AFRICAN DEVELOPMENT FUND

MOZAMBIQUE

EMERGENCY HUMANITARIAN RELIEF ASSISTANCE RELATED TO THE 2013 FLOODS DISASTER

PROJECT APPRAISAL REPORT

MZFO/OWAS/GECL

September 2013

Table of Contents

ACRONYMS ....................................................................................................................................................... i

PROJECT SIMPLIFIED LOGICAL FRAMEWORK ................................................................................................... ii

1 BACKGROUND AND JUSTIFICATION FOR EMERGENCY ASSISTANCE ........................................................ 1

1.1 BACKGROUND – FLOODS AND THE EMERGENCY CRISIS IN MOZAMBIQUE ................ 1

1.2 JUSTIFICATION FOR EMERGENCY ASSISTANCE ........................................................... 1

2 OVERVIEW OF THE APPEAL FOR EMERGENCY ASSISTANCE ..................................................................... 2

3 THE PROPOSED EMERGENCY ASSISTANCE OPERATION .......................................................................... 3

3.1 OBJECTIVES AND DESCRIPTION OF THE EMERGENCY ASSISTANCE............................ 3

3.2 COST AND SOURCE OF FINANCE ................................................................................... 3

3.3 IMPLEMENTATION ARRANGEMENTS AND SCHEDULE .................................................. 4

3.4 PROCUREMENT AND DISBURSEMENT ARRANGEMENTS ............................................... 4

3.5 REPORTING, SUPERVISION AND AUDITING ................................................................... 5

4 CONCLUSIONS, RECOMMENDATIONS AND CONDITIONS FOR DISBURSEMENT ...................................... 5

4.1 CONCLUSIONS AND RECOMMENDATIONS ..................................................................... 5

4.2 CONDITIONS FOR DISBURSEMENT ................................................................................ 5

ANNEX I – MAP

ANNEX II –GOVERNMENT EMERGENCY DECLARATION

ANNEX III- GOVERNMENT REQUEST

i

Abbreviations and Acronyms

ADB : African Development Bank

CBO : Community Based Organization

CCGC : Disaster Management Coordination Council

CENOE : National Operational Emergency Centre

DMA : Disaster Management Authority

DNA : National Directorate of Water

GACOR : Reconstruction Coordination Office at the INGC

GDP : Gross Domestic Product

GOM : Government of Mozambique

IA : Implementing Agency

IFRC : International Federation of the Red Cross

INAM : National Institute of Meteorology

INGC : National Institute of Disaster Management

LOA : Letter of Agreement

MZFO : Mozambique Field Office

SRF : Special Relief Fund

UN : United Nations

UNOCHA : United Nations Office for the Coordination of Humanitarian Affairs

Project Simplified Logical Framework Country and Project Name: Mozambique: Proposal for a Grant of USD 1 Million for Emergency Humanitarian Relief Assistance related to the 2013 Floods

Disaster

RESULTS CHAIN PERFORMANCE INDICATORS MEANS OF

VERIFICATION

RISK/MITIGATION MEASURES

Indicator Baseline Target

IMP

AC

T The number of most

vulnerable segment of

flood displaced

population is reduced.

Percentage of vulnerable

people in Gaza Province

classified as most

vulnerable

20% 15% Progress and Final

report, Financial Audits

and Field Supervision.

OU

TC

OM

ES

Livelihoods of flood

victims improved in Gaza

province

Number of direct beneficiaries

of the grant’s assistance.

N/A 28,000 Annual household

surveys.

Risk: Deviation from the predefined criteria

for the identification of the beneficiaries.

Mitigation: Bank and other partners to

dialogue with Government on its criteria for

defining vulnerable groups.

OU

TP

UT

S

a) Temporary shelters

erected;

b) Family tents available;

c) Tarpaulins provided

d) Rescue speed boat

a) Number of shelters

b) Number of tents

c) Number of tarpaulins

d) Number of speed boat

N/A

N/A

N/A

N/A

2000

1500

10000

1

IA reports Risk: Delivery of equipment/Kit may take a

long time.

Mitigation: Expedite procurement with

requests to suppliers already underway.

KEY ACTIVITIES

Erection of temporary relocation family tents and tarpaulins;

Procurement of shelter kits;

Procurement of a rescue speed boat to access flooded areas.

Inputs:

Emergency shelter kits : USD 80,000.

Family tents : USD 590,000.

Tarpaulins : USD 150,000.

Rescue speed boat : USD 160,000.

Financial Audit : USD 10,000

Operational costs : USD 10,000

1

1 BACKGROUND AND JUSTIFICATION FOR EMERGENCY ASSISTANCE

1.1 Background – Floods and the Emergency Crisis in Mozambique

1.1.1 Mozambique is located in a region cyclically threatened by extreme natural events like

floods, droughts, tropical cyclones, earthquakes, and disease epidemics. Records on natural

disasters show that over the 52 years period of 1956-2008, the country experienced 10 droughts, 20

floods, 13 tropical cyclones, 18 epidemics and 1 earthquake. Epidemics predominate during the

rainy season (October-March) with varying impacts. Focusing only on floods, that of the year 2000

was the worst in terms of its impacts, which left 700 people dead, and 650,000 people displaced.

1.1.2 More recently in January 2013, Mozambique was again devastated by heavy rains resulting

in the main rivers bursting their banks in the southern (Limpopo, Incomati, Inhanombe and Save)

and central (Zambezi, Pungoe and Buzi) regions. Due to the destructive impact of the floods on the

communities, the Government of Mozambique (GoM) declared an institutional Orange emergency1

alert on 12 January 2013, which was upgraded to a Red emergency

2 alert on 22 January 2013.

Maputo City, Gaza, Zambezia and Inhambane Provinces were the most affected by the floods,

where 113 people were killed and over 185,000 displaced. Cumulatively, more than 240,000 people

were affected by the floods. The most affected provinces were the southern province of Gaza which

saw 172,589 people temporarily displaced.

1.1.3 This proposal for emergency assistance for the victims of the 2013 Floods is justified as it

fulfills the three criteria required to qualify for Bank Group assistance in that: (i) the emergency

situation is of a scale which is clearly beyond the capacity of the Government of Mozambique to

handle alone; (ii) the proposed activities can be carried out expeditiously and effectively within the

required time frame; and (iii) the emergency relief assistance aims at restoring a degree of normalcy

in both the social and economic life of the affected populations as quickly as possible and addresses

corrective measures for future flood related disasters. The proposal is thus in compliance with the

provisions of the Revised Policy Guidelines and Procedures for Emergency Relief Assistance, and

General Regulations of the Special Relief Fund (ADB/BD/WP/2008/211/Rev.1)

1.2 Justification for Emergency Assistance

1.2.1 From 12 January, when the Orange Alert was declared by the GoM, to 19 April 2013, when

the red alert warning were lifted, the flooding situation wrecked massive damage to the town of

Chokwe in Gaza Province, due to soil saturation and flooding, arising from the damage to the dykes

from the tropical depression Dando in 2012, which had not been fully rehabilitated. Further

northwards, in the provinces of Inhambane, Manica, Sofala, and Zambezia, continuous rains also

left an estimated 20,000 people affected, damaged infrastructure and caused loss of 110,000

hectares of cultivated agricultural land.

1.2.2 The accumulated impact of successive floods, tropical storms and cyclones has increased the

vulnerability of the affected population and exhausted their coping mechanisms. Most of the

affected people, especially in rural areas were already suffering from extreme poverty and

deprivation before the disaster. The biggest impact of the disaster has been in shelter, much of

1 The orange alert means that there is imminent occurrence of an emergency and government sectors are called upon to intervene through their focal

points that should settle and work in National Operational Emergency Centre (CENOE).

2 The red alert means total activation of the National Operational Emergency Centre (CENOE) and of the National Civil Protection Unit

(UNAPROC) to coordinate search and rescue operations for people at risk, and to ensure more coordinated and effective harmonization of the

activities of the government’s various partners in humanitarian aid.

2

which was destroyed or significantly damaged, especially for those of the poorest segment of the

population, whose homes were made of locally available or traditional materials. With the

improvement to the floods situation, the focus of response interventions are on the resettlement of

displaced people from temporary accommodation centers, which has become the Government’s

priority, in order to incentivize the population to move away from the low lying areas which are

prone to floods.

1.2.3 The immediate response of the INGC (National Institute of Disaster Management), supported

by local and international relief agencies was the provision of temporary shelters for the displaced.

The crisis depleted the stocks of Emergency kits and Family tents, including the more than 10,000

additional units that were ferried in by the various humanitarian organizations. A process of plots

demarcation is ongoing in the floods-affected districts. In Gaza province, the Government plans to

demarcate, and allocate a total of 11,150 plots. The process has encountered severe challenges due

to a lack of basic household items necessary for the resettlement or home return materials for the

victims to rebuild their homes. The process of sheltering the displaced persons, under conditions of

safety and dignity would be facilitated through the provision of Family tents (16 m2), Tarpaulins

(4mx6m) and basic Shelter kits, which consists of simple survival tools of nails, hoe, spade, saw,

etc. Other goods to be acquired include one rescue speed boat for rescue and good distribution

operations.

2 OVERVIEW OF THE APPEAL FOR EMERGENCY ASSISTANCE

2.1.1 From the onset of the floods, the GoM took the leadership in coordinating the response, and in

mobilizing resources at its disposal as a response to the emergency in the floods devastated areas.

Nonetheless, resources available at the initial phase of the crisis were not sufficient to meet the needs

of the affected population; and on 30 January 2013 the GoM requested immediate assistance from

national and international humanitarian partners, in accordance with the National Contingency Plan

for Rain and Cyclone Season of 2012-2013.

2.1.2 Two separate appeals were launched by the Government (31 January 2013) and it’s supporting

International partners (30 April 2013). The initial Response and Recovery Proposal sought US$ 30.6

million to enable the International Community: United Nations agencies, non-governmental

organizations and the Societies of the Red Cross to support the GoM in addressing the needs of

150,000 flood-affected persons in Gaza Province for the period of six months. The proposal was based

on additional assessments done during the humanitarian phase; including information from the last

week of January 2013 and an initial early recovery strategy for assisting people recover and rebuild

their lives. As of 24 April 2013, a total of US$ 19 million was contributed by multi-lateral and

bilateral donors. However, only US$ 4.3 million was received to cover early recovery activities. The

second Early Recovery Strategy and appeal seeks US$ 11.7 million to enable the International

Community to support the GoM effort in addressing early recovery needs for 140,000 people. In this

regard, the GoM, on September 6th

, 2013, submitted to the Bank, a request for humanitarian

assistance.

3

3 THE PROPOSED EMERGENCY ASSISTANCE OPERATION

3.1 Objectives and Description of the Emergency Assistance

3.1.1 The objective of the proposed Bank Group Emergency Relief Assistance to the Government of

Mozambique is to contribute to the on-going efforts of the Government and other humanitarian

partners to mobilize resources for the interventions of the early recovery phase, whose needs have

been compiled per cluster, and an estimate of the budget per cluster. It is envisaged that heavy

rehabilitation works for community infrastructures like roads and other infrastructures will be

undertaken by the GoM technical ministries and development partners like the MDBs and other

bilateral/multilateral donors.

3.1.2 The Bank will contribute US$ 1 million in response to the appeal of the Government of

Mozambique channeled towards ameliorating the plight of the displaced persons from the low lying

floods in areas recently demarcated for vulnerable families estimated to constitute about 20% of the

affected population, and made up largely of women and child headed households, widows, the aged

and the infirms in the Chihaquelane area of Chokwe District.

3.1.3 The proposed Emergency Relief Assistance Operation will be funded from the Bank’s Special

Relief Fund (SRF). It will purchase emergency kits (family tents, tarpaulins and shelter tool kits) and a

Rescue speed boat. Included are local transportation costs, insurance, freight, and overhead customs

clearance. It will also cover the management cost of the executing agency and the financial audit of

the special account.

3.2 Cost and Source of Finance

3.2.1 The total cost of the Bank’s emergency assistance to the Government of Mozambique is

estimated at US$ 1,000,000. The funds provided by the Bank are restricted and earmarked for the

purposes of urgent humanitarian assistance to the affected populations.

Table 1

ITEM QTY. ESTIMATED COST

(US $)

1 Emergency Shelter Kits (standard IFRC

specifications)

2,000 80,000

2 Family tents (16 m2) 1,500 590,000

3 Tarpaulins (4mx6m) 10,000 150,000

4 Rescue speed boat and accessories (fibre glass, 6

metre, 55 HP engineer, and anchor)

1 160,000

5 Financial Audit 10,000

6 Operational costs (Transportation, Insurance,

Inspections, Clearance)

10,000

1,000,000

4

3.3 Implementation Arrangements and Schedule

3.3.1 According to the Bank’s Revised Policy Guidelines and Procedures for Emergency Relief

Assistance and General Regulations of the Special Relief Fund (ADB/BD/WP/2008/211/Rev.1 and

ADF/BD/WP/2008/173/Rev.1) (the “Guidelines”), implementation of emergency humanitarian

relief assistance will be entrusted to a suitable Implementing Agency to be selected from within UN

specialized agencies which are operating at field level, competent Government institutions, or

credible NGOs with a good track record of implementing emergency operations. The INGC will be

the executing agency.

3.3.2 The INGC, which was established in 1999, coordinates disaster risk management activities

in Mozambique and operates under the Ministry of State Administration (MAE) with a mandate to

coordinate emergencies, promote disaster prevention through population and government

mobilization; protect human lives; ensure multi-sectoral coordination in disaster emergency;

coordinate early warning systems; carry out public awareness; and re-utilize arid and semi-arid

zones. They are responsible for coordinating disaster risk management at the national, provincial

and district levels. They have received and continue to receive technical and financial assistance

towards improving their effectiveness. The reduced number of deaths in the 2013 floods, despite the

huge volume of water displaced attests to their improved efficiencies, outlook and approach to their

mandate.

3.3.3 A letter of Agreement will be signed between the Bank, and the Government of

Mozambique (Ministry of Planning and Development ) outlining the terms and conditions for the

grant, responsibilities, and obligations of each party.

3.4 Procurement and Disbursement Arrangements

Procurement

3.4.1 The Bank’s resources will be used to procure the various goods items. The Bank, through a

provision in the Letter of Agreement, will exercise a post review of this acquisition process. The

Bank’s MZFO will monitor the process of ensuring that the goods effectively reach the warehouses

of the INGC, and are distributed to the beneficiaries in the quantity and quality required.

3.4.2 The procurement of the emergency goods will be through a single source contract with the

IFRC, in accordance with the Bank’s Rules and Procedures for the Procurement of Goods and

Works (2012), as the Emergency goods are off the shelf products (IFRC), and are standard

requisition items in times of emergencies internationally, using global reach, and branding of the

International Federation of the Red Cross. The procurement of the rescue speed boat shall be by

means of shopping.

3.4.3 Audit: Acquisition of consultancy services for the Audit will be done through Least Cost

Selection method using a National Shortlist.

Duration

3.4.4 The Guidelines and Procedures stipulate that emergency humanitarian relief assistance is

typically a short-term operation, lasting a few months. Consequently, a period of 6 months from the

date of signature of the memorandum has been proposed for this emergency relief assistance. Funds

not disbursed after this period will be cancelled.

5

Disbursement

3.4.5 The funds will be disbursed in one single tranche payment, into a dedicated account at a

bank acceptable to the AfDB, to be operated by the INGC, and whose details shall be provided to

the AfDB.

3.5 Reporting, Supervision and Auditing

3.5.1 The INGC will submit through the Ministry of State Administration a detailed Project

Completion and financial Report and a formal Audit Report within six months of full disbursement.

The financial Audit report shall be compiled by an external audit firm acceptable to the Bank. The

audit fee, not exceeding 1% of the grant amount, will be part of the grant amount.

3.5.2 The Bank’s Field Office in Mozambique will provide ongoing support and monitor the

execution of this operation and the submission of the required reports.

4 CONCLUSIONS, RECOMMENDATIONS AND CONDITIONS FOR

DISBURSEMENT

4.1 Conclusions and Recommendations

4.1.1 The Government of Mozambique is facing severe challenges to relocate the flood victims

away from the flood plains. The sheer magnitude of moving families away from places that they

have called home, and which has served as a source of livelihood to them is gargantuan. This has

prompted support to the Government by the International Cooperating Partners to provide relief to

the affected community. The Bank’s Grant of USD 1 million will address an important component

of the early recovery efforts, in this case the provision of alternative temporary shelters, to the most

vulnerable segment of the affected population in more secure resettlement area of Chihaquelane in

Chokwe District of Gaza Province, through the provision of family tents, a rescue boat, emergency

kits and tarpaulins.

4.1.2 It is recommended that the Board of Directors approves a US$ 1 million grant from the SRF

for Emergency Assistance to the Government of Mozambique to help restore the livelihoods of

vulnerable populations that were severely affected by floods in the Province of Gaza and the

District of Chokwe of Mozambique.

4.2 Conditions for Disbursement

The grant resources will be disbursed in one tranche, subject to the following conditions:

Signature of the LoA by the Bank and the Government of Mozambique (Ministry of State

Administration);

Opening of a special account in a bank acceptable to the Bank and, communication by the

Government of Mozambique to the Bank of the details of the account to which the grant

resources will be transferred.

I

ANNEX I: Map

II

ANNEX II – GOVERNMENT EMERGENCY DECLARATION

III

IV

ANNEX III- GOVERNMENT REQUEST