1

Coalition for Better Communities

Memorandum for Project:

Creating Formal Housing Solutions for

the Informal Community of

Kintyre, St. Andrew

Masters of Science (MSc.) Project:

Development Cooperation and Aid Effectiveness

Sir Arthur Lewis Institute for Economic and Social Studies

University of the West Indies, Mona

November 2008

2

CONTENTS

ABSTRACT 4

By: Nicole Hayles McGowan (Project Manager)

BACKGROUND 8

By: Thandiwe Foote

PROJECT PURPOSE 11

By: Margaret Henry

PROJECT DESCRIPTION 18

By: Frank Smith

3

IMPLEMENTATION MONITORING & EVALUATION 27

By: Tamica Martin

PROECT IMPACT 34

By: Ella Ghartey

APPENDIX 42

REFERNCES 49

4

ABSTRACT

Investing in a country’s physical infrastructure can contribute to economic growth,

improve human welfare, and has the potential to directly reduce poverty (DFID 2008: 1).

The problem of squatting, better yet the illegal occupation of land, is said to have

increased over the last four decades, and has been, in recent times, citied as a contributing

factor to the increase in crime and violence throughout the country’s urban centres

(Gleaner 2008). But in analysing the nature of squatting it is important to understand the

underlying factors that contribute to this growing social problem.

Rural poverty has been fingered as one of the problems that have increased the

rural/urban migration. According to the Statistical Institute of Jamaica approximately

60% of Jamaicans are living below the national poverty line in rural areas. This rural

poverty heightens the need for the poor to seek economic opportunities, consequently

forcing them into urban centres, causing a proliferation of squatter settlements

(Tindigarukayo 2006: 2-3). The rapid growth beset by the rural/urban migration places

burden on the housing stock, as the demand for housing increases. Demand therefore

outstrips supply, causing rent and sale prices for accommodation to go beyond the

affordability of those arriving in the urban areas, leaving them with no other option but

squatting. The availability of “idle” land, as well as political affiliation to one of the two

main political parties has also contributed to squatting (Ibid).

5

There are conflicting views about who should be responsible for providing people with

basic infrastructural needs. If the neo-liberal concept is to be adopted, then clearly the

state has no responsibility to offer such amenities, as the government’s duty would be to

implement policies that would foster economic growth, resulting in people’s ability to

provide for themselves and their families. Nonetheless if the Marxist welfare state is the

approach, then clearly the government’s duty is to provide people with basic amenities

including shelter, as it is through fostering these needs that the workforce will be

motivated to boost economic output. However, the argument regarding whose

responsibility the provision of shelter should be is a never ending debate, but clearly it is

one that needs resolution if the Millennium Development Goals are to be achieved by

2015.

While the government has a role to play in the provision of basic infrastructural needs,

greater private sector partnership must be seen as equally important in fostering this bid.

There is consensus that there are some things that government does best, the private

sector others, and the non- government organizations/civil groups (Agere 2000: 74-76).

Private citizens must therefore, in whatever way they can contribute, foster a public-

private sector partnership (PPP), as it is through such relations that constructive and

meaningful debate can be realized by all actors involved in finding solutions to the

problem. It also hoped that such interfacing will not only facilitate the development

process but will also ensure the efficient and effective delivery of service to people (Ibid).

6

The Department for International Development (DFID) has indicated that it is interested

in assisting to address issues identified as risks to economic and social growth in the

Caribbean. Among the risks are crime, disaster management and climate change, as well

as addressing prevalence rates and stigma and exclusion associated with HIV and AIDS.

The British government says it expects its annual bilateral programme in the Caribbean to

rise from ₤11 million to ₤13 million in 2010/2011, while an extra ₤10 million in

contributions will be given to the Caribbean Development Fund. It also says it will

leverage an additional ₤73 million in additional UK development assistance (DFID

2008). It is therefore critical that the private sector, civic groups and non-governmental

organizations take advantage of this opportunity to build/foster a partnership that can

assist in augmenting the lives of the poor, vulnerable and disadvantaged.

For Jamaica to achieve a higher rate of growth, it cannot be solely about economic

ambitions, as such a narrow focus may make or break the country’s future development,

particularly as the country aims for first world status by 2030. The country has the natural

resources and talent to put it on track to become a global economic player, however

without a sound Poverty Reduction Strategy, the likelihood of such prospects becoming a

reality seems dismal. Though the government has made significant inroads in reducing

poverty over the past two decades, the disparity amongst the rich and the poor are still

startling.

We do not have all the answers, but its imperative that the needs of the voiceless,

disadvantaged, poor and vulnerable in society are attended to, as it is through

empowering people that their lives can be positively impacted, possibly clearing the path

to true development. “Development…means reaching an acceptable standard of living for

7

all people. It means that people have the basic things they need to live, (they) have the

right to make choices about their lives, (and) they have opportunities to improve their

living situations” (World Bank 2008).

8

BACKGROUND

Coalition for Better Communities (CBC) is a non-profit, non-government organisation

formed in 2007 and implemented to solicit sponsorship and funding from international

agencies as well as government and private sector entities to aid in the creation of

affordable and formal housing solutions and communities. In this project, the CBC has

paid special attention to the squatter1 community of Kintyre situated in the north-eastern

region of St. Andrew. CBC exists to assist in addressing the social, economic,

environmental, and sometimes political problems that are associated with informal

housing solutions.

There are many factors that obstruct effective housing implementation programmes. In

1994 the Government of Jamaica attempted to implement The Programme for

Resettlement and Integrated Development Enterprise, more commonly known as

Operation PRIDE, funded by the National Investment Bank of Jamaica to provide land to

low income earners, eliminate squatter communities, upgrade and regularise informal

settlements, and to examine the implications of urban poverty and quality of life. Along

with the National Housing Development Corporation (NHDC), Operation PRIDE was the

main entity created to address the above mentioned social problems. However there was

disregard in the monitoring, evaluation and accountability in the administration of the

programme. In addition it was very difficult to attract international funding as financial

aid came with conditions that were often not favourable to government’s interference in

the housing portfolio. The externally imposed neo-liberal conditionalities helped to

1 The word ‘squatter’ and ‘informal’ will be used interchangeably throughout this document.

9

reinforce the government’s avoidance of the responsibility to provide affordable housing

accommodations for the poor and homeless. If the government provides welfare housing,

it often times lead to the construction of limited overvalued houses, which low income

earners cannot afford. The cost of these houses therefore go way beyond the means of the

poor majority, thus the provision of social housing to eliminate squatter settlements may

not reach its target group.

The Kingston Metropolitan Area (KMA) in which Kintyre is located, has a population of

approximately 500,000 people, the largest population density in the English speaking

Caribbean. The community of Kintyre is situated in north-east St. Andrew and is at risk

from flooding following heavy rains. This is also caused by deforestation, unregulated

construction, the blocking of drains and gullies, as well as houses being built in the Hope

River or along its banks. However these problems can be mitigated through proper

planning, legislation and environmental awareness, as the environmental casualties

(landslides and flooding) causes human casualties, displaced families, property damages

and grief among residents.

The Gleaner article entitled Kintyre Residents helplessly await Disaster dated July 20

2008, it stated that the Kintyre community is a “flood prone squatter community built

near the Hope River”. During Hurricane Ivan in 2004 approximately twenty five (25)

houses constructed in the vicinity of the river channel were destroyed. The Kingston and

St. Andrew Corporation (KSAC) responded to this crisis, stating that it cost the

government millions of dollars in revenue due to the failure of residents to seek the

appropriate authorisation to build their houses. Not only is the squatter community of

Kintyre prone to natural disasters, but there are also concerns about the levels of lead in

10

the soil due to mineralization and pollution, as B. Anglin- Brown et al. noted, writing for

the Centre for Nuclear Sciences UWI Mona. This problem can therefore be minimised

through education programmes which include community education sessions, as well as

case management to reduce lead exposure.

In the event of proper strategic planning, the project intends to alleviate many problems

that have plagued the society at large. The resolution of the shelter problem for low

income earners will help eliminate social inequality through the establishment of formal,

planned settlements, the regularisation of illegal settlements and the upgrading of existing

ones. The project also aims to improve environmental and public health conditions that

presently exist and pose devastating harm to children and adults. The training will also

help to provide certification for informal occupations such as barbers, hairdresser and

cook shops and the training and employment of the skilled and unskilled persons on

construction of the new homes, will encourage participation and garner a sense of valuing

the resident’s opinions and contributions.

The reduction in crime related activities and violent behaviour will also be at the

forefront in the formalisation of these settlements, as it is evident that lack of

employment, lack of access to education, and perceived low family values have all

attributed to the high crime levels and incidents of violence that are often seen as

characteristics of squatter communities. In an effort to solve all these social problems, the

project will thus want to improve the living conditions of the residents of the Kintyre

squatter community, which is expected to inevitably extend to the entire Jamaica.

11

PROJECT PURPOSE

The objective of this project is to address the social, economic, environmental and health

challenges associated with the informal housing settlement of Kintyre, St. Andrew. The

informal settlement of Kintyre has been plagued by numerous social problems, chief

among them is crime and violence. It is felt that squatter communities are the incubator

for this social ill. One reason that can account for this is that the community is often times

inaccessible to police patrols due to it terrain, poor road infrastructure and inadequate

street lighting; this consequently creates a safe haven for criminals. Due to the fact that

some houses within the informal community lacks the adequate space necessary for large

extended families, children more likely to be exposed to sexual activities which may lead

to unwanted pregnancies, rape, carnal abuse and even incest.

Another problem that is associated with the squatter community of Kintyre is economic

issues. This is as a result of the high levels of unemployment within the community

mainly due to the resident’s low literacy levels, resulting in them being unemployable

and unskilled in most instances. A further cause for the economic problems is that

employers at times extend their prejudices to persons living in informal settlements.

A third feature of the Kintyre informal community is that it is prone to environmental

hazards. Because the community is informal certain amenities that go with a formal

community are non-existent such as the regular collection of household waste by the

12

National Solid Waste Management Authority (NSWMA), as well as proper garbage

disposal equipment and site. This therefore forces residents to dispose their waste,

whether human or otherwise inappropriately, thereby increasing their risk to diseases.

The informal community of Kintyre is also vulnerable to natural disasters. This was

evident, during the recent passage of Tropical Storm Gustav, where many houses were

severely damaged as a result of the poor building structure and practices in the

community. Health issues are also cause for concern in the informal community Kintyre.

One example of this is the prevalence of diseases, such as conjunctivitis, cholera, dengue,

leptospirosis, respiratory illnesses, etc. These diseases can be viewed as spill offs from

the environmental issues which surround the community. The number of persons living

in a household is also an issue, as the limited space can be a factor that contributes to the

spreading of diseases. To this end, we hope to establish formal housing solutions for the

squatter community and relocate residents to lands located in ‘Gordon Town Villas’2.

The focus of the project will not be limited to only addressing the infrastructural concerns

of the informal settlement, such as building houses and a community centre, but also to

build capacity, change behaviour, increase environmental and health awareness, as well

as engender a sense of responsibility and responsiveness in community members. This

2 This is the site that the squatter residents will be relocated and their new community built. This community is situated on lands identified by the relevant government agencies as safe for development and has been acquired through this project. It is located just 10 minutes away from the old site from which the residents were relocated

13

will be done by empowering community members, through skill training programmes so

that they can improve their economic status. In addition to this, it is our aim to resocialize

and educate residents in life-long learning skills for through conflict management and

resolution, as well as interpersonal relationship skills.

The project purpose was formulated as a result of the available data and research

conducted which focused on examining the effects of squatting, as data revealed that the

problem contributed to high levels of crime and violence, high levels of unemployment

and a greater level of vulnerability to environment hazards and health issues.

For the success of the project, key stakeholders will include the Urban Development

Corporation (UDC). One of the main roles of the UDC will be to act as the implementing

agency for the infrastructural component (house and community centre building) for the

project. The UDC will be expected to acquiring suitable lands for the relocation of

residents. Another key partner is the Social Development Commission (SDC) which will

conduct training sessions for community members. Other stakeholders, though not

primary, will include the Peace Management Initiative, the Jamaica Environmental Trust,

HEART Trust/NTA, the church as well as other civic groups. These organisations have

all influenced the purpose of the project, therefore whenever difficulties that may arise in

the informal settlement these groups will be called upon to offer solutions, guidance and

best practices.

The purpose of this project is to address several social, economic, environmental and

health problems. Crime and violence is seen as a major problem in the community. This

is expected to be addressed by relocating the residents to an area where there is suitable

14

physical amenities including street lights and proper road networks. This is expected to

improve accessibility by the police through the introduction of the neighbourhood watch,

the augment the Ministry of National Security’s Community Security Initiative (CSI). A

spill of from the increased visibility of the security forces is the creation of a Police

Youth Club. This is expected to foster a positive relationship between the police and

youths, therefore positively impacting the generational cycle of mistrust between adults

and the police. It is anticipated that there will be an improvement in the levels of trust

between both parties. This approach is expected to aid the dismantling of gangs,

elimination of extortion as well as destroying safe haven for criminals.

The project is also expected to realise an increase in employment. The project will

engage residents by improving their levels literacy levels, as well as providing them with

opportunity to sit traditional accreditation exams/programmes. As a result of this school

drop-out rates are anticipated to decrease, thus improving the level of literacy within the

community. The project will also provide skills training opportunities which will allow

residents to gain employment or even create their own business ventures thus increasing

the human capital of the community and indeed the country.

A reduction in the vulnerability to environmental risks is also an expected outcome.

Residents will access formal housing structures which will be better able to withstand

environmental hazards such as hurricanes and flooding. Additionally, the houses will be

built on lands approved by the relevant government agencies, and will be situated at an

approved location with proper amenities such as potable water, proper drainage

infrastructure and garbage disposal sites, thereby reducing the community’s vulnerability.

15

Improving residents’ health and wellness is another area that the project will address.

This will be accomplished by educating residents on the proper disposal of their waste,

thereby reducing their risk of diseases. Female residents particularly, pre-teens and

adolescents and their parents will be introduced to sex education programmes, as this is

in an effort to reduce the prevalence of teenage pregnancies and sexual transmitted

diseases/infections. Programmes in this area will also concentrate on developing a culture

of wellness practices, as the construction of a community centre is expected to host

exercise classes for the residents. Overall the strategies that will be employed are geared

towards improving the resident’s livelihood.

TARGET GROUPS

The target group of this project are the residents of the squatter settlement in Kintyre.

They can be characterised as having low literacy levels as such some residents only

attained primary level education, resulting in the inability of some to read and write. This

makes them unemployed and even unemployable. With this reality the project might

encounter difficulties as it relates training residents. Many households are single headed

households therefore making their economic survival difficult. Moreover, many of the

houses are limited in space, creating a “one room” situation. Children are sometimes

exposed to adult activities, which may lead to adolescent pregnancies, inappropriate

sexual behaviour among children, carnal abuse or even incest. There is also a lack of

respect by residents to authority, therefore indiscipline might hinder the success of the

project due to residents’ “culture”. Another major characterisation is that many of the

16

houses are made of poor building materials and are even located in or along the banks of

the Hope River, thereby increasing their vulnerabilities to natural hazards.

FUNDING SOURCES

Funding to the tune of £1.2M has been received from the Department for International

Development (DFID) for this project over a five year period in order to build fifty (50)

two (2) bedroom housing units, a community centre, salaries for project staff, stipend for

residents who work on project as well as those who participate in training sessions,

purchase of equipment and any other related expenses that the project may incur.

EXTERNAL FACTORS NECESSARY FOR PROJECT TO MEET GOALS AND

ASSUMPTIONS

The main external factors that will contribute to meeting the development priorities

involve technical assistance/support, office space and equipment. In addition to funding

the project, DFID will provide technical assistance/support to build the capacity of

project staff. Equipment will also be necessary as they are needed to ensure the success of

the outcome of the project. Equipment will include office furniture, computers, and motor

vehicles; equipment that will be needed during the construction of the houses and

community centre will be provided by the contractors. Office space for the project team

is necessary as the team needs a headquarter from which all major work will be done.

Capacity building for the residents will also be an additional external factor, as they will

17

be expected to assist in the infrastructural work as well as develop their potential, so that

they can enhance their social and economic upward skills to ensure their upward

mobility.

INDICATORS TO MEASURE WHETER PURPOSE HAS BEEN ACHIEVED

The indicators that will measure whether the purpose of the project has been achieved

include:

• The number of accessible road networks and street lights

• The number of parents trained in parental skills

• The number of persons trained with employable skills

• The number of persons trained in dispute resolution

• The number of persons trained in healthy lifestyle practices

• The number of houses built

18

PROJECT DESCRIPTION

The project seeks to enhance the quality of life by creating housing solutions for the

squatter community of Kintyre, St. Andrew, with the intent of addressing the social,

economic and environmental problems associated with informal housing settlements. It

will also reduce the level of crime and violence in the community. Additionally, the

project will engage the residents in programmes targeted towards increased awareness of

environmental safety practices and that are expected to reduce disease. This will be done

by undertaking approved housing plans that meet the criteria outlined by the Town and

Country Act (building regulations) which stipulates how communities are to be planned

and structured at the municipal level.

Kintyre is a small squatter community with an estimated fifty households that will be

relocated in accordance with the plan of action. Land will be acquired for the

construction of fifty (50) two-bedroom (2) low income houses and the construction of a

community centre.

The main activities for the project will include the construction and improvement of

infrastructure in support of the relocation of the squatter settlement. This includes the

clearing of land for construction and the necessary amenities such as potable water,

sewage treatment systems, etc. Other activities will include the training and counselling

of residents. Technical assistance is expected from the Department for International

Development (DFID), the Urban Development Corporation (UDC) and the Social

Development Commission (SDC). Assistance will also be solicited from other

19

government agencies and non-governmental organisations, as well as the residents

themselves who will be instrumental in the building of the new homes and community.

The involvement of the community is expected enhance cooperation, build capacity to

manage assets when the project managers have departed, as well as to facilitate the

provision of support services in a sustainable manner.

PROJECT METHODOLOGY3

The project will be conducted in five phases over a five year period and will focus on

specific objectives.

YEAR ONE

This phase represents the start of the project and the following activities are expected to

be undertaken:

• Data Collection

The gathering of base-line data which will be used to assess the impact at the end of the

project, as well as to propose solutions to further address conditions affecting residence in

the community. This will be done through surveys, research, site visits, interviews, focus

groups, and other relevant data collection techniques.

3 See chart outlining the phases of the project in the appendix

20

• Stakeholder Analysis & Consultation

Stakeholder analysis and consultation will be conducted in order to inform and gain

consensus and input from those who will be impacted by the project. The residents of the

community as well as other relevant stakeholders will be informed of the project goal and

purpose, and will be invited to make inputs to possibly further enhance the project. It is

anticipated that stakeholders will ‘buy into’ the proposed activity and show their support

by participating and owning the project.

• Capacity Building

This activity will include the following sub-activities:

1. Identification of training needs and resource persons

2. Development of a training curriculum

3. Development of budget, time-line/timetable

4. Development of a selection criteria in order to determine the persons who will be

participating in the project

5. Development of a Monitoring and Evaluation framework

6. Development of a work plan for the project.

YEAR TWO

It is expected that some of the sub-activities identified in year one will be carried over

into the first six months of year two. In the remaining six months the actual project

implementation will begin where focus will be placed on training (skills, counselling,

workshops to reduce environmental vulnerabilities, etc.) the beneficiaries and the start of

21

construction work on the building of houses. It must be noted that the monitoring of the

project will commence at the start of the project and continue throughout all phases.

During the last quarter of year two, it is anticipated that the building of the houses on the

newly acquired land will commence during this period.

YEAR THREE

The participants will continue to receive training following which the beneficiaries of the

community-based component of the project, as well as the vocational areas will submit

their business plans and access funding for their particular area of interest.

Participants in the vocational areas will be sent on work experience after six months of

training. Businesses which have been identified to partner with the project will accept

residents as interns with the possibility of them becoming fulltime employees. This

internship will help the residents utilise their newly acquired skills, as well as increase

their knowledge of their chosen vocational area. This activity will be monitored by an

assigned Field Officer that is attached to the project. Monitoring also continues during

this period. The construction of the houses, as well as the monitoring of the overall

project will also continue during this period. A mid-term evaluation will be undertaken

by an independent consultant to assess the project thus far.

22

YEAR FOUR

Training of the residents as well as the internship continues during this period.

Construction of the houses will also continue, however houses that are completed, will be

handed over to the residents. Monitoring of the project continues.

YEAR FIVE

The completion of all houses is expected at this juncture; they will be handed over to the

residents. It is expected that during the second quarter of the year work on the

construction of the community centre will begin, and is expected to be completed in time

for the hand-over of the final batch of houses. An end of term project evaluation will be

done in order to assess the impact of the project on the lives of the residents of Kintyre,

as well as all the stakeholders involved in the project. The project outputs will also be

assessed in relation to the outcomes; this will be done through a SWOT analysis. In

addition, a network of community support will be established and additional funding will

be sought for the continued existence of the project, as well as a possible replication in

other communities across Jamaica.

PROJECT SUSTAINABLITY

Based on the findings of the end of term evaluation by the independent consultant, a plan

would be prepared and implemented to addresses the long term sustainability of the

project. The proposal is that members of the community who participated in the

23

developmental component will form a cooperative to manage the project once the project

team has left, in order to benefit and improve the existing infrastructure, technology,

skills and training acquired, as well as to qualify for additional funding from DFID or any

other donor agency. It is also anticipated that the residents will form a community

network to share information and experiences as well as to lobby government for support

sustain the project in their area, as well as assist in replicating their experiences in other

communities.

PROJECT TEAM

The project will comprised of a Project Manager, who will be required to provide

management services for all aspects of the implementation of the project. The Project

Manager will head the project team which will be dedicated to this project in Kintyre.

The team will also include: Assistant Project Manager, Office Manager/ Project

Accountant, Executive Assistant, Monitoring & Evaluation Specialist, Field Officers and

Office Assistant. The Consultant will be external to the group and will only be engaged

when the need arises.

The following table outlines the functions of the proposed positions:

TEAM MEMBER MAIN FUNCTIONS

Project Manager • Manage Project

• Guide the team members to achieve the desired results

• Monitor performance targets

24

TEAM MEMBER MAIN FUNCTIONS

• Act as a liaison between the Project and Donor Agencies,

the community and other relevant stakeholders

• Obtain consensus between all stakeholders

• Implement recommendations

Assistant Project Manager • Will have direct responsibility for beneficiaries’ relations

and benefits.

• Supervise the work of the Field Officers

• Conduct continuous research

• Develop training plan for the participants

Office Manager/ Project

Accountant

• Manage Office

• Responsible for maintenance of office equipment

• Procurement of goods and services

• Financial Management

• Responsible for payables and receivables

Executive Assistant • Provide administrative support to the Team members

• File and retrieve project correspondence and documents

• Arrange meetings

• Take minutes of meetings

Monitoring & Evaluation

Specialist

• Responsible for ensuring that donor guidelines are

adhered to

• Monitoring of project

25

TEAM MEMBER MAIN FUNCTIONS

• Evaluation of the project

• Lead half yearly reviews

Field Officers • Monitor progress of project

• Work with Deputy Project Manager to develop training

plan for the participants

Consultant • To provide specialist expertise as the need arises

Office Assistant • Responsible for the cleaning of office

• Doing errands related to the project

BUDGET

The details of the proposed budget are as follows:

DESCRIPTION

DFID FUNDS4

£ $

Capital for construction work 450,000 58,500,000

Office Set Up (Furniture &Equipment) 520,000/

4 Exchange rate £1.00 to JA$130.00

26

DESCRIPTION

DFID FUNDS4

£ $

/Rental 4,000/16,000

2,080,000

Salary and Benefits 390,000 50,700,000

Security 60,000 7,800,000

Administrative Costs 20,000 2,600,000

Utilities 20,000 2,600,000

Training 80,000 10,400,000

Consultancy 20,000 2,600,000

Subtotal 1,060,000 137,800,000

Contingencies (10%) 120,000 15,600,000

TOTAL 1,180,000 153,400,000

27

IMPLEMENTATION MONITORING &

EVALUATION

Local community participation has been encouraged in all phases of project development

to ensure that the project will be community-led and community-driven, and based on the

community’s recognised priorities and needs. In this regard, Phase one (1) of the project

includes a validation and analysis of priority issues through stakeholder participation

based on causality analysis as outlined in the problem tree and the development of

feasible solutions demonstrated in the objective tree. In collaboration with community

stakeholders, available human resources have been identified and commitment garnered

for participation in project management and construction as the need may be.

Implementing partners will agree on:

• A statement of the agreed arrangement for project management and

implementation as well as monitoring and evaluation arrangements for the

project;

• A discussion of data availability, reliability and timeliness, and any action

envisaged for building national monitoring and evaluation capacity; and

Wherever possible, monitoring and evaluation efforts will build on existing mechanisms

and processes within the national context. If effective national results-based monitoring

and evaluation systems are already operational or are being fully supported by other

donors, for example, in the context of Sector-wide approaches (SWAps) and Poverty

Reduction Strategy Paper (PRSP). DFID is expected to avail itself of these systems as

28

feasible, to avoid creating a parallel system and increased administrative burden. While

Jamaica has not finalized a PRSP (World Bank 2008), further consultation is currently

being undertaken with the government to determine the functionality of these systems

and it is expected that this partnership will help facilitate or encourage the capacity of the

government coordinating through the UDC to develop such systems.

Project Monitoring will be a continual management function carried out by all

implementing partners and thereby aims to track programmed activities and strategies to

identify progress towards the achievement of results. Coalition for Better Communities

(CBC) will therefore be able to gauge actual performance against planned results through

a system of early alerts to possible problems in implementation. Through iterative

monitoring, the programme manager will also have opportunities to seek clarification,

identify needed areas of support and other problems as they arise.

In contrast to monitoring, evaluation will be an in-depth, periodic activity that attempts to

systematically and objectively assess the relevance, performance and results of ongoing

and completed activities. Project evaluation will highlight relevance, efficiency,

effectiveness and sustainability of programme interventions as well as make

recommendations for more suitable strategies if required. This is particularly crucial in

social interventions, in which training and other behaviour change mechanisms are being

implemented, to tell if the project is meeting the stated objectives of, among others, to

reduce crime and violence, improve living conditions, through the provision of better

opportunities to the members of the squatter community in Kintyre. A medium and end

29

of term evaluation will be conducted by an independent consultant who has not

participated in the design or implementation of the project to ensure unbiased results.

Monitoring and evaluation activities will therefore complement each other throughout

the lifecycle of the project. Monitoring will assist in identifying problems throughout

the implementation and or management of activities, while evaluations are expected to

indicate how to make monitoring activities more focused, in order to achieve expected

results. As the project progresses, monitoring activities will be used to verify whether

recommendations made during evaluations are been implemented in a timely manner.

The project strategies/activities and indicators will track progress and gauge

achievement of results based on realistic targets and benchmarks5. The team will also

broker an agreement on how data will be collected and how often as well as assign

management responsibilities for monitoring and evaluation activities as well as the

number and timing of evaluations.

Other relevant indictors will include:

• The degree of community involvement measured by the percentage (%) of

persons from the community included in all levels of project development,

implementation, monitoring and evaluation.

• Average time taken to construct a single house – this time and progress

indicator gives an idea of how long each should take and provides some basis

for evaluating if the project is on track

5 See log frame in appendix

30

• Average variation in cost indicators – facilitates financial monitoring by

supervising the relationship between engineers’ and contractors’ estimates and

final cost of the contract.

• Quality of output indicator – the number of times work carried out by the

contractor is rejected.

Both Qualitative and Quantitative indicators will be utilized. The use of qualitative

information will allow for an inclusive monitoring process by seeking information on

community members’ perception of his or her satisfaction/dissatisfaction with the

ongoing results and progress of implementation. The information garnered will be

quantified through the use of ranking scales. Indicators will also map quality of process

(are the objective procedures being followed) and progress (are the procedures

occurring as planned). This information will be used to assess outcomes and efficiency

that may lead to amendments in the design of implementation if necessary.

Scope of Monitoring and Evaluation Activities:

ACTIVITY TIME PERSON/TEAM

RESPONSIBLE

Three surveys for Data Collection

1. Initial survey will determine baseline data prior to intervention. 2. A mid-term survey will be conducted to determine if interventions have had the expected impact. 3. An end of term (final) survey will provide end-line data to assist in determining

An independent consultant will be responsible for data collection throughout the course of the project. Adopting this approach encourages relationship building between community members and the team. It is hoped that this will make community members more willing to

31

ACTIVITY TIME PERSON/TEAM

RESPONSIBLE

overall impact and final lessons learnt and expectations for further implementation.

participate in research and more comfortable in communicating opinions on progress

Two Evaluations One mid-term project evaluation and a second end of term (final) project evaluation to determine achievement of results.

The Independent

Consultant that undertakes

the first evaluation will be

contracted to conduct the

final project evaluation for

easy comparison of

progress and trends.

Field Visits / Monitoring Once every quarter in the first two years. Once every six months thereafter. These visits may also take place unannounced as the case may determine.

Project Field Officers under the guidance of the Project Manager and in collaboration with implementing partners

Annual Progress Reports One every year except the final year where the report will take the form of an overall progress report outlining lessons learnt, results achieved and a synopsis of the impact on the community

Each implementing partner will submit a quarterly progress report for submission to the Project Executive Unit6. The Unit will compile these reports into a final annual report which will be submitted DFID.

Submission of Final Report Submitted in the last quarter of the project

Submitted by the Project Manager after consultation with all stakeholders. This report will document best practices and lessons learnt and will clearly report on the feasibility for replication of a similar project

6 This refers to the Coalition for Better Communities

32

ACTIVITY TIME PERSON/TEAM

RESPONSIBLE

Infrastructure Frequent and sporadic reviews of progress

Under the supervision of the UDC, the Architects will be the main project administrators and will have oversight responsibility for the contactors to ensure that building takes place according to blueprint and time allotted

Training Suitable persons from the community have been identified and consented to be trained as trainers in conflict management, skills training and parenting, environmental sustainability, and healthy lifestyles seminars over a period of three years beginning in the second year.

The Social Development Commission in collaboration with the Department for International Development will host a series of training sessions in which these trainers will be trained to facilitate continuous learning in the community when the project comes to a close. It is expected that this will augur well for future sustainability.

EXTERNAL FACTORS, CONSTRAINTS & OPPORTUNITIES DURING

IMPLEMENTATION

Community members will participate in the development of the training plan and as such

it is anticipated that this will foster significant buy-in during the implementation stages.

Nevertheless, other obligations of community residents such as the maintenance of small

corner shops and stalls as well the care for dependent family members as well as general

apathy may be a deterrent to some people’s attendance to training sessions. However the

project team will as far as possible offer flexible training programmes and times in an

33

effort to facilitate these individuals which are predominantly women. Furthermore the

relocation exercise will inevitably displace certain small shop-keepers in the short run as

it may take some time to reopen home businesses in the formal settlement.

A built in requirement for contractors will be to provide on the job training for interested

persons in the community for work in various areas of construction from site

management to masonry. This initiative will be accredited by the HEART Trust which

will certify participation and completion of the training course. This will provide trade

skills to these persons in their hope of securing employment and

internship/apprenticeship during the project cycle and when it ends.

It is hoped that work will progress unhindered by gang violence between Kintyre and

neighbouring communities. It is hoped that training in conflict resolution and conflict

management as well as the opportunities will help to improve relations between

neighbouring communities and the formal settlement. Given the ever present threat of

the upsurge of violence between warring factions, it is hoped that the maintenance of a

stable police presence and improvements in community policing through the construction

of the community and resource centre such as seen in the Grants Pen community in St.

Andrew will be a permanent fixture to improve relations with the police and within and

between communities.

34

PROJECT IMPACT

The individuals/organisations that will be affected by the project are:

PRIMARY STAKEHOLDERS

Community members, as they are the persons that will be directly impacted by the project

as they will be relocated. It is expected that they will receive improved living conditions.

They will also be expected to make adjustments to their lifestyles and social thinking and

behaviour.

The Department for International Development (DFID) is also a critical stakeholder as it

is providing the money and technical assistance/expertise that are a necessity to execute

the project. As such DFID will be interested in ensuring that they receive value for

money and that the goals and purposes outlined in the log frame7 are met.

The Urban Development Cooperation (UDC) and Social Development Cooperation

(SDC) are also primary stakeholders for this project. They will lend their technical

expertises in the implementation of the project, and will be interested in the realisation of

the goals.

Coalition for Better Communities (CBC), the implementing Non-Governmental

Organisation (NGO) for the project is also a critical stakeholder. Based on the

experiences, successes, and possible shortcomings of this project, it will inform decisions

on the way forward for future projects, as well as enhance the capacity of the team

members.

7 A copy of the log frame can be viewed in the appendix

35

SECONDARY STAKEHOLDERS

The wider community of Kintyre St. Andrew and Gordon Town area to which the

residents will be relocated, will be impacted by the results and successes achieved by the

implementation of the project. Some examples of these are the proposed reduction in

crime and violence, as well as the skills gained by the squatter residents due to their

involvement in training courses. Additionally, the Jamaica Constabulary Force is

expected to be positively impacted by a possible reduction in crime and violence among

the residents. It is imperative that the Police play their role in re-establishing trust

amongst the community members. Their assistance will also be sought, in

implementation of community programmes, as they would be included in the behaviour

change programme that will be implemented for the community, as well as assisting in

counselling sessions.

Schools in the area are expected to be positively affected by the behavioural changes

exhibited by the students, whose families have benefited from the counselling and

improved living conditions. The school community would also be asked to partner in the

project through the SDC, by rendering assistance where necessary. This could be through

making some of the schools’ resources available for training courses and workshops.

Civic groups will also be asked to partner with the project. The assistance of the church

will be solicited, through counselling for the residents, as well as making the church hall

available for training sessions/workshops.

36

CRITERIA TO MEASURE IMPACT

The criteria which will be used to measure the impact of the project are the Performance

Indicators. The proposed impacts are:

• Crime and violence reduced

• Social, economic, health and environmental problems in the Kintyre

Community addressed.

• Living conditions for squatter residents in the Kintyre Community

improved.

The Performance Indicators are as follows:

• The percentage reduction in crime and violence in the Kintyre Community,

which will impact on the wider community.

• The percentage increase in the community members’ awareness of

environmental safety practises.

• The percentage increase in employment amongst the Kintyre community

members.

• The percentage reduction in communicable diseases within the Kintyre as well

as neighbouring communities.

• The total number of formal houses/structure built.

• The total number of persons trained in their relevant fields, and by extension,

their employability.

• The total number of persons who have experienced an improvement in their

standard of living and health.

37

• The total number of persons who receive employment or create their own

businesses.

• The percentage increase in the literacy rate in the Kintyre community.

• The number of persons trained in dispute/conflict resolution/management.

• The number of persons trained in healthy lifestyle practices.

• The number of houses built for the Kintyre community members.

COSTS & BENEFITS FOR PRIMARY & SECONDARY STAKEHOLDERS

The proposed costs and benefits of the project for the primary and secondary stakeholders

for the project will vary. DFID’s contribution to the project is in the amount of £1.2

million, in addition to lending technical assistance/expertise. The donors will benefit

from meeting their goals, by aiding in improving the standard of living and quality of life

for people in the Caribbean, but will lose if the stated objectives of the project are not

realised.

Urban Development Corporation and Social Development Commission will not be

expected to offer monetary contributions to the project, as they are expected to contribute

by offering their expertise and best practises in the achievement of the project’s stated

goals/objectives. They too will benefit from the successes of the project, which is to

improve living conditions for residents of the informal settlement in Kintyre, address

social, economic, health and environmental problems, and reduce crime and violence. In

38

achieving these stated objectives it is expected that the people will not only be

empowered, but also given a fresh, comfortable and renewed start in life.

Coalition for Better Communities will assist in facilitating the process by providing

human resource and expertise. The organisation will benefit through the achievement of

the outlined goals, particularly through assisting in improving living conditions for the

residents. They will be provided with safer, more hygienic and comfortable homes, as

well as training which is expected to increase their chances of attaining employment.

Additionally the lessons learnt and experiences gained from the success and possible

shortcomings of the project, will increase CBC’s capabilities and expertises for future

endeavours.

The residents themselves will be expected to participate in monitoring the project and

commit to the success of the project from inception to completion. Their input as it

relates to ideas and human resources (labour) will be called upon. The residents of the

informal settlement are expected to benefit most from the project, as they will not only

gain from an improvement in their living conditions, but will be empowered with skills

and ‘the know how’ to sustain their new way of life. This is expected to improve the

morale of community members.

In the same vein, the wider society, which is seen as a secondary stakeholder, will be

expected to cooperate where possible in facilitating the process. They will of course be

able to benefit from the skills gained by the trained persons in the community, and

39

participate where possible in employing these persons. The society will also benefit from

the reduction in crime and violence emanating from Kintyre squatter residents.

Other secondary stakeholders such as civic groups, particularly those that will be asked to

participate in the project, will be called upon to lend their resources, such as their

facilities for training and workshops. They will also be called on to offer personnel for

counselling and guidance to residents, as well assist in finding jobs for the trained

residents. These groups will benefit from assisting in the realisation of the goal to

improve people’s lives. Additionally schools in the area will be asked to allow the use of

their facilities for training and workshops. They are expected to benefit from seeing the

improvement in the residents’ outlook on life, their anticipated improved attitude towards

children in the community, as well as an improved attitude and respect towards the value

of education.

The Police will also be called on to lend their manpower and support in partnering with

the other stakeholders, in maintaining order and discipline among the residents and their

newly created community. Through the Community Security Initiative (CSI) an enhanced

relationship between them and the residents is expected, as the police will be called on to

offer counselling and guidance for residents. The Police will be positively impacted by

the reduction in crime and violence as well as the increased discipline among the

community members, which would possibly translate into increased trust between the

people and the police.

The above impacts are expected to translate into:

• A specific percentage reduction in crime and violence by year three of the project.

40

• It is expected that the Kintyre squatter residents will begin to realise an

improvement in their living conditions at the end of the project cycle, which is

five years, when the new and improved ‘Gordon Town Villas’ is fully established

and the community members have settled in.

• It is expected that there will be improvements in the social, economic, health and

environmental problems in the Kintyre squatter community as early as the second

quarter of year two of the project. This is expected to progress steadily throughout

the life cycle of the project, as persons become employable and are exposed to

counselling/training in the relevant areas.

While it is generally anticipated that there will be more winners than losers in this

project, it is however prudent that the project captures all possible impacts. As such the

project team believes that the persons that may stand to lose from this project are the

members of the surrounding communities where the ‘Gordon Town Villas’ will be

developed, as the road surfaces may be damaged due to wear and tear from the heavy

duty building equipment and vehicles. The project team will ensure that water trucks are

brought in regularly to wet the road surfaces, therefore reducing the dust nuisance that

may arise, as well as undertake the necessary road repairs. Additionally, these

communities may be affected by the noise from the construction of the ‘Gordon Town

Villas’, as noise levels may be a problem during construction. The project team will

therefore operate under the law, and limit work to five days per week during the specified

timeframe as dictated by the Kingston and St. Andrew Corporation (KSAC) as prescribed

under the Town and Country Planning Act.

41

The project team also anticipates that municipal entity, the National Solid Waste

Management Authority (NSWMA) as well the formal Kintyre community will be

affected by the relocation of the squatter residents to their new location at ‘Gordon Town

Villas’. The waste/garbage that will be left behind at the former site might add pressure

on the NSWMA’s ability to remove the waste on time, thus posing possible health risks

for residents left behind in the formal Kintyre community. The project team will therefore

work with the NSWMA to ensure that once the squatter residents have been removed

from their original location, efforts will be made to clear all debris in a short space of

time that will not impact on the health of other persons in Kintyre.

42

APPENDIX

43

LOG FRAME FOR DFID FUNDED PROJECT

Country/Region: Jamaica/Caribbean Project Number:

JM-1234

Project Title:

Creating Formal Housing Solutions for the

Squatter Community in Kintyre, St.

Andrew

Project Budget:

₤1.2 million

Project Manager:

Nicole Hayles McGowan

Implementing Organisation:

Coalition for Better Communities

Project Team Members: Thandiwe Foote

Margaret Henry

Ella Ghartey

Tamica Martin

Frank Smith

Partner Organisations : Urban Development Corporation and

Social Development Commission

Project Timeline: 5yrs

44

NARRATIVE / SUMMARY OBJECTIVES OBJECTIVELY VERIFIABLE

INDICATORS

ASSUMPTIONS / RISKS

Project Goal Impact Performance Indicators Assumptions/Risk Indicators

To create formal housing solutions for the

squatter community of Kintyre, St.

Andrew

• Crime and violence reduced

• Social, economic, health and environmental problems addressed

• Living conditions for squatter residents in the Kintyre Community improved

• % reduction in crime and violence

• % increase in awareness of environmental safety practices

• % increase in employment

• % reduction in communicable diseases

• # of formal houses/structures built

Assumptions

• Squatter residents will participate in the creation of formal housing solutions

• National and International support is received for the continuation of the project

• Greater community involvement and civic pride

Risks

• Squatter residents may be reluctant or uncooperative in formalising settlement

• Theft of physical project resources

• Discontent among the residents of the formal community of Kintyre

Project Purpose Outcomes

To address social, economic and

environmental problems associated with

informal housing settlements

• Reduction in Crime

• Increase employment

• Reduce vulnerability to environmental hazards

• Create a safer and more organised community

• Improve health and wellness practices

• General improvement in living conditions

45

Resources / Inputs Outputs Performance Indicators Assumptions/Risk Indicators

DFID financial contribution of ₤1.2million

for input and support over 5yrs. Specific

resources will include but not limited to:

• Technical Assistance

• Equipment

• Capacity Building

• Increased/improved capacity of project personnel

• Construction of a community centre that offers skills training and recreation facility for community members

• Improved living conditions

• Generate employment opportunities

• Increase human capital (increased literacy and employability)

• # of persons trained

• # of persons with better living conditions and improved health

• # of persons who receive employment or create their own businesses

• # of persons literate

Assumptions

• Participation of government and civic society in the training of residents

• Squatter residents secure jobs in the formal employment sector and or create their own businesses

• Improve relationship between the Police and residents Risks

• Resources wasted because of resident’s lack of interest in training

Activities Performance Indicators

• Improve physical infrastructure (Road Networks and Street Lighting)

• Implement parental seminars

• Provide skills training and facilities

• Provide training in dispute/conflict resolution/management

• Implement health and family life education programme to encourage behavioural changes

• Train residents to be able to partner in the construction of formal housing solutions

• # of accessible road networks and street lights

• # of parents trained in improved parental skills

• # of persons trained with employable skills

• # of persons trained in dispute/conflict resolution/management

• # of persons trained in healthy lifestyle practices

• # of houses built

46

PROBLEM TREE

47

OBJECTIVE TREE

48

PHASES OF THE PROJECT

0 10000 20000 30000 40000 50000 60000 70000 80000 90000

Data Collection

Stakeholder Analysis

Training

Workshops

Construction of Houses

Monitoring

Mid-TermEvaluation

Work Experince for Residents

Hand over of completed

houses

End of Term Evaluation

Construction of Community

Centre

TASKS

TIMELINE

START DATE

END DATE

REFRENCES

1. Agree, Sam. 2000. Promoting Good Governance: Principles, Practices and Perspectives. London: Commonwealth Secretariat.

2. Department for International Development. 2008. Public Private Partnerships in

Infrastructure: A brief overview of DFID Programmes of Support. http://www.dfid.gov.uk/pubs/files/pppinfrastructureoct04.pdf (Accessed October 24, 2008).

3. Department for International Development. 2008. Ready to Grow: Helping the Caribbean

to emerge as a global partner. St. Michael: DFID.

4. http://www.worldbank.org

5. The Gleaner. 2008. Kintyre residents helplessly await disaster. July 20, 2008.

Kingston: The Gleaner.

6. The Gleaner. 2008. Informal settlements aid crime in Jamaica. October 28, 2008.

Kingston: The Gleaner.

7. Tindigarukayo, Jimmy. 2006. “Challenges in Housing the Poor in Jamaica”. In Social

Housing in the Caribbean, June 20, 2006. Kingston: National Housing Trust.

8. United Nations Development Programme.2008. Public-Private Partnerships for the

Urban Environment. http://ppue.undp.2margart.com/en/19.htm (Accessed October 15, 2008).

9. United Nations Population Fund. 2004. Policies and Procedures: Programme, Country

Programme Monitoring and Evaluation. http://docs.unfpa.org/dsweb/View/Collection-226 (Accessed October 16, 2008).

1