Final Evaluation of Sri Lanka Floods Operation 2016-2017

International Federation of Red Cross and Red Crescent Societies (IFRC)

Colombo, , LK

Final Evaluation of Sri Lanka Floods Operation 2016-2017


Purpose: The purpose of the evaluation is to assess SLRCS disaster preparedness and response capacities during the 2016 & 2017 flood operations; MDRLK005 and MDRLK006. Furthermore, effectiveness, timeliness, and impact of the cash transfer programmes implemented is also to be assessed.

Audience: SLRCS, IFRC, Other actual and future partners (e.g. Oxfam, John Keels Holdings, UNDP, Ministry of Disaster Management)

Commissioner: Head of Country Cluster Support Team (CCST) – Delhi

Reporting to: Operations Manager – IFRC Country Office Sri Lanka

Duration: 18 days

Timeframe: 11 August to 6 September 2018

Location: DPRK: Colombo, Sri Lanka; with field work in a representative number of flood/landslide affected districts based on agreement with SLRCS and IFRC. Districts to visit; Colombo, Gampaha, Kalurata, Kegalle and Matara.


Sri Lanka is mostly affected by weather-related hazards. Floods mostly due to monsoonal rain or effects of low pressure systems and dry spells / droughts are the most common hazards experienced in Sri Lanka. The country is prone to hazards such as floods, landslides, lightning strikes, coastal erosion, epidemics and effects of environmental pollution. The large extent of the flooding in 2016 and 2017 was partially linked to the El Niño- Southern Oscillation (ENSO), which has affected the Asia and the Pacific region. In 2016, Sri Lanka was hit by a severe Tropical Cyclone Roanu, which affected 22 out of 25 districts in the country. Flood and landslide affected 428,000 people, at least 104 people reported dead, 99 remain missing, 4,000 houses were damaged and 600 houses were totally destroyed. In 2017, the activation of South-West Monsoon caused heavy rainfalls in the South-Eastern parts of the island. This triggered a major flood and landslide situation in the country affecting 15 districts. At least 658, 490 people were affected: 206 people died, 92 people remain missing, 1,713 houses fully destroyed and 9,284 houses were partially damaged. IFRC launched emergency appeals to assist people affected.

Flood and Landslide Operations 2016 – MDRLK005

The budget of the project is CHF 1,604,185 and aimed to assist: 40,000 people (8,000 families), which was extended to 27,500 people (5,500 families) with the revised appeal on 24 November 2017. The operation timeframe was from 20 May 2016 to 31 March 2018 was implemented in the worst affected districts: Colombo, Gampaha, Kegalle, Kurunegala and Puttlam.

Sri Lanka Red Cross Society (SLRCS) assisted approximately 140,000 flood-affected people in the initial relief phase. As the situation unfolded, SLRCS branches activated their community-based disaster response teams (CBDRT or Village Disaster Management Committees) and branch disaster response teams (BDRTs), which supported the operations with more than 400 volunteers. Two National Disaster Response Team (NDRT) members deployed to Kegalle to support Kegalle branch with its response.

Along the first phase of relief distributions, the focus of the branches was on health and WASH with its medical camps (mobile clinics), well cleaning as well as RFL activities. SLRCS held First Aid Camps throughout the districts to inundated victims. In medical camps patients were treated for cuts, bruises and other injuries sustained with the severe flood condition. SLRCS also provided additional relief efforts such as food distribution and addition Non-Food Items (NFI)with bilateral support from International Committee of Red Cross (ICRC), Partner National Societies (PNS) and external partnerships outside the scope of this emergency appeal. The government assigned four camps to the SLRCS to manage in Kegalle – namely Pallepamunuwa and Narangammana in Aranayake DS division and Thunbage and Kalupahanawatta in Bulathkohupitiya DS division. SLRCS provided first aid services at the camps through mobile clinics and water and sanitation support together with other partners. Well cleaning programme, medical camps and the house cleaning and disinfection activities were conducted in all the affected districts.

The recovery phase had a focus on livelihoods support. Implementation of the recovery shelter component was removed from the appeal, which was put on hold due to the lack of funds and that whereby affected families could apply for conditional grants for purchasing land and constructing houses provided by the Government of Sri Lanka (GoSL). A Disaster Risk Reduction (DRR) programme was implemented in three communities. Risk identified together with the community through Vulnerability Capacity Assessment (VCA). SLRCS revised its initial health and WASH plan de-prioritising construction of latrines. The programme focused on Community-Based Health and First Aid (CBHFA) and Participatory Hygiene and Sanitation Transformation (PHAST), which was implemented in three districts.

To enhance the institutional disaster response capacity, the appeal supported five BDRT trainings and three specialized trainings: assessment training, boat riding and camp management. Furthermore, ferry boats and rubber dingy boats were procured and prepositioned in disaster prone areas.

The appeal was extended for four months with the focus on SLRCS capacity enhancement on Cash Transfer Programming (CTP) and Health Disaster Risk Reduction programme with a focus on dengue prevention.

Flood Operations 2017 – MDRLK006

The Operations budget of the project is CHF 1,793,739 and aims to assist 40,000 (8,000 families) in Matara, Kalutara, Galle, Ratnapura, Gampaha and Colombo from 25 May 2017 to 31 July 2018.

SLRCS assisted approximately 100,000 flood-affected people in the initial relief phase. As the situation unfolded, SLRCS branches activated their CBDRT or Village Disaster Management Committees and branch disaster response teams (BDRTs) which supported the operation with more than 400 volunteers.

The following activities were conducted in the initial relief phase; first aid services, medical camps, well cleaning, hygiene promotion, house cleaning, distribution of NFRI, and Restoring Family Links (RFL).

After the initial relief phase, the focus of activities moved to early recovery/recovery phase, in the four most affected districts (Kalutara, Ratnapura, Galle and Matara).

Under the early recovery/recovery following activities were conducted: unconditional cash grant of LKR 10,000 (CHF 69) for 800 beneficiaries, NFRI procurement, livelihood cash grant programme to assist 400 families with LKR 50,000 (CHF 345), and to enhance National Societies (NS) preparedness for response by conducting trainings for volunteers and staff.

A Shelter Coordination team of three staff (Coordinator, Information Management-IM and national staff IM coordinator) was deployed from 2 June to 30 November 2017. They provided coordination services in support of the Sri Lanka government for the shelter sector and assessed the local context for defining an adequate sectoral response.

Upon successful completion of the planned activities, and with the savings due to exchange fluctuations (rupee depreciation) an extension of the timeframe was requested until 31 July 2018. The main focus during the period will be on Disaster Risk Reduction (DRR) aspect.

SLRCS disaster response mechanism

During disasters SLRCS is in the forefront providing assistance to affected people. The strength of SLRCS is its branch network spread across 25 districts of the country and the strong volunteer base. SLRCS volunteers are multi skilled; they are trained on First Aid, Disaster Management, Health etc. Most of them are members of the Branch Disaster Response Teams (BDRT) and some are members of the National Disaster Response Team (NDRT), who will be deployed during disasters.

The following documents provide guidance to SLRCS governance, volunteers and staff:

· National Contingency Plan

· SLRCS Disaster Response Framework

· Standard Operation Procedure (SoP) for flood response


3.1 Purpose

This evaluation will assess SLRCS disaster preparedness and response capacities during the 2016 & 2017 flood operations, with special focus on mobilizing trained volunteers (BDRT and NDRT) and staff for emergency operations. Particular focus will be given to cash interventions; CTP, as well as the other areas of focus providing recommendations on how this capacity can be further strengthened at both SLRCS headquarters and district levels.

3.2 Scope

The evaluation will be conducted focusing on the 2016 and 2017 flood operations focusing at operations area in Colombo, Gampaha, Kalurata, Kegalle and Matara. SLRCS, IFRC, other partners; Oxfam and John Keels Holdings, Government Authorities, community leaders, beneficiaries will be the target group.


4.1 Objectives

The evaluation will be conducted to assess the SLRCS disaster preparedness and response capacities during the 2016 & 2017 flood operations at the national headquarters and branch levels.

The main objectives of the evaluation:

· mobilizing trained volunteers (BDRT and NDRT) and staff for emergency operations.

· Identify the effectiveness of the cash transfer programmes conducted (emergency cash grant, livelihood cash grant, and pilot project), indicate areas for further improvement as the SLRCS has moved towards a better CTP.

· The evaluation should highlight good practice, lessons learnt and areas of improvement to inform future response operations, together with recommendations on how to proceed.

4.2 Criteria

The following criteria will be used to guide the evaluation recommendations:

· Relevance and appropriateness

· Coverage

· Efficiency / effectiveness / accountability

· Impact

· Connectedness and sustainability

4.3 Evaluation questions

The consultant and evaluation team will create specific questions liked to the above objectives. Recommendation of questions based on the criteria above are outlined in the Annex. Please note that sample questions need to be adjusted based on the situation /operation, in agreement with the evaluation management team (EMT), and outlined in the inception report.


The methodology will adhere to the IFRC Framework for Evaluations , with particular attention to the processes upholding the standards of how evaluations should be planned, managed, conducted and utilized.

Interviewees will include SLRCS and IFRC personnel (e.g. managers, field officers, direct implementers, volunteers and community mobilizers), beneficiaries and potentially, other bi-lateral donors (Oxfam, John Keels Holdings), people who did not receive assistance.

The specific evaluation methodology will be detailed in close consultation between the review team, EMT, Commissioner and relevant key stakeholders, but will draw upon the following primary methods:

· Desktop review of operation background documents, relevant organizational background and history, including IFRC as well as SLRCS and National policies and SOPs, prior IFRC reports, and any relevant sources of secondary data, such exit surveys from IFRC participants in the operation.

· Field visits/observations to selected sites in the country.

· Key informant interviews (institutional and beneficiaries as appropriate).

· Focus group discussions (institutional and beneficiaries) as time and capacity allow.

The detailed evaluation design is to be created by the external evaluation team; however, the following should be taken into account:

· Sampling method is to be decided by the evaluator, as long the final sample to be evaluated on includes both SLRCS and IFRC involved in the floods operation interventions, branches, sectors of the intervention and the ‘most vulnerable’ beneficiaries.

· Data collection methods and pace are to be decided by the evaluator, in consultation with the SLRCS and IFRC country office focal person(s), but should take into account the reality of difficult-to-reach districts.

· The evaluation team should visit a representative number of communities in the districts where the operations implemented; Colombo, Gampaha, Kalurata, Kegalle and Matara. The evaluation team will be responsible to clearly outline the support needs in-country. This will be agreed with SLRCS and IFRC based on resources available.

The team leader; external evaluator will need to work together with evaluation team member of IFRC/SLRCS.


The review team will deliver the following outputs:

a. Inception Report: The inception report will be a scoping exercise for the review and will include the proposed methodologies, data collection and reporting plans with draft data collection tools such as interview guides, the allocation of roles and responsibilities within the team, a timeframe with firm dates for deliverables, and the travel and logistical arrangements for the team.

b. Debriefings / feedback to management at all levels: The team will report its preliminary findings to the SLRCS and IFRC country office prior to leaving the country.

c. Draft report: A draft report identifying key findings based on facts and will separate from the report opinions or rumours, conclusions, recommendations and lessons for the current and future operation, will be submitted by the team leader within three days after presenting the initial findings.

d. Final report: The final report will contain a short executive summary (no more than 1,000 words) and a main body of the report (no more than 10,000 words) covering the background of the intervention evaluated, a description of the evaluation methods and limitations, findings, conclusions, lessons learned and clear recommendations. Recommendations should be specific and feasible. The report should also contain appropriate appendices, including a copy of the ToR, cited resources or bibliography, a list of those interviewed and any other relevant materials. The final report will be submitted two days after receipt of the consolidated feedback from IFRC. Details of the final report are outlined in the table below.

Suggested final report outline





Executive Summary

Summarizes the overall findings of the review with key conclusions and not more than 10 key recommendations. Executive Summary must be specific to the review and clearly outline the specific context of the CAS.



A general section that outlines the overall CAS objectives, aims, DPRK RCS 2016- 2020 Strategy intervention, policy frameworks, targets, main stakeholders, financial frameworks, institutional arrangements.



Outlines the overall approach used, the tools applied and the key assumptions. This should focus on consideration for validity, impact and sustainability of the CAS.



Outlines the findings of the review.



Outlines the main conclusions that have emerged from the findings


Lessons learned and recommendations

General recommendations,

All products arising from this evaluation will be owned by the IFRC. The evaluators will not be allowed, without prior authorization in writing, to present any of the analytical results as his/her own work or to make use of the evaluation results for private publication purposes.

The draft and final reports will be submitted through the EMT, who will ensure the quality of the report providing input if necessary. The EMT will submit the report to the key stakeholders interviewed for review and clarifications. The Commissioner will oversee a management response and will ensure subsequent follow up


The evaluation is expected to be completed no more than 20 days, including submission of the final report. It is proposed to commence the evaluation on 11 August 2018 with the following schedule and deliverables:






Desk review, and develop and submit inception report

Home country


Inception report

11-12 Aug

Review and the Commissioner to approve the inception report


Briefing: Evaluation team with IFRC and SLRCS




Key Informant Interviews (KII) with stakeholders



15-16 Aug

In-country data collection and analysis

Colombo, Gampaha, Kalurata, Kegalle and Matara


Preliminary findings

17-23 Aug

Presentation of initial findings




Prepare and submit draft report with annexes



Draft report

25-27 Aug

Review of the draft report: SLRCS and IFRC submits any requests for clarifications, corrections, changes on the draft report

28 Aug –

4 Sep

Finalize and submit final report with annexes

Home country


Final report

5-6 Sep

Final report approval by the Commissioner

Total days



An evaluation management team will be appointed to manage and oversee the review, and ensure that it upholds the IFRC Framework for Evaluation. The management team will consist of two to three people from the IFRC, IFRC Sri Lanka country office and SLRCS.


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

The IFRC Evaluation Standards are:

  1. Utility: Evaluations must be useful and used.

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

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

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

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

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

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

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

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


The external evaluator (Team Leader) must have experience or significant knowledge of humanitarian response mechanisms, deployment of staff and volunteers, cash transfer programming, and previous experience in conducting external evaluations for medium-to-large scale programmes. The Team Leader will be supported by an evaluation team (2 to 3 persons) from SLRCS and IFRC who are not directly involved in the operation. The Team Leader will coordinate directly with the IFRC Asia Pacific Regional Office and IFRC Sri Lanka Country Office. The Team Leader will coordinate directly with the EMT and IFRC Sri Lanka Country Office.

The consultant and the evaluation team should have the following characteristics:

· (For Team Leader) Demonstrable experience in leading evaluations of humanitarian programmes responding to major disasters and preferably previous experience of conducting evaluation in Sri Lanka or South Asia.

· Knowledge of activities generally conducted by humanitarian organizations in the sectors of response, relief and cash transfer.

· Field experience in the evaluation of humanitarian or development programmes, with prior experience of evaluating Red Cross programmes desirable.

· Strong analytical skills and ability to clearly synthesize and present findings, draw practical conclusions, make recommendations and to prepare well-written reports in a timely manner (examples of previous work).

· Previous experience in coordination, design, implementation, and monitoring and evaluation of humanitarian programmes.

· Ability to work within tight deadlines and manage with available resources.

· Fluent in spoken and written English.

· Strong interpersonal skills.

· All individuals of the evaluation team should have relevant degrees or equivalent experience.

· Availability for the time period indicated.


Interested candidates/teams should submit their expression of interest to [email protected] and [email protected] by 25 June 2018. In the subject line, please state the position you are applying for, your surname and first name. (SUBJECT: Final Evaluation of Sri Lanka Floods 2016-2017 – Last Name, First Name).

The application should include:

  1. Cover letter clearly summarizing experience of the consultant team leader as it pertains to this assignment, daily rate, and contact details for three professional referees

  2. Curricula Vitae

  3. At least one and up to two samples of previous written work similar to that described in this Term of Reference (previous evaluations and reviews completed).

Application materials are non-returnable. We thank you in advance for understanding that only short-listed candidates will be contacted.


  1. Package of Reference Documents for MDRLK005 & MDRLK006

  2. Following SLRCS documents; National Contingency Plan, SLRCS Disaster Response Framework, and Standard Operation Procedure for flood response (SoP)

  3. Stakeholders list.

13. ANNEX 1

The following criteria will be used to guide the evaluation recommendations:

Note: below mentioned are standard questions that will need to be adjusted, in agreement with the EMT, at the stage of the inception report.

a. Relevance and appropriateness

· How effective were the interventions in identifying the most vulnerable among the affected population and responding appropriately to their particular circumstances?

o Was the beneficiary selection process fair, appropriate and effective?

o What strategies were used to ensure quality, timely and relevant delivery to target beneficiaries including mechanisms to capture beneficiary complaints/feedback?

· Was the assistance provided appropriate and sufficient to meet intended needs?

· To what extent were the beneficiaries involved in the assessment, planning, design, implementation, and monitoring of the interventions?

· Were intervention strategies and priorities in line with local customs and practices of the affected population, the priorities of the Government authorities and other key humanitarian actors?

· Were the interventions in line with SLRCS and IFRC strategies, standard operating procedures (SOPs) and guidelines?

· What problems and constraints were faced during implementation and how did the interventions manage these?

· What important lessons have been identified that can improve future interventions in the Sri Lanka and be shared more widely?

b. Coverage

· Did the interventions reach all population groups in need, including those in remote areas who would otherwise have not received humanitarian assistance?

· Were there exclusions or differential impact between groups based on their location?

· How could the coverage and distribution methods be improved?

c. Efficiency/effectiveness/accountability

· Did the interventions meet their immediate and intended results?

· Were there adequate resources (financial, human, physical and informational) available and were they utilized effectively and efficiently?

· Were adequate tracking systems in place to ensure transparency and accountability?

· Were complaints/feedback mechanisms put in place for community questions and concerns to be answered? What were the concerns raised by communities during the intervention?

· Would greater investment in preparedness measures have resulted in more efficient, effective and less costly interventions?

· How were programme activities managed and coordinated, particularly between SLRCS, IFRC, other partners, clusters, and local authorities?

· Was the capacity of the human resource system enough to fulfil the needs of the interventions and beneficiaries? Were personnel skills utilized in an efficient and effective manner?

· Was there adequate and relevant staffing including: a) decisions concerning the number of staff members needed, where, when, with what competences, at what levels, and at required availability and b) decision-making chain regarding staffing?

d. Impact

· What evidence (both direct and indirect) is available that the interventions contributed to the reduction of suffering and that the affected populations were assisted in maintaining or resuming basic dignity and enhancing disaster preparedness?

· What impact did the interventions have on how the communities coped with subsequent disasters?

e. Connectedness and Sustainability

· Did the interventions result in enhanced institutional capacity of the SLRCS, in terms of: a) ability to implement recovery programmes, b) ability to prepare for and respond to disasters in a timely, efficient, and coordinated manner; and c) ability to mobilize communities at risk to cope with future disasters?

· Did the support of the IFRC strengthen and complement the response of SLRCS branches and coping mechanisms, or hinder them?

· How will the support to enhance the capacities of NS will enable SLRCS to better face future disasters?

· How the links between the local government, officials, community groups enable communities to sustain their livelihood activities in the future.


Interested candidates/teams should submit their expression of interest to [email protected] and [email protected] by 25 June 2018. In the subject line, please state the position you are applying for, your surname and first name. (SUBJECT: Final Evaluation of Sri Lanka Floods 2016-2017 – Last Name, First Name).

The application should include:

  1. Cover letter clearly summarizing experience of the consultant team leader as it pertains to this assignment, daily rate, and contact details for three professional referees

  2. Curricula Vitae

  3. At least one and up to two samples of previous written work similar to that described in this Term of Reference (previous evaluations and reviews completed).

Application materials are non-returnable. We thank you in advance for understanding that only short-listed candidates will be contacted.