Evaluation of Guatemalan PL-480 programs

480 Title II program in Guatemala implemented by CARE and Catholic Relief Service (CRS). External evaluation, the first performed since 1971, covers the period through 3/88. The program provided $3,885,000 worth of food during FY87 and is expected to distribute a like amount during FY88. The CARE program involves: (1) monthly Maternal/Child Health (MCH) food distribution to 270,000 beneficiaries at 630 sites, (2) Food for Work (FFW) projects in Guatemala City and rural areas, and (3) Other Child Feeding (OCF) for 16,500 beneficiaries in 107 orphanages. CRS, through Caritas, distributes food in: (1) an MCH program for 68,000 beneficiaries at 327 sites, (2) an FFW program for 2,400 workers, and (3) an OCF component serving 3,600 recipients. Neither CARE nor CRS have succeeded in tying MCH food distribution to development activities, although both have incorporated health and nutritional activities with feeding to some degree. Both agencies recognize that their MCH projects may have encouraged dependence on food aid. It is recommended that MCH activities target infants under 2 years (the age when malnutrition is most serious) and that accompanying services to reduce infant mortality and malnutrition (e.g., oral rehydration, immunization, and nutrition education) be strengthened. Under the urban FFW project, CARE and the Municipality of Guatemala City work with community groups to build drainage, retaining walls, and other construction, activities which have benefited workers and have helped institutionalize responsible and democratic municipal response. On the negative side, the project needs to introduce health and maintenance education activities and improve food distribution; currently, workers must pick up food at a distant warehouse. An agroforestry FFW project has also been impressive, having increased crop yields by 25% or more, while encouraging local investment in terracing, tree planting, etc. A more modest CRS/Caritas rural FFW project encouraging the use of compost piles has also increased crop yields, and has led to the establishment of sustainable community nurseries and reforested areas. CRS and Caritas need to help participating community groups use the temporary windfall income provided by food distribution for community development. Estimated 1988 food donations to Guatemala are massive - 380,000 tons (of which Title II will contribute 24,560 tons). Nonetheless, macroeconomic disincentive effects are negligible and continued A.I.D. support is justified by current nutritional status and political/economic conditions. Both OCF and MCH help to save lives, and neither should be reduced without a year's notice. However, Title II aid should not be increased until the two PVO's integrate food distribution more effectively with development and have devised phase-out plans for selected communities. The Mission should support such plans by making local currency available for FFW and other activities likely to promote increased food production and/or income. Finally, USAID/G should establish a food office to help monitor and coordinate U.S. and international food aid and should address duplication of activities caused by a Section 416 Project, implemented by World SHARE, Inc. SHARE should be invited to serve as an umbrella organization for managing small distributions, provided that current duplicative distributions are terminated.