Terms of Reference
Independent evaluation of CARE’s response to the 2011-2012 Sahel humanitarian crisis
Draft 11 December 2012
Background
The Sahel region of West Africa has experienced a severe food and nutrition crisis for the third time in seven
years. Irregular rains, limited crops, high food prices and a drop in migrant worker’s remittances due to the
conflicts in Libya, Nigeria and Mali have put people’s resilience to the test. The failed rains of the last year left
many farmers and pastoralists without their main income and source of food: crops have withered, livestock died
of thirst and hunger. As a consequence, many people had to revert to measures such as eating the seeds spared
for planting, selling emaciated livestock for low prices, using saved assets to buy food that has become more
expensive or taking their children out of school to help earning an income.
In August 2012, the UN estimated that some 18.7million people were in need of humanitarian assistance in nine
countries, with more than one million children at risk of starvation and another three million are facing
malnutrition in the Sahel1. As food sources run out women turn to gathering and selling firewood as an alternative
income and walking long distances alone puts them at risk of violent attacks. The conflict in Mali has displaced
more than 440,000 people and created a severe humanitarian crisis in the northern regions of the country. For
security reasons humanitarian organizations such as CARE had to suspend operations in the north of the country,
leaving thousands of people without assistance. Almost 70,000 Malians fled to neighboring Niger, putting more
stress on already vulnerable households and host communities. Even in years which are not overshadowed by
drought, the countries of the Sahel have some of the highest rates of food insecurity and malnutrition. One child
in five dies before it reaches the age of five years and 30 percent of these deaths are due to the lack of food and
water.² Countries like Niger, Chad and Mali are some of the poorest in this world, ranking lowest in the Human
Development Index published yearly by the United Nations.³
CARE’s response
CARE has been running emergency operations in Chad, Mali, and Niger, reaching over 752,000 affected people2
with humanitarian assistance supported by long-term strategies that are aimed to strengthen their livelihood in
the longer term.
Chad
In Chad, where more than 3.6 million people are affected, CARE has distributed food such as grains,
beans and oil to more than 212,000 people. This includes almost 29,000 children under age 5 who
received special nutritional supplements – such as a peanut butter-based paste or a blend of corn and
soy – to compensate for the loss of vitamins, proteins and other important micronutrients. More than
7,000 nursing mothers have also received special supplementary food to ensure adequate nutrition for
themselves and their children.
CARE has also provided crisis-affected people in Chad with access to safe drinking water and adequate
sanitation. We have repaired broken water pumps and distributed jerry cans for the collection and
purification of water. We have provided 2,000 families seeds and tools so they are better equipped for
the planting season and the upcoming harvest.
As a further aid to mothers, CARE has begun cash transfers enabling them to buy what they need at local
markets – an efficient system that also supports the local economy. Parallel to our emergency response,
1
UN OCHA, Special Humanitarian Bulletin, Sahel Crisis, August 13, 2012. The nine countries are Niger, Mali, Chad, Burkina
Faso, Mauritania, Gambia, Senegal, Nigeria and Cameroon
2
CARE International Sahel Crisis Overview. September 2012
we are rolling out programs that accelerate families’ recovery from the food crisis and support their
livelihoods in the long term.
Mali
In Mali, where 4.6 million people are in need of assistance, CARE is providing emergency food supplies
to 250,000 women and men. In the southern regions of the country, CARE’s distributions of seeds for
the next harvest are under way. At the same time, we are seeking access to the northern areas where
conflict has forced hundreds of thousands of people to flee their homes. CARE is assisting displaced
families arriving in Mopti, central Mali, with food and essential household and hygiene items, as many of
them have had to leave all their possessions behind. Plans for ongoing assistance include the provision
of psychological and medical assistance to survivors of gender-based violence.
Due to the conflict, CARE and other humanitarian organizations have had to suspend operations in the
north of the country. If and when a political agreement allows displaced people to return home, CARE is
prepared to provide support to the most vulnerable returnees, such as assisting with transportation,
providing food and relief items and continued financial support as they seek to resume their livelihoods.
Niger
In Niger, where 6.4 million people are affected, CARE works in 14 departments of five regions. We
support temporary paid work, enabling families to buy food in the local markets and completing needed
community projects. As immediate assistance to families in need, we provided cash support, and we are
now distributing food such as grains, oil, beans and nutritional supplements in the most affected areas.
In certain regions, we continue to provide cash support targeted at families with nutritional needs. We
have provided families with agricultural tools and higher-yield seeds ahead of the planting season, and
we support pastoralist populations by providing animal fodder and by buying some of their excess
livestock and distributing the meat. CARE has also supported community better recover from the food
crisis as well as develops further resilience through voucher for assets reconstitution, food and fodder
security stocks, community based malnutrition prevention and management and support to early
warning structures at community and communal levels.
Simultaneously, CARE is assisting refugees have who fled the conflict in Mali, and workers from Niger
who have had to return from conflict-ridden Libya and Nigeria. Our efforts targeting refugees include
food and basic relief items, latrines and showers, hygiene promotion, and the rehabilitation of wells and
water pumps.
Purpose
CARE’s accountability framework and learning policy for humanitarian action commits CARE to undertaking an
independent, external evaluation of major Type 2 humanitarian response in order to be able to account for our
interventions to key stakeholders (in particular beneficiaries), to ensure we solicit external independent feedback
and validation on our performance and to ensure learning at all levels of the organization.
CARE’s response to the crisis in the Sahel region in Niger, Mali and Chad represents a significant humanitarian
response with national, regional and organisation complexities. The three countries teams have completed After
Action Reviews of the 2012 emergency interventions and formulated important recommendations for potential
interventions for 2013 as well as recommendations for CARE’s emergency responses generally. The After Action
Reviews are internal reflections on how CARE met its commitments against the Humanitarian Accountability
Framework and our own review of lessons learned. The After Action Reviews, as internal reflection processes,
don’t however provide an independent evaluation of CARE’s performance in terms of the effectiveness of our
humanitarian response relative to our stated strategies, which is a complementary element of CARE’s learning
and evaluation policy. Further, the After Action Reviews focus at a national level, and CARE would like to use the
opportunity of a regional evaluation to be able to identify the high level, strategic lessons and recommendations
which apply at a regional and global level in addition to the national level learning.
As such, in keeping with CARE’s learning and evaluation policy, in order to ensure accountability and learning
from this crisis, it is proposed to conduct an external evaluation of the response. The evaluation will provide
important insights into the effectiveness of CARE’s response to the crisis in the Sahel, including generating
recommendations for how CARE’s work in the region can best respond to similar crises in the future and how we
can most effectively contribute to improving resilience of chronically food insecure communities. Given CARE’s
strong focus on women’s empowerment and gender equality programming, the evaluation will have this as a
particular focus.
CARE Mali, Niger and Chad in collaboration with the relevant CMPs, CEG and its operational and strategic partners
are well positioned to propose innovative approaches for an efficient and sustainable enhancement of the
resilience capacity of CARE’s impact groups. This assumes however that lessons learnt are documented through
evaluations and the AARs such that evidence from the interventions by CARE and others are fully analyzed and
taken into account. The evaluation should review, validate and expand upon the conclusions of the After Action
Reviews.
The evaluation will precede a regional reflections workshop where senior decision makers will come together to
extrapolate key strategic implications for CARE’s future work in response to similar crises, including ways we can
support effective resilience programming in the region. This reflections workshop will reference and advance key
learning from the reflections process conducted in the Horn of Africa in response to food crisis in that region.
The purpose of this evaluation is to assess, analyze and document:
1. The quality and effectiveness of CARE’s emergency response in Chad, Mali, Niger during the 2011-2012
humanitarian crisis using relevant international programming standards including those outlined in CARE’s
Humanitarian Accountability Framework (HAF) (eg Sphere) and relevant OECD/DAC criteria to measure the
effectiveness, efficiency, relevance and coverage of CARE’s programs. The evaluation should highlight
examples of good practice and critical gaps coupled with recommendations for improving emergency
preparedness and response in future at both a country, regional and global (institutional level). The
evaluation should reference and validate or provide an alternative viewpoint to the conclusions of the After
Action Reviews as appropriate, in keeping with the independent nature of this evaluation.
2. The evaluation should focus in particular on the appropriateness and effectiveness of CARE’s emergency
response strategies in meeting CARE’s stated goals of supporting women’s empowerment and gender equity
programming, considering the active role of women in responding to food security and mitigating its impact
on households and community at large as well as women’s vulnerable situation when the crisis erupts.
3. With reference relevant benchmarks and standards, particularly with regard to Sphere minimum standards
assess the appropriateness, effectiveness, efficiency and relevance of CARE’s food security activities as a core
sector intervention. If possible, identify where pre-crisis programs contributed to mitigating the impacts of
the crisis. Where successful, what were the critical success factors and what recommendations can be made
to prevent or mitigate the impacts of similar crisis in the future?
4. Assess the extent to which CARE achieved the stated goals and objectives and targets established in CARE’s
own emergency response strategies and project documents including both fundraising and programming
goals, and where possible compare CARE’s performance to evaluations available for other agencies.
5. The effectiveness and coherence of the coordination between key stakeholders, including internally (CARE
Country Offices, WARMU, CARE Canada, CEG, CMPs), sub regional coordination between the 3 country
offices, host governments, donors, UN agencies, NGOs and affected community members themselves and the
implications of this for the effectiveness of the response.
6. Evaluate the extent to which CARE utilized lessons-learned relevant to drought cycle management, disaster
risk reduction programming to mount a relevant and appropriate response and how likely this is to increase
the resilience of vulnerable populations.
7. Identify any opportunities missed or threats to CARE’s programming and make recommendations for possible
future regional programming across the sub region where CARE could contribute positively to strengthened
resilience and food security in Niger, Chad and Mali.
Specific Issues for Consideration



The evaluation should ensure the dynamics of conflict in the region are considered, in particular in terms
of whether CARE’s programs incorporated conflict sensitive approaches.
Issues related to any specific CARE impact groups may be highlighted (eg pastoralists and mobile groups
that CARE has long term programming with).
Consider the effectiveness of CARE’s programs in responding to the complexities and emergency needs
associated with the crisis of internal displacement and the needs of IDPs.
Methodology
1. Methodology will be developed by the consultant and based on a combination of: a desk review of relevant
literature (including after action reviews, emergency response strategies, evaluations of other agencies), field
observations, other appropriate evaluation and survey methods and key informant interviews and/or focus
group discussions, with staff in the field, HQs/regional and key external stakeholders (host government
officials, UN, NGOs, donor representatives, members of the affected population and host communities). The
evaluation team will take all reasonable steps to ensure that the security and dignity of affected populations
is not compromised and that disruption to on-going operations is minimized. The methodology proposed will
reflect the central focus of the evaluation on gender equality programming and ensure the full participation
of women and men involved and affected by CARE’s programs.
2. Confidentiality of information - all documents and data collected from interviews will be treated as
confidential and used solely to facilitate analysis. Interviewees will not be quoted in the report without their
express written permission.
3. Communication of results – the report will be supplemented whenever possible by presentation of
preliminary findings and recommendations at the field visit to both provide immediate feedback to
operations managers and give ample opportunities to validate findings.
4. Use of results –the results of this joint evaluation are intended to increase quality of programming and
coherence both within CARE Country Offices in the region and at a global level. The findings of the evaluation
will be placed in the public domain to promote improved quality through the wider humanitarian community
consistent with CARE International’s Evaluation Policy. A management response will be prepared by
stakeholders targeted by specific recommendations that will include plans of action wherever appropriate
and focal points will be responsible for monitoring follow-up at a country and institutional level as
appropriate.
5. Reflections exercise - The consultant will be invited to participate in the regional reflections exercise to be
held after the independent evaluation has been conducted. The draft report must be finalized well in advance
of the reflections workshop (to be held in March, dates to be confirmed), and the final report may be finalized
after the reflections exercise in order to capture any additional feedback.
Deliverables
1. An Inception report of no more than 10 pages produced within a week of starting the consultancy following
an initial scoping study which consists of selected key informant interviews and review of relevant
documents. The Inception Report would typically aim to describe the following:
a. The consultants’ understanding of the objectives as per the TOR and a brief description of how they
expect the outputs to be used by CARE;
b. A summary desk review of key documents (e.g. reviews, evaluations, studies) which directly relate to
this research, along with a brief description of how this study might draw on these and a list of other
documents which are expected to be particularly critical;
c. Methodology including key informants and stakeholder groups to be interviewed, data collection
plan, triangulation strategy, approach to data analysis, and how the consultant aims to use
perceptions as a validation tool;
d. A matrix showing, for each line of questioning, the criteria proposed on which judgment will be
based, and the anticipated sources of information;
e. Draft outline for the report;
f.
A proposed timeline;
g. Any recommended revisions to the ToR along with a brief justification;
h. Specific areas where the consultant(s) expect support (e.g. initial communications with key
informants, locating and forwarding documents, logistic support for field visits, etc.).
2. Conduct a debriefing for the Steering Committee on the main findings and recommendations.
3. A draft evaluation report of no more than 30 pages plus annexes, that must include a concise executive
summary and summary of recommendations and as many annexes as are available.
4. The evaluation report itself should be approximately 30 pages in length, not including annexes, and include
the following elements:

Executive Summary (max 3 pages)

Summary of recommendations (with recommendations also being embedded at appropriate places
within the main body of the report so that their basis and supporting evidence is clear).
Recommendations should be phrased so as to promote utilization by specific targeted stakeholders
and/or stakeholder groups in CARE. Recommendations should be specific and provide pathways and
suggested tools and approaches for achieving them wherever possible.

Main body of the report structured to correspond to the objectives outlined above.
Planned Timeframe
Indicative
number of
days
Date
Activity
January
Consultant orientation, Initial document review,
prelim interviews, inception report
4TL + 2TM
January February
Interviews/research completed, field visits, report
drafted, debrief with the Steering Committee and
ERWG, debriefing for the Steering Committee
20TL + 16TM
March
Participate in reflections workshop. Report
finalized after feedback considered.
6TL + 2TM
4 + 2TM
Deliverables
Inception report
Key findings and
draft report
Participation in
reflections
workshop
Final report
Management of the Evaluation Process
The evaluation process will be guided by a steering committee of up to 8 selected senior staff representing the
CARE membership, partners, field staff, and the CI secretariat, who have had substantive involvement with the
Sahel humanitarian response. The committee will be co-chaired by the CI Head of Emergency Program Quality
and a representative of the Regional Management Unit. The consultant will report to the Steering Committee
through the Co-chairs. The specific tasks of the Steering Committee will be to:

Provide inputs to help in finalizing the TOR;

Provide appropriate support to facilitate the evaluation (data mining, identification of key informants,
etc.);

Select the consultant;

Review and comment on the inception report;

Participate in the debrief;

Review the draft report prior to finalization; and

Review the final report and determine appropriate follow up (including the drafting of a management
response to recommendations in the report).
Technical support will be provided by CARE’s Head of Emergency Program Quality and Head of Emergency
Operations, REC ai and CI’s Emergency Monitoring, Evaluation and Accountability Coordinator
Team Composition
It is envisaged that the evaluation will be undertaken by a team of 2 consultants – 1 team leader responsible for
overall management of the evaluation including reporting, and supported by an additional team member with
specific expertise which complements that of the team leader who will support research and field elements of the
evaluation. The team members should have significant experience in humanitarian programming. The following
set of complementary expertise/backgrounds should be included in the team: 1) a food security 2) a
health/nutrition 3) gender 4) resilience 5) monitoring and evaluation expertise.
CARE Country Office staff that have not been closely involved in the response may be assigned to assist the team
for field visits.
The evaluation framework is based on the concepts of independence and transparency. Overall responsibility for
drafting and editing of each version of report lies with the Consultant Team Leader.
The consultants must speak French and English. The report should be delivered in English.
Fees and services
A daily fee will be negotiated with the consultants upon selection and before signing of the contract.
CARE will provide all expenses related to the evaluation including international flights, in-country travel,
accommodation and food. Exact allowance will be detailed in the contract.
The consultant is responsible for personal insurance during the evaluation. The consultant will also provide any
necessary materials (including laptops) required for the evaluation.