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TOR: Enhancing IFRC sheltering solutions: review of the Haiti programme

1. Summary
The IFRC Shelter team in Port-au-Prince, Haiti, is planning a review of the programme from its inception in May 2010 to end October 2011. To support this plan, the IFRC's Earthquake Recovery Operation in Haiti is seeking the expertise of experienced programme reviewers, specialised in shelter and watsan programming and participatory project review (PPR) methodology to lead this internal review.

The aim of the review is to assess the methodology adopted by the IFRC
Shelter programme, the quality of the construction works implemented, and gauge the progress to date of beneficiaries involved in the shelter
programme. The review will assess all facets of the Shelter programme
including the t-shelter project, the self-sheltering solutions project, and the supporting inputs of re-settlement grants, livelihoods interventions, rubble reprocessing, social infrastructure and mitigation works.

It is intended that the review will provide the IFRC's Earthquake Recovery Operation in Haiti with insight into the effectiveness and appropriateness of the programme approaches, the quality of technical deliverables, eg construction of shelters and water and sanitation facilities, as well as the community engagement strategy. The review team will also report upon shelter occupancy rates, the degree of satisfaction beneficiaries express about their shelter solution and their interaction with IFRC (and partners), and advice on improvements or adaptions to strengthen the programme.

IFRC in Haiti expects to receive a report that informs the reader of the
appropriateness and effectiveness of the IFRC's Shelter programme in Haiti, identifying programme strengths, areas in which improvements can be made and direction on what changes can be made and how they should be implemented to enhance programme quality. The report should also provide information and recommendations related to lessons to be learned that will inform planning for the shelter programme in Haiti to end 2012.

1.1 Purpose

The purpose of the review is to assess the extent to which the IFRC Shelter programme in Haiti is meeting the recovery needs of participating beneficiaries.

The appropriateness of the methodology adopted by the IFRC Shelter team in Haiti will be assessed along with the quality and effectiveness of the shelter solutions delivered – both technically and according to beneficiary experiences, and the review report will provide guidance and recommendations to enhance programme effectiveness.

1.2 Audience

The primary audience for the review report is the IFRC Earthquake Recovery Operation in Haiti, specifically the Shelter team. It is expected that the review team will report on the effectiveness and appropriateness of the methodology/ies adopted in the Shelter programme in Haiti, technical assessment of shelter outputs, and the extent of beneficiary satisfaction. The IFRC Shelter department in Geneva and in Panama will be included in the review and is a key recipient of the report. The review is also expected to be of interest to planning, monitoring, evaluation and reporting (PMER) offices in Panama and Geneva.

The review report will be presented to Haitian Red Cross, and to partners to the IFRC Shelter programme, i.e. French Red Cross, Norwegian Red Cross and Canadian Red Cross.

Results and conclusions drawn from the review will be communicated to
participating beneficiaries and communities via a context appropriate
communications strategy.

The review report will be made available to the wider Red Cross and Red
Crescent Movement via reporting of findings to the Shelter Technical
Committee, the Movement Operations Committee (MOC) in Haiti, and as
appropriate to other international IFRC shelter programmes.

1.3 Commissioners

The IFRC Shelter programme in Haiti is the commissioner and funder of this review.

1.4 Reports

The review team will report to James Bellamy, the IFRC's Shelter Coordinator in Haiti and manager to this review.

1.5 Duration
The review is for 20 workings days, of which at least 17 will be spent in Haiti. The review report can be concluded remotely.

1.6 Timeframe

The preferred commencement date for the review is 31 October 2011.

• Haiti: desk review, tool development, and data gathering x 17 days

• Preliminary findings presented to the IFRC Earthquake Recovery
Operation on 17 November 2011

• Report finalisation: x 3 days

• Final report due to IFRC: 30 November 2011

1.7 Location

The review team will be required to spend up to 17 working days in
Port-au-Prince, Haiti. Visits to shelter solution sites and localities will be undertaken in Port-au-Prince and to regional locations, and will be conducted in accordance with security conditions and guidance provided by the IFRC security coordinator in Port-au-Prince.

2. Background

On 12 January 2010 an earthquake measuring 7.0 on the Richter Scale struck Haiti. The earthquake's epicentre was some 15 km south-west of the country's capital Port-au-Prince close to the city of Léogane. According to statistics from the Government of Haiti, over 200,000 people died, 300,000 people reported injuries, and 1.5 million people were displaced by the earthquake and the subsequent aftershocks that occurred during the weeks that followed.

The earthquake caused significant damage to housing and public infrastructure, with the resulting need for shelter solutions and longer-term reconstruction. In summary:

• Shelter affected population estimated at 1.5 million

• Total number of buildings and houses to be rebuilt in the disaster
affected areas estimated at 250,000

Under the 2010 IFRC plan of action, a target was set for the IFRC
secretariat to provide shelter solutions for 7,500 households within 24
months. This target comprised two major outputs:

Output 2.1: 1,000 households will have received assistance with improving their shelter

Output 2.2: 6.500 families will have received a timber or steel frame
transitional shelter

As the programme has evolved, the targets have been adapted to incorporate self-sheltering solutions programming and as a consequence, the target for t-shelter construction has decreased to 5,000 households. This covers households who have received an IFRC shelter, directly, ie IFRC supplied and constructed, or indirectly, ie IFRC provides materials and assistance and project management is led by a Red Cross partner. Targets for partner implementation of IFRC-supplied t-shelters are: French Red Cross x 2,500, Norwegian Red Cross x 700, and Canadian Red Cross x 195.

IFRC has directly implemented t-shelter projects in four sites: Annexe de la Mairie (on land provided by the local mairie), La Piste (on land provided by the national government), and is assisting decongestion of camps at Carradeux, St Louis Gonzague, Annexe de la Mairie, Delmas 75, Simon Pele, Croix de Bouquets and Lilavoi.

Of the IFRC's target of 7,500 shelter solutions, the following results have been achieved as at 31 August 2011:

• T-shelters supplied and constructed by IFRC 943

• T-shelters supplied by IFRC and constructed by French Red Cross
1,816

•T-shelters supplied by IFRC and constructed by Norwegian Red Cross
418

• T-shelters supplied by IFRC and constructed by Canadian Red Cross
195
• IFRC facilitated self-sheltering solutions (Port-au-Prince and
regions) 1,831 Total 5,203

All IFRC shelter solutions include water and sanitation components and,
depending on the beneficiary's circumstances, a settlement grant of USD500, and livelihoods interventions.

Self Sheltering Solutions project for internally displaced persons living in Port-au-Prince:
The settlement approach offers a framework of support to communities and
infrastructure, integrating other sectors such as water, sanitation and
education, and often described through economic and social `livelihoods'. This widens the understanding of shelter to include support to all of the settlement options chosen by affected populations, including host families, rental accommodation and, where necessary, camps. In choosing between options, families and groups can make best use of their coping strategies for livelihoods, community development and security. In supporting only shelter and housing, both governments and the international community respond to only a small proportion of the reconstruction priorities of affected populations, in terms of how disasters impact their communities and livelihoods.

In the self sheltering solutions project a series of packages has been
developed from which the family can choose depending on what will best
enable them to return to a semblance of normal life in other parts of the city, or in towns outside the capital. The livelihoods grant is given in two instalments with the person involved in attending monthly meetings with staff to monitor their progress[1].

The t-shelter project is scheduled for completion by 31 December 2011; the self-sheltering solutions project will continue through 2012.

Note: The review will not address emergency shelter or permanent shelter.

3. Review Purpose and Scope

The purpose of the review is to assess the appropriateness of the
methodology adopted by the IFRC Shelter team in Haiti, assess the quality and effectiveness of the shelter solutions delivered – both technically and according to beneficiary experiences, and provide guidance and recommendations to enhance programme effectiveness.

3.1 Purpose/overall objective

The review will assess the two major components of the IFRC's Shelter
programme in Haiti:

• The T-shelter project: this project is ahead of its scheduled 31
December 2011 completion date. The review shall provide information to the IFRC shelter team on the degree of beneficiary satisfaction with their t-shelter, highlight any issues that can be resolved prior to project completion, and reinforce and influence the t-shelter project exit strategy (as necessary).

• The Self Sheltering Solutions project: commenced in September 2010
and will continue through 2012. The review will assist in the formation of the next phase of the project.

3.2 Scope

The review will assess the overall approach and effectiveness of the Shelter programme, looking particulary at the t-shelter and self-sheltering solutions projects. Supporting inputs of re-settlement grants, livelihoods interventions, rubble reprocessing, social infrastructure and mitigation works are to be assessed as part of the shelter packages offered and are not subject to specific project review under this mid-term review.

It is envisaged that the review team members will visit IFRC t-shelter
locations in Port-au-Prince, ie Annexe de la Mairie, La Piste, Carradeaux, and St Louis Gonzague, and locations inside and outside of Port-au-Prince in which self-sheltering solutions such as rental accommodation has been adopted. The small IFRC t-shelter project in St Marc (three hours from Port-au-Prince by road) may be visited if time permits. It is further envisaged that team members shall visit t-shelter sites where IFRC has supplied materials and assistance to the t-shelter projects implemented by French Red Cross and Norwegian Red Cross.

In order to accurately assess the occupancy rates and beneficiary
satisfaction levels it is envisaged that the review team will interact with the widest cross-section of the beneficiary community as possible, and will include engagement with people with disabilities, female-headed
householders, and especially vulnerable groups such as the elderly.

4. Evaluation Objectives and Criteria

4.1 Objectives

Overall objective: to assess the appropriateness, effectiveness and quality of the IFRC's Shelter programme in Haiti according to the opinions and experiences of beneficiary households and communities, as well as review of the programme's methodology and technical outputs.

Specific objectives:
• Insight into the strengths and weaknesses of the shelter programme process/es and advice and guidance into how the process can be further strengthened;

• The extent of beneficiary satisfaction and ownership, considering factors of appropriateness, relevance and implementation.

• Major landmarks in the programme timeline, including key
achievements, challenges, constraints, gaps and resources & capacities

• Quality and sustainability of the technical aspects of the shelter programme, including t-shelters and self-sheltering solutions (where relevant).

• Profile of best examples of modifications made to t-shelters by beneficiaries, including extensions, second door, electricity etc.)

• Cost efficiency and cost analysis of different shelter solutions with analysis of what has been the most appropriate use of resources.

The results of the review will inform future shelter programme planning
including exit planning.

4.2 Evaluation criteria

It is anticipated that the review will provide insight into the extent to which the programme is addressing the following:

•Where to build

1. Land and property rights: what are the challenges and are they being
appropriately addressed?

2. Site selection for building upon or for relocation: are the sites
appropriate for the construction activities undertaken, or for relocation as appropriate?

3. Site preparation and mitigation works, e.g. gabion walls: how appropriate and effective are these works?

4. Watsan: were factors such as water availability, space considerations for latrines, depth to groundwater appropriately considered in site selection?

• Planning

5. T-shelter sites: were the t-shelter sites, e.g. La Piste and Annexe de la Mairie, appropriately planned and configured for the Haitian context?

6. Comprehensiveness: to what extent were concerns including children,
gender, people with disabilities, vulnerability, and poverty implications taken into account in programme design and implementation?

7. Consultation: how effectively were shelter plans communicated with key departments, i.e. logistics, water and sanitation, and beneficiary
communications?

• Beneficiaries criteria

8. Displaced and non-displaced: was the criteria fair and balanced?

• Participation

9. Beneficiaries: how are beneficiary communities engaged in the shelter
programme activities? Is the engagement appropriate and can it be improved?

10. Local governments: are local authorities appropriately consulted in
shelter programme activities?

11. Other actors: is the involvement of other actors in key activities, e.g.outsourcing watsan activities, appropriate? Were roles and responsibilities clearly articulated and agreed?

•Project Implementation Methodology

12. Support services: how timely and efficient are the key support services, i.e. logistics and finance to the shelter programme?

13. Monitoring: are monitoring mechanisms appropriate to the projects, i.e. t-shelter and self-sheltering solutions? Is the data reliable and
verifiable? Are challenges and obstacles appropriately recorded and
reported? What beneficiary feedback processes are utilised and how is the team responding to feedback received? What improvements could be made to enhance monitoring activities?

•Technical characteristics of designs

14. Have the following characteristics been appropriately addressed in
construction activities?

Standards reached (surface, ventilation, etc.)

Climate conditions, including disaster resistance considerations

Priorities taken to define the design and evolution of design

Local materials, imported materials, appropriateness

Other local materials, tools or resources (eg. pre-assembly factory established to be handover to people)

•Supervision of the construction process

15. Site supervision: are site supervisors adequately identifying and
resolving issues arising and maintaining quality controls at onstruction
sites?

16. Technical capacities/skills transferred: how has the Shelter programme developed the skills and capacities of national staff and local communities? How useful and effective has the training been, and are there opportunities for further training development?

•Sustainability

17. How has sustainability been considered in the programme? What are the sustainability issues to be addressed?

5. Review methodology

It is intended that data gathering will be drawn from two review styles:

1. Participatory Project Review (PPR), and

2. Technical assessment of the shelter solutions process and outputs

Expected activities will include (though not limited to):

• Desk review of documentation held by the IFRC Shelter team in
Haiti

• Beneficiary surveying (via the IVR)

• Household surveys

• Beneficiary focus groups via PPR (see below)

• Stakeholder interviews: Haitian Red Cross, Partner National Societies, IFRC Shelter Movement Coordinator, IFRC Watsan, Haven (supporting latrine construction), CHF, external stakeholders, such as the Interim Haiti Recovery Commission (IHRC)

Technical review methodology will be developed in consultation with
technical reviewers. One reviewer will be dedicated to the PPR process and will work closely with the Haiti Shelter team to facilitate this process. Participatory Programme Review (PPR) is a form of internal evaluation utilising a combination of participatory methodologies that should be tailored towards specific project evaluation needs. The methodology draws heavily from that of Empowerment Evaluation, as developed by David M. Fetterman,[2] as well as the Most Significant Change (MSC) technique as developed by Rick Davies and Jessica Dart.[3] The PPR approach seeks to help programmes/projects use a form of self-evaluation and reflection where, "program participants – including clients – conduct their own evaluations; an outside evaluator often serves as a coach or additional facilitator depending on internal program capabilities…The group thus can serve as a check on its own members, moderating the various biases and agendas of individual participants. The evaluator is a co-equal in this endeavor, not a superior and not a servant; as a critical friend, the evaluator can question shared biases or group think" (Fetterman 2001).

The PPR component of the review will be led by IFRC staff with direct
experience in programme formulation and evaluations in reconstruction
programmes, community development and volunteering in different country
contexts in the Americas. Given the community based approach of the
programme it is necessary that the person be able to easily communicate in spoken and written French and be familiar with the local context.

The PPR will be facilitated by a French/Creole speaking person who has
conducted such evaluations before. It will first be conducted with the
programme team, during which several members will be identified to be
trained as trainers. Multiple PPRs can then be facilitated to include a
convenience sample from the target communities according to the time and
capacity of the project team. Information can then be analysed by PPR
participants to create a larger picture of the project for review and
evaluation.

PPRs will be undertaken with the following groups:

• groups of families that have resettled in Port-au-Prince in the
last nine months and have received the livelihoods grant

• group of families that have returned to the provinces and have received the livelihoods grants

• groups of families that have had a t-shelter built on private land and received a livelihoods grant

• groups of families that have received a t-shelter in a planned
camp and have received a livelihoods grant within the last six months.

To assist in reaching as broadly across the beneficiary community as
possible, IFRC intends making use of the soon-to-be-installed Interactive Voice Response (IVR) hub at Haitian Red Cross Base Camp in Port-au-Prince.

The IVR will make possible the use of a simple survey that can be sent to all shelter programme beneficiaries via mobile phone. It is anticipated that should the IVR be installed in time, the shelter survey will be conducted and the results available to the review team for inclusion in the shelter review report.

6. Deliverables/outputs

It is expected that the review team will produce a report that addresses the objectives of the evaluation, including:

• The appropriateness and effectiveness of the approach and
processes adopted by the IFRC Shelter team in Haiti.

• Concise written reports of each PPR, with a synthesis of the PPR
learnings to be featured in the review report.

• Percentage of occupied/unoccupied shelters, occupied shelters to
be disaggregated by original/new occupants and by type of shelter solution provided.

• Case studies representing the experiences of a diverse selection
of beneficiaries

• Recommendations to inform future shelter programming in Haiti, and
more broadly and if relevant, to direct adjustments and improvement to be made before the end of the projects.

• Review exit strategies and make recommendations for managing the impact of the exit process.

The report should follow the following headings:

1. Executive summary

2. Abbreviations/acronyms

3. Introduction

4. Literature review

5. Review aims and objectives

6. Methodology

7. Findings

8. Recommendations

9. Conclusion

10. Appendices

7. Proposed Timeline/Schedule

The proposed schedule for the evaluation is as follows:

• Haiti: desk review, survey tool development, and data gathering x
17 days (preferably commencing in Haiti on 31 October 2011

• Presentation of preliminary findings in Haiti (mid November)

• Final report due to IFRC: 30 November 2011

8. Evaluation Quality & Ethical Standards

The evaluators should take all reasonable steps to ensure that the
evaluation is designed and conducted to respect and protect the rights and welfare of people and the communities of which they are members, and to ensure that the evaluation is technically accurate, reliable, and
legitimate, conducted in a transparent and impartial manner, and contributes to organisational learning and accountability. Therefore, the evaluation team should adhere to the evaluation standards and specific, applicable practices outlined in the IFRC Evaluation Framework accompanying the TOR.

The IFRC Evaluation Standards are:

1. Utility: Evaluations must be useful and used.

2. Feasibility: Evaluations must be realistic, diplomatic, and managed in a sensible, cost effective manner.

3. Ethics & Legality: Evaluations must be conducted in an ethical and legal manner, with particular regard for the welfare of those involved in and affected by the evaluation.

4. Impartiality & Independence: Evaluations should be impartial, providing a comprehensive and unbiased assessment that takes into account the views of all stakeholders.

5. Transparency: Evaluation activities should reflect an attitude of
openness and transparency.

6. Accuracy: Evaluations should be technical accurate, providing sufficient information about the data collection, analysis, and interpretation methods so that its worth or merit can be determined.

7. Participation: Stakeholders should be consulted and meaningfully involved in the evaluation process when feasible and appropriate.

8. Collaboration: Collaboration between key operating partners in the
evaluation process improves the legitimacy and utility of the
evaluation.

It is also expected that the review will respect the seven Fundamental
Principles of the Red Cross and Red Crescent: 1) humanity, 2) impartiality, 3) neutrality, 4) independence, 5) voluntary service, 6) unity, and 7) universality. Further information can be obtained about these principles at:

www.ifrc.org/what/values/principles/index.asp

9. Review Team & Qualifications
IFRC is seeking to form a team of up to three (3) professionals to undertake this review. It is anticipated that the following skills and experience will be represented in the review team:

• Monitoring and evaluation: with practical experience in
Participatory Project Review (PPR) methodology; able to lead the PPR
exercise in Haiti.

• Shelter programming: experienced in programme design and
implementation as well as monitoring, assessing, and evaluating shelter
projects

• Water and sanitation: experienced in designing and implementing
water and sanitation as part of shelter programming; experience preferred in monitoring and evaluation of shelter/watsan projects.

• Risk Mitigation: experience is assessing risk in urban shelter
programming.

All team members will have the following qualifications and competencies:

Essential:

• Tertiary qualifications in relevant technical discipline

• Excellent writing and presentation skills in English

• Experience in survey design and sampling

• Strong analytical skills and ability to clearly synthesize and present findings

• Experience in participatory approaches to evaluations

Preferred:

• Ability to converse comfortably in French and/or Creole.

Note: the final report will be made available to the readership in both
English and French languages. IFRC in Haiti can assist with translation
services.

10. Application Procedures

Applications are to be submitted by 14 October 2011 to Paula Fitzgerald,
Technical Adviser – Planning, Monitoring and Evaluation, IFRC Haiti
paula.fitzgerald@ifrc.org, and must include:

• curriculum vitae (CV)

• references x 3

• daily rate

• 3-page sample of writing that the applicant has solely authored.