secretariat, zonal and national society field performance for 2008-09 under
the DFID IS framework: reporting on achieved results, documenting any challenges and
constraints encountered which may have hindered programme delivery, as well as any
emerging opportunities which should be taken into account during the future management of
support
• To review IFRC field performance under the ECHO- supported Capacity Building
programme. Specifically the review aims to assess progress in Disaster Risk Reduction and
Disaster Preparedness, Water and Sanitation, and IDRL components. Overall effectiveness of
the institutional strengthening supported through previous thematic investments at Global,
Regional and National levels will also be assessed.
• To identify the level of complementarities between these two global funding streams and to
what extent they both contribute to achieving programmatic donor harmonization, particularly,
but not exclusively, in relation to recovery and sheltering programming.
This report aims at highlighting the main findings within the given framework for analysis and
provides a number of recommendations, more strategic in nature rather than technical, for
consideration by all partners.
Findings are the result of discussions with programme managers from the Zone and Country offices as
well as from the National Society (headquarters and branch levels) and some external stakeholders
(e.g. INGC). To complement the information gathered during the visit, this report builds on previous
reports and evaluations which were part of the desk review (see list of consulted documents in
annex)2
. Background information about the two partnerships and the programmatic / geographical
focus of this review, can be found in the Terms of Reference which are part of the annexes.
1
The Capacity Building programme covers approx. 7.5% of the Federation global/zone/country DM annual
budget in 2009 (DG ECHO contribution is EUR 4.5 million for 18 months); The DFID IS III annual allocation
(GBP 5.06 million) covers approx. 10.5% of the Federation global/zone/country annual DM budget in 2009.
2
Many of the reported findings / statements made in this report are based on existing documents that will be
referenced as footnotes for back up.

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2. Findings
Methodology and joint framework for analysis
The areas of enquiry and respective criteria identified in the section below are obtained from the
“Characteristics of a well-prepared National Society” (WPNS) and from the indicators developed to
monitor the DFID IS III and the DG ECHO Capacity Building programme. The methodology
followed for this field review used these criteria not only to guide the interviews and collection of
secondary information but mainly as comparative measures to assess regional and national
capacities. The methodology and visit time-frame did not allow for a deep firsthand evaluation.
Disaster Preparedness and Disaster Risk Reduction
Assess capacity to reduce risks and impact of disasters on vulnerable communities through
preparedness & mitigation, as well as expanded advocacy and linkages between policy and
practice
Criteria
Regional/Zone level
• DM strategy is in place & zone supports NS disaster planning with clear focus on risk
reduction measures
• IFRC zone office supports assessments through development and promotion of tools and
methodologies (VCA, WPNS, Emergency preparedness guidelines, etc)
• IFRC promotes updated contingency planning tools and supports training activities at
regional level as well as national.
• Shared learning between the NS in the Zone
1. Since its establishment in 2008, the Zone has focused on organisational change as a starting point
for improving DM. It has therefore been putting strong emphasis onto regional and national planning
as well as self-assessment. The development of a five-year “DM master plan” with 7 NSs from the
region, which led to the “Zambezi river initiative” (see more under point 2.), had as pre-condition
the completion of the WPNS process to identify gaps and needs and feed those into the master plan.
WPNS phase II was therefore carried out in 2008 by six national societies – Lesotho, Malawi,
Mozambique, Namibia, Zambia, Zimbabwe. National Societies have been using the simple checklist
form at the national level, developing indicators, as an aid to understanding their own disaster
preparedness status and planning needs3
.
2. As a part of the community safety and resilience framework, the International Federation through
the Zone continues to promote and establish community-based early warning systems in National
Societies where climate change is an emerging issue. For example, the Zone supported National
Societies along the Zambezi River to set up a community-based risk reduction programme, with
the aim to mitigate the impact of floods; improve livelihoods; and develop early warning systems for
timely evacuations. The “Zambezi river initiative” is seen as a successful process whereby NSs
committed to conduct joint planning, self-assessment and integrated programming within DM.
3
See the “Zambesi River initiative” for effective use of both VCA and WPNS. WPNS in particular was helpful
in assessing branch capacities.
Link: http://www.ifrc.org/Docs/pubs/disasters/160400-Zambezi_River_Project_LR3.pdf
See also the Annual Report 2008 for use of VCA and WPNS:
http://www.ifrc.org/docs/appeals/annual08/MAA6300108ar.pdf
Results of WPNS process for Mozambique RC were also part of the documents reviewed for this mission.

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Contingency plans for floods were developed by all NSs4
, integrating them into the inter-agency
contingency plans available in the region. The exercise was meant to allow NSs to identify capacity
gaps particularly in relation to the capacity of their volunteers, equipment availability, as well as lack
of epidemic control for volunteers.
3. With regard to DRR, in Southern Africa the focus is on strengthening resilience of rural
communities in wake of “triple threat”: drought, chronic food insecurity (poverty) and
HIV/AIDS via mix of interventions. Main activities include: promotion of drought-resistant crops,
vegetable gardens, fruit trees, small-scale irrigation, small livestock farming, and strengthening
community organizational capacity. Food security projects in drought and flood prone areas focus
mainly on home-based patients and orphans, and a vulnerable children’s project. The Zone
encourages NS networking, peer-to-peer support, and facilitates study visits. The JMM did not
give opportunity to look deeply into this area of support. It seems that the approach on the ground by
volunteers to building resilience was pragmatic and adapted to a context limited longer-term resources.
However this approach might not be fully in line with donor's strategies for the region and should be
discussed within the framework of strategic partnership dialogues, if deemed necessary.
4. Training in Regional Disaster Response Team (RDRT) and National Disaster Response Team
(NRDT) 5
has enabled National Societies from this region to undertake a consistent and
comprehensive approach to VCA in disaster-prone communities. National Societies involved
government departments in the VCA process as a way to share skills, expertise and competencies, and
engaged in the development of disaster risk reduction plans.
5. One major challenge in this region is dealing with leadership issues at NS level, as well as
ensuring that competent staff is recruited and maintained. There therefore seems to be a bottleneck in
the rolling-out of some tools / training and lessons learned, reportedly because of staff turnover.
Integrity was also mentioned as an important issue. Regional coaching and mentoring of national
societies’ leaders is seen as a better approach to leadership training. However, the Zone office is aware
that their approach has some limits, as changing mind-set is a long-term process.
6. Although PMER has been reorganized at zone level, it should be providing more support to NS in
the preparation of project proposals. Indeed, NS have not gained access to DIPECHO funds lately in
the region. Yet, this trend should be reverted to create a continuum between capacity building and
operations financed by ECHO (and create a link between policy and practice).
National level
• Policy, strategy and planning documents are in place and effectively used
• Links with the regional commitments such as Ouagadougou, Algiers and Johannesburg
• Damage, risk, needs and capacity assessments are carried out effectively with IFRC
support and using recommended IFRC tools, whenever relevant.
• Programme integration (e.g. with health, P&V, OD)
• NS Disaster preparedness / contingency plans are in place and up-to-date
4
DM Coordinator statement. See also Zambesi river initiative / operational plans :
http://www.ifrc.org/Docs/pubs/disasters/160400-Zambezi_River_Project_LR3.pdf
and Southern Africa Zone Plan for 2009/10: http://www.ifrc.org/docs/appeals/annual09/MAA6300109p.pdf
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RDRT training is conducted bi-annually (see SA Zone Plan 09/10) and support is provided to NS to build their
NDRT. According to the SAZO Annual Report 2008, quote “In terms of capacity building, the DM unit
enhanced disaster response skills through training and refresher courses for RDRT members. In addition, the
unit effectively co-ordinated a functional taskforce that was instrumental in developing contingency plans for
recurrent disasters. Two planning and review meetings were held in Johannesburg, attended by all National
Society DM officers, to evaluate the progress on implementation against the planned activities, and to plan for
2009. The DM officers developed an accountability framework between SAZO and the National Societies that
will ensure closer monitoring of progress against targets and goals set over the short-, medium- and long-term.”
See link: http://www.ifrc.org/docs/appeals/annual08/MAA6300108ar.pdf

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• NS has community-based preparedness risk-reduction programmes that take into account
climate adaptation
• Link with the Federation policies and principles for disaster relief and NS policies
• Regular training and review exercises carried out for all stakeholders
• Partnerships with other agencies
• Using its auxiliary status, the NS advocates with government and other relevant partners
to promote legal preparedness and risk management and NS place in national Disaster
planning, legislation
1. The criteria above were not assessed individually during the mission. They were however referred
to in the discussions held with CVM and their partners. With a well structured governance system in
place at national, provincial and district level, a National Society strategic plan that is aligned with
the MDG and the National Poverty Eradication plan, more than 6,000 active volunteers, the
society appeared to be meeting the above listed criteria in terms of planning, policy, assessment,
program design and implementation. CVM appeared to be playing a critical role in disaster
preparedness and risk reduction and strives to improve its systems in order to make the institution and
its programs sustainable over time. Efforts go into retaining the volunteers by providing technical
training, coaching, and simulation exercises.6
2. CVM plays also a critical coordination role both with the authorities, by being part of a national
emergency preparedness and response platform, coordinated by the INGC, the National Disaster
Management Institute and its mechanisms at all levels (headquarters, province, district); and with
partners, particularly with the 12 Participating National Societies (PNS) that currently support
CVM with bilateral programmes. This internal coordination is ensured through annual partnership
meetings, regular coordination meetings with respective country representatives. In addition, the CVM
is in process of aligning funding from partners encouraging them to focus on the priorities defined by
their current Strategic Plan, and to base their cooperation on a standard MoU, drafted consensually.
3. The current humanitarian consequences of climate change are being addressed by CVM. CVM
demonstrated a proactive approach in seeking out relevant data on climate change, and seemed ready
to think more strategically about threats and opportunities it represents. A recent study on the “Impact
of Climate Change on Disaster Risk in Mozambique”, released by INGC with contribution from
UNDP, opens the door to an increased advocacy role by CVM in terms of improved legislation in
disaster preparedness and response, and more broadly to encourage the Government to give priority
and support to intensified disaster preparedness activities, while empowering communities to face the
current and future consequences of climate change. Some good practices of climate change
adaptation already exist and should be further promoted. Evidence was gathered during the visit
conducted by the monitoring team to the communities of Chokwe, in the province of Gaza, which
received training on Climate Change Adaptation and targeted support through the DFID-funded DRR
programme – phase 2 and have adapted their life-style to these new patterns of risk. Some examples of
adaptation include rebuilding more water-resistant shelters by digging deeper than usually done,7
introducing drought-resistant crop and livestock, building elevated granaries, increasing risk
awareness and education, establishing community-based early warning systems, etc. Overall,
awareness of the threats posed by climate change amongst volunteers was detected.
4. Self-assessment, particularly in disaster preparedness, risk, vulnerability and capacity
assessment are areas that CVM strongly prioritize. Not only the society uses Federation tools such
as WPNS, but it aims at benchmarking its institutional capacities against other NGOs using an SGS
methodology that has helped them to identify gaps and areas that need strengthening (such as
conducting a consolidated audit of their programs, finding effective ways of communicating impact
from their programs, etc.). The WPNS was found very useful by the society who has adapted the
6
See “CVM: a national society profile” Power-Point presentation in annex
7
This was reported but not observed by the team. In fact shelter expertise within CVM was not demonstrated
during the mission.

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tool to the branch level. Other DM assessment tools such as VCA and the contingency planning
guidelines have also been institutionalized and the society reported to run training and workshops on a
regular basis with the branches / communities concerned8
. Particular focus currently goes to
addressing vulnerabilities in urban contexts, as stated by the Secretary General of CVM. These
assessment processes, as already mentioned, were also a pre-condition to the establishment of the DM
master plan (a regional initiative of which CVM is part) which has allowed CVM to take an integrated
programming approach over a long-term period of time (five years).
5. Within the context of legal preparedness, initial preparations for an IDRL Pilot project in
Mozambique took place in February/March 09. Meetings with UNICEF and UNDP, as well as with
Government officials, Ministry of Foreign Affairs, Ministry of State-Administration, National Institute
for Disaster Management, and the Norwegian Embassy were held, paving the way for an IDRL pilot
project. A follow-up visit by the regional IDRL delegate is planned in September to either organise the
official launch of the pilot project with the government or adopt a more project start-up policy (i.e.
getting some preliminary research done prior to the official constitution of a governmental task force)
to ensure that some real progress is reported in the coming months.
6. Expectations in PMER are often unrealistic at national level. Although the International
Federation has been improving its performance management systems and has established some
capacity at Zone level, this is not always (or not yet!) reflected at national level or down to districts.
One reason for this seems to be related to the capacities of the Zone PMER unit itself, which the
mission found to be minimal and stretched over many different tasks. Recruitment of PMER officers
at national level is also a challenge and PMER is now added on top of many other tasks that
programme managers have to carry out. The consequence is that monitoring, evaluation
procedures as well as reporting remain weak. Existing Federation tools and methodologies (log
frames, work-plans, reporting templates, etc.) should be adapted and simplified to the regional /
national context in order to promote a more realistic collection of data and analysis of progress. In the
case of CVM this should for instance take into account limitations in terms of transport, literacy, etc.
7. A challenge for CVM is the need to mainstream the several projects (too many) run by the NS,
especially in health and DM. The burden of project-based financial management, monitoring and
reporting is excessive. There is obviously a discrepancy between donors’ requirements and RC
volunteers’ (reporting) capacities. The new PMER unit expresses need for technical assistance from
their partners in order to improve quality in a more systematic way. Establishing an operational
alliance with all partners involved might be a solution, which CVM is currently considering.
8. CVM continues to face the challenge of finding ways to support its core costs. This affects
business at all levels, but was most starkly evident at the branch level in Chokwe, where there were
not even funds available to pay the electricity bill and meetings were conducted in the dark. One third
of CVM core costs are covered through local income-generation activities. This effort should be
commended as this is time consuming and requires specific skills. In 2008, the Mozambique
government provided for the first time some financial support to CVM to cover for its running costs.
This is the sign that the government recognises CVM as a valuable partner. There was not opportunity
to verify the extent to which support for fundraising capacity building had come from IFRC Zone/HQ.
9. Finally, there is a need for IFRC country delegate(s) to play a pro-active role (as the main interface
between the zone office and the NS), in the way DM capacity building needs from the NS &
resources, from Zone Office/HQ are identified and matched. The Federation should better define what
services are to be delivered at country level and appropriately resource this.
8
Section E. of WPNS profile of CVM, as well as CVM power-point presentation.

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Recommendations Who
DP/DRR Planning and programming
A bottom-up approach in longer-term planning is clearly encouraged
at Zone and Country level. Nevertheless, the way in which these
plans are communicated to the top through the institutional planning
process (from national to zone level, from zone to global level) needs
improving, and this in order to ensure that planned secretariat
support reflect regional and national priorities. The team had the
impression that some global initiatives and technical assistance
offered to the Zone and National Societies was not necessarily
demand-driven, and that peer-to-peer support and national societies
networking and exchanges could address some of those needs.
All levels
The priorities for ‘resilience’ in the communities visited were
primarily related to health and food security. The challenge for IFRC
and donors is to build local level capacities in resilience-focussed
work, without managing activities in artificially separate work-
streams. It is recommended to continue to integrate risk reduction
programming within the broader disaster management cycle and
ensure that funding proposals reflect this approach at all levels.
Donors should be encouraged, within their specific mandates and
terms of financing decisions, to support a mix of interventions that
allow building sustainable capacities.
All levels / donors
From a DM program management perspective, the Zone and the
national societies in the region appear to be adopting an integrated
approach to addressing risks and vulnerabilities. This means that
disaster preparedness measures are linked to food security, water and
sanitation and health care (incl. HIV/AIDS) interventions at all
levels. The International Federation, and in particular the Zone and
national societies concerned, should however clarify the linkages
between disaster risk reduction, food security, HIV/AIDS (where
appropriate), and early recovery and how a mix of interventions in
these sectors contribute to increased community resilience. Program
design should also clarify the threshold where disaster management
is not longer related to emergency aid but to chronic needs.
All levels
At the national level there seemed little evidence or incentive for
HIV/AIDS staff to plan together with DM/DRR staff. In line with the
above finding, it is recommended that planning at national level
reflects the same integrated approach.
National level / CVM
Further investment in human resources and training on planning,
monitoring and evaluation at national level is needed. In addition
better balance between the use of resources to revise existing tools
and the dissemination of these tools (training) should be sought.
Partners should also acknowledge these challenges and agree on
performance frameworks that take existing limitations into account
while investing into PMER national capacities.
Global / Zone / National /
donors
Organisational development, advocacy and standards
Regional coaching and mentoring of national societies’ leaders is
seen as a better approach to leadership training. It is recommended
that OD work in this area acknowledges and addresses the
limitations of training provided and explores other avenues to ensure
that knowledge and good practices are promoted.
Global / Zone
Sustainability of the institutional capacity building of the national
society remains an area of concern. This has to be strengthened to
ensure that the institution and the programmes it runs are sustainable
National / Zone

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even after external funding ends. National and regional strategic
plans should more clearly integrate OD components. The capacity of
a NS to run DM programs should be carefully appraised at all levels
(particularly branch level and closer to the communities).
At the same time, funding streams should more systematically
consider supporting institutional capacity building at national level
(income generation, financial management, volunteer management,
PMER systems, fundraising, etc.). DREF is seen as an appropriate
channel to boost local level capacity but needs to be complemented
by other funding mechanisms .
All levels / donors
CVM have only partially achieved alignment of funding from PNSs,
and the demands of this complex, projectised funding base poses real
challenges for CVM in terms of planning, reporting and ultimately
on their capacity to deliver. It is recommended that technical
assistance and support is provided to the newly created PMER unit
which aims at addressing these challenges. Establishing an
operational alliance with all partners involved might be a solution,
which CVM is currently considering.
Zone / National / CVM
The national society should increasingly use its auxiliary role to
advocate for humanitarian issues of concern (i.e. climate change
adaptation, legal preparedness/IDRL, HIV/AIDS, DRR,
humanitarian reform/cluster system, etc.) and constantly position
itself with local authorities at all levels, explaining the comparative
advantage of the Red Cross vis-à-vis other humanitarian
organizations. Increased support and advice should be requested
from the Zone office, where a new “humanitarian diplomacy” unit
has been established aiming exactly at helping national societies
within the region to play a stronger role within their respective
countries, particularly with regard to clarifying and deepening the
auxiliary status.
Zone / National
The national society and the Zone should systematically disseminate
existing standards and policies (PSEXA, Code of Conduct in disaster
relief, etc.) not only within the humanitarian community but also to
local authorities. This is to raise and maintain awareness, and avoid
that similar work is undertaken in parallel.
Zone / National
Disaster Response
Assess level of capacity to respond to the effects of disasters and to provide appropriate services
to the most vulnerable throughout the disaster cycle
Criteria
Regional/Zone level
• Surge capacity available to support NS response in all aspects of DM
• IFRC makes DREF funds available as required and supports resource mobilization
• RLU or other Federation regional hubs ensure efficient and cost effective provision of
resources
• IFRC coordinates disaster response in different sectors from PNS and other sources
• IFRC ensures an accurate needs assessment and response mechanism using standard
tools and guidelines. Regional Emergency Appeals contain plans of actions based on
properly assessed needs and considering recovery and risk reduction issues
• IFRC mobilises and manages relevant teams (FACT, RDRT, ERUs etc)drawn from
competent and well trained staff and ensures coordination between them

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1. The Southern Africa region saw a major shift in its patterns of risk and vulnerabilities, from
post-war to those prompted by natural disasters (exacerbated by climate change), food insecurity and
health emergencies such as HIV/AID, epidemics, etc. This meant dealing with national societies and
communities who lacked exposure and experience in responding to these new challenges and the
complexity of different but often inter-linked vulnerabilities.
2. Nevertheless capacity to respond has been built over time through for instance the
establishment of the RDRT mechanism, pre-positioning of regional and national stocks (procured
from Dubai RLU), and the development of MoU among NSs for the use of stocks across borders.
Experience has also been gained by the deployment of international tools such as ERUs whereby
the NSs benefited from transfer of knowledge and expertise (i.e. water and sanitation) that can now be
used nationally and within the region. One of the major challenges today is the pace at which floods
are followed by droughts stretching national societies’ capacities and leaving communities with little
time to recover, hence the need to explore ways of coping while preparing for the next disaster.
3. Currently the SA Zone provides logistics support through a Zonal Logistics coordinator, has
regional emergency stock in Harare (details available) as well as vehicles. As part of the current sub
regional stock strategy the Zone together with the Logistics department in Geneva are assessing where
it is most suitable to have a regional stock (if Harare or Joburg or other location).
4. In the meantime, the global shelter program has already supported the prepositioning of 4000
shelter kits stock in Harare and 5000 units in Nairobi to cover South and East Africa Regions.
Zambia, Angola and Namibia received shelter kits in response to their respective floods operations.
Water and Sanitation Kits are already positioned in Harare for use in the zone and have been
recently deployed for cholera (Zimbabwe) and floods response (Namibia) operations. Kits are
replenished from the resultant emergency appeals.
5. This is a region that has often required effective use of regional and international surge capacity
tools such as RDRT, FACT and ERUs. In the past two years support was provided to several of its
National Societies emergency response work, by welcoming international emergency response teams
(ERUs) to Mozambique & Madagascar (2007), Zimbabwe (2008/09 – deployments ending in April)
and Namibia (April / May 2009) for a total of 15 deployments. Support was given in the form of
logistics, IT&Telecom, relief, health and water & sanitation. To some extent (in health for instance)
support was given to both the National Society as well as the local health authorities, notably in
Vilanculos, Mozambique, where a local hospital was assisted after the destruction of its premises and
international staff from Norway and Canada assisted, as well as in Zimbabwe, where expatriates
‘shadowed’ and supported Zimbabwe Red Cross (ZRCS) and MoH staff during their cholera operation
throughout the country. The operation in Zimbabwe was a unique opportunity to combine the
revamped Mass Sanitation Module ERU (MSM) with the basic Health Care ERU and have them
supported by two Water providing modules (one M15 and one M40). The health focus was twofold –
supporting Zimbabwe RC and MoH staff in cholera case management while at the same time broadly
engaging in sanitation and health promotion activities through ZRCS community based approach.
6. Country-level response capacity has been strengthened in all three aforementioned countries
through engaging National Society staff (i.e. Mozambique, Zimbabwe and right now Namibian RC
staff) in the ERU work for several months, leaving the staff with heightened relief, logistics, health
and water and sanitation skills and a better understanding of the DM linkages within the organisation.
7. The Angola floods operation also experienced the deployment of the British RC Household
Economic Security (HES) module in April 2009. The HES is part of the Federation Early Recovery
Surge Capacity and has a MoU giving it auxiliary status to our global tools (FACT, RDRT, ERU).

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National level
• NS has sufficient number of staff/volunteers with updated skills in assessment and risk
analysis, first aid, water and sanitation, logistics and relief, and properly equipped
• Programme integration (e.g. with health, P&V, OD)NS conducts regular training related
to situations of disasters (Using latest tools for NDRT, or others)
• NS response is appropriate and relief programmes reach targeted vulnerable populations
• Link with the Federation policies and principles for disaster relief and NS policies
• NS relief programmes show increased use of quality and innovative approaches to
disaster response based on needs (i.e. cash interventions, integrated sectoral approach in
shelter, water & sanitation, recovery, etc.)
• NS response takes cognizance of linking relief, rehabilitation and development
• NS has access to DREF and uses it for early action on imminent crisis and early response
• NS endeavours to mobilize resources locally
• Stocks and emergency equipment are available and can be mobilized as required, either
nationally or regionally
• Effective coordination with all stakeholders
• Quality of response is monitored and evaluated.
1. The meetings held with CVM DM staff allowed understanding that a relatively sufficient
response capacity is in place at national level to respond to small and medium-scale disasters,
although the JMM was clearly not able to verify this in real time. Volunteers, organised in DM
committees, appear to be available in adequate numbers to run NS programs across the country
(although volunteers are never sufficient enough!), trained in appropriate skills and methodologies,
contingency stocks are pre-positioned in some strategic locations across the country (for 5,000
families) and a good coordination capacity exists. Evidence of this was the way in which CVM
responded to disasters in 2008. The CVM response to the floods early 2008, followed by a cyclone
(Jokwe) in March, demonstrated the increased capacity reached by the NS in dealing with natural
disasters of a scale that in the past would have prompted external support (in the form of FACT,
ERUs, etc.). CVM managed to assist some 9,000 families with complete packs of relief items, and
provided first aid, water and sanitation, shelter and relief support to the people they targeted. In May
2008, CVM was also involved in providing shelter, first aid and psycho-social support to the 40,000
Mozambicans who returned to the country after the Xenophobic attacks in South Africa.9
2. This increased capacity is also the result of follow-up training organised for CVM through
Spanish RC after the Relief ERU deployment of 2007, and the participation of CVM staff to the
Global Relief Training held in Geneva in April, 2008. Both Relief ERU courses in Spain (October
2007 and September 2008) had representatives from the CVM coming to Spain to meet RC/RC
participants from several countries while contributing first-hand field experience to the course. Also,
to further strengthen the linkage between deploying and receiving National Societies, Spanish RC sent
two delegates to support the deployment of CVM water and sanitation staff to support the floods
operation of 2008. In 2009 this was followed-up by Madrid, which sent 2 more delegates to check the
state of the used water and sanitation equipment and gave additional ERU training in February 2009.
3. It appears however that some capacity gaps exist at district level, in terms of logistic capacity /
lack of relief items for first response, lack of volunteer basic equipment and kits, lack of transport
means, etc. This can be linked to the broader issues of resourcing at branch level. It is assumed that the
DM Master Plan developed by CVM addresses these issues accordingly. Possibly a revision of the
national stock pre-positioning strategy should be undertaken. As for volunteer equipment, it needs to
be brought to a sufficient level not to undermine the volunteer response capacity and motivation – a
more strategic use of DREF for this purpose should be considered in the future.
9
See reported information in the CVM power-point presentation « Disasters 2008 », in annex. Final report of the
flood and cyclone intervention only available in Portuguese.

12
4. The national society strives at learning from its experience in disaster response. An evaluation /
final report of the 2007 floods and cyclone operation has just been released by CVM in Portuguese,
and a comparison study of CVM response to disasters in 2007 and 2008 has been conducted.
However, according to SGS benchmarking audit, CVM should establish better PMER systems in
order to demonstrate real impact of their programs (similar issues addressed under section
DP/DRR).
Recommendations Who
Disaster Response capacity
While recognising the logistics capacity gaps mentioned above, to
have stocks pre-positioned at district level might not be the most
appropriate and cost-effective solution for CVM. Other measures
appear to be in place to meet larger needs such as MoU among NSs
from the region to use stocks across borders, contingency stock held
by the government and other agencies, as reflected in the
contingency plans. The Zone should support CVM to develop the
most appropriate stock pre-positioning and supply strategy at
national level. Contingency plans should clearly reflect available
capacity according to identified disaster scenarios.
Zone / National
It is also recommended to use DREF more strategically in order to
systematically replenish national stocks and bring volunteer response
capacity to an acceptable level after each operation.
National
Considering that the region often requires use of regional and
international surge capacity tools such as RDRT, FACT and ERUs, it
is recommended that continuous exposure to training and refresher
courses is provided to the Zone and NSs staff.
Zone / Global
Early Warning / Information management
Assess level of coordination, information / knowledge management and analysis in support of
disaster response
Criteria
Regional/Zone level
• IFRC ensures effective dissemination of alerts, monitoring information etc…
• IFRC ensures/supports effective coordination with other organizations, inter-agency
coordination and coordination of disaster response tools when deployed (RDRT, FACT,
ERU)
1. The SA Zone promotes and makes use of Federation platforms (ex. DMIS) to disseminate
alerts and operational information, activate their response systems, and submit DREF requests on
behalf of National Societies. Cooperation with climate organizations regionally as well as with the
climate centre in the Netherlands is active, in particular to monitor changing climate patterns.
2. Coordination is ensured with external partners through bi-weekly meetings with the regional
inter-agency coordination body led by OCHA, attended by most UN agencies, NGOs, etc.10
10
Information sharing with Geneva is ensured through Zone monthly reports. Quarterly coordination meetings
with external partners (including PNSs) are organised by the Zone

13
National level
• Early warning systems (national or community-based), including DMIS, are accessible to
NS & rapid response mechanisms are in place
• RC Early warning capacity built at the national, intermediary and local levels. Use of
national data/forecasting models to inform activity planning in this regard
• Early warning / early action partnerships are developed
• The position of the NS in the National (government) DM plan
• Use of effective information & communication procedures
1. In Mozambique, emphasis is reportedly on community-based preparedness activities for
cyclones and floods, community-based early warning system, community response capacity,
evacuation plans, establishment and training of local DM committees and rescue teams, and awareness
raising campaigns. The visit to the communities suggested that established EW systems were still in
place, and that regular simulation exercises with the communities were run by the RC volunteers.
However, some training and financial resources should be provided by CVM in order to ensure
maintenance of the material provided (bicycles, etc.).
2. The relationship of CVM with INGC (National Institute for Disaster Management) is active both in
disaster response and disaster preparedness. In times of emergency CVM complements the INGC
capacity with its own DM committees and volunteers, which outreach to the community level, is
valued by all partners. CVM role is identified in the national and provincial contingency plan,
whereby the NS material and human resource capacity is accounted for. However, the meeting held
with INGC at provincial level, in Xai Xai, where the representative had been in place for about a year,
demonstrated a lack of understanding of the specific role of the Red Cross and its added value in
comparison with other NGOs. This episode is clearly not representative of the good relationship that
CVM has with the authorities at national level (for instance the authorities have been involved in the
VCA multi-sector exercise, thus sharing the same analysis of risks, capacities and vulnerabilities in
the most disaster-prone areas, and conducted joint training and simulation exercises), but indicates
the need for a constant dialogue with INGC at all levels (province, district) to promote a
common understanding of roles and responsibilities across the institutions.
WASH, Shelter and Recovery
Assess level of capacity to design and deliver quality post-disaster recovery programmes, as well
as appropriate WASH and sheltering programmes
Criteria
Regional/Zone level
• DM staff and NS are aware of IFRC responsibilities in shelter
• Regional Emergency Appeals contain plans of actions based on properly assessed needs
and considering recovery measures, possibly based on post-disaster recovery guidelines
• Pool of regionally trained recovery personnel available for deployment
• Appropriate WASH capacity- in terms of trained personnel and available equipment and
supplies - to respond to regional disaster events
1. Hosting of a shelter kit regional training is currently under discussion with the Zone office. This
technical training aims at providing NSs with sheltering solutions (also through the use of shelter kits)
that go beyond the provision of tents and tarpaulins, and builds on the use of traditional materials, with
emphasis on improved and water-resistant techniques.
2. Water and Sanitation in emergency is being improved through the pre-positioning of kits (10 000
kits are currently available in 4 countries of the region), usually deployed in response to floods

14
operations and for the use of which, training was provided regionally to water and sanitation staff, and
DM staff trained in RDRT and other technical areas. Important to mention the link to health and care,
especially in relation to education and hygiene dissemination, which was clearly highlighted by the
Health Coordinator at the Zone.
3. Further technical assistance to NSs from the region, both from the Zone and Geneva-based
technical experts, was provided through:
• Participation from Zimbabwe RC in global livelihoods guidelines development workshop in
Sri Lanka in November 2008
• Recovery technical review and appraisal of the Zimbabwe Emergency Appeals
• Relief technical support for the Mozambique and Zimbabwe emergency appeals.
National level
• NS develops appropriate action plans for community-focused recovery
• NS has sufficient staff/volunteers trained in shelter, particularly in the use of shelter kits,
and in recovery
• NS has sufficient staff/volunteers trained in the use of water and sanitation emergency
response kits as well as in hygiene promotion
• NS has sufficient policy guidance, tools, standard operating procedures
1. CVM expressed clear needs for increased technical assistance in several sectors (i.e. logistics,
water and sanitation, relief and shelter coordination). This could be addressed by encouraging a
regional peer-to-peer support and could be facilitated by maintaining a regional database of NS
resources available for cross-use. Said that, technical support for recovery assessment following
Cyclone Jokwe was provided to CVM in June 2008, as well as in relief as already mentioned above.
2. As already mentioned, two representatives from CVM participated in the global Shelter
Technical Training hosted by the Spanish Red Cross in Barcelona in March 2009. On shelter cluster
coordination, the recent handover from UN Habitat to Mozambique Red Cross for the lead of shelter
recovery phase will require further support for the national society to take over the lead of the shelter
cluster contingency planning and preparedness component. The “cluster” system is now a
permanent coordination mechanism in Mozambique and this coordination role is seen by the NS as a
very challenging task which would require further technical expertise and assistance. CMV is
currently waiting for the appointment of a UN volunteer who will train one of their staff on cluster
coordination, but there seemed to be expectations from the NS that such assistance should come from
the Zone or Global Shelter department.
3. With regard to water & sanitation in emergency, the first Water & Sanitation Kits technical
training was undertaken in Namibia in November 2008. The Mozambique RC was invited but did not
have someone available to attend. The next training is planned within the next two months in Harare.
Despite that, Mozambique Red Cross is aware of Water & Sanitation Kit availability and use, and
would prefer their deployment instead of global tools, unless in the event of major disaster response.
Recommendations Who
Technical assistance and global matters
There appears to be confusion about the role of the Federation in the
shelter cluster. In Mozambique, the “cluster” system is more of a
national/permanent sector coordination mechanism which has to be
dealt with at national level. Recognising that acceptance by CVM to
take over a coordinating role from UN habitat is a national choice, it
is however expected that the Federation Secretariat would provide
adequate support to CVM to lead the country level shelter cluster
contingency planning. It is recommended to seek clarity from the
Zone and Global shelter department to address expectations at
Global / Zone / National

15
national level.
Technical assistance in WASH and Shelter seemed to be more
“hardware” oriented (kit pre-positioning) than focused on “soft” skill
development. It is recommended that future monitoring and
programme reports clearly highlight the integration between the two
elements.
Global / Zone
Despite the fact that the monitoring team limited the review scope to
disaster management, the areas explored are still found too broad to
allow a clear understanding of how the capacity building investments
have had an impact nationally and regionally. The next evaluation
should therefore be more focused and possibly develop longitudinal
country case studies to monitor more deeply the flow of capacity
building within the organisation. For further discussion at DFID and
DG ECHO review meetings.
Global (PMER) / donors
Acknowledgements
The team would like to thank the CVM Secretary General, Fernanda Teixeira, the national society
staff and volunteers who have so honestly and transparently shared information with the monitoring
team. The team is also grateful for the cross-sector meetings held in Johannesburg at the Zone office.
Special thanks are due to Farid Aiywar, Zone Disaster Management Coordinator and Martin Acosta,
Federation Representative in Maputo, for the facilitation and logistical support they have provided to
the team.
Annexes (available on request)
• Terms of Reference
• List of documents provided as preparatory reading
• Agenda for the visit in Johannesburg
• Agenda for the visit in Mozambique
• Presentation “Mozambique Red Cross: a profile of a National Society”
• Presentation “Mozambique Red Cross: Disasters 2008”

16
List of acronyms and abbreviations
CVM: Cruz Vermelha de Moçambique (Mozambique Red Cross)
DFID: Department for International Development
DG ECHO: Directorate General for Humanitarian Aid – European Commission
DM: Disaster management
DMIS: Disaster Management Information System
DP: Disaster preparedness
DREF: Disaster Relief Emergency Fund
DRR: Disaster risk reduction
ERU: Emergency Response Units
EW: Early Warning
FACT: Field Assessment and Coordination Teams
HES: Household Economic Security
IDRL: International Disaster Response Law
IFRC: International Federation of Red Cross and Red Crescent Societies
INGC: National Disaster Management Institute
JMM: Joint Monitoring Mission (team)
MDG: Millennium Development Goal
MoH: Ministry of Health
MSM: Mass Sanitation Module
NDRT: National Disaster Response Teams
NS: National Society
OD: Organisational Development
P&V: Principles and Values
PMER: Planning, Monitoring, Evaluation and Reporting
PNS: Participating National Society
PSEXA: Prevention of Sexual Abuse
RDRT: Regional Disaster Response Teams
RLU: Regional Logistics Unit
VCA: Vulnerability Capacity Assessment
WASH: Water, Sanitation and Hygiene
WPNS: Well Prepared National Societies

Joint monitoring mission Mozambique 2009

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