Evaluation of the deployment of the DOI strategy in the Africa zone At French Red Cross

Terms of reference

Evaluation of the deployment of the DOI strategy in the Africa zone

Africa Zone Evaluation

DIRECTORATE OF INTERNATIONAL OPERATIONS – DOI

General

Assessment title

Evaluation of the deployment of the DOI strategy in the Africa zone

General objective of the evaluation

Analyze the way in which the Delegations, in conjunction with headquarters (including with the desk level in Dakar), implement the DOI strategy for 2030.

The 3 dimensions of analysis will be 1/ operational and strategic, 2/ organizational and 3/ financial.

Author(s) of the ToR

DOI Management

Date of drafting of the ToR

May 2024

Place of issue

CRF Headquarters – DOI and Africa Zone: 3 CRF Delegations in CAR, Cameroon and Mauritania.

Duration and Period of the evaluation

60 days – from mid September 2024

1. Context of the evaluation mission

1.1Rationale for the evaluation

This mission, in a context of difficulties observed particularly in the Africa zone, has the main objective of evaluating the way in which the international strategy of the FIU for 2030 is implemented more specifically in Africa, by identifying the obstacles to achieve the ambition of the FIU and by proposing recommendations on each of the areas analyzed. This evaluation is not intended to be exhaustive, it will focus on a sample of Delegations representative of the entire African portfolio of the FIU and on certain key areas identified as problematic.

This work is made necessary by the accumulation of specific difficulties observed in the Africa region: reduction in funding and therefore reduction in operational volume, repeated refusals by donors to submitted project proposals, dependence on a few donors, problems with the sizing of our structures on the ground in light of the decreasing operational volume, difficulties in the financial management of current contracts, long recruitment times and repeated gaps in certain key positions, managerial difficulties, lack of visibility of the CRF with field stakeholders and donors, complex partnership relations with host SNs.

1.2 Scope of the evaluation

The evaluation will focus on how headquarters and the field implement the FIU strategy on a representative sample of delegations in Africa, namely: CAR, Cameroon and Mauritania.

The evaluation will focus on operational and programmatic dimensions (development of country strategies, partnership relations, representation), organizational (HR, structure of coordination on Delegations) and financial (capacities and management processes, fundraising strategy, economic model , conclusion of audits).

The evaluators will have to interview the different departments responsible for monitoring the chosen countries on campus or in Dakar (for West Africa delegation), study the processes followed at headquarters to manage the Delegations as well as carry out missions in the three chosen countries in order to to interview teams, partners and analyze field procedures in the areas covered by the evaluation.

1.3 History of the intervention of the French Red Cross in Africa

The action of the French Red Cross internationally in its main areas of intervention, which are health and Disaster Risk Management, is divided into two main types of intervention: emergency and development. In areas affected by natural and health disasters, this action involves the deployment of emergency teams. For interventions linked to recovery, reconstruction and development, continuity with emergency contexts is favored with the aim of completing actions without clashes or abrupt transitions for the populations. The CRF is thus present in Africa in 10 countries alongside National Host Societies, in which it carries out more than 45 projects for an annual budget of €48M.

2. General and Specific Objectives of the evaluation

Based on a sample of countries in Africa, the consultants will have to analyze the way in which the Delegations, in conjunction with headquarters (including with the desk level in Dakar), implement the DOI strategy for 2030 The dimensions studied more precisely are developed below. The consultants’ analysis must be accompanied by recommendations in relation to the findings made.

The different dimensions of analysis that must be covered by the assessment are as follows:

> Operational & programmatic dimension

2.1 An assessment of the conformity of country strategies in relation to the operational and thematic strategy of the DOI

The consultants are expected to analyze the adequacy between the annual country strategies in the countries evaluated and the international action strategy for 2030 as well as the annual framework letters. This analysis should make it possible to assess the adequacy between the projects and programs implemented in the field and the content of the country strategy documents and therefore the relevance of these country strategy documents as a tool for developing the strategy on a Delegation, linked to the needs of the country, national society and the expertise of the FIU.

Consultants will need to answer the following questions:

• Do the field teams have a good knowledge and understanding of the strategy of the FIU and that of the DOI?
• Are the country strategies aligned with the operational and thematic strategy of the DOI? Are the strategic documents sufficiently explicit to frame operational implementation in the Delegations?
• The country strategies are linked to the thematic logical frameworks (Health, GRC and SDSN) and the DOI intervention framework.
• Is the annual strategic planning process clear and understood?
• The roles and responsibilities within the field team and between the field team and the different functions at headquarters (more specifically Desk, Assistant Desk, Geo Manager, Management Control, Technical Referent Logistics Referent, DOI Management, RHI) are they clear in the process of developing and validating the country operational strategy?
• How do strategy documents help with decision-making and program management?
• Are they used in the field? On campus?
• What management tools are used in the field? On campus? How do they help or not in decision-making and in monitoring the implementation of programming?
• Do the strategies reveal a good analysis of the needs in the different countries?
• Are risks sufficiently identified and taken into account through mitigation measures?

2.2 An analysis of the quality of the relationship with the SNH

Consultants are expected to be able to assess the quality of the partnership relationship between the CRF and the SNH in line with the CRF’s ambition to put the SNH at the heart of its strategy and activities.

Consultants will need to answer the following questions:

• Are the host NS involved in the implementation of the strategy in the countries (identification of needs, project design, writing of proposals, negotiation with donors, implementation, reporting, evaluation.)?
• Is there good knowledge of SNHs in the countries? Are the needs of the SNH identified and formalized?
• Are there effective coordination mechanisms between SNH and CRF and other actors (Movement, NGOs, authorities, donors)?
• Is there a capacity building strategy for the SNH (how was it defined, what are the dedicated resources, what are the challenges)?
• What is the quality of the partnership relationship with SNH?
• How does the SNH perceive the CRF? What are the difficulties encountered on the ground and how does headquarters support their resolution?
• How do other CRs organize their relationship with the SNH?

2.3 An analysis of representation capacities

The evaluation should also analyze how representation is carried out on the ground in the country, in the region or at the headquarters of the FIU and in international bodies.

Consultants will need to answer the following questions:

• Does the delegation participate in the various clusters and other coordination meetings in the country? Who attends these meetings? Is the SNH invited? What support is provided to HoDs in this representation work?
• Do regular meetings take place on the ground with other actors, Movements and non-Movements?
• Is there good knowledge by the heads of delegation of the different actors on the ground (movement and non-movement)
• How is the CRF perceived by Movement actors present on the ground?
• How is the DOI represented on international issues linked to Africa within the Movement, in the various coordination bodies in France, in Europe (which bodies, who represents, etc.)?
• Are the communication supports suitable for the representation?

> Organizational dimension

2.4 An analysis of the adequacy of HR on the ground in relation to ambitions

Evaluators are expected to carry out an analysis of human resources in the field and HR management processes at headquarters, in line with the objectives of the DOI strategy.

Consultants will need to answer the following questions:

• Analysis of recruitment processes in Africa by headquarters (opening of positions, identification of candidates, pool, interview process, duration of processes, etc.)
• Is the role and responsibility of the HR department clear in the various processes related to recruitment and mobility of expatriate positions?
• Is the sharing of responsibilities between DOI manager and RHI clearly defined?
• Analysis of the number of vacant positions and since when?
• Are core (coordination) functions well funded? What are the HR gaps in the field?
• Analysis of HR monitoring processes in Africa (individual assessment, definition of objectives, renewal process, training, briefing, debriefing, monitoring of expatriate leave, etc.)
• Were expatriate HR staff briefed before their deployment?
• Do they have an up-to-date job description, an action plan and regular evaluation?
• Do expatriate HR staff benefit from training, and if so, what training?
• Are HR on national contracts briefed before start-up? Do they have an up-to-date job description, an action plan and regular evaluation?
• Do HR staff on national contracts benefit from training and if so, what training?
• Analysis of the competitiveness of the employment conditions of expatriates in the Delegations concerned
• Analysis of the competitiveness of the employment conditions of national staff in the Delegations concerned

2.5 An analysis of the organization of coordination on the Delegations

The consultants are expected to provide an analysis of the way in which the Delegations organize their coordination structure, taking into account the criteria of effectiveness and efficiency of the organization in view of the programmatic objectives and allocated budgets.

Consultants will need to answer the following questions:

• Analysis of the coordination structure on the Delegations:
• Analysis of the composition of teams / organization charts, particularly in coordination (but not only)
• Is there a clear and up-to-date organizational chart corresponding to reality?
• Are all coordination positions filled?
• Are the hierarchical and functional links between coordination positions and other positions clear and known by the team?
• Are the job definitions of coordination positions clear, up to date and known to employees?
• Are job titles clear and consistent?
• Are there regular coordination meetings that allow for effective information sharing?
• Are the communication patterns clear, formalized and known to the teams (between coordination people, but also between coordination and sub-delegations and between coordination and headquarters)?
• Is the link between the Delegations and the sub-Delegations clear and effective?

> Financial dimension

2.6 An analysis of financial management capacity on programs in Africa

Consultants are expected to carry out an analysis of the delegation’s capacity in terms of financial management (knowledge of financial and cash management procedures, management efficiency, analysis of validation and control procedures)

Consultants will need to answer the following questions:

• Does the Delegation have good control of its budget (regular budget monitoring, budget forecasting, up-to-date accounting, monitoring of advances)?
• How is funding monitored?
• What management times are put in place at the Delegation level? with the Campus? Are they formalized? what are the objectives?
• Are the financial management procedures mastered at the Delegation?
• Is the accounting up to date in the field? Are the accounts up to date at headquarters?
• Is budget monitoring carried out monthly and transmitted to headquarters?
• Is the analysis of budget monitoring carried out by the Delegation? and what decisions are made?
• Is our accounting information system adapted to our structures? Should we make information system changes?
• Are the expenditure validation procedures known and respected (headquarters and field)
• Are there control procedures in place in terms of financial management in the field and at headquarters?
• Are the responsibilities in terms of incurring expenses formalized, clear and respected?
• Does the delegation benefit from adequate technical support from headquarters in terms of financial management?

2.7 An analysis of the economic model of programs in Africa

The consultants will have to analyze the way in which budgets are constructed in each of the Delegations visited, by studying the distribution of costs and analyzing the evolution over the last 3 years (2022-2024).

Consultants will need to answer the following questions:

• Analysis of the different budgets (distribution of support costs versus operational costs)
• Analysis of the distribution of equity on budgets and evolution over the last 3 years
• Analysis of the distribution of the budget by type of donor and evolution over the last 3 years
• Analysis of the contribution of projects to the financing of headquarters, its evolution over the last 3 years
• Analysis of the financing plan over the next 3 years: what forecast coverage of acquired projects?
• How is the economic model and its evolution over the next 3 years taken into account in the evolution of the organization on site (organization chart in particular)? in the field ? at Campus?

2.8 An analysis of the financial strategy on programs in Africa

The consultants are expected to carry out an analysis of the strategy and capacities of the FIU on the sample of Delegations concerned by the evaluation in terms of seeking funding.

Consultants will need to answer the following questions:

• Analysis of funding research capacities at headquarters and field level:
• To what extent do the Delegations know the donors in their territory (knowledge of donor policies, specificities, regular meetings, etc.)?
• Do the desks have knowledge of potential donors on their portfolio? Is the information provided by the DPI sufficient, are there regular updates on the subject of seeking funding between DPI and the field, and between DPI and the DOI Desk team?
• Are there regular meetings with donors and headquarters teams?
• How are potential private financiers identified?
• Do the Delegation and headquarters have donor communication support?

2.9 An analysis of the results of the latest audits on Africa

The consultants are expected to carry out an analysis of the audits that have taken place over the last two years in the Delegations visited in order to identify the key points arising from the audits and the measures taken. The evaluators will also have to analyze the way in which cases of fraud and corruption are handled in the Delegations and at headquarters (in conjunction with the Delegations concerned).

Consultants will need to answer the following questions:

• What do the audits tell us: percentage of ineligible rate, reasons for ineligible people?
• Who is involved in preparing for audits?
• Are there action plans? Are they communicated, monitored? How is monitoring carried out (who is involved, how often)?
• Is there a process for reporting cases of fraud and corruption in Delegations? Is it known and effective?
• Analysis of cases of fraud and corruption reported over the last 3 years
• Have any measures following this feedback been taken at delegation level, at headquarters level?

3. Methodology

The team of evaluators must be made up of 3 people with different profiles: one person to evaluate operational and programmatic issues, one person to assess organizational issues and one person to assess financial issues. The team will carry out its mission in different stages:

3.1 Framing phase

• Collection and compilation of information from secondary data and available information to ensure a synthesis (documentary review, etc.)
• Discussion with the Steering Committee on expectations, objectives and methodology.
• Development of a detailed evaluation matrix with all the final evaluative questions
• Identification of key players to meet
• Preparation of primary data collection tools (interviews, questionnaires, focus groups, surveys, etc.)

3.2 Field data collection phase

• Interview phase at the structure’s headquarters
• Discussion workshop with all ‘Pool’ teams for each targeted country.
• Travel to the areas of targeted Delegations
• Collection of primary data, based on the various tools developed, in a participatory manner with the different stakeholders, specifically communities and SNHs
• Use of quantitative and qualitative collection methods, according to a defined sample, is proposed by the evaluator

3.3 Restitution phase

• Organization of feedback workshops with the various external stakeholders to present the main conclusions and recommendations in order to obtain initial feedback, confirm and refine the analysis
• Organization of restitution workshops with internal teams to validate conclusions and recommendations in a participatory manner
• Finalization of the evaluation report and its annexes, in collaboration with its various interlocutors with a prioritization of conclusions and recommendations

The team of evaluators is free to adapt and propose the methodology that seems relevant to it, after the agreement of the person responsible for the evaluation from the French Red Cross. He will make sure to present the proposed approach as part of his technical offer.

4. Timeline

A timetable is proposed and can be adapted according to the proposal and the estimate of the work necessary to be carried out:

Framing phase:

• Estimated working time for the period of analysis of secondary data from headquarters and the Delegations concerned and for the framing work: 9 days

Field data collection phase

• Estimated working time on campus for interviews and data collection: 8 days
• travel time: 6 days
• field work time: 20 days (travel to the 3 countries)
• time for writing and validating the report: 15 days

Restitution phase

• Field and headquarters restitution time: 2 days
• Estimated total mission time: 60 days

As part of the technical proposal, a timeline must be provided.

5. Team composition

5.1. Profile of the evaluators sought

The evaluation team should be composed of three people with distinct profiles with a lead evaluator in charge of coordinating the work of the multidisciplinary team.

• an evaluator on the operational and programmatic dimension (including the strategy in terms of partnership and capacity building of NS):
• Training and/or qualification in line with project management, if possible in the health and/or risk and disaster management sectors
• Good knowledge of aid localization and partnership issues
• Knowledge of operational strategy evaluation and consulting experience
  • Experience in assessment and studies
  • Experience as a consultant on evaluations
  • Experience and/or ability to work in a team (depending on the type of consultancy)
• Knowledge of at least one country out of the 3 concerned
• Experience in the country and region
• Experience with the CRF or knowledge of the CR/CR Movement including ICRC, IFRC or any National Society
• an evaluator on the organizational dimension:
• Training and/or qualification in line with human resources management
• previous international experience in an HR coordinator position
• Experience in organizational auditing, specifically on HR issues
• Knowledge of at least one country out of the 3 concerned
• Experience with the CRF or knowledge of the CR/CR Movement including ICRC, IFRC or any National Society
• an evaluator on the financial dimension:
• Training and/or qualification in line with financial management
• previous international experience in a financial coordinator position
• Experience in financial auditing
• Knowledge of at least one country out of the 3 concerned
• Experience with the CRF or knowledge of the CR/CR Movement including ICRC, IFRC or any National Society

6. Deliverables

• Scoping report from the evaluator specifying the detailed analysis of the documentary review and preliminary interviews to enable the methodology and evaluative questions to be clarified precisely.
• Support for presentations of the main conclusions and recommendations to lead internal feedback workshops
• The evaluation results in the preparation of a report written in French including a summary of the evaluation as well as a detailed narrative (max. 35 pages) accompanied by the corresponding annexes.
  • The report will be submitted provisionally for exchange and discussion with the various referents before a final revised version.
  • The format of the report must follow the standard format transmitted during the evaluation briefing. If this is deemed relevant, additional points may be made.
  • The conditions for rendering the report are explained in the technical offer and are included in the contract.
• Presentation of the final conclusions and recommendations ranked by order of priority during a feedback workshop

7. Procedures for selecting assessors

Interested candidates are asked to submit their application by email before July 31, 11:59 p.m. to Emmanuelle Pons, Director of International Operations, at emmanuelle.pons@croix-rouge.fr, specifying in the title of the email: EVALAFRICA CONSULTANCY OFFER

This file includes in particular:

• A CV of each member of the evaluation team
• A signed and scanned technical offer presenting the understanding of these terms of reference, the proposed approach including the methodology and the evaluative questions in connection with the mentioned criteria
• A signed and scanned financial offer including all costs linked to carrying out the service (including accommodation, food, transport and communication costs).
• A reference table of the main evaluations carried out (maximum 10)

Note : candidates will be selected on the basis of technical (experience, relevance, proposed methodology, etc.) (60%) and financial (efficiency) (40%) criteria.

8. Administrative clauses

The bidder must provide proof at the time of submitting his offer of the regularity of his economic activity (tax documents, registration, registration as a self-employed worker – depending on the reference country where the bidder is established).

The service provider must alone provide the means necessary to carry out his service, whether material or human: plane tickets, computer, professional liability insurance.

He can delegate part of the mission, within his teams, to the collaborator of his choice, but he remains the sole hierarchical and disciplinary authority concerning his employees. The service provider must ensure security, and as such insure the consultants sent on mission

When preparing the quote, the price indicated for the service must be marked “firm, global, fixed price and final”.