L'évolution des réponses au séisme haïtien: une étude de cartographie et d'analyse d'urgence des marchés

An Emergency Market Mapping and Analysis study Changing Responses to the Haiti Earthquake Written by: Carol Brady Edited by: Emily Henderson and Philippa Young A cash transfer beneficiary shows off the produce from Charitable an urban Pierre, 45, is garden. The Karoi (canteen) owner. She was a renter and ran her business from her house, which collapsed into a heap of rubble a small restaurant programme during combined cash the earthquake. Oxfamtransfers gave herwith a grant that she used to restock her shelves with food items for sale. She’s re-opened in a makeshift spot across the support to street. income Someday generating – when activities she has saved enough – she plans to rebuild a small house on a parcel her landlord has given her as a gift. Photo: Toby Adamson Good practice standards guidelines and evaluations all emphasise the importance of including markets in emergency situation and response analysis. While this approach has become more widely accepted by international organisations in recent years, in practice it is clear that support is still needed to develop the skills of humanitarian workers to ensure that they don’t overlook the role of markets in emergency and early recovery responses. Common challenges include not knowing what data to gather and from where (macro versus micro levels), how to interpret basic information collected, how to effectively present findings or how to translate analysis into programme decisions. In 2007, and based on the value chain development Using a three pronged approach – gap analysis, framework, the Emergency Market Mapping and market analysis and response analysis - EMMA Analysis (EMMA) toolkit was designed to help employs a variety of existing tools, (such as seasonal staff to understand, work with and support critical calendars, market maps, household income and markets in sudden onset emergencies. Oxfam GB expenditure profiles and response frameworks) to (OGB) and the International Rescue Committee (IRC) examine the extent to which critical market systems have now used this assessment tool in a number are functioning, and can be used and supported to of emergency responses. This case study looks at meet people’s needs. the EMMA that was undertaken in Haiti following EMMA was designed to allow non-market specialist the 2010 earthquake, and the emergency responses staff to collect enough systemic market information implemented as a result of this, by both the IRC and needed to identify market blockages and inform OGB. decision-making in sudden onset emergencies. In such contexts, there is no time for sustained, deep The principles of EMMA and detailed analysis. EMMAs are based on a ten step In recent years, international humanitarian agencies iterative process that demands rapid and rough, or have been re-examining their responses to ‘good enough’ analysis. EMMA encourages users to emergencies. Many have begun experimenting with disregard non-essential or unnecessary detail (‘optimal cash-based initiatives alongside, or in place of, ignorance’) and be satisfied with approximations and conventional relief distributions of food and non- rough estimates (‘appropriate imprecision’)i. food items. In addition, local procurement is also being encouraged. However, there has also been a subsequent realisation that unless responses (both cash and in-kind) are designed with a good understanding of key markets, they may inadvertently Why use EMMA? damage livelihoods, jobs and businesses, thus • To make early decisions about the relative undermining recovery and prolonging dependence wisdom of different direct response options on external assistance. In response to the need for a better analysis of markets in emergencies, between • To assess opportunities for 2007 and 2010, the IRC, OGB and Practical Action, in complementary ‘indirect’ actions consultation with a wide panel of agencies from the • To reduce the risk of doing harm international community, developed the Emergency Market Mapping and Analysis (EMMA) toolkit. • To assist in monitoring performance and accessibility of market-systems Crucially, EMMAs depend on a clear understanding of household contexts, from needs, livelihoods and • To improve the quality of disaster incomes to expenditure and debts. This understanding preparedness relies on other initial assessments, such as the • To define the requirements for more Emergency Food Security Assessment (EFSA) and detailed market analysis. the Household Economy Analysis (HEA).EMMA is designed to provide additional and complementary information that specifically details the extent to which markets are functioning at all levels – from for example breakdowns in transport, access to credit Since the EMMA Toolkit was developed, it has been and labour constraints to obstructive trade and piloted in four emergencies and has been implemented licensing laws. in 14 sudden onset emergencies globallyii, including the Haiti earthquake in January 2010.  EMMA in the 2010 Haiti Earthquake Response An EMMA pilot assessment had been carried out in Haiti following severe tropical storms in 2008. Considering the practical uses and advantages of undertaking EMMA assessments, it was felt to be appropriate to carry one out following the 2010 earthquake. The EMMA was carried out from the 7th to the 17th of February, three weeks after the earthquake. In parallel, a rapid Emergency Food Security Assessment (EFSA) took place covering the directly affected communes, from the 5th to the 12th of February, 2010. This was led by Haiti’s Coordination Nationale de la Sécurité Alimentaire (CNSA), in partnership with Action Contre la Faim (ACF), OGB, the Famine Early Warning Systems Network (FEWS NET) and the United Nation’s Food and Agriculture Organisation (FAO) and World Food Program (WFP). This parallel activity was fairly well coordinated, and both teams found the work of the other assessment useful. Before the earthquake Carlene Charles ran a small local café. Oxfam’s livelihoods In Haiti the EMMA team was led by IRC and included teams have enlisted her and 55 more local ““restauratrices” (street cooks)” to serve a total of 18 staff members from 11 organizations a hot meal every day to people who are most in need. “We’re very content with this idea, it has enabled me to start work again” says Carlene. Photo: Alex Renton including: American Red Cross, Haitian Red Cross, the International Federation of the Red Cross, Save the Children (SAVE-US), Mercy Corps, OGB, WFP, ACDI/ The EMMA toolkit is still relatively young. Gathering VOCA, ACF and FEWS NET. While EMMA is designed implementation information, lessons learnt and best to be used by those without economic training, this practices is crucial in the drive to hone and improve team had a mix of those with significant market the tool, to adapt it to the needs of the humanitarian experience and those with none. Approximately two sector as well as to increase its effectiveness in days of training was provided, with additional training supporting better humanitarian responses. This case throughout the course of the assessment on various study looks at the impacts of the EMMA for the IRC aspects of the tooliii. and OGB and is part of the ongoing documentation, The target group of EMMA assessments was the assessment and development of the EMMA toolkit. earthquake affected population of greater PaP, numbering more than two million people in this area Background alone and spread across different wealth groups. The At 16:53 on January 12th 2010, an earthquake EMMA team chose not to disaggregate the target measuring 7.0 on the Richter scale hit Haiti, population, not only due to the widespread needs approximately 25 kilometres west of Port au Prince both across the city and across all wealth groups, (PaP). Approximately 3.5 million people lived in but because the critical markets analysed affected the areas directly affected by the earthquake. everyone. An estimated 220,000 people died during and To different extents, the earthquake had damaged so immediately after the earthquake. A further 1.5 million many people’s homes, lives and means to making people were displaced. For those who survived the ends meet. To limit responses to the ‘most vulnerable’ earthquake, their realities had been dramatically would have, undoubtedly, only focused attention and changed. Homes and productive assets were lost or efforts on part of the picture. While supporting those damaged and infrastructure was shattered. Poverty people, such as market traders, who traditionally are levels were estimated to have risen by 30-50% in PaP not perceived to be amongst the most vulnerable, and by 80% in the commune of Carrefour. Across the may appear to be contrary to many NGOs mandates, city, people struggled to afford to eat as purchasing recognising the role they play is a central tenet of power crumbled. As a result, food became less EMMA. Organisations may seek to target the most affordable and, therefore, less accessible. vulnerable; however, to effectively and sustainably The earthquake had disrupted lives and had meet the needs of this group, other actors within the disrupted the markets upon which these lives and larger market system, including traders, wholesalers livelihoods depended. and importers, might need support to enable them to function properly. Markets are not the sole province of Contribution to Programming the better off – they provide access to goods, services In combination with the EFSA, EMMA helped to and job opportunities for most, if not all. determine the direction of programming. It also Selecting critical markets is a fundamental step in the supported the design of activities and added to data market system analysis. In line with team capacity, the gathered in further localised market assessment. In EMMA team selected four market chains, based on particular, EMMA: their level of applicability and centrality to the widest • Confirmed that OGB’s community reconstruction number of affected people. Participants were asked approach (rather than a traditional focus on the to identify markets that they felt were important to delivery of assistance in camps) was both relevant consider and those that would be of interest to their and appropriate. The EMMA contributed to the organisation. The group looked at market systems justification that working in neighbourhoods, to rebuild that fell into three categories: emergency basic needs, the purchasing power of populations and the market income potential, and longer term livelihood support systems in these local areas, was suitable and desirable. for recovery. After much discussion, two food markets were selected (beans and rice), one income market • Confirmed that markets were, to some extent, (construction labour), and one type of shelter material functioning and therefore, confirmed the relevance of (corrugated iron sheeting) for reconstruction / recovery. well designed cash based responses. • Confirmed markets were partially disrupted and Costs that small actors within the market chain needed In Haiti, the EMMA process cost approximately $3,000. support to restore their operational capacities, to Many organizations provided staff and cars at no cost recover capital, storage capacity, and improve access and there were no consultant fees. The funds were to capital. IRC submitted a proposal to the OFDA primarily spent on logistical and administrative costs to that centred around the restoration of operational support the team, such as phone cards for volunteers, capacities for small actors. Although this project meals during training, photocopying and petrol. ultimately did not receive funding, it was well received. Rubbish lines the streets of the Carrefour Feuilles, district of Port-au-Prince. Photo: Abbie Trayler-Smith • Highlighted the need for continued and diversified (but for fresh goods or non-food items and direct support time limited) food distributions to increase food intake, to medium-small and small traders in the affected to complement livelihoods grants and to allow markets neighbourhoods. to recover. The EMMA also flagged the important role • Led to further localised market and shop of local importers and producers for rice and beans. assessments. For Oxfam GB, these assessments While it was necessary in the initial response for the confirmed the essential role of local petty trade and WFP to bring in huge amounts of rice (thus bypassing grocery stores in the lives of the affected populations, local market structures), the EMMA highlighted that, in terms of their proximity, and their ability to act as after the initial shock, local importers could be used. sources of informal credit and employment. This had Working with, rather than in parallel with, local markets an impact on programming across the teams. Oxfam meant that cash rather than in kind distribution was GB decided to provide vouchers for essential non- more appropriate. Moreover, it was as a result of EMMA food items through local businesses, using these that WFP harmonized/changed its food package to existing neighbourhood structures to deliver vital remove beans, after the local bean harvest, to ensure hygiene kits. that people would purchase local beans. • Highlighted the essential role of local micro-finance • Enabled new approaches for IRC and OGB, among institutions (MFIs) in providing investment capacity to other NGOs, to be implemented, such as vouchers local businesses, and underlined the need to develop  programmes that support these MFIs. Indeed, the the city. Although these recommendations were World Bank Microfinance Space in Haiti encouraged not carried through in the initial stages of OGB’s the use of the EMMA Assessment results. programmes, they created a lot of interest. OGB carried out a subsequent Labour Market Survey and a • Highlighted both the weaknesses of current number of other organisations, such as SAVE-US and training capacities and the high employment and Catholic Relief Services, implemented programmes reconstructive potential that the construction labour that supported the construction market. sector could represent for unskilled and semi-skilled • The Post-Disaster Needs Assessment (PDNA) affected populations. This analysis supported the work that NGOs such as the Cooperative Housing completed by the World Bank, Haitian Government, Foundation (CHF International) has been doing and the EU referenced and incorporated the EMMA since 2006. The CHF aims to provide training and recommendations. skills for employment in the much needed areas of • EMMA’s findings contributed to the creation of a Cash rehabilitation and construction of infrastructure. For Coordination Group and underlined its importance in OGB, this led to recommendations and advocacy future programming. This group helped ensure that for programmes that supported reconstruction / NGOs implementing cash programming were working re-starting vocational training centres, which in turn in harmony and within the existing market practice would produce trained labourers to help rebuild and structures to the largest extent possible. People walk along a debris-covered street in Port-au-Prince. In the immediate aftermath of the earthquake, world leaders pledged massive assistance to rebuild Haiti after as many as 200,000 people were killed, but five days into the crisis, aid distribution was still random, chaotic and minimal. Photo: Reuters/Daniel Aguilar , courtesy www.alertnet.org The Rice Market in Haiti: EMMA in Action Rice has always been the most easily accessible, Locally produced rice was transported by a network and most used, staple food of most, if not all, of 8,000 rural Madam Saras to PaP Madam Saras and households in Port-au-Prince, making rice one of the retailers, particularly between June and September most important market systems to study. Against the after the main rice harvest in the Artibonite region. historical backdrop of increasing imports of rice, the EMMA team found four distinct rice market chains. In the immediate aftermath of the earthquake, the The EMMA focused on, firstly, the imported rice importers had stopped their activities, with little chain, mainly coming from the United States, filtering indication of when they may start again. Indeed, down through wholesalers, distributors and ‘Madame the ports were badly damaged and priority docking Saras’iv, and, secondly, on the networks that organised went to boats carrying relief supplies. Moreover, the the processing and delivery of locally produced rice anticipation of a massive distribution of rice by aid from the Vallée de l’Artibonite to urban areas. agencies may well have discouraged importers to resume their trade. Half of the main wholesalers were Prior to the earthquake, 6 importers based in Port unable to function after the earthquake, predominantly au Prince (PaP) were importing around 70% of the due to the destruction of the storage facilities. imported rice with the remaining 30% being imported by 14 smaller importers from smaller ports. These PaP Although this seems significant, this group did have importers were selling the rice to 8 main wholesalers capital to restart their business over time. Thus, it (trading 1000 bags per day) who, in turn, were selling it was the small wholesaler level that was most badly to around 200 small wholesalers (trading 100 bags per affected. 80% of these small wholesalers had lost day) supplying a network of 10,000 PaP Madam Saras their storage facilities and were unable to re-engage and small retailers. These small retailers were the end of with the market, due to insufficient capital or access the market chain, selling the rice to PaP households. to credit to revive their businesses. Haiti – Seasonal Calendar JAN FEB MARCH APRIL MAY JUNE JULY AUG SEPT OCT NOV DEC Rains Road OK BAD OK BAD OK Conditions Cyclones Hunger Period Food Prices Highest Highest Education Education Holidays Education costs Education Costs Costs Remittances increase Planting Beans Highlands Highlands Lowlands Harvest Corn/ Beans Planting Rice Harvest Rice Small season Big season Holidays King’s Carnival Easter Christmas Day Marriage Season For locally produced rice, it was feared that damage the purchasing power of the affected population. Yet, to dams may also have caused a shortage of water for markets were partially disrupted. This meant that a irrigation in the Artibonite region. The local market for host of interventions were devised that aimed to shore rice was fraught with insecurity. Rural Madam Saras up and reinforce the market systems. were not coming to urban areas. Urban Madam Saras The EMMA work led to the development of a response- were deeply fearful of looting (discouraging them to recommendations framework. This looked at the keep large amounts of stock) and were vulnerable range of actors, institutions and infrastructure in the to the fact that many of their earthquake affected market system and recommended complementary and ‘customers’ had lost their incomes and could probably diverse response options that included: establishing not afford to pay for their goods. communications between the private sector and aid As a result of the analysis made, the EMMA team agencies, increasing security in markets, monitoring concluded that the recovery of the rice market chain market system recovery, infrastructure recovery and was highly dependent on the recovery of the smaller ensuring access to credit and micro-finance. Moreover, actors and Madam Saras. For this to be effective, while the EMMA emphasised the need to maintain and the responses needed to address the fact that the diversify in kind food distributions until, at least, the end earthquake had devastated the income earning of the lean season in May or June, it also highlighted the potential market disruption that pure in kind food potential for many PaP residents, affecting their ability distributions would have. This led to recommendations to buy from these retailers. that limited in-kind food programmes, alongside the The EMMA assessments found that, because markets promotion of the demand side (cash grants, cash were functioning, cash was an appropriate and for work and food for work) and supply side (market relevant mechanism for distributing aid and boosting recovery) programmes. Rice Market-System Map: After the earthquake ! The market Symbol key environment: institutions, rules, OLIGARCHY ON RICE WEAK COOPERATION BETWEEN GOVERNMENT ! Critical issue ! norms & trends IMPORTATION Major disruption PRIVATE SECTOR AND HIGH AID AGENCIES WEAK Partial disruption SECURITY DEPENDENCY ON FINANCIAL LOOTING RICE IMPORT SERVICES The market chain: market actors and their linkages Rural PaP COMMERCIAL Wholesalers Madam Sara FARMERS N = 200 N=? (Artibonite) PaP small PaP big RICE Millers N = 60,000 wholesalers wholesalers IMPORTERS N = 350 producers N = 40 N=4 PaP N = 6 Rural PaP N = 30,000 Madam Sara retailers labourers N = 8,000 N=? AFFECTED HOUSEHOLDS IN PORT AU FOOD AID PRINCE Colour key CREDIT PORTS Target groups TRANSPORT WAREHOUSE (Commercial Bank) BAGGING Rice producers Key infrastructure, inputs and N = number market-support services of actors  • For reconstruction, the labour market was critical. However, the availability of semi-skilled workers did not match the demand. Many semi-skilled labourers who could have participated in the reconstruction had lost their tools, and therefore their means of production. Due to a shortage of professional vocational centres, labour would have to be imported. Based on the findings and recommendations of the EMMA, the IRC and OGB designed their interventions to meet the needs of the earthquake affected population of PaP, while understanding the market systems capacities, bottlenecks and potential for growth. IRC The IRC was instrumental in getting the EMMA team together and led the EMMA training and assessment. Internally the EMMA had direct results on the following: • A Cash for Work (CfW) Programme ran for a number of cycles in PaP. In 2010 this programme targeted 2,430 beneficiaries. The CfW for 2011 targeted 2,160 With the support of the community canteen programme and the profits made, beneficiaries, meaning a total of 4,590 had been reached. several restauratrices (street cooks) have been able to start or rejuvenate their businesses. This provides local communities with access to important food stuffs, • The IRC used a number of assessments to identify such as rice, sugar, beans, pasta and coal. Photo: Kateryna Perus vulnerable neighbourhoods in which to operate the CfW programme, which was coordinated with Programme Responses their WASH team. The CfW programme focused on EMMA has influenced responses to the 2010 Haiti preparing selected camps for the rainy season by emergency, to include market analysis in the immediate digging ditches to ensure proper drainage. Tools were post disaster period. This is a significant achievement. procured locally and a robust local micro-finance EMMA resulted in innovative programming, from many Institution (MFI) was selected to dispense the cash. of the agencies within the team and those operating in In consultation with the Cash Working Group and Haiti in general. The market analysis approach has had Livelihoods Cluster, the IRC set a daily wage rate, impacts on the populations of PaP and beyond. calibrated with other NGOs and the Haitian Ministry of Labour. As a result of EMMA, the CfW programme got Notably, the EMMA flagged up a number of key issues off the ground faster and was specifically targeted. that helped to shape NGO interventions. • The analysis and approach of the EMMA lasted • In all markets chains studied, the most affected actors beyond the initial response period, which focused were those with fewer assets and more restricted heavily on PaP, and helped to shape CfW programmes access to credit: middlemen and retailers in the in Léogâne, 20 kilometres southwest of PaP. “quartiers”. Proportionally, importers and wholesalers had suffered less significant physical losses, had • The IRC planned for an asset replacement scheme insurance for their credits and had a lower debt rate; (which aimed to reinstate the assets, inventories and structures of a number of key warehouses, to • Small retailers lost their working capital, their stock, and strengthen their businesses and restore economies of at times, their shops. As a result, the local populations scale, allowing the population of PaP to buy items at had limited access to basic goods, services and lines of lower prices). informal credit in their neighbourhoods. This meant that, out of necessity, people had to travel much further afield • IRC did further assessments of small warehouses to for basic supplies, incurring higher transport costs; determine the specific level of assistance that would be required to support the rebuilding of these warehouses, • Storage facilities were damaged and looting led to and identify barriers to rebuilding that might exist. increased insecurity; • Although funding was not allocated for these last • The insecurity and unpredictability of sales meant that two programmes, the EMMA remained a key initial access to credit from wholesalers to middlemen and assessment for shaping the direction of market retailers was substantially reduced. The earthquake interventions in crisis response worldwide. also affected access to formal credit. Many micro- finance institutions were no longer issuing credits, • IRC also provided technical backstopping to the limiting the capacity of micro-enterprises to restart or follow-up EMMA assessment that was done in April continue their activities. 2010 in Jacmel.  Rejuvenating Markets harvest had been completely destroyed and a number of their livestock had died or been lost. Marie Zulmie Dorce, lives in Dimba, a small For several months the family lived solely on agricultural village in the Commune of Léogâne, handouts from NGOs. 20 kilometers southwest of PaP. As with many other people living in Léogâne, the earthquake Marie Zulmie heard about the IRC’s CfW changed her life dramatically. programme from a neighbour. The programme was designed to pay a total of 3,600 Before the earthquake, Marie Zulmie lived in Haitian Gourdes (equivalent to $90 USD) to a small house on 0.5 hectares of land, where beneficiaries who would help to rebuild, repair she and her husband and their seven children and improve the local market place. grew and harvested bananas and maize. The earthquake not only destroyed their house, but With the money that she earned, Marie Zulmie was able to meet both immediate expenses left Marie Zulmie’s husband disabled. Marie and invest in a small stock of items to sell at Zulmie was left to manage the household by the rejuvenated market. The profits that she herself. made from this have allowed her to increase As a result of the destruction to her house, her inventory and she even has plans to hire an Marie Zulmie moved her family away from agricultural labourer to help her grow bananas the area. After two months, they returned and maize on her land that would add to her home. Leaving their land had been hard. Their market stock. CfW programmes help to build or restore much needed infrastructure. Photo: Ivan Muñoz/Intermon OGB beneficiaries in camps, Oxfam wanted to identify and OGB sought to give assistance to Haiti’s earthquake support those actors that could contribute to the affected population through a community based strengthening of neighbourhood market systems – approach, analysing and addressing the needs of both reinforcing access to goods and services through local populations and traders to establish or re- grocery stores. This, crucially, offers a more establish market systems. While many international sustainable impact and can connect humanitarian agencies focused on delivering assistance to response to longer term development work.  The OGB response strategy was based on the EMMA’s findings and can be summarised as follows: Category Response Very poor, with no Hot meals for 2 months limited work capacity Basic needs grants (unconditional) Livelihoods grants (unconditional) Very poor with work Cash for work capacity Basic needs grant + livelihoods grant (unconditional) Poor with work Cash for work capacity Medium Trades people – unconditional livelihoods grant / voucher for tool kit “Restauratrices” (street cooks) – unconditional livelihoods grants Medium, with higher Grocery stores: investment capacity Provision of containers as shops Grant for business investment combined to loan (linkage with a MFI) EMMA in Haiti: Key Successes support to disaster affected people. The deeper market analysis that EMMA provides means that Team Dynamics agencies have a fuller, more fluid and dynamic The EMMA team, though not all market ‘specialists’, had understanding of markets; where bottleneck and a high level of understanding, analytical competence opportunities for support may lie. This means that and emergency food security experience. This was very programmes are more able to ‘do no harm’. EMMA useful in the implementation of the EMMA, particularly helped NGOs create programmes that avoided because EMMA relies on the daily collection and analysis either overloading or undermining the market (i.e. the of data. Moreover, a few of the team members had been immediate environment of the target population). part of the pilot EMMA in Haiti in 2008. This helped to speed up the assessment, as the team had experience • Innovative Programming. Support to businesses with the concepts, processes and the analysis involved. is often considered to be part of the early recovery phase. However, the EMMA results demonstrated the Advocacy and Influence with Donors and Non- need to support businesses from the early stages of Governmental Organisations (NGOs) an emergency response. The EMMA findings were The EMMA assessment enabled effective direct then used by different organisations in programme advocacy and influence with organisations such as design within the first three months of the response. WFP. For example, the EMMA gave weight to the position that it is crucial to assess the need for, timing • Direct contribution to the strategy and programme and impact of in-kind distributions. design. In the first few weeks after the earthquake, the EMMA results, in combination with the EFSA, were Interagency Coordination used as a basis to refine the initial response strategy, Multi agency EMMAs spread knowledge and by providing answers to the design questions raised: understanding more widely and can help the market will markets be able to respond to cash transfers? If approach become embedded across different yes, under what modalities? And what would be the organisational capacities and perspectives. In Haiti, the probable impact of different cash responses? inter-agency nature of the EMMA lent more weight to the results and gave a common analysis and forum to • Clarification on affected populations’ preferences. all participating agencies. Results were widely shared The EMMA enabled NGOs to understand the with clusters (food security, shelter) and working groups. beneficiaries preferred modality for assistance, in terms The EMMA contributed to the coordination among the of direct cash distributions, vouchers and direct in-kind different agencies involved, in particular within the cash distributions. While there was a marked preference for working group. The common analysis reached through cash for staple food and basic needs, as items were the EMMA directly fed into the work of this group and available and beneficiaries wanted to be able to choose provided a joint basis for recommended interventions. the quantity and quality of these goods, for building materials the preference was for vouchers or in-kind Added Value distributions. This was because cash given for shelter EMMA has given added value to programming and or less pressing needs would be siphoned into paying people in a number of ways: for the most immediate needs of the target group. In • Reducing assumptions about cash programming, kind distributions or vouchers would then ensure that markets and their capacity and ability to provide these needs were met when the time was right. A Year in the life of Marie Carole By September, life had changed once again. “People from Oxfam came to inspect the site Marie Carole Boucicaut lives in Carrefour Feuilles, of my old shop – the one I had before the a poor area of the city of Port-au-Prince. This area earthquake. They saw that it had been destroyed, was one of the worst affected by the earthquake, and they are going to provide me with a shipping with huge devastation to buildings, shops, roads and container so I can use it as a shop and have paths. Before the earthquake, Marie Carole owned a room to store my stock more securely. That will grocery store. While the earthquake did not entirely be much better for my business. I will be able to destroy her store, it did render it unusable. Moreover, buy more, and I will be able to manage my stock looters stole all of Marie Carole’s stock. better from there.” In March 2010, Marie Carole was one of the first The Oxfam team selected one hundred and four women to be selected to run one of OGB’s 56 shop-owners who received business management canteens. The canteens each provided hot meals training and a grant of 1,000 US dollars with a to 80 beneficiaries – some of the most vulnerable matching loan of 1,000 dollars. Fifteen of them – earthquake affected people in the city. Although of whom Marie Carole is one – received a shipping Marie Carole continued to face difficulties, container modified so that they can be used as a participating in the canteen programme helped shop premises and secure storage. her enormously. OGB’s last visit to Marie Carole was in February “Through the canteen I’m able to help people in the 2011, a year after the devastating earthquake area. The canteen is helping me too because we and nearly two months after she had received are no longer hungry. I make about 1,500 Gourde her shipping container from OGB. ‘Early in the profit every week (22 GBP)”. By June, Marie Carole morning, I wake up and open the shop with the was able to save enough to put some money into help of my young niece. I have kept my seat by buying plastic sheeting for her families’ temporary my old stall at the crossroads: everybody passes shelter and for rebuilding her store. “The community by and this makes my sales much better. With canteen really helped me; I was able to start my all my products nicely arranged on the table, you business back up and now I have my own shop can’t miss me! Here, we are in the middle of an again. Now I sell all sorts of things: rice, sugar, urban area but sometimes it feels like being in beans, pasta, charcoal – all sorts of things.” a rural village. People like to shop at one place However, the building where the shop was located, for everything they need. And this is one of my was neither hers (incurring rents), nor was it strengths: I’m the one stop shop! I think about waterproof. The earthquake had damaged the ceiling January 12th and the first days after this disaster, and, when it rained, despite her best efforts to seal I can say there was no more hope. And now, it’s her stock in plastic bags, some of it still got wet. just amazing: I’m back on my feet!’  Daniela’s Story Recovery Grant. With the additional 5,000 Haitian Before the earthquake, Daniela and her daughter Gourdes (125 USD) that Daniela received as a sold second hand clothes on the street to make livelihood recovery grant, she explains that she has ends meet. Life was tough. There were seven restarted a business selling sweets and biscuits. people living in the house and profits from the She cannot hawk anymore because her health business did not stretch to providing three meals does not permit it, and that is why she has now set a day. Daniela lost everything in the earthquake. up her little business in front of her tent. “Thanks She lost all of her possessions. While her house to this help, today I can feed all my family and was not entirely destroyed, dangerous cracks concentrate on paying my debts little by little and prevent her from living in it. Above all, she lost her live like a normal person with dignity. Before this daughter who was helping to take care of her. She support, I did not have any hope; I did not know now takes care of her daughter’s family. where to go to ask for help. Without this support, Daniela was selected to be a beneficiary of both I would have lost my grandchildren, because they Oxfam’s Canteen programme and Livelihoods were going to die from hunger”. Lessons Learnt should be planned in relation to other food security and livelihoods assessments. In this way, the results • A big challenge for the successful undertaking of are complementary and together present a more an EMMA is getting the right team together. In Haiti, comprehensive analysis. the team was a very competent mix of NGO external and Haitian staff, which brought a balance of local • Where there are many interests and organisational knowledge and new perspectives. This underlines the mandates represented in the EMMA team, it may be advantages of selecting experienced and analytical more appropriate and effective to form groups of NGOs staff for training. Strong leadership from the IRC was a with similar foci. This would enable those staff with critical part of the success of the team. technical expertise in one field to work in their sector. • Due to the successful team makeup and the right • For OGB, its programme outline was very ambitious. selection of the critical markets in Haiti, the reports As a result of the EMMA and further smaller EMMA were timely and comprehensive. based assessments, OGB undertook analysis and programme design on a variety of other projects, • The inter-agency cooperation in Haiti allowed NGOs to such as water distribution kiosks, vocational courses see that it was possible to work together and helped for semi skilled labourers and supporting micro- to create a sense of a community among the different finance institutions. These never came to fruition. organisations. This highlighted the need to have clear organisational • While the Cash Working Group became a platform for positions on various sectors, such as shelter or discussions about market based approaches, high WASH, so that time and money are not wasted. turnover and no specific EMMA follow up meetings EMMA has been a significant development for meant that the interagency potential was somewhat lost. As a result the value added by EMMA was not humanitarian organisations responding to sudden optimised. onset emergencies. However, it is important that EMMA is understood in the context of what it can • The timing of the EMMA and EFSA caused some and can’t do. It is an assessment, not a step-by-step difficulties. At the time of the EMMA assessment, operational guide or methodology and cannot give no updated household profile information from the details of how, for example, to design and implement EFSA was available. It was therefore not possible to a cash transfer programme. Many of the criticisms estimate confidently how much purchasing power that EMMA faces are due to inflated ideas about what had been affected. To address this information gap, it can achieve. EMMA undertook some household interviews to indicate how personal expenditures had evolved since What EMMA can, and does do, is point out a series the earthquake. Moreover, the EMMA team were able of recommendations that reflect the realities and to use a proxy baseline, developed from some very bottlenecks in the markets. The toolkit can bring clarity detailed work that FEWS NET had undertaken on poor and purpose to programming; allow the disaster affected households in 2009, to give a better approximation of population’s access to the most appropriate responses the effect that the earthquake had household incomes and support market functions and environments to and expenditures. While this contributed to EMMA’s meet basic immediate needs while keeping an eye on ‘good enough’ approach to analysis, ideally, EMMA future development and self sufficiency. Acronyms Acknowledgements ACDI/VOCA Agricultural Cooperative Development International / OGB would like to thank Karri Byrne and Ben Barrows (IRC) for Volunteers in Overseas Cooperative Assistance sharing their experiences and comments on the EMMA processes. ACF Action Contre la Faim OGB would also like to thank Emily Henderson and Philippa Young CHF Cooperative Housing Foundation – International (OGB) for their valuable input and insights. CNSA Coordination Nationale de la Sécurité Alimentaire CRS Catholic Relief Services Endnotes DRR Disaster Risk Reduction EFSA Emergency Food Security Assessment i. Practical Action (2010) The Emergency Market Mapping Analysis EMMA Emergency Market Mapping and Analysis Toolkit: Practical Action Publishing Limited, Rugby, copyright Oxfam FAO Food and Agriculture Organisation GB 2010. http://practicalaction.org/docs/emma/EMMA-introduction- FEWSNET Famine Early Warning Systems Network and-overview.pdf pg 17 (last accessed January 2012) HEA Household Economy Approach ii. For a list of EMMA assessments, please see http://emma-toolkit.org/ HH Households HTG Haitian Gourdes iii. EMMA Report (2010) ‘Port-au-Prince Rice Markets in IRC International Rescue Committee Post Earthquake Haiti’ http://emma-toolkit.org/wp-content/ MFI Micro-finance Institutions uploads/2010/08/EMMA-Haiti-report-Rice-Market.pdf (last accessed NGO Non-Governmental Organisations December 2011) OGB Oxfam Great Britain iv. Madame Saras refer to the market women or street vendors that PaP Port au Prince transport and trade local and imported products. SAVE –US Save the Children - United States USD United States Dollar WFP World Food Programme The security of the container allows Marie Carole to invest in increased stock – good for business. Photo: Kateryna Perus For information about EMMA and full reports please visit: http://emma-toolkit.org/ © Oxfam GB January 2012. Oxfam GB is a member of Oxfam International. Registered charity no. 202918. This paper was written by Carol Brady. Oxfam GB acknowledges the assistance of Carol Brady in its production. The text may be used free of charge for the purposes of advocacy, campaigning, education, and research, provided that the source is acknowledged in full. The copyright holder requests that all such use be registered with them for impact assessment purposes. For copying in any other circumstances, or for re-use in other publications, or for translation or adaptation, permission must be secured and a fee may be charged. E-mail publish@oxfam.org.uk For further information on the issues raised in this paper please e-mail enquiries@oxfam.org.uk or go to www.oxfam.org.uk. The information in this publication is correct at the time of going to press. Oxfam is a registered charity in England and Wales (no 202918) and Scotland (SC039042). Oxfam GB is a member of Oxfam International. www.oxfam.org.uk Front cover: Residents survey the damage in Port au Prince, after the devastating earthquake on January 12th 2010. Photo: Jorge Silva Reuters