ICCO food security programme Country report Madagascar final version

Transcription

1 ICCO food security programme Country report Madagascar final version Country report Madagascar ACE Europe December 2010

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3 ICCO food security programme Country report Madagascar Hannelore Beerlandt Ramy Razafindralambo

4 AKNOWLEDGMENTS Our sincere gratefulness for all time and critical analysis by the partners of ICCO in V.7.V (Fiantso, SAF, TIAVO, COLDIS); of the LIFE Coalition, and of Mr. Peter Egging and Mrs. Estelle Antilahy of ICCO in Madagascar. We want to express our special appreciation to all villagers who participated actively in the workshops (Albohitsara, Ambila, Sandrohy, Mizrilo Gara and Marofarity). We are also grateful to other local institutions and international partners for their voluntary cooperation. Ramy Razafindralambo and Hannelore Beerlandt ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 4/105

5 Table of content 1. Introduction Introduction to the evaluation in Madagascar Execution of the evaluation National and regional Context ICCO supported projects in Madagascar Main findings and conclusions Evaluation question 1: Relevance of the underlying policy and strategy of the program Evaluation question 2: coherence of the implementation strategy Evaluation question 3: improved food availability on the household level Evaluation question 4: improved acces to food by vulnerable households and individuals Evaluation question 5: Improved (proper) utilisation of food by vulnerable households and individuals Evaluation question 6: Improved position and capacity of organizations to influence policy making Evaluation question 7: National and international policy makers demonstrate more interest for the right to food Evaluation question 8: assessment of the contribution of ICCO Summary and conclusions 60 4 Annexes 63

6 Annex 1 - List of abbreviations and Acronyms 63 Annex 2 - Comments on the evaluation framework (contextualising) 65 Annex 3 - List of documents consulted 72 Annex 4 - Programme of the mission 73 Annex 5 - List of persons interviewed 74 Annex 6 - List of persons participating 76 Annex 7 - PPT used for debriefing 81 Annex 8 - Short internal report on the indepth work sessions in the villages 82 ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 6/105

7 1. Introduction 1.1 INTRODUCTION TO THE EVALUATION IN MADAGASCAR The field mission to Madagascar took place between Sunday 30 th of October till Sunday 14 th of November and was mainly held in the intervention area in the South East of Madagascar, in the region of Vatovavy Fitovinany, and more particularly in the districts of Ifanadiana, Mananjary and Manakara. Three individual partners of ICCO have been visited and assessed in depth: SAF/FJKM, FIANTSO and TIAVO. During these visits, attention has been spent to (a) the partner organisation, its achievements and challenges; (b) to evolutions as perceived by villagers (beneficiaries and non beneficiaries) within their target area and to the dynamics and functioning of their organisations (in particular to the network of SIIV, water committee, COLDIS, and les mutuelles of TIAVO), and to (c) other regional stakeholders directly or indirectly involved in the programs of the different partners. COLDIS has been visited, but the assessment has not taken the same depth as for other 3 partners (concerning session with partner and target group). A joint workshop has been organised in the region to meet members of the Coalition LIFE (these are all partners of ICCO linked to the food security program). 1 day was spent in the Antananarivo (capital) during which national stakeholders were consulted individually. 1.2 EXECUTION OF THE EVALUATION Regarding the selection of the 3 key partners to be consulted and assessed in depth, the choice for SAF and FIANTSO was obvious, given their relative part in the budget MFS/FS 1 and seen the structural role they have played for food security via different intervention strategies. As third partner TIAVO has been selected, although formally budgeted under ICCO s MFS/DREO program, TIAVO has been linked directly to the food security in the field with a considerable budget (about euro bank guarantee). The program initially established for the evaluation mission in Madagascar has been maintained. Compared to other field missions for this evaluation, the field mission in Madagascar (i) has spent less time per partner (shorter consultation with target group and with partners) but has been able to (ii) combine the consultation of regional stakeholders related to the different partners programs; partners work in one region and deal with similar stakeholders. 1 SAF: 48% of total MFS FS budget and FIANTSO 19% of total MFS FS budget during considered time period

8 (iii) Because the partners have partially achieved geographical integration of their activities, the consultations with the target group were related to a combination of activities of at least 2 partners. (iv) Attention has been spent to the complementarities with the EU projects (ICCO) by finding communities which were also involved in the PAMOLEA (supported by ICCO FS partner (SAF) and funded by ICCO and EU Water Facility). (vi) Groups and committees of beneficiaries have been visited as they are quite prominent in the projects (consultation of SIIVs, water committee, of caisses of TIAVO, guichet fonciers and local commune, COLDIS, Coldis collectors, product sorters and producers). The villages visited during the field mission are presented in Table 1. Table 1: Location of Communities visited during the Field Visit in Madagascar in the region of Vatovavy Fitovivany Partner Villages SAF (SIIV), SAF (PAMOLEA), TIAVO SAF (SIIV), SAF (PAMOLEA), TIAVO FIANTSO, TIAVO FIANTSO, TIAVO TIAVO, COLDIS Ambohitsara Sandrohy Ambila Mizilo Gara Marofarihy Regarding the consultations in the villages (focus group discussion and 2days workshops), the methodology provided by the evaluation and based on PADEV has been slightly adapted and shortened. Module 1 and 2 were integrated and module 4 and 5 were integrated, meaning these modules (1 and 2 and 3 and 4 and 5) were first performed in the sub groups and the results were presented and discussed together in plenary afterwards. Smaller adaptations to the methodology were: (i) for module 2, the exercise was built around the following question: what are 5 factors that influence what and how people eat daily?. From there, the subgroups discussed whether these factors improved during the last 10 years or not, and why (not). (ii) Concerning module 3, the exercise started with the questions: if an external organization happens to arrive in your commune, how would you describe possible different categories of people in terms of well being?. (iii) With regard to module 5, only the 5 best and 3 worst projects were asked for and discussed. In the discussion quite some time has been spent on sustainability related issues ( are possible effects of these projects lasting or not, and why 2 ). (iv) During the focus group discussions, men and women were consulted separately. The selection of the villages by ICCO s partners has only partly been representative in the sense that: (i) the first selected commune (Ambohitsara) demonstrated certainly a more dynamic SIIV than average. This has been compensated by the selection of a second commune (Sandrohy) and by a visit to a third SIIV (Bac Mamoroma) of average degree of 2 Seen the presence and occurrence of many punctual and short term projects in the region. ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 8/105

9 dynamism. (ii) In the first commune, almost all participants of the workshop were members of the SIIV. This has been compensated during the second workshop and focus group discussions by including non beneficiaries of the projects. During the consultations in the villages, the same translator has been maintained for all workshops/ focus groups. The translator was recruited by the evaluation team, external to all projects, experienced in facilitation and native to the region. His support and assistance in the workshops and focus group discussions has been crucial for their success. At the end of the field mission a joint meeting was held with representatives of each partner of ICCO (one representative per partner). It concerned partners involved in food security projects and formally member of the Coalition Life. In this meeting, TIAVO was not represented by its director and it was difficult for the representative of TIAVO to judge the dynamics of the Coalition, since he hadn t followed up the Coalition closely before. COLDIS has not participated in the joint workshop. The executive director of the Coalition has only just been recruited. It has been rather difficult to find relevant national stakeholders in Antananarivo and to fix appointments with them. Mainly organizations and donors that (i) have information on the food security situation and evolutions in the country and in the region of V.7.V.; (ii) which have experience in food security projects in Madagascar or in V.7.V; and (iii) who know one or more of ICCO s partners and can witness of the quality of their representation activities on the national level, have been consulted. Data on impact (food security) are not available at the level of the partners. Partners have data available at the level of outcome and direct outreach. These data have been combined with the information from the groups discussions during this mission regarding impact and regarding wealth category (PADEV methodology). The attribution issue (impact) has been addressed by combining available outcome data with the results of the group discussions held with the PADEV methodology. The negative impact from cyclones and caused by political events have also been included within this methodology (see annex 5). The ICCO FS strategy is based on 3 pillars: availability of food, access to food, and proper utilization of food. The division of the different interventions and of the different effects of the interventions over the different pillars, has not been obvious in Madagascar. Interventions are oriented towards improvement in preconditions for food security, and some activities can thus contribute towards food availability and towards access to food. The effects are therefore divided according to the main intended type of impact within the partners vision. For Madagascar this results in the following ranking: Food availability: effects related to better storage of food, effects related to increased production of food crops Access to food: effects related to improved access to credit, effects related to improved land rights, effects related to improved position in the market, effects related to improvements in productivity and transformation of cash crops.

10 Utilization of food: effects related to improved access to potable water and to improved nutritional, hygiene and sanitation attitude. 1.3 NATIONAL AND REGIONAL CONTEXT NATIONAL CONTEXT Trends in food insecurity Madagascar, with a population of roughly 19 million, is classified as a least developed, lowincome, food deficit country, and is ranked 145th out of 177 countries by the 2009 UNDP Human Development Report. About 70% of the population lives below the poverty line and 60% of the population lives on less than one US dollar per day. Since 2008 economic perspectives are bleak because of the international economic crisis and the national political crisis that disrupt the economy. Food insecurity once peculiar to the southern region is gradually reaching other rural regions and urban centers. Twenty five percent of the rural population has been identified as food-insecure (WFP, June 2009). During the lean season, the global acute malnutrition rate gets as high as 15%, and even higher in drought or cyclone affected areas. The prevalence of stunting and underweight among children under 5 is 53% and 36% respectively. No major decline of malnutrition rate was registered in the last decade. ICCO partners work in the Vatovavy Fitovinany Region (V7V), classified as medium vulnerable zone compared to the most vulnerable regions in the South and South-West of the country (SIRSA, 2006). The malnutrition rate amongst children under 5 is 48.9% (INSTAT, ) in the ICCO region; the hungry season may last up to 6 months during which poor households mainly eat manioc, banana and other harvested food to complement the lack of rice (SIRSA, 2006). The diet of the majority of Malagasy population is based on rice and often nutritional supplements are absent from the diet. Food insecure households are recurrently net-buyers of food; in the Vatovavy Fitovinany region. Income from sales of typical cash crops such as coffee, clove, litchi but also of rice and bananas, are used by the households to meet the daily expenses on food. During the 2009/2010 agricultural campaign, the national cereal domestic availability of 3,680,000 tons (rice, manioc and sweet potato roots, maize, wheat) were not sufficient to cover the cereal demand of which 90% is made of rice (GWIES/ FAO, August 2010). Cereal import requirement was estimated at 58,000 tons which is 39% less than the average import tonnage in the previous five years. The cereal production in 2009/2010 has increased by 29% compared to the previous five years average production. This production increase was primarily due to ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 10/105

11 improved access to production capacities and credit for rice producers, as well as assistance in professionalizing farmer associations through the Green Revolution implemented by the Malagasy government during The agricultural sector represents on average 28% of GDP and the rice sector as the main economic activity of Madagascar in terms of volume, represents 43% of the agricultural GDP and 12 per cent of GDP in The public expenses allocated to the agricultural sector were 9% of the national budget. Causes of hunger and food insecurity Underlying causes of food insecurity in Madagascar include low levels of agricultural productivity due to out-of-date farming techniques, insufficient and poorly maintained infrastructure and limited access to agricultural extension services. Although significant progress has been made in recent years, the performance of the agricultural sector remains low to ensure food self-sufficiency for many households. The farming system remains subsistence or semi-subsistence agricultural system. The lack of arable land is not a constraint in agricultural production. In fact, less than 10% of 33 million hectares of potentially arable land are cultivated on the island. Vulnerability is strongly linked with unequal access to land. Only 10 % of the population is entitled to secured land ownership, which also strongly handicapped commercial and contractual land transactions, and prevented the emergence of a truly competitive land market meeting the needs of farmers and major agro-industrial investors. Poor physical access to many parts of Madagascar, especially in the rainy season, severely limits transport and marketing opportunities. Difficulties to access market due to inadequate road infrastructure and low storage capacity contribute to maintain low farm gate prices during harvesting period and much higher consumer prices during the lean season. The efficiency of food utilization is undermined by relatively high rates of disease and exacerbated by limited health care services as well as poor hygiene, care and sanitation practices. 67% of rural households consume water from non-improved sources such as nonprotected wells or surface water which practices increase the risk of spreading hydric diseases; the vaccination coverage in rural areas is low (60%) according to the national demographic and health survey. High population growth (2.7% annually), close birth spacing and the low level of education (percentage of men and women without education are respectively 19% and 23% in rural areas) are other risk factors that affect food and nutrition security of children. The large proportion of young population (45%) under 15 and less than 5 increases the dependency rate estimated as 100 adults of active age supporting 91 individuals under 15 and over 65 (INSTAT, 2010).

12 Women control and make decisions about the use of income they have earned for only one third of men-headed households; for 63% of households, this decision is made jointly with the husband or partner (INSTAT, 2010). Women usually have control on the daily needs including food for the family and the major expenses for the household. Although polygamy is prohibited in Madagascar, it is worth noting that 6% of women in the Vatovavy Fitovinany (compared to 3% national average) declared having co-spouses. This traditional practice has great effects on the household s resource management (e.g. land) and the vulnerability of women-headed households composed by descendants outside legitimate union. Additional pressure on food security The country is faced with frequent droughts, cyclones and floods that exacerbate an already precarious food security situation. In the last four decades, over 50 natural disasters have affected the country. According to World Bank studies, 11 million people were affected in 30 years (between 1970 and 2004), or 400,000 people per year. The effects of climate change are already changing the frequency and intensity of weather disturbances and generate significant impacts particularly in terms of loss of life, reduced agricultural production and livestock, destruction of infrastructure, degradation of natural resources (water, soil and forests) and coastal erosion, causing precarious food security, water supply and irrigation, public health and environmental management and livelihood. These climatic difficulties are exacerbated the national political crisis which had tremendous impact on public finances, exports, tourism, unemployment, the national currency and disrupted some agricultural sectors. International aid in key development programs affecting rural areas has been greatly reduced. Steps to take Food insecurity usually affects several socioeconomic groups of population: laborers, small farmers, households dependent on markets for food. Therefore, interventions to alleviate food insecurity varied and must be adapted according to needs and underlying causes. Support to agriculture is more than ever recognized as a priority for increasing agricultural productivity and improving farming system from subsistence to market-oriented system. After many consecutive years of poor harvest, the lack of seed at the household level in affected areas is a serious issue that agricultural input support programs should resolve through better access to seed. In general, safety net strategies are necessary to protect the poor and vulnerable against economic shocks and climate in the Madagascar context. Under certain conditions, depending on the magnitude of the shock, the price variability and stock availability, targeted free distribution of grain or sale at reduced prices could also be considered. The purpose of these interventions is to strengthen and protect the populations livelihoods so that they do not drift into a situation of chronic food insecurity by disinvestment and debt. ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 12/105

13 Programs to prevent malnutrition among children under 5 and pregnant and lactating women are also needed to address problems of food insecurity amongst vulnerable groups. Demands for school canteens are particularly high because they promote better access to education especially for girls and in the poorest regions of the country. Political and institutional factors Strategies to address food insecurity and natural disaster management are closely linked in the Malagasy context. The Madagascar Action Plan (MAP ) was a key national development plan that aims to achieve the Millennium Development Goals (MDGs) and proclaims strong political will to shift from a policy of disaster response to one of disaster prevention and mitigation. The "Green Revolution" was a key strategy in the MAP in order to develop the agricultural sector as the primary growth sector, to attract local and foreign private investments, to improve the land management, to increase agricultural productivity, to increase credits and reduce risks for farmers. The main purpose of the Green Revolution was to obtain large increase in yields and production in a relatively short time period. Since the 2009 political crisis, the MAP ceased to apply as the national driving policy; no clear transition policy has been declared. Various measures have been taken by the government in 2008 to increase production and reduce the impact of high commodity prices on the food situation in the country. These actions focused primarily on supporting the production of off season rice through an awareness campaign across the country and input subsidies. Analysis of rice campaign showed that these drastic measures seemed to have significant impacts on rice production which covered 90% (compared to 80% in the previous years) of the national cereal demand in 2008 (GWIES, 2010). Since 2005, the Malagasy Government has initiated a reform of the land ownership registration system. Today, local communities play a role in the recognition process of the actual landownership situation and the new laws provide authorities to decentralized communes to register and coordinate land issues. Several donors support the implementation of the Malagasy land reform through the National Land Program (PNF). In 2010, 397 communal land offices are currently operational and delivered 59,000 land certificates (44,000 hectares) of which 20% to women. In Vatovavy Fitovinany region, there are 23 operational land offices which delivered 349 land certificates in 2010 (200 hectares) 3. The Government developed a National Nutrition Policy (NNP) and a National Plan of Action for Nutrition (NPAN) in As a result, National and Regional Nutrition Offices were created to oversee the implementation of the NNP but faces funding difficulties during the political crisis in

14 Most of food security programs such as the European Union program refer to the National Food Security Strategy adopted in 1997 and the Rural Development Action Plan which focus development interventions on Communes and combine traditional actions to improve productivity with other types of interventions: building foundation for integrated regional development, strengthening local capacities and resources, improving access to health and education services, access to safe drinking water and watershed protection. The European Union is the leading partner in funding for capacity building of public agencies responsible for rural development and food security. Over 13 million were mobilized during the last five years in this field. Due to the State s withdrawal and given their proximity to the beneficiaries and their field experience, NGOs have been privileged partners of donors involved in food security. Since the start of the political stalemate in early 2009, the international community has limited contact with the Government and major aid programs were limited to ongoing humanitarian activities. After democratic elections take place, relationships with the new government are expected to normalize REGIONAL CONTEXT 4 Without going into detail, some differentiating elements of the regional context of V7V are summed up (this is the region in the South East of Madagascar where the project of the partners are concentrated). They are important to support the discussion of the evaluations questions on relevance and coherence, further in the text. Food security and agriculture, gender Important differences exist between districts in the region V.7.V. and especially between districts at the coastal side of the region and in the mountains, regarding in food security, agricultural systems, coping mechanisms, attitude and traditional governance. The main activity of most households at the Coastal side is fishing. Cash crops play an important role in the region for food security of households, at the Coast side (cloves, black pepper, litchis, ) as well as in the mountains (bananas, coffee, ). Even staples as rice are sold, also by vulnerable households. Some of the cash crops in particular put an end to the lean period for many households (e.g. harvest of cloves). Most vulnerable and average vulnerable households are net buyers of food. Agricultural productivity is generally very low, characterized by very low level of agricultural intensification, limited availability and access to traditional and alternative agricultural inputs, decreasing soil fertility. Declining soil fertility and droughts are linked with high degree of deforestation. 4 This chapter is based on the results of the Group discussions, on the GTDR Vatovavy Fitovinany and on the information gained from consultations with local and national stakeholders. ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 14/105

15 Zones with one harvest per year are affected by a sharp lean period of 4 months or more during which the number and quality of meals is reduced. Land is unequally distributed. In the group consultations during the evaluation, it has been observed that important land owners exist (depending on the zone, from 5 to 20 or 100 hectares). In 2 of the villages (Coast side) and based on the results of the group discussions (PADEV) 40% of the population is not exploiting any land anymore. This doesn t necessarily imply that these households are not involved in agriculture anymore. In about half of these cases (based in information of group discussions at the Coast side), households don t have land or have lost their land in informal credit arrangements between land owners and vulnerable households, with their land as guarantee or in informal share cropping arrangements. Other households still own land but don t dispose of the labor nor of other inputs to cultivate land. (ii) Women are disadvantaged in the traditional land systems (although depending on the local traditional systems). Women mostly don t inherit land or loose land after divorce. Also, even if they can use land, mostly they can t start cultivation of permanent crops. In the communes at the Coast side, a lot of titled state land (AMVR) exists, often concerning previous colonial plantations. Intra family land conflicts appear frequently and take up an important part of the court cases at the local level. In some districts at the coast side, a tradition exists to have different illegitimate children with several women, resulting in high vulnerability of some of these women and their households. Women are disadvantaged regarding (i) alphabetization and thus access to information and limited awareness of their rights, (ii) formal access to land and credit, (iii) formal participation into local institutions, (iv) access to potable water, (v) neglect of illegitimate households by men. The region, and the coast side more intensively than the rest of the region, is yearly touched by at least one cyclone (variable in strength), impacting heavily on social structure of the local population and agricultural investments. Yearly households drop into poverty because of the cyclone. Agricultural inputs, cultivars and systems and community management are not well adapted yet to prevent and manage the effects of these shocks. Governance and cooperation As a consequence of the yearly occurrence of the cyclones, emergency programs are almost to be considered as permanent. Overall, but even more pronounced in the districts at the Coast side, traditional leadership is still very strong. This goes together with limited accessibility by local population towards these leaders, poor communication with leaders and by leaders. In general, traditions and superstitions are still very present in these districts as well.

16 Partly as a consequence of the fragile situation overall, the region is characterized by many punctual, ad hoc programs, relying on subsidies and short term interventions. Civil society is very weakly organized and hardly present in policy dialogues. The chore of the decentralization process in the region lies with the communes, which are considered as the main point of entry for many projects. State services (incl. agricultural services) have financially almost completely been dismantled and new ministries are being created or are yet to be created (e.g. new ministry of Water). Regarding wealth categories in the local communities in V.7.V ( poor, vulnerable, average vulnerable, wealthy ), following characteristics differentiate poor and vulnerable households (for elaboration - see reports on group discussions in annex 5). These households don t cultivate land except as laborers for others, they have many, young children and no access to additional labor. Households of the poor category work occasionally on field of other people and sell charcoal and wood. The percentage of widows and divorced women is high in this category. Households of the vulnerable category work in a regular mode on larger agricultural estates and rent out their own land. Households of the average vulnerable category, cultivate 2-5ha of land and often also rent out some of their land. They have access to small credits (TIAVO) but also regularly work on estates to cover immediate expenses. Households of the most wealthy category own and cultivate important surface of land, employ permanently labor (agriculture), use fertilizer, have commercial activities or salaried persons in the extended family and have access to more important amounts of credit. They regularly consume meat. ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 16/105

17 1.4. ICCO SUPPORTED PROJECTS IN MADAGASCAR ICCO S FINANCIAL SUPPORT TO FS PROJECTS IN MADAGASCAR The total support via MFS FS in Madagascar, between 2007 and June 2010, is of euro. A total of 9 partners are involved, but 2/3 of the budget is spent by 2 partners. More than 80% of the total budget of ICCO in Madagascar is spent to projects with links to food security (incl. water). Also support to FED exists in Madagascar. The total support via MFS FS in Madagascar, between 2007 and June 2010, is of euro 5. The support to food security in Madagascar by MFS, represents 4,17% of the total support to FS by MFS (ICCO) and 22% of the expenditure of MFS to food security in Southern Africa. The first ICCO intervention strategy dominates, with 70% of the total budget in Madagascar. A total of 9 partners is involved, but 2/3 of the budget is spent by 2 partners (SAF/FJKM and FIANTSO), which are the only partners having spent more than euro during this time period on FS. The total budget dedicated to Madagascar by ICCO during the considered time period is of euro, implying that about half of the budget is taken by FS MFS. In reality ICCO also facilitates programs supported by the EU (EU, ECHO), through the same partners and related to food security (access to potable water and disaster risk management). Including these programs, then in total 2/3 of the ICCO budget in Madagascar ( ) is related to food security. The rest of the ICCO support in Madagascar is to be found under the program of value chain approaches for a total of euro divided over TIAVO (micro-credit, stands for 1/6 of total budget ICCO in Madagascar) and COLDIS (cooperative). However, the products of TIAVO and the relation between TIAVO and ICCOs partners have been focused on food security, during The contribution of ICCO has been in terms of a bank guarantee INSTITUTIONAL EVOLUTION OF THE TOTAL SET OF FS PROJECTS (ICCO) IN MADAGASCAR The ICCO projects in Madagascar are not integrated in nature, they present specialised sector projects (water, land, credit, cereal banks and risk management), but they originated from a large integrated EU program in the past 6. Considered over the long term, there exists a clear tendency of (i) moving from an integrated food security project implemented by one partner (the project was part of a larger EU program), towards a increased number of partners each 5 The other roles of ICCO are described under evaluation question 8. 6 Within this EU program, ICCO had a relatively small budget but high ambitions in terms of target area and sectors covered.

18 involved for their specific specialisation, (ii) progressively improving and intensifying collaboration between partners and (iii) geographical concentration (V7V) and (iv) including increasingly elements of the FED approach, with support to cooperatives, creating structural opportunities for improved competitiveness of farmers. Important evolutions took place since 2007, when food security became the main focus of the MFS finance. SAF has put more focus on improving organisation of producers at village level, and created the SIIV network, a network of cereal banks. The cereal banks improve the availability of the main staple food (rice) in the villages and can also serve as guarantee to have access to credit (linked to Tiavo, see further). To arrive at a more sustainable management of the credit fund, ICCO facilitated a strategic link between the network of SIIV and the MFI Tiavo. The ICCO support to TIAVO (guarantee fund for loan of BoA) allowed TIAVO, as the only rural MFI in V7V to continue and expand its rural banks. Since 2007 TIAVO opened progressively rural banks in each municipality in which the SIIV has installed one or more warehouses (currently 35 warehouses). The SIIV supported didn t manage to develop other economic activities (than rice storage) and for TIAVO it was too costly to maintain its banks in the rural communes without sufficient economic activity.to guarantee better the economic aspects of the SIIV and rural dynamics, the mutuelles of TIAVO have started another cooperative for economic activities (COLDIS). The vision is that SIIV and other local actors become member of COLDIS. SAF/FKJKM are currently reorganising FACOPA to support COLDIS and to support the network of SIIV and cooperatives towards autonomy and to integrate them in market dynamics, potentially linked to COLDIS. A separate pilot project for land ownership has been launched in 3 communes with a specialised partner organisation (FIANTSO, ). This pilot project, called FIELD, will now be extended to 28 communes. The component of the EU-project in the field of water and sanitation has been valorised to formulate an ambitious water and sanitation project called PAMOLEA ( ) implemented by SAF/SJKM and 3 other NGO s and subsidized by EU. During the EU project the malnutrition problem has been addressed through nutritional education for women groups at village level in collaboration with the ONN. In august 2007 a project proposal was submitted to the «Programme d appui à la Nutrition à Madagascar (Pronumad III) but hasn t been approved by the EU. Seen the continuous impact of droughts and floods on the households in the V7V region and on the effects of the projects, co-funding from ECHO and ICCO has facilitated the implementation of a Disaster risk reduction project by SAF/FJKM. The DRR project knows currently follow-up in the form of different short term projects: (i) scaling up of the initial project by the project RARIVATO, (ii) linking with FAO to integrate FS and agricultural aspects in the original DRR philosophy (project PATSA) and (iii) a project to capitalise experiences under joint initiative, with other partners of ECHO. ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 18/105

19 Other partners have been involved to strengthen lobby activities, to improve information flow and to include environmental aspects (CEDII, VOARISOA, CCDN, CMP). In 2008, 7 organisations, each of them partner of ICCO, have started a platform, to exploit better potential complementarities (TIAVO, SAF/SJKM, COLDIS, CEDII, CPM, VOARISOA, FIANTSO). Since 2010 the Coalition Life is officially registered as an association and in November 2010 the Coalition has recruited an executive director. In table 2 (below) an overview is presented of the involved partners for food security in the V7V region or at the national level, together with their main sector involvement and their budget within MFS.

20 Table 2: Overview of partners MFS involved in food security in Madagascar Partner Role/sector Level regarding involvement FS/MFS % of budget for direct poverty alleviation SAF/FJKM* FIANTSO* Network of cereal banks (FACOPA) and moving to : organisation of farmers, cooperative movement Land certificates and decentralisation Budget MFS/FS (2007- June 2010) % of total MFS/FS budget Madagascar Remarks Mainly regional (V7V) 83% % Access to water and saniation (PAMOLEA with EU) (Disaster Risk Management (with ECHO): DRR and FS:rehabilitation of small scale irrigation systems, seed production etc. Region (V7V) 44% % ICCO has supported a general decentralisation project of FIANTSO, of which only part was financed under food security and has also financed a project on decentralised land offices (commune level) Region (V7V ) 70% % ICCO broke up contract because of not-transparent accounts Region (V7V) and 0% % national National 20% % Currently no contract with ICCO, are CCDN Forest corridor, AGR for women, nutrition CMP Management of natural resources Voarisoa Biological farming, phytosanitary products working on a proposal CEDII Information centres, Region (V7V) and 25% % coordination and national strengthening of civil society CNOE Democratisation National 0% % Not under FS program anymore, financed on other funds currently VU Research access to National 8% % Currently not involved in the Amsterdam land projects anymore TIAVO* Rural micro finance 4 regions, amongst 100% (bank - Financed under MFS DREO (cooperative) which (V7V); union on guarantee) the regional level, mutelles at intermediate level, caisses at the commune level ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 20/105

21 COLDIS Cooperative (mainly export) Region (V7V) and international 100% (bank guarantee) (in November 2010, COLDIS has received a new bank guarantee of euro for the ongoing campaign) - Financed under MFS DREO *Involved in this evaluation

22 2. Main findings and conclusions 2.1. EVALUATION QUESTION 1: RELEVANCE OF THE UNDERLYING POLICY AND STRATEGY OF THE PROGRAM EVALUATION QUESTION EQ 1: Relevance of the underlying policy and strategy of the program DESCRIPTION CENTRAL QUESTION To what extent have the ICCO policy and strategies offered a specific framework to address the rights and needs related to food security of the most vulnerable? JUDGEMENT CRITERIA 1.1 ICCO has developed clear and useful strategies and policies. 1.2 The strategies and policies are relevant with view to current context and policies regarding the right to food. Main findings and conclusions 1.1. ICCO (Madagascar) has not developed a formal strategy document on food security or on a food security program and has never had the intention to do so. ICCO selects and supports a set of partners and the strategy and strategy setting of partners is supported/ facilitated by ICCO. Each partner focuses on a different aspect of rural development. Since 2008 ICCO has promoted closer collaboration and exchange between these partners (programmatic approach), which is strengthening their motivation to focus together more on food security in future). The global ICCO FS strategy is thus not useful for partners, they develop their own sector strategies or potentially common FS strategies. Based on observations by the consultants and based on direct input from the 3 ICCO partners, it is concluded that the global ICCO FS strategy is not fully clear or relevant in the context of Madagascar, for the following aspects: (a) finality of partnerships; (b) pathways to make inclusion of vulnerable groups operational;(c) importance of micro credit for food security (is lacking in the FS strategy); (d) link between pillar of access to food and FED strategy (local markets). The consultant also observes that the role of decentralized institutions for food security is not mentioned in the food security strategy of ICCO, while considered as important in the intervention strategies of some of the partners in Madagascar Several elements support the relevance 7 of ICCO FS strategy in Madagascar compared to the context. The support of ICCO and the interventions of the partners regarding rural credit 7 Which is not an explicit strategy but rather refers to a total set of partners and their strategies and projects ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 22/105

23 and to improve secure land rights, strengthen basic conditions for rural development. The focus on improved access to water and improved stock management (agricultural products) until the lean period and improved disaster risk management are coherent with priority needs of women in vulnerable households. The recently increased attention for agriculture and economic development in the strategies of ICCO s partners is relevant given the motivation of the population to move towards increasing their agricultural productivity and market access. Structuring farmers in cooperatives for marketing creates future opportunities to increase competitiveness and participation in markets of small farmers in the Madagascar context. The way this is approaches allows to make links with the existing associations and credit systems linked to food security EXISTENCE AND CLARITY OF STRATEGIES ICCO or the partners together have not developed a formal and written document regarding a possible food security strategy or program in Madagascar. ICCO in Madagascar has not had the intention to develop its own food security program or strategy. ICCO works with a set of partners and projects, each supporting a different aspect of rural development which are concentrated in V7V to increase impact and efficiency (but several projects or activities also touch neighboring regions). Partners determine their own strategy. Effects for food security are not monitored so far. Since 2008 ICCO has promoted closer collaboration and exchange between these partners (programmatic approach), which is strengthening their motivation to focus together more on food security in future (via vision development, monitoring of common indicators, intensifying joint activities, learning, lobby, etc.). In case they would agree in future to express together their vision or contribution to food security, ICCO would support them in that respect. Based on observations by the consultant, on input from partners and compared to the local realities in Madagascar, some unclear or incomplete aspects of the overall ICCOs FS and partner strategies appear. The final purpose of the partnership with ICCO is not clear for the partners: will ICCO strengthen partners with the idea to finalize the partnership once they have grown into more autonomous organizations or does ICCO envision lasting but changing partnerships and role?. Does ICCO envision one FS program (one program document, central funding), in which all ICCO partners take up one role, or, will partners be financed individually?. According to the partners and the target group aspects of agricultural productivity and access to markets, should be accentuated in the ICCO food security policy. It is also not clear what the differences are between the access to markets aspects of FS compared to an operational FED approach.

24 It is not clear to what extent vulnerable groups need to be specifically targeted. For the partners, the gender aspect is the main entry point towards reaching vulnerable groups, they are not convinced additional measures are necessary or feasible. They expect clearer orientation of ICCO or share experience with ICCO and partners on how to make this pro poor orientation operational. Partners note that it would require very different strategies to include the most vulnerable in a direct way, the approach would also ask for more time and budget (than the current projects can provide). Access to micro credit, for agriculture, but also for education and other small needs or investments, is crucial for food security, according to partners and later confirmed during the group discussions in the villages. It is not clear why the FS strategy of ICCO is not referring or giving orientation towards microfinance. The consultant also observes that the role of decentralized institutions for food security is not mentioned in the food security strategy of ICCO, while considered as important in the intervention strategies of some of the partners in Madagascar RELEVANCE OF STRATEGIES The total set of strategies of the partners, supported by ICCO firstly demonstrate some strong points regarding their relevance within the local context. Focus lies on (i) organization of small producers at grass root level to better manage and stock their harvest to increase food availability and access to food during the lean period; (ii) support to the penetration of rural micro finance and agricultural credit into rural areas; (iii) support to the development of land certification systems to secure land ownership rights; (iv) establishing formal links between storage and ownership at one side and access to credit at the other side. In this way the projects choose explicitly (and increasingly) for a structural development approach, supporting to an enabling environment and in contrast with the many emergency programs and short term punctual grants that are common in the region of V.7.V. Improved access to water and the improved management of food/crop stocks and income during the lean period, are perceived as being at heart of the needs of rural women. Even though access to land and land rights never appear on the top of problems/ needs as perceived by the rural population, it appears that land conflicts, mostly within families, are on top of the local court cases and that land is increasingly unequally distributed in rural areas. Also, seen the decreasing soil fertility, more investments in land will be necessary, and thus clarity on ownership of land will be increasingly important. For future structural rural development concerns, formalizing access to land, also for women, appears thus necessary. During 2009 and clearly in 2010, the attention for economic aspects in the set of ICCO supported FS projects is increasing ( access to food ). These aspects have been stated as ACE Europe / ICCO FS evaluation / Country report Madagascar final pag. 24/105

25 crucial for food security in the villages. Households sell a lot of their produce (cash crops, but also food crops) and buy in general a lot of food. Their incomes depend directly or indirectly on the level of agricultural productivity. The demand for adapted agricultural inputs, irrigation schemes and water management; to add value to products and to market more efficiently, is high. Structuring farmers in cooperatives for marketing creates future opportunities to increase competitiveness and participation in markets of small farmers in the Madagascar context. The way this is approaches allows to make links with the existing associations and credit systems linked to food security. Rural households have systematically accentuated the negative impact of cyclones on their well being and on the social structure in the villages and the need of adapted measures and crops. Support to risk management and adaptation measures are thus rightly included within the total set of projects by ICCO s partners (currently short term projects implemented by SAF with ECHO support). Also some gaps have appeared in the light of the local context and needs. The attention for agricultural development (access to fertilizer, agricultural techniques and follow up, irrigation and water management) and commercialization (to improve availability of food and access to food) has only increased very recently (e.g. in PATSA agricultural plays an important role, attention for development of SIIV cooperatives and for COLDIS). The intended partnerships (by SAF and Fiantso with local projects as Interaid, Prosperer, ) for these aspects were limited to punctual interventions during (mostly training for farmers) and were not always formalized in conventions between NGOs/programs 8. Very few pilot projects were included for setting up sustainable and affordable input supply systems. Support to youth (18-30 years old) is not very explicit in the strategies of the partners (based on their (draft) business plans, project documents and based on the discussions with 3 partners, although young people compose an important part of the population, show potential for innovation but are traditionally not taken into account. Also during the group discussions in the villages it emerged that the majority of the beneficiaries of the partners projects are not belonging to this age category. 8 However, Fiantso did have a convention with Interaid however and is now in the stage of formalizing cooperation with Prosperer. SAF works together with IFAD for Parakam and with FAO for PATSA, related to agriculture but in the field of disaster risk management or emergency aid. It is for example only very recently that pathways are sought to connect cooperatives with state induced instruments to finance agricultural interventions (CSA, FRDA)