FINAL PROGRAM RESULTS REPORT: PROMOTING RISK 
AND EMERGENCY PREPAREDNESS (PREP)
JUNE 2017 – NOVEMBER 2018
November 30, 2018
FINAL PROGRAM RESULTS REPORT: 
PROMOTING RISK AND EMERGENCY 
PREPAREDNESS (PREP)
JUNE 1, 2017 – NOVEMBER 30, 2018
AGREEMENT NUMBER: AID-OFDA-G-17-00086
CHIEF OF PARTY: MARTIN ROMAN
EVALUATOR: SERGIO URIOSTE, INDEPENDENT CONSULTANT
PHOTOGRAPH CREDITS: ACDI/VOCA
DISCLAIMER:
The opinions expressed in this document are those of the author and do not necessarily represent the views of 
the United States Agency for International Development or those of ACDI/VOCA.
EVALUATOR’S THANKS: 
The evaluator would like to recognize the efforts of PREP program staff, who provided support and time for the 
development of his activities. The evaluator also thanks the program beneficiaries, local leaders, and members of 
the Municipal Council for Risk Management and Reduction (MCRMR) of Caazapá and Nanawa, and the 
community risk management teams (CRMTs), for offering their time and knowledge to discuss evaluation topics.
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TABLE OF CONTENTS
Executive Summary ..........................................................................................................................................1
Introduction .......................................................................................................................................................3
PROBLEM STATEMENT .......................................................................................................................3
PROGRAM BACKGROUND ..............................................................................................................3
PROGRAM RELEVANCE AND PERTINENCE ...........................................................................4
Qualitative Assessment of Activities............................................................................................................5
SECTOR: RISK MANAGEMENT POLICY AND PRACTICE ...............................................5
OUTCOME 1 – INFORMATION SYSTEMS IMPROVED ...................................................5
OUTCOME 2 – DISASTER RISK MANAGEMENT ORGANIZATIONS
STRENGTHENED ...............................................................................................................................7
SECTOR: AGRICULTURE AND FOOD SECURITY ............................................................ 12
OUTCOME 3 – SUSTAINABLE FOOD PRODUCTION INCREASED..................... 12
Quantitative Analysis of Indicators............................................................................................................ 19
Indicator 1: Number of agroclimatic risk and socioeconomic vulnerability maps developed
.................................................................................................................................................................. 19
Indicator 2: Number of people trained in disaster preparedness, mitigation, and 
management........................................................................................................................................... 20
Indicator 3: Number of people passing final exams or receiving certificates.......................... 20
Indicator 4: Percentage of people trained who retain skills and knowledge after two 
months.................................................................................................................................................... 20
Indicator 5: Number of people benefiting from seed systems/agricultural input activities.. 21
Indicator 6: Number of project households with increased access to targeted vegetables 
produced................................................................................................................................................. 21
Indicator 7: Number of floating gardens implemented in the target area as a result of 
program technical assistance.............................................................................................................. 21
Conclusions and Recommendatins............................................................................................................ 23
Annexes........................................................................................................................................................... 25
ANNEX A. EVALUATION METHODOLOGY................................................................................. 25
ANNEX B. QUESTIONNAIRE TO EXPERTS ................................................................................... 29
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ACRONYMS
CRMT Community Risk Management Team
DANA Damage Assessment and Need Analysis
DBRMR Departmental Board for Risk Management and Reduction of Caazapá
DEAG Agrarian Extension Directorate
DMH National Hydrology and Meteorology Directorate
DRR Disaster Risk Reduction
EWS Early Warning System
FAB First Aid Brigade
FAO Food and Agriculture Organization (of the United Nations)
FCA/UNA Faculty of Agronomy in the National University of Asunción
FCS Food Consumption Score
FFRB Forest Fire Response Brigade
GOP Government of Paraguay
HFIAS Household Food Insecurity and Access Scale
HHS Household Hunger Scale
IICA Inter-American Institute for Cooperation on Agriculture
INFONA National Forestry Institute
ISS Integrated Sensor Suite
LOP Life of Project
M&E Monitoring and Evaluation
MCRMR Municipal Council for Risk Management and Reduction
NPDRMR National Policy on Disaster Risk Management and Reduction
OFDA Office of U.S. Foreign Disaster Assistance
PREP Promoting Risk and Emergency Preparedness Program
RM Risk Management
SEN National Emergency Secretariat
SENACSA National Animal Health and Quality Service
SENAMHI National Meteorological Service of Peru
SSAEC Secretariat of Social Action and Emergency of Caazapá
ToR Terms of Reference
MAG/RMU Risk Management Unit of the Ministry of Agriculture
USAID United States Agency for International Development
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EXECUTIVE SUMMARY
The purpose of the final program results report is to assess the impact and measure the results and 
indicators of the Promoting Risk and Emergency Preparedness (PREP) program, implemented by 
ACDI/VOCA and funded by the United States Agency for International Development’s Office of Foreign 
Disaster Assistance (USAID/OFDA).
The evaluator’s opinions expressed in this document are supported by documental and testimonial 
evidence provided by local authorities and beneficiary populations in the program’s intervention area, as 
well as ACDI/VOCA Paraguay staff. The evaluator conducted a document review to provide background 
and a logic framework for the evaluation, held consultative meetings with key stakeholders, and 
conducted focus group discussions and surveys with beneficiaries.
The primary objective of the PREP program was to increase the ability of the Government of Paraguay 
(GOP) and vulnerable households in program intervention areas to prepare for, mitigate, and adapt to 
shocks and stresses caused by natural hazards using structural and nonstructural strategies that can be 
replicated in other communities.
Based on quantitative and qualitative evidence, the evaluator concludes that PREP has met this objective. 
Specifically, the program successfully:
▪ Strengthened the GOP’s multilevel linkages and abilities for effective disaster risk 
reduction (DRR) preparedness and response at all levels. GOP institutions are now in 
better condition to manage risks and respond to disasters in the target regions.
▪ Strengthened vertical linkages among DRR institutions, in accordance with the 
National Policy on Disaster Risk Management and Reduction (NPDRMR).
▪ Developed tools, procedures, guidelines, protocols, and best practices that have been 
made available to the GOP and stakeholders and can be replicated in other regions in 
Paraguay.
▪ Improved knowledge and understanding of risk management options and strengthened 
monitoring capacities of risk management initiatives.
▪ Contributed to strengthening the ability of vulnerable households to prepare for, 
mitigate, and adapt to shocks and stresses caused by natural hazards through a people￾centered, multisector approach. In addition, PREP created and incorporated a culture 
of prevention and resilience to natural disaster events in communities and families.
▪ Contributed to increased sustainable food production for households vulnerable to 
cyclical climatic events in target intervention areas, decreasing the probability of an 
acute decline in food access or consumption due to weather disturbances through a 
prevention and mitigation strategy.
PREP provided national government and local actors with tools and capacities to proactively monitor 
and manage risks, and it built capacity to strengthen national and local resilience to disaster risks. At the 
national level, PREP strengthened DRR governance systems by improving information systems (e.g. 
development of agroclimatic risk and socioeconomic vulnerability maps, national water balance model). 
At the local level, PREP strengthened institutional capacities through workshops, technical assistance, 
and in-kind grants for recently formed Municipal Councils for Risk Management and Reduction 
(MCRMRs) and Community Risk Management Teams (CRMTs), volunteers, and other stakeholders. The 
workshops covered relevant topics such as: MCRMR and CRMT creation and capacity building; DRR 
concepts and DRR tool application for mainstreaming in development programs, plans, and policies;
early recovery; emergency response strategic plans; and contingency planning. PREP also implemented 
local capacity development to increase sustainable food production for households vulnerable to cyclical 
climatic events.
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Key takeaways and lessons learned from program implementation include:
• To avoid duplication of efforts, it is effective to coordinate stakeholders on an inter-institutional
platform targeted at improving information systems and identifying synergies between sectors.
• Positive program results can leverage funding from public and private donors for additional
activities beyond the scope of the program, such as the World Banks’s complementary funding
for the water balance model and risk map development.
• Under an institutional framework like the CRMT, organized communities can and do play a key
role in reducing the impact of, preparing for, and responding to disasters.
• Providing DRR training to CRMTs created a new language to proactively manage situations
before, during, and after a disaster and helped them understand DRR and the terminology used
in relation to risk, vulnerability, and hazards.
• The participation of CRMT representatives in MCRMRs provides an opportunity for vulnerable
communities to represent their concerns at a municipal level and play a role in developing
preventive approaches, instead of solely receiving top-down emergency response support.
• Diversified and secure access to food can be achieved through horticulture plots at the 
household level. The year-round availability of vegetables, such as lettuce, tomatoes, cabbage, 
bell peppers, and beets, helped provide new sources of vitamins, minerals, and protein.
The following recommendations aim to contribute to the sustainability of PREP activities:
• The National Emergency Secretariat (SEN) and local governments should schedule new training
processes and allocate resources to reinforce newly acquired knowledge, support the newly
formed institutional structures, and create long-lasting changes in practices and attitudes within
MCRMRs and CRMTs.
• Municipal and departmental
authorities must follow up by
providing political support to
MCRMRs and Departmental
Board for Risk Management and
Reduction (DBRMR) to
maintain, increase, and expand
the activities and goods
generated by PREP.
• Future DRR programming
should build on this program’s
successful development of
structural and non-structural
solutions to address DRR
management.
Beneficiaries from Caracarai proudly showing their vegetable garden in full 
production stage.
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INTRODUCTION
The objective of PREP’s final evaluation is to measure final quantitative and qualitative results and 
indicators and to provide conclusions and recommendations.
To achieve the objective, this evaluation aims to respond the following questions:
• Have PREP’s activities contributed to strengthening the ability of the GOP and vulnerable 
households to prepare, mitigate, and adapt to shocks and stresses caused by natural hazards 
using structural and nonstructural strategies?
• Can PREP’s strategy be replicated in other communities?
• Have the tools and capacities provided by PREP helped communities, local governments, and 
organizations to proactively monitor and manage risks?
• Has PREP contributed to increasing sustainable food production for households vulnerable to 
cyclical climatic events?
The evaluator conducted surveys, in-depth interviews, and focus group discussions with a total of 221
persons, including local government authorities, community leaders, and beneficiaries in the intervention 
areas to collect quantitative and qualitative data to answer the evaluation’s questions. For detailed 
information regarding the evaluation methodological design and application, refer to Annex A.
PROBLEM STATEMENT
Paraguay has experienced severe climate variances in recent years, testing the GOP’s ability to manage 
and mitigate disaster risks and vulnerable households’ ability to manage shocks and stresses caused by 
natural hazards. According to the World Bank report “Agricultural Sector Risk Analysis for Paraguay 
(2018)”, poverty in Paraguay is directly linked to climatic adverse events with catastrophic impacts for 
small producers, due to their low capacity to manage agricultural risk. Frosts, droughts, and heavy rains, 
among other events, affect smallholders’ subsistence due to their insignificant level of participation in the 
different agricultural value chains, and the fact that these adverse climatic events often force them to 
leave their crops and households to evacuate to safer areas. In conclusion, smallholder farmers often 
absorb the greatest weather-induced agriculture-sector losses, given their lack of adequate risk 
management mechanisms.
The GOP established institutions, policies, and resources to manage the country’s vulnerability to 
natural disasters, such as the National Emergency Secretariat (SEN) and the National Policy on Disaster 
Risk Management and Reduction (NPDRMR) at the national level, and the Secretariat of Social Action 
and Emergencies of Caazapá (SSAEC) at the departmental level. However, these institutions do not have 
enough financial and human resources and tools to effectively implement this strategy at the 
departmental, municipal, and community levels. Paraguay’s departmental and municipal institutions often 
do not have clear DRR prevention protocols or action plans. The centralized, Asunción-based SEN does 
not have prepared local focal points to collaborate with most departmental and municipal institutions, 
and therefore cannot provide sufficient regional coverage to towns and rural communities. In addition, 
departmental and municipal governments and communities affected by emergencies often demonstrate a 
low level of preparation and adaptation capacity to cope with cyclical climatic emergencies and continue 
to suffer from the same vulnerabilities year after year. The agricultural sector is particularly susceptible 
to these climatic events.
PROGRAM BACKGROUND
In June 2017, ACDI/VOCA began implementation of the PREP program, which aimed to strengthen the 
ability of institutions, communities, and households to prepare, mitigate, and adapt to shocks and 
stresses caused by natural hazards through a combination of training, technical assistance, and critical in-
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kind grants. It closely worked with the GOP (national and local) and other stakeholders to build skilled 
human resources, improve systems for information collection and analysis, and promote strong vertical 
linkages between communities and institutions at the municipal, departmental, and national levels.
PREP coordinated with local stakeholders to ensure long-term sustainability in target geographic areas. 
The program designed activities to be replicated in other parts of the country in order to help 
communities and institutions across Paraguay achieve a greater level of disaster preparedness, risk 
mitigation, and adaptation to climate-induced shocks and stresses. The program focused its activities in 
the departments of Caazapá and Presidente Hayes in Paraguay. In the department of Caazapá, PREP 
worked in 10 target communities within the municipalities of Caazapá, Coronel Maciel, Fulgencio 
Yegros, and Tres de Mayo. In the department of Presidente Hayes, PREP targeted the municipality of 
Nanawa; as well as the neighboring agricultural community of Beterete Cué.
The program focused its activities on two sectors to accomplish this objective:
➢ Sector 1: Risk Management Policy and Practice: Providing the national government and local 
actors (local government and communities) with tools and capacities to proactively monitor 
and manage risks.
➢ Sector 2: Agriculture and Food Security: Increasing sustainable food production for 
households vulnerable to cyclical extreme climatic events.
PROGRAM RELEVANCE AND PERTINENCE
ACDI/VOCA designed PREP to align with SEN’s 2015–2018 Strategic Plan and the NPDRMR guidelines, 
which both highlight the need to update national databases and produce valid risk scenario models for 
risk management resource allocation and decision-making.
All Risk Management Policy and Practice sector activities respond to three main components of the 
NPDRMR: i) strengthening institutional capacities, ii) education, communication, and citizen 
participation, and iii) knowledge management and technology. PREP’s contribution to the NPDRMR 
included the design, development, production, and launch of technical and computer models to analyze 
risks in the agricultural sector for national and local decision-makers. In addition, PREP’s work in 
decentralizing DRR from the national through the departmental, municipal, and community levels aligns 
with NPDRMR guidelines. 
At the local level, PREP provided structural and nonstructural solutions to increase households’ 
sustainable food production, especially to prepare vulnerable families for cyclical climatic events. PREP
provided tailor-made solutions and training based on the needs found during the baseline and 
considering the local environment, availability of materials, animals raised in the region, dietary habits,
and households’ expectations. PREP provided technical assistance for food security activities for each 
beneficiary through personalized home visits conducted by locally hired technicians, using a peer-to-peer 
methodology and in local Guaraní language. 
Finally, PREP’s design and start-up activities are the result of a participatory process whereby 
ACDI/VOCA engaged with local stakeholders, community organizations, and municipal and 
departmental authorities to orient and inform activities. During program start-up, ACDI/VOCA
coordinated the selection of the intervention areas, target population, and the relevance of proposed 
activities through field visits, studies, and data collection with potential beneficiaries and authorities. 
PREP presented and discussed the information with GOP stakeholders and received approval from 
USAID/OFDA.
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QUALITATIVE ASSESSMENT OF ACTIVITIES
SECTOR: RISK MANAGEMENT POLICY AND PRACTICE
To increase institutional planning capacity and allow for the decentralization of DRR institutional
response capacities from the national to the local level, PREP promoted initiatives; developed tools,
procedures, manuals, and systems; and trained national and local personnel. The key takeaways under
this sector are:
• PREP reinforced the roles of the MAG and SEN, in line with their respective national policies
and strategies, through the design, development, and launch of technical and computer models
for national or local decision making for risk management and disaster risk reduction.
• To avoid duplication of efforts, it is effective to coordinate stakeholders on an inter-institutional
platform targeted at improving information systems and identifying synergies between sectors.
• Involving GOP technicians starting at design and during the progressive stages of tool
development contributed to the sustainability and empowerment of local institutions.
• Positive program results can leverage funding from public and private donors for additional
activities beyond the scope of the program, such as the World Banks’s complementary funding
for the water balance model and risk map development.
• Under an institutional framework like the CRMT, organized communities can and do play a key
role in reducing the impact of, preparing for, and responding to disasters.
• Providing DRR training to CRMTs created a new language to proactively manage situations
before, during, and after a disaster and helped them understand DRR and the terminology used
in relation to risk, vulnerability, and hazards.
• The participation of CRMT representatives in MCRMRs provides an opportunity for vulnerable
communities to represent their concerns at a municipal level and play a role in developing
preventive approaches, instead of solely receiving top-down emergency response support.
OUTCOME 1 – INFORMATION SYSTEMS IMPROVED
Technological tools, such as water balance models and risk maps, increased the GOP’s capacities to 
produce, understand, and update risk scenarios before, during, and after climatic events. Through a 
partnership with the Inter-American Institute for Cooperation on Agriculture (IICA), PREP created 
national-level agricultural risk maps and municipal-level socioeconomic vulnerability maps in Caazapá.
PREP trained 400 technicians—hailing from the public and private sectors in Asunción as well as the 
three most agriculturally productive departments of the country—to use the tools to integrate 
information regarding climatic events, increasing their ability to engage in data-driven decision-making 
and to develop appropriate DRR programs for vulnerable communities.
Develop agroclimatic risk and socioeconomic vulnerability maps
In order to develop these maps, PREP created a national water balance model, conducted a national
characterization of family agriculture and livestock production, and gathered socioeconomic and food
security data.
Creation of a water balance model. PREP created the water balance tool with support from IICA and the
World Bank, and the technical leadership of the National Hydrology and Meteorology Directorate
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(DMH) and the Risk Management Unit of the Ministry
of Agriculture (MAG/RMU). The technical partners
helped PREP to determine the daily water requirement
of eleven family farming, pasture-based, and technical
crops, including corn, wheat, soybeans, cassava,
sesame, beans, cotton, sweet potatoes, canola, peanuts,
and sugar cane. This tool can analyze historical
information about each crop, from sowing to harvest,
to determine the water content in the soil for the
selected crop at a specific time and place. This
information is contrasted with the real need for water
that the plant requires at each stage of its development,
to determine if there is a water deficit or excess. To
create this tool, PREP carried out an exhaustive
process of research and data collection of three
specific components: 1) the climatic component with
hydrometeorological information of the DMH of the
last 30 years; 2) soil component, including information
on soil types at the country-level; and 3) a crop
component (sowing dates, phenological phases, and
depth of roots).
The DMH and MAG/RMU secured the sustainability of
this activity by involving their technicians in all
processes from the activity’s outset, and by signing
inter-institutional cooperation agreements with PREP
and IICA, in which they committed to supply virtual
space in their server for software installation and to
assign programmers for system maintenance and use.
As evidence of this model’s usefulness and replicability, the World Bank joined PREP’s initiative by
investing approximately $100,000 to expand the coverage of the national water balance model, including
the analysis of cash crops, amplifying the positive impact of this activity in the country.
National characterization of family agriculture and livestock production. Required for the agricultural risk
maps, PREP developed a characterization of family agriculture and livestock production at the national
level. The characterization contains information about critical periods of cultivation for the main family
agricultural crops and measures their vulnerability levels to adverse meteorological phenomena with
special emphasis on drought, flooding, and frost. Similar information is available for livestock production
and pasture management in smallholder agriculture, which is important to cope with their susceptibility
to adverse climatic events. The national characterization of livestock production in smallholder
agriculture and pasture management includes a national-level map of soil use capacity and land use
planning to assess soil vulnerability.
The water balance model tool is live on the
web and available for public use on the
website http://bhag.meteorologia.gov.py/.
By performing a statistical analysis of this
information, users can determine the level
of climatic risks that could affect a specific
crop in a given area. For example, if this
tool shows that corn has a water
availability below 50 percent in a specific
region, it means that it is affected by a
water deficit (stress by drought). When
the water availability exceeds 100 percent,
it shows that the soil does not have the
capacity to continue storing water. These
factors can affect crop yields, and the
analysis of this information allows
technicians and smallholder producers to
take preventive measures such as
determining the best time to sow, or to
take corrective measures such as
determining when to irrigate the crops. It
also allows producers to monitor the
climate-soil-plant system, the probability of
extreme events, planning and zoning in
productive regions, and the determination
of climatic indexes associated with
agricultural insurance.
The collection, systematization, and processing of relevant existing data from national registers for
the national characterization of family agriculture and livestock production is the result of a
participatory, coordinated process of the risk management working group created on
MAG/RMU’s initiative. This working group seeks to bring together local actors; GOP national
institutions such as the DMH, SEN, the General Directorate of Statistics, Surveys, and Census;
international organizations such as USAID, the World Bank, FAO, and IICA; and academia including
the National University of Asunción and the Catholic University of Asunción.
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Risk map development and training. The national-level agricultural risk maps show a geographical
representation of the potential effects of a climatic event in the agriculture and cattle sectors. These risk
maps are the result of combining the existing information mentioned in steps one and two and using
algorithms to analyze the level of susceptibility of selected crops or animals to adverse weather events.
To analyze the information available, PREP developed a multi-criteria analysis database including a
national-level geographic information system (GIS) that integrates information for analysis and
management of agroclimatic
risks. It can measure the risks
of drought, water deficits,
water excess, frost, or
thermal stress of the eleven
crops, including at the level of
family agriculture or cash
crops, as well as for natural
or implemented pasture, and
of cattle, pigs, goats, sheep,
and poultry. Through this
tool, PREP generated 500
maps, including probability,
risk, soil degradation, and
auxiliary maps.
Socioeconomic vulnerability map development and training. To align disaster risk management planning
between the national and local levels, PREP developed smallholder farmer socioeconomic vulnerability
and food security maps in all 11 municipalities of Caazapá. These maps were created by layering
additional municipal data—such as socioeconomic metadata from the Agricultural Extension
Directorate’s register of assisted family farming and from the social cabinet of the presidency’s
integrated social information system—onto the databases of information consolidated for the
aforementioned national-level risk maps. For the 11 municipal socioeconomic vulnerability maps created
for Caazapá, PREP produced a manual of procedures for data quality control and database use/updating.
In addition, PREP conducted various training sessions and workshops with GOP stakeholders to present
and disseminate the maps and explain the procedures, techniques, and technology used in the maps.
OUTCOME 2 – DISASTER RISK MANAGEMENT ORGANIZATIONS STRENGTHENED
To improve disaster risk response and recovery at the local level, the GOP has prioritized the
decentralization of DRR services from SEN’s national level to the local level by improving the
communication channels between the local, departmental, and national levels. In addition, the NPDRMR
PREP widely disseminated the national-level risk maps at the national and regional levels. At the local
level, several cooperatives and production associations approached the MAG/RMU, requesting to
sign cooperative agreements to advise them on the use of the maps. The Itaipu Binational Dam also
requested the same. Private insurance companies requested access to the information to generate
or improve their agricultural insurance products. At the international level, peer organizations
recognized the MAG/RMU’s achievement in preparing the product, including the Ministries of
Agriculture of Argentina, Uruguay, and Chile. The World Meteorological Organization (WMO)
presented the tools as an achievement at its regional meeting in Argentina, and the National
Meteorological Service of Peru requested support and cooperation to set up a similar tool in Peru.
This demonstrates the usefulness of PREP’s tools, with the potential to produce a valid risk scenario
model for decision-making that can be replicated throughout the region.
Over 400 technicians from the private and public sectors were trained to develop and use 
agricultural risk maps.
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prioritizes moving away from a reaction-oriented disaster response to a comprehensive, prevention￾oriented approach based on management and reduction of risks. Under this framework, PREP engaged
in five concrete activities: 1) create and strengthen MCRMRs, 2) create First Aid Brigades (FABs),
Damage Assessment and Need Analysis (DANA) teams, and Forest Fire Response Brigades (FFRBs), 3)
create CRMTs, 4) Strengthen vertical linkages among DRR institutions, and 5) implement early warning
systems (EWS). Ultimately, PREP assisted these local DRR platforms to develop the tools and capacities
to proactively monitor and manage risks in their respective regions. As a result, PREP strengthened
Paraguay’s national disaster risk management institutional capacity.
Create and Strengthen MCRMRs
According to the guidelines of the risk management and reduction tool kit developed by SEN, and
ACDI/VOCA’s previous DRR experience, evidence shows that MCRMRs that effectively involve local
authorities, the private sector, and community leaders have a better chance of identifying risks that
affect their region and proposing preventive measures and potential solutions. Under this framework,
PREP formed and strengthened four MCRMRs in the target municipalities of Caazapá and strengthened
the recently established MCRMR in Nanawa. Through a participatory process, the five MCRMRs
selected a mix of local actors to join their technical and operational committees, including municipal
authorities, representatives from the private sector, police and health personnel, representatives of the
Agrarian Extension Directorate (DEAG), firefighters, teachers, university students, and community
members.
Through signed resolutions, municipal and departmental authorities formally acknowledged each
MCRMR as a municipal entity. In addition, PREP worked with each MCRMR to draft a budget proposal
for their municipal board to allocate financial resources to the newly formed councils. At the time of
this report, three of the five MCRMRs had obtained approval of their municipal budget resolutions. All
the MCRMRs have adopted procedures, manuals, statutes, and public resolutions following best
practices. In Nanawa, PREP promoted operational agreements between the municipalities’ three main
DRR actors—the mayor, the MCRMR, and the municipal board—to ensure sustainable cooperation.
To support MCRMR administrative capacities, PREP distributed important in-kind grants (e.g. IT
equipment) to the five MCRMRs,
while the municipal governments
assigned office spaces to
coordinate operations and hold
meetings. To strengthen disaster
response capacity, PREP
provided emergency response
inputs (e.g. corrugated metal
rooftops, mattresses, blankets,
wood beams), while the
municipal governments provided
warehouse spaces to safely store
these items. PREP also provided
uniforms and banners to each
MCRMR to strengthen its
institutional framework, and to
promote their visibility as focal
points in risk management in
their districts. Five MCRMRs were created and strengthened in four municipalities of Caazapa and in 
Nanawa
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Create FABs, DANA Teams, and FFRBs
Once MCRMRs were established, PREP proceeded to build an operative framework by forming 
specialized brigades within each MCRMR that ensure a coordinated institutional response during 
emergencies. PREP formed one FAB and one DANA team within each MCRMR in the four target 
municipalities in Caazapá and in the municipality of Nanawa. PREP additionally formed one FFRB within 
each of the four Caazapá MCRMRs, as the department is particularly affected by forest fires. PREP 
ensured that the newly formed brigades have the necessary emergency response skills by implementing
USAID/OFDA's RDAP courses conducted by certified instructors from the National Training Network 
in Emergencies and Disasters (RED), in coordination with SEN’s training unit. These trainings—including 
the basic life support course (BLSC), the DANA course, and the Basic Forest Firefighter Course 
(BFFC)—prepared participants to handle emergency situations that occur in their communities and to 
disseminate their knowledge to their community members and neighbors. The courses had significant 
participation by women. For instance, women composed 59 percent of the participants in the BLSC and 
32 percent of the DANA courses. After the training courses, PREP developed manuals and protocols for
the specialized brigades and provided in-kind equipment to facilitate their fieldwork, including first aid 
equipment for FABs, tactical backpacks for the DANA teams, and firefighting equipment for the Caazapá 
FFRBs.
Create CRMTs
PREP formed 10 CRMTs in target communities in 
Caazapá.1 CRMTs are a proven mechanism to 
decentralize disaster risk planning at the community 
level, as they provide a link between local families and 
the MCRMRs. More importantly, CRMTs are the 
primary source of real-time information on local
conditions during emergencies. PREP understood the 
importance of local knowledge as one of the main 
sources of information, and developed their strategy, 
including CRMT formation, with local actors. In these 
groups, community representatives create the official 
criteria for how their community will prevent and 
respond to emergencies and disasters. A coordinator 
leads each team, consisting of eight to 10 local 
volunteers chosen by each community and composed 
of several sub-units that coordinate activities to 
ensure food safety and the adequate conduction of 
 
1
In Nanawa, PREP worked at the municipal level. Nanawa’s small geographic size and population eliminates the 
need to create CRMTs within the PREP-supported MCRMR. Therefore, PREP concentrated its efforts on creating 
CRMTs within the MCRMRs in Caazapá.
On October 23, 2018, the level of the Paraguay River rose about 2.3 meters above normal levels,
forcing 25 families from Nanawa to evacuate their homes. The local DANA team deployed to the
field to collect primary information about affected families, which they provided to Nanawa’s
MCRMR and the SEN. With this information, SEN and Nanawa’s MCRMR helped set up an
emergency camp to relocate the affected families, and distributed corrugated metal rooftops,
mattresses, blankets, and wood beams to them. This was the first time a local institution in Nanawa
provided direct assistance to residents recurrently affected by floods.
CRMTs received first aid training and received grants of 
equipment to locally apply their new skills.
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prevention and response activities (divided into health, damage assessment and needs analysis, 
evacuation and shelters, and rescue). PREP strengthened the local capacity of CRMTs, enabling them to 
effectively prepare community risk maps, draft family and community emergency plans, and evaluate 
scenarios to respond to emergencies. PREP trained CRMT members, emphasizing the importance of 
planning and prevention as key mechanisms to address DRR and providing them with tools, procedures, 
and knowledge to prevent or respond to disasters. Within this framework, PREP found the creation and 
strengthening of CRMTs to be an excellent mechanism to promote a DRR culture at the community and 
household level.
Strengthen Vertical Linkages among Disaster Risk Reduction Institutions
PREP strengthened institutional linkages between
the SSAEC, the MCRMRs, and the CRMTs in the
targeted intervention areas of Caazapá by
promoting regular quarterly meetings where the
CRMTs, MCRMRs, and SSAEC could meet,
exchange lessons learned, and plan joint actions
for the future. At the departmental level, PREP
promoted the creation of the DBRMR in
Caazapá, formally recognized by a departmental
resolution signed by all its members. Presided
over by the departmental governor, the DBRMR
consists of various secretariats of the Caazapá
government, the departmental-level National
Police representative, and the Firefighters
Volunteer Corp, among others. This board is
essential to increase DRR operative capacity at
the departmental level and to integrate into the
CRMT-MCRMR-DBRMR-SEN coordination hierarchy. With PREP’s support, The DBRMR defined their
DRR roles and responsibilities at the community, municipal, departmental, and national levels, increasing
effective communication strategies across these levels.
To increase national-municipal coordination, PREP supported the DMH by granting two automatic
weather stations installed in the municipalities of Tres de Mayo and Fulgencio Yegros. The information
from these weather stations allows the
DMH and MAG/RMU, to generate
previously nonexistent
hydrometeorological data for this region
of the country, monitor relevant local
meteorological conditions, and use the
resulting data for adequate risk
management. Both stations are integrated
with the DMH’s national network of
automatic meteorological stations.
Likewise, both municipalities provided the
space to assemble the automatic
meteorological stations, while the DMH
has committed to cover operation and
maintenance costs.
Inauguration event of a weather station granted by PREP.
Institutional Coordination Framework
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Implement EWSs
PREP developed EWSs, which consist of a combination of training,
protocols, and provision of essential equipment. PREP promoted an
EWS linkage to ensure that the SEN, DBRMR, MCRMR, and CRMTs
coordinate. PREP gathered contact information for radio stations
from target areas and shared it with the head of SEN’s Early
Warning unit, who then started providing weather forecasts and
alerts to the local stations through e-mail or WhatsApp for
dissemination. In addition, coordinators of the DBRMR, MCRMRs
and CRMTs can access the SEN’s general emergency alerts via email
and WhatsApp. The coordinators can distribute this information to
their representatives or community leaders, who then cascade the
information to households in each community. Each of the 10 target
communities of Caazapá created a phone tree system so that upon
receipt of an alert, each person can notify another family about the
risk and disseminate information as quickly as possible. The EWS
model includes community feedback on the accuracy of the alerts,
that is then transmitted back to SEN to improve their reports. In
addition, PREP granted radio communication equipment to assist
CRMTs in local communities to stay in stable contact with their
MCRMRs, DBRMR, and first responders, even when cellular service is down.
As part of the EWS, PREP developed 15 community risk maps for target locations. The maps include
information about specific risks that affect each community and resources located within the mapped
areas. Based on this exercise, PREP provided 150 reflective signposts made with durable materials and
placed them in sites identified through the community risk maps to identify risk areas, evacuation routes,
and safe areas in each community. Additionally, PREP developed one map of each of the five target
municipalities, and a map of the department of Caazapá. All maps were printed and handed out to the
CRMTs, MCRMRs, and the DBRMR. These tools serve to identify emergency protocols at the family and
community levels, as well as for first responders to determine an action plan when responding to
emergencies in specific communities.
In October 2018, heavy rains and strong winds damaged a considerable number of homes in PREP’s 
intervention area in the department of Caazapá. Program beneficiaries had the opportunity to 
experience how the PREP-supported EWS works. SEN’s early warning office generated an 
emergency alert that was disseminated to the Caazapá MCRMRs, who then in turn distributed it 
their CRMTs who then disseminated the alert to their community members and neighbors. After the 
extreme climatic event, trained DANA volunteers performed damage assessment and needs analyses 
of the affected households and delivered reports to their respective MCRMR. The MCRMRs quickly 
responded in coordination with Caazapá’s DBRMR representative, assisting the affected families by 
providing metal roofing granted by PREP to repair damaged homes. This experience demonstrated 
the theory put successfully into practice.
PREP granted VHF radios to 
beneficiaries to facilitate contact 
between victims and first responders 
during emergencies.
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SECTOR: AGRICULTURE AND FOOD SECURITY
PREP’s successful results within the agricultural and food security sector relied on an easily adoptable
approach, introducing low-level technologies and techniques for sustainable food production. Small
producers quickly adopted the proposed technologies, incentivized by the availability of local material to
construct the structures, as well as their efficiency, simplicity, low cost, and low environmental risk. The
key takeaways and lessons learned under this sector were:
• Hiring local technicians who live in the implementation zone and are fluent in the local Guaraní
language is an extremely valuable contribution to ensure a positive connection to and rapport 
with the beneficiary families. 
• Through home garden production at the household level, PREP diversified the food available to 
beneficiary families, improving overall household food security. The year-round availability of 
lettuce, tomatoes, cabbage, bell peppers, and beets provide new sources of vitamins and 
minerals in beneficiaries’ diets.
• PREP replicated the San Pedro floating garden pilot in Nanawa based on their previous 
experience. Even though both areas are similarly affected by floods, the Nanawa gardens were 
not as successful. A barrier analysis demonstrated that factors such as competing priorities with 
commercial livelihoods and river conditions contributed to the outcomes. For future programs,
we recommend that an in-depth analysis is conducted prior to replicating the floating gardens to 
analyse the local context, determine applicability, and design appropriate behaviour change 
interventions to ensure sustainability.
OUTCOME 3 – SUSTAINABLE FOOD PRODUCTION INCREASED
To implement PREP’s strategy to improve agricultural production and food security, PREP conducted
the following activities: a) implemented demonstration horticulture plots and small animal husbandry
plots, b) replicated the plots in homes, c) trained households in food preservation and planning, and d)
replicated the floating gardens pilot. Interviews with beneficiaries demonstrated that ACDI/VOCA’s
technicians conducted extensive, reliable, and high quality technical assistance in situ during the life of the
project (LOP).
Implement Demonstration Horticulture/Small Animal Husbandry Plots
Through a participatory process, PREP built demonstration horticulture plots, pigsties, and mobile
chicken coops, in schools and homes in each of the 10 target communities in Caazapá, where residents,
students, and teachers learned the new technologies.
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The 24-square-meter horticulture plots are
designed to provide sufficient vegetables
throughout the year for a family of five to six
people. Some of the best practices implemented
in the horticulture plot included the use of half￾shade meshes to protect crops from intense sun,
wind breaks, exudation irrigation systems, raised
beds, and compost and organic groundcover to
improve soil aeration, fertility, and moisture
retention during drought. To complement the
infrastructure itself, PREP conducted training
sessions to demonstrate the production cycles,
crop protection measures and best practices.
Small animal husbandry structures for pigs and
chickens complemented the horticulture plots,
which included structural solutions to the
common problems identified by the communities
during the baseline survey that most often caused
the loss of animals. PREP also provided a training
plan to teach beneficiaries to properly care for
animals, ultimately contributing to increased
quantity and improved quality of healthy animals.
PREP and SENACSA trained beneficiaries on
poultry and swine feeding practices, management,
pest and disease prevention, vaccination, and
proper soil and environmental management to
protect animal health. The pigsty model
incorporates a potable water supply system with
a sucker for pigs, allowing farmers to mitigate the
diseases that normally affect pigs that consume
contaminated water. It also has a system to
prevent the mother from lying down on newborn
piglets and causing their accidental death, and it
features a solid floor with sufficient slope to
facilitate the process of cleaning the pig’s
environment and contributing to preventing
diseases. The chicken coop model is mobile in
case families must evacuate their homes. They
contain feeders and drinking buckets that
facilitate the application of liquid vaccines, and
they feature raised beds to avoid animal contact
with ground humidity.
Once smallholder producers tested the demonstration plots and approved their final design,
ACDI/VOCA’s technicians developed easy-to-read graphic brochures and manuals with step-by-step
processes to assemble standardized structures. PREP also developed and distributed an agro-calendar
that demonstrated the correct times for sowing, growing, and harvesting, and a pest and disease control
guide showing the most comment insect types that affect crops and organic/natural control measures.
PREP distributed copies of the assembly and best practices guides to beneficiaries, USAID/Paraguay and
PREP’s most innovative contribution to
vegetable production was the implementation of
an exudation irrigation system as part of the
home garden. In an exudation irrigation system,
clay pots are half-dug into the garden plot and
filled with water. The porous quality of the clay
pot enables water to slowly seep into the soil to
irrigate fruits and vegetables in the home
garden. This method rations the use of water
and extends the productive season even through
periods of intense heat. An important extra
benefit of this irrigation system is the reduced
time burden on females in the household, who
typically water the garden plots. To replicate the
use of this irrigation system at a local level, PREP
trained local artisans to make the pots with local
materials, thus diversifying their production
beyond manufacturing bricks. The artisans
accepted this training and already acquired a
pottery wheel to manufacture clay pots. During
the LOP, the whole country experienced an
intense drought, including Caazapá, where it
lasted more than a month and despite these
harsh conditions, PREP beneficiaries continued
to produce vegetables during that period due to
the proposed irrigation system.
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its local implementing partner FECOPROD, MAG, government offices in Caazapá, and the National
University of Asunción’s Faculty of Agronomy (FCA/UNA) in Caazapá for distribution to its students.
Replicate Horticulture/Small Animal Husbandry Plots in Homes
Once smallholder producers validated the proposed models, PREP’s agricultural expert supervised the
replication of similar plots, standardized pigsties, and mobile chicken coops in 500 households in the
Department of Caazapá with the assistance of local technicians. Beneficiaries contributed labor to
assemble the horticulture/small animal husbandry plots. PREP provided them with inputs and, by
following the assembly guides, the beneficiaries built the structures by themselves, under the supervision
of PREP staff. PREP’s beneficiaries distributed the guides to other neighbors to promote the replication
of the infrastructure.
PREP granted kits to assemble 346 horticulture plots, 76 standardized pigsties, and 78 mobile chicken
coops in Caazapá. All 500 beneficiary households received seeds to grow spring/summer and
autumn/winter vegetables. According to quantitative data collected in October 2018, 431 households
reported harvesting at least three spring/summer species (lettuce, tomato, bell pepper, pumpkins,
cabbage, or beets) during the previous season. In addition, all the plots reported producing at least three
autumn/winter species (carrots, chard, and parsley).
Moreover, 70 percent of the plots maintained by smallholder
producers are currently in a second spring/summer productive
stage.
PREP illustrated best practices to protect animals from
climate-induced stresses and shocks with the construction of a
pilot pigsty and a mobile chicken coop in coordination with
the National Animal Health and Quality Service (SENACSA).
The program connected beneficiaries with DEAG’s extension
agents, who assisted the program to distribute agricultural
inputs and participated, with SENACSA, in training sessions
with beneficiaries. During final surveys, 70 percent of the
smallholder producers reported increased animal production.
Students from the FCA/UNA in Caazapá participated in agricultural DRR workshops and received copies of the materials developed by 
PREP to disseminate best practices.
A principal factor contributing to
the success of the horticulture and
small husbandry plots is the in-depth
and high-quality technical
assistance provided by locally
hired technicians in Guaraní
language. The technicians conducted
house-by-house follow-up visits on
frequent basis, to verify the
implementation of the plots,
monitor the results, and
adjust/correct issues that arose
during the implementation process.
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Train Households in Food Preservation and Planning
PREP implemented methodologies
focused on training beneficiaries on crop
cycles and planting schedules to guide
them to plan vegetable production
throughout the year. Technical
assistance oriented the beneficiaries in
early planting to produce several
harvests during the year for family
consumption, while also allowing
beneficiaries to sell surplus vegetables at
the local market. To aid in the planning,
PREP developed and distributed an agro￾calendar to help smallholder producers
better plan the production of their
horticulture plots, such as sowing
vegetables at the ideal time, monitoring
plant development phases, and verifying
the association of species to achieve
year-round production. The calendars
were distributed widely to public and
private institutions for use in training
and replication in other areas.
Once beneficiaries harvested their vegetables, PREP collaborated with a DEAG food technologist to
train the beneficiary communities in processing vegetables to prepare sauces, jams, and canned
vegetables. Food preservation extends the shelf life of these products for up to a year, enabling the
families to utilize preserved vegetables long after they have been harvested and to increase the
availability of food during times of scarcity.
Replicate Floating Garden Pilot
ACDI/VOCA designed pilot floating gardens during previous OFDA programming in the department of
San Pedro. To replicate the model in an area similarly affected by flooding, PREP brought the floating
gardens to Nanawa. This innovative technology allows farmers to grow food on flooded land. If properly
cared for, the gardens can produce enough food for five to six people per harvest, and the system is
suitable for several types of vegetables, especially leafy greens.
To replicate the model, PREP implemented a learning-by-doing technique using a farmer-to-farmer
methodology, provided in situ technical assistance, and granted in-kind inputs and seeds to replicate the
floating gardens. PREP promoted interdepartmental exchange by bringing the local leaders responsible
During a monitoring visit, beneficiaries of horticulture plots reported that they had produced
enough vegetables to be self-sufficient for periods of up to four months. During this time, they did
not need to purchase vegetables given their own successful production. Beneficiaries reported that
they highly valued the traceability of their production, as they are growing better quality products
than they had previously purchased and now know what they are feeding their families. Beneficiaries
also mentioned that they have adopted and are practicing the preservation techniques from PREP’s
trainings to preserve their vegetables.
Beneficiaries learned how to cook and preserve the vegetables from their 
gardens.
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for the construction and implementation of the San Pedro floating gardens to Nanawa to train and
provide technical assistance to the local community. Together with PREP, the beneficiaries built 36
floating gardens. PREP technicians trained beneficiaries on the garden maintenance and best practices.
During the final survey, 88 percent of those interviewed responded that they acquired new knowledge
on how to assemble a floating
garden, how to prepare the
substrate, how to take care of
the floating garden, and the best
periods for production. This
indicates the efficiency of the
PREP training processes. For
those that applied the best
practices, they were able to
vegetables and herbs for family
consumption. Of those
interviewed, 43 percent achieved
a relatively good production of
chard, cucumbers, lettuce,
pumpkins, coriander, and parsley,
while bell peppers and tomatoes
were not harvested, or the
production was insignificant.
After the first harvest, PREP noted that several gardens were not receiving the proper maintenance and
care to be fully productive. Therefore, PREP conducted a barrier analysis through in-depth interviews to
identify the limitations that prevented the beneficiaries from achieving the expected results. Of those
interviewed, 26 percent attributed the gardens’ lack of productivity to river contamination, 19 percent
to birds that ate seedlings, 12 percent to their insufficient maintenance and care of their gardens, and 4
percent to poor quality substrate.
2 The analysis verified beneficiaries’ lack of time and dedication to care
for the gardens, related to the fact that the primary livelihood for the majority of the beneficiaries in
Nanawa is not agricultural but instead commercial (given Nanawa’s location as a border city). In addition
to this opportunity cost, the need for a floating garden was not internalized by most, given that during
PREP’s implementation period, Nanawa was not affected by severe floods and dryland was available for
regular gardening activities.
To address this situation, PREP developed strategies to promote social behavior change with
beneficiaries and encouraged them to adopt this technology as a mitigation measure for food security
during floods. PREP reconditioned 33 floating gardens, replanted a second cycle of crops with
beneficiaries, and reminded them of best practices to properly care for their gardens. During the final
survey, 69 percent of those interviewed responded affirmatively when asked whether they would
dedicate time to produce in their floating garden during the next season. For future programs, the
social, economic, and livelihood context of the beneficiaries must be fully examined to determine the
probability of adoption and sustainability of the floating garden.
 
2 The remaining 39 percent did not respond with a specific cause/limitation.
A beneficiary of a floating garden in Nanawa showing his pumpkins harvest.
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GENDER-SENSITIVE APPROACHES
Based on ACDI/VOCA’s previous
experience in DRR programming, PREP
staff understand that to enhance
community resilience, both women and
men must receive DRR training, have
access to information around ways to
reduce risks related to natural hazards, and
share in DRR leadership roles.
In PREP’s targeted areas, men and women
take on different and gendered roles and
responsibilities, and often have differential
access to and control over productive
assets, services, information, and income￾earning opportunities. These differences
often lead to significant gender gaps,
including gaps that disproportionately affect
the abilities of male and female community
members to plan for and respond to disasters. While women’s vulnerability is frequently highlighted in
DRR programming, their contribution to building disaster resilience is often overlooked. Women are
often responsible for non-remunerative work, including unpaid care work and voluntary community
work. While this work is a very important contribution to households and the broader community, it is
often not made visible or seen as valuable, primarily because it is unpaid. Furthermore, while women
take on most of this work in their households and communities, they are often not included in
leadership roles that make decisions or set priorities. The result of this can further exacerbate gendered
gaps that marginalize women from the development of DRR policies and decision-making processes.
Furthermore, gender-blind programming in the DRR space can often reinforce and reproduce harmful
gender stereotypes about women’s roles and responsibilities, especially related to unpaid care work.
To address this, PREP developed a gender strategy to integrate gender considerations in program
activities, and where necessary, developed targeted gender activities to address important gaps. These
included:
• At the beginning of the program, ACDI/VOCA’s headquarters specialists trained the field staff
on important gender concepts, familiarizing them with ACDI/VOCA’s gender policy and
improving their ability to recognize and address gender gaps in their programming.
• During the training process, the PREP team recognized that risk and vulnerability have
fundamental social and gender dimension, including that men’s and women’s livelihoods are
different and their views on natural and disaster-related hazards differ. Furthermore, the PREP
team identified the different ways that men and women participate in DRR programming and the
different gendered roles they take on. These gendered roles included more participation of
women in voluntary work to plan and prepare for disaster-related risks, and less participation of
women in leadership positions.
• PREP adjusted activities to include women and men equitably in leadership positions, particularly
in the MCRMRs and CRMTs in the targeted intervention areas of Caazapá, by increasing
outreach to women to serve in leadership functions, in decision-making processes, and in action
implementation, and by sensitizing men to make more room for women leaders.
Female beneficiary of horticultural plot.
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• PREP promoted women’s participation in
OFDA trainings to increase their DRR
capacities, by adjusting training schedule to
better accommodate women’s schedules.
Likewise, PREP promoted the equitable
selection of participants through the
MCRMRs.
• PREP identified that women’s roles consist of
productive activities such as home gardens,
chicken coops, or pigsties, in addition to
unpaid care work within their households
such as taking care of and feeding their
families. PREP introduced agricultural best
practices that allowed them to improve food productivity, such as improved
planning/calendaring, shade mesh, irrigation pots.
• Technicians with knowledge of the local Guaraní language conducted all trainings, making it
accessible for men and women from varied educational backgrounds.
• When planning training schedules, PREP considered the existing workloads of men and women
to avoid creating additional work burden, particularly for women. This included consulting
women about the best times and locations for training to ensure that it didn’t conflict with their
other responsibilities.
• The primary beneficiaries of PREP’s horticulture plots, pigsties, and mobile chicken coops were
elderly women. Under this scenario, PREP proposed and built models for horticulture and small
animal husbandry considering aspects such as weight carrying, transportation, watering needs,
and time saving for other household activities and family time.
PREP worked on revealing the unequal division of
labor and women’s unpaid care work through an
interactive activity. This exercise implemented in
Caazapá made women’s care work more visible
and showed the value of that work as a means
towards promoting more equitable
workloads within households and communities.
As a result, during the final evaluation survey
many female beneficiaries reported an increased
sense of self-esteem, since they and their families
now recognize and appreciate their contributions
to the household.
Gender workshops were implemented in four target districts of Caazapá.
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QUANTITATIVE ANALYSIS OF INDICATORS
The following chapter analyzes PREP's achievement of indicators. This evaluation compares final
achievements with baseline values, while assessing challenges faced in achieving targets. The chapter also
includes comments about data quality and management, from data collection to analysis and
interpretation. The chart below describes PREP’s progress on its seven indicators, as well as the
achieved results and the percentage of achievement at the end of the program.
Table 2. PREP’s Indicators
List of Results and Indicators LOP
Target Baseline Results
Achieved
Percentage of
Achievement
Sector 1: Risk Management Policy and Practice
Objective 1: Provide the national government and local actors (local government and communities) with tools and capacities to
proactively monitor and manage risks.
Indicator 1: Number of agroclimatic risk and
socioeconomic vulnerability maps developed 6 0 6 100%
Indicator 2: Number of people trained in disaster
preparedness, mitigation, and management
940 0
2,151
(1033 M/1118 F) 229%
Indicator 3: Number of people passing final exams or
receiving certificates 200 0
210
(114 M/96 F) 105%
Indicator 4: Percentage of people trained who retain
skills and knowledge after two months 60% 0% 73% 122%
Sector 2: Agriculture and Food Security
Objective 2: Increase sustainable food production for households vulnerable to cyclical climatic events.
Indicator 5: Number of people benefiting from seed
systems/agricultural input activities 2,680 0
3,129
(1604 M/1525 F) 116.8%
Indicator 6**: Number of project households with
increased access to targeted vegetables produced 300 0 431 143.7%
Indicator 7: Number of floating gardens implemented
in the target area as a result of program technical
assistance
36 0 36 100%
** Using baseline findings, we requested a modification to indicator #6 on August 30, 2017. AOR Raquel Salinas acknowledged
receipt of suggested changes on October 6, 2017.
Indicator 1: Number of agroclimatic risk and socioeconomic vulnerability 
maps developed
Under the risk management policy and practice sector, PREP developed five agroclimatic risk maps and
one socioeconomic vulnerability and food security map with information from 11 municipalities in
Caazapá. These important tools provide stakeholders with a valuable source of analysis, to integrate
information regarding climatic events and to increase the GOP’s ability to engage in data-driven
decision-making and develop appropriate DRR programs. The maps contribute to strengthening
institutions’ ability to provide support to vulnerable communities, as well to use rural socioeconomic
vulnerability information systems to guide development programs for the Department of Caazapá.
The map developing process included training seasons executed by ACDI/VOCA and IICA. More than
400 national-level technicians from the private and public sector learned to develop, use, and update
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agroclimatic risk maps. PREP achieved 100 percent of the LOP target for Indicator 1, thereby
contributing to increasing GOP ability to proactively monitor and manage risks.
Indicator 2: Number of people trained in disaster preparedness, mitigation, 
and management
PREP held training and educational events in disaster preparedness, mitigation, and management for
2,151 participants. PREP achieved a balance between men and women participants (52 percent women,
48 percent men). The training process included topics related to DRR planning, the roles and functions
of MCRMRs and CRMTs, emergency plan elaboration, institutional strengthening, and OFDA’s forest
firefighters, first aid, and DANA courses. Other important training topics included those related to the
water balance model and risk maps in the agriculture sector.
PREP surpassed the target for Indicator 2 and built skilled human resources, increasing institutional and
community knowledge of DRR planning, management, preparedness, and mitigation. The following
graphic shows the total trainees by gender and municipality.
Indicator 3: Number of people passing final exams or receiving certificates
PREP developed a strategy to strengthen national disaster risk management institutional capacity by
providing technical assistance and training at the local and municipal levels. PREP achieved and surpassed
this indicator’s LOP target by implementing key trainings from the USAID/OFDA RDAP portfolio. In
total, 210 trainees received their certification, in first aid (129 participants), damage assessment and
need analysis (23 participants), disaster risk reduction management (5 participants), and forest firefighter
(53 participants) courses. RED’s certified instructors conducted all trainings from OFDA’s RDAP,
coordinated with SEN’s head of training. PREP certified a total of 96 women and 114 men.
Indicator 4: Percentage of people trained who retain skills and knowledge 
after two months
To verify knowledge retention, PREP requested RED’s instructors of first aid, DANA, and forest
firefighter courses, to prepare a test to measure knowledge about the fundamental aspects of the
courses they implemented. PREP’s staff then probed the retention of knowledge and skills by giving
these tests to a random sample of trainees (45), of whom 33 (73 percent) passed. PREP surpassed this
indicator target by 122 percent. Of the participants who retained skills and knowledge, 42 percent were
women.
60%
43% 45% 45% 47%
61%
45%
30%
53%
67%
0%
10%
20%
30%
40%
50%
60%
70%
80%
Total trainees by gender and municipality
F
M
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Indicator 5: Number of people benefiting from seed systems/agricultural 
input activities
A total of 3,129 people (49% female, 51% male) benefited from agricultural inputs, trainings, and
technical assistance. PREP developed agricultural activities that included the distribution of inputs for the
replication of home gardens, seeds, pigsties, and mobile chicken coops. This indicator also reports on
training and workshop participants, including those related to agricultural production, care of small
animals, and beneficiaries who learned to use agricultural sector and water balance risk maps. PREP
monitored vegetable production in beneficiary households, and once they were able to harvest, family
members who consumed these products were also reported as beneficiaries. The indicator goal has
been surpassed, reaching 117 percent.
Indicator 6: Number of project households with increased access to targeted 
vegetables produced
Exceeding PREP’s goal of 300 households, 431 households (of 500 surveyed) reported increased access
to at least three of six targeted vegetables.3 A combination of structural (inputs for home gardens and 
seeds) and non-structural activities (training and technical assistance) allowed 431 households of 500
beneficiaries, to increase production of the vegetables they most commonly consume (bell pepper, 
lettuce, tomatoes, pumpkins, cabbage, and beet).
Indicator 7: Number of floating gardens implemented in the target area as a 
result of program technical assistance
Through technical assistance, in-kind grants, interdepartmental exchanges, and several training and 
workshops events, PREP achieved the LOP goal of implementing 36 floating gardens. The floating 
gardens were built in four urban neighborhoods (barrios) in Nanawa and the neighboring agricultural
community of Beterete Cué in Villa Hayes. A key important finding in this activity shows that 53 percent 
of the total beneficiary households selected were led by women.
PREP has understood the significant importance of implementing the floating gardens for small-scale 
home vegetables production with women as head of families. In terms of sustainability, an analysis made 
 
3 To the time of survey, 67 families reported between one and two species harvested and two families have not 
reported any production.
51%
43% 44% 45% 47%
53%
63%
30%
54% 56%
49%
57% 56% 55% 53%
47%
38%
70%
46% 44%
0%
10%
20%
30%
40%
50%
60%
70%
80%
Total people benefiting from seed systems/agricultural 
input activities by gender and municipality
Total: 3,129 people
F
M
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with home gardens beneficiaries shows that the technical knowledge on the technology proposed has 
been transmitted by PREP to beneficiaries through the training plan and the “learning by doing” 
technique developed, people know what a floating garden is and how to build it and how to take care of 
it. The social dimension is covered by the active presence and participation of the beneficiaries in all 
project stages. The low cost to replicate it, repair the home garden, or replace seeds and some material 
for the next productive season allows the continuous reproduction of this innovative production 
technique.
60%
100%
67%
25%
45% 40%
0%
33%
75%
55%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Independiente
San Miguel
Sportivo
Oriental
Beterete Cue
Nanawa Villa Hayes
Total home gardens implemented by gender and district
F - Floating Garden
M - Floating Garden
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CONCLUSIONS AND RECOMMENDATINS
After having collected, analyzed, and systematized the quantitative and qualitative information, in general
terms, the evaluator reached the following conclusions.
Risk Management Policy and Practice
After having collected, analyzed, and systematized the information, the evaluator reached the conclusion
that PREP has:
• Strengthened the GOP’s multilevel linkages and abilities for effective disaster risk reduction
(DRR) preparedness and response at all levels. GOP institutions are now in better condition to
manage risks and respond to disasters in the target regions.
• Contributed to decentralizing DRR to departmental and local levels.
• Strengthened vertical linkages among DRR institutions, in accordance with the National Policy
on Disaster Risk Management and Reduction (NPDRMR).
• Developed tools, procedures, guidelines, protocols, and best practices that have been made
available to the GOP and stakeholders and can be replicated in other regions in Paraguay.
• Improved knowledge and understanding of risk management options and strengthened
monitoring capacities of risk management initiatives.
• Contributed to strengthening the ability of vulnerable households to prepare for, mitigate, and
adapt to shocks and stresses caused by natural hazards through a people-centered, multisector
approach. In addition, PREP created and incorporated a culture of prevention and resilience to
natural disaster events in communities and families.
• Created a social platform for emergency preparedness and response at the local level, with an
important relevance through the involvement of municipal authorities.
• Provided, through a training process, the concepts of disaster risk reduction and management to
decision makers.
The program positively impacted the knowledge, attitudes, and practices of target communities.
MCRMRs and CRMTs are continuously looking to increase their capacity as social institutions for
emergency preparedness and response at the local level. Their members understand the importance of
conducting frequent meetings, the application of internal procedures and statutes, and the need for
continuous dialogue with municipal and departmental authorities as the most feasible way to support
families within their communities.
Ninety seven percent of interviewed households reported feeling more prepared for emergency and
disaster events. The program led to a substantial increase in knowledge and awareness about the
hazards faced by communities and how to reduce or mitigate the associated risks. This increase in
knowledge and awareness extends across the population in the community and local institutions. In
terms of perceived impact, 88 percent of those interviewed reporting knowing the existence, roles, and
importance of CRMTs. In the same vein, 100 percent of MCRMR representatives reported knowing the
specific roles and responsibilities of general or operative coordinators.
Sustainable Food Production for the Victims of Floods
After having collected, analyzed, and systematized the information, the evaluator reached the conclusion
that PREP:
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• Contributed to increased sustainable food production for households vulnerable to cyclical
climatic events in target intervention areas, decreasing the probability of an acute decline in food
access or consumption due to weather disturbances through a prevention and mitigation
strategy.
• Diversified the food available to beneficiary families, improving overall household food security.
The year-round availability of lettuce, tomatoes, cabbage, bell peppers, and beets provide new
sources of vitamins and minerals in beneficiaries’ diets.
• Created links between institutions such as the MCRMR, the FCA/UNA, the DEAG and small
agricultural producers, generating a space where they can discuss the problems that affect their
food security and local technical knowledge to propose solutions.
• The easy-to-read graphic brochures and manuals with step-by-step processes to assemble
standardized structures, the agro-calendar that demonstrated the correct times for sowing,
growing, and harvesting, and a pest and disease control guide showing the most comment insect
types that affect crops and organic/natural control measures are very important printed
reference materials that remain with the producers to replicate this new knowledge.
• Promoted the active participation of national and local government institutions and academia in
training and technical assistance for sector-level activities for household beneficiaries.
• Improved human assets through technical capacity building that allowed access to agricultural
sector benefits to more than 3,100 smallholder producers in the program’s intervention areas.
Based on the survey, and comparing it with the baseline report, PREP increased the number of
households that have a home garden with improved technology like wire mesh to protect crops from
animals, shade cloths, and materials for irrigation systems from 14 percent at baseline to 67 percent at
endline. The endline survey indicates that 94 percent of beneficiary households consume their home
garden production.
Fifty eight percent of surveyed households reported that PREP’s implemented demonstration
horticulture plots and training process increased sustainable food production by improving knowledge
and low-cost techniques. More than 90 percent of those interviewed declared improved knowledge of
agricultural techniques such as vegetable production cycles, or how to prepare a better substrate to
increase production. PREP’s pigsties and mobile chicken coops in Caazapá contributed to a 70 percent
increase in animal production among beneficiaries in Caazapá.
Recommendations
The following recommendations aim to contribute to the sustainability of PREP activities:
• The National Emergency Secretariat (SEN) and local governments should schedule new training
processes and allocate resources to reinforce newly acquired knowledge, support the newly
formed institutional structures, and create long-lasting changes in practices and attitudes within
MCRMRs and CRMTs.
• Municipal and departmental authorities must follow up by providing political support to
MCRMRs, CRMTs, and the DBRMR to maintain, increase, and expand the activities and goods
generated by PREP.
• Future DRR programming should build on this program’s successful development of structural
and non-structural solutions to address DRR management.
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ANNEXES
ANNEX A. EVALUATION METHODOLOGY
Because the PREP Program was designed as a program to strengthen the capacity of the GoP and 
households that are vulnerable, as a way to prepare for, mitigate and adapt to the impacts caused by 
natural disasters, using structural and non-structural strategies that can be replicated in other 
communities, the evaluation process reviewed the development hypothesis of the Program and the 
performance measurement plan to determine how the expected results have been achieved. The 
evaluation focused on "testing with tangible evidence" the results and goals achieved, to help understand 
the performance of the Program. The evaluation included:
Qualitative analysis
For the qualitative data collection, focus groups, in-depth interviews, and observation techniques of field 
work were carried out to learn about the institutional and local organizations supported / established by 
PREP. The local actors were asked about the experiences, perceptions, opinions, feelings and knowledge 
about PREP interventions. A questionnaire was applied and through the answers obtained it was possible 
to determine:
• The influence of PREP in the adoption of new technologies / practices and the adoption of models 
in the preparation, mitigation and adaptation to the impacts caused by natural disasters.
• Behavioral changes between institutional and local actors that led to the successful adoption of 
new risk management practices.
• How successful the risk management models and actions implemented by PREP have been.
• How likely are the actions promoted by the PREP to be continued after the end of the program.
Sampling
The sample was limited to the representatives of local institutions and social leaders who have worked 
with the PREP program (beneficiaries) and other interested parties.
Following the usual methodology used for qualitative studies with local actors, a non-probabilistic method 
for sampling was used; it’s called expert sampling. This type of sampling, also known as stakeholder 
sampling (Brown, 2002), is a type of intentional sampling where the researcher previously defines the type 
of individuals to be interviewed based on their experience in a particular approach or more experience 
over other experts. People with relevant knowledge of risk management systems and the regular 
functioning of their organizations were defined as experts to be sampled. For this purpose, a documentary 
research was carried out to enumerate and review the institutional and local organizations that have 
worked with the PREP program. In coordination with the ACDI/VOCA Paraguay staff, the interviewees 
were selected by community and organization.
The sample size was determined considering the time constraints of the evaluation and the theoretical 
saturation as the appropriate parameters to define the size of the sample in qualitative studies. Once the 
key informants were selected and, to gather rich and illuminating information, at least four focus groups 
or in-depth interviews were carried out. In addition, secondary sources of information also provided useful 
data to complete the evaluation.
Data collection tools
The focus for group discussions, interviews with key informants, as well as the development of the 
questionnaires were carried out in coordination with the ACDI/VOCA Paraguay team. The questionnaire 
was based on inquiring about the knowledge, behaviors and practices carried out, with particular focus to 
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understand the motivations and the barriers to behavior change. The interviews lasted approximately 2 
hours.
Data analysis
For the analysis of the qualitative data, the interviews were transcribed and then imported into the 
qualitative analysis software NVIVO 11 for data coding and analysis (thematic analysis). Following the 
thematic analysis approach, the data from the interviews were coded in different nodes to identify their 
subjects. A node contains all the qualitative data assigned to that code; and it constitutes the main unit of 
analysis of the methodology. In the same way, the characterization variables of the interviewees and their 
organizations were grouped to analyze how the topics are composed within different categories. The 
thematic analysis facilitated the synthesis of the data and the construction of categories, where it was 
possible to estimate the simple qualitative analysis of the frequencies to understand how the perceived 
factors that affect a topic are prioritized among the different groups of respondents. The result was 
expressed on the radar and other visual tables using Excel graphics.
Quantitative analysis
A statistical design (survey) was used for the quantitative analysis to identify changes (before and after) in 
the quantitative indicators of the PREP program and their related indicators. The evaluator reviewed the 
reference study (baseline) as the starting point of the program and used the same instruments designed 
at that time for this evaluation at end line. The most relevant variables that should be collected in the field 
for the final evaluation of the program were defined in coordination with ACDI/VOCA staff. With this 
method, the study found the correlation between the different variables, which allows to quantify the 
influence of multiple causes in a single effect.
Sampling
The sampled population were the beneficiaries represented by the head of household. The beneficiary 
survey was conducted over a period of three days in ten communities of four districts in the departments 
of Caazapá. The sample sites were limited to the area of intervention of the PREP program and only 
covered those beneficiaries who have worked with ACDI/VOCA Paraguay in the PREP program. The 
sampling was accurate and representative of the PREP target. During this stage, the evaluator ensured 
gender balance among those surveyed. 
For the quantitative analysis, the evaluation consultant used a Probability Sampling method called Two￾stage Sampling. First, a sample of the communities was carried out (first stage) and then the beneficiaries 
of those selected communities (second stage). Stratified random sampling was used for the second stratum 
because it provides more accurate information than simple random sampling for a given sample size. The 
information is disaggregated by sex to have a gender perspective on the benefits and impacts of the 
program. The expectation was to gather information from an estimated 150 beneficiaries.
The sample was representative at the regional and municipal levels for the rural sectors and the sampling 
error is 5 percent with a confidence interval of 95 percent. To comply with the requirements of the 
sample design, the following statistical formula was used to calculate the sample size for finite populations:
𝑛 =
𝛽
2 × 𝜗
2 × ∑ 𝑁
𝑛
𝑖=0
𝜀
2(𝑁 − 1) + 𝛽
2 × 𝜗
2
Where:
𝑛: Sample size for a finite population
β: Estimator of the confidence level of the sample at 95% = 1.96
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𝜗: Variance of the observed variable, equal to 𝜗𝑛 =
(1−𝑁)
𝑁𝑖/ ∑ 𝑁
𝑛
𝑖=0
ε: Sample error allowed of 5%
N: Total population
For the selection of the samples, at statistical level the following criteria were used:
• Selection of statistically representative samples by district within each municipality that can be 
added in larger units to those of the municipality (area or region) to be compared with other 
studies.
• Sample size calculated based on the percentage variations of the estimated number of inhabitants 
per district based on estimated secondary information.
• With a maximum allowed sampling error of +/- 5 percent per district.
• With enough power to represent with statistical criteria the population heterogeneity within each 
district.
The following table shows the results of the Sample Size selected for the target communities and 
determines the number of surveys that are carried out at the population level in each community of both 
departments4: Departament Municipality
Community
Estimated beneficiary population Estimated number of PREP 
beneficiaries
Sample 
estimation
Families 
according to 
references of 
the 
ACDI/VOCA 
team
Number of 
beneficiaries 
(average of 
people/families)
Number of 
beneficiaries 
(individuals)
Number of 
beneficiaries 
(families)
Surveys 
total
CAAZAP
Á
Maciel Zanja pyta 110 440 220 57 18
Caracaraí 80 320 160 53 16
3 de Mayo
Argaña cue 55 220 132 27 11
Dolores 64 256 102 37 13
Cerrito 90 360 180 79 32
Yegros
Gral. Colman￾Mbarigui 90 360 252 57 16
Isla Saca 80 320 256 51 19
Caazapá
Isla apuá-Yeroa￾Santa Catalina 112 448 269 54 19
Tajy 115 460 230 50 17
Ñaumby-Isla 
Guazu 100 400 240 43 21
Total General 896 3.584 2.041 508 182
Data collection tools
In coordination with the ACDI/VOCA Paraguay staff, the evaluator defined a complete set of 
questionnaires based on the baseline questionnaires designed at that time.
 
4
In Nanawa PREP conducted surveys and focus groups with the MCRMRs, not the population itself.
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For the data collection, in coordination with the evaluator and the ACDI/VOCA Paraguay team, six local 
enumerators were selected. According to the terms of reference, they were selected from the districts 
/ communities of the program and were trained by the evaluator and then deployed to collect data in 
the field. The importance of using local enumerators is that they speak the Guarani language and are 
familiar with the areas of research. ACDI/VOCA Paraguay provided per diem and a pre-defined amount 
to cover local transportation, especially for distant areas.
The evaluator trained the enumerators to familiarize themselves with the data collection methods and 
questions, how to use and fill out the survey form, the solution to possible problems, etc.
The evaluator and the team, in coordination and with the support of ACDI/VOCA supervised the 
quality of the data collected by each enumerator and the data of the field was synchronized with a 
Dropbox server.
Cleaning, classification and data analysis
At the end of the fieldwork, the enumerators submitted the completed survey forms. The evaluator 
transcribed the data obtained and made the transfer of data from paper data sheets to an electronic 
database, eliminating possible errors introduced during the manual process. Excel was used for data 
entry. The statistical analysis and the administration of the data sets were made through IBM Statistical 
Software SPSS 23 (predictive analysis program) to verify the consistency of the data. For a more precise 
analysis, the database was cleaned and standardized following the criteria stipulated by the baseline study 
and ACDI/VOCA. The data entry errors and deviations of the response code were corrected, and all 
outliers were discarded with a standard deviation ± 4 of the means in all the metric variables.
The analysis was made for each group of indicators and indices of the PREP program in order to 
construct the final values for each indicator and compare the objectives and general results of the final 
program with the baseline.
Descriptive statistics and frequency analysis of variables were carried out for the characterization of the 
sample in the different strata and the complete sample.
Once the qualitative and quantitative data were processed and the evaluator finished with the analysis to 
compare or relate the findings, he proceeded with the interpretation and, finally, communicated the 
findings of the evaluation, the limitations of the methodology, and recommendations to this report. 
Quality Control
The evaluator adopted different strategies to ensure high standards of the data collection process and 
the maximum quality of the data collected. First, the work of the local enumerators was supervised in 
the field to ensure that the quality of the data is not compromised in any way. Secondly, the use of a 
specific application of predictive computer models ensured greater control over the quality of the data 
through the automatic omission pattern and the validation of the response, minimizing data entry errors.
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ANNEX B. QUESTIONNAIRE TO EXPERTS
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