This document was produced by EnCompass LLC for the USAID Monitoring and Evaluation Program for Lebanon (MEPL) 
under Prime Contract No. 7200AA20D00011, Task Order 72026821F00005. It was authored by Dr. Imad Salamey in 
collaboration with Stephanie Bassil of MEPL. 
Note: Limited redactions have been made to this version of the report in accordance with the principled exceptions to the 
presumption in favor of openness established in OMB Bulletin 12-01, “Guidance on Collection of U.S. Foreign Assistance 
Data.”
ENDLINE PERFORMANCE EVALUATION
BUILDING ALLIANCE FOR LOCAL ADVANCEMENT,
DEVELOPMENT, AND INVESTMENT (BALADI)
CARITAS LEBANON
FINAL REPORT
JUNE 2022
ENDLINE PERFORMANCE EVALUATION
BUILDING ALLIANCE FOR LOCAL ADVANCEMENT,
DEVELOPMENT, AND INVESTMENT (BALADI)
CARITAS LEBANON
FINAL REPORT
JUNE 2022
Prepared by EnCompass LLC for the USAID Monitoring and Evaluation Program for Lebanon
(MEPL) under Prime Contract No. 7200AA20D00011, Task Order 72026821F00005. 
This document is available to the public through the Development Experience Clearinghouse (DEC) 
repository (dec.usaid.gov). For additional information, please contact: 
EnCompass LL Corporate Office 
1451 Rockville Pike, Suite 600
Rockville, Maryland 20852
USA
Or
EnCompass LLC Lebanon Office
Arz Street
Librex Bldg. Bloc 2 – 3rd Floor
Zalka, Metn, Lebanon
DISCLAIMER: The authors’ views expressed in this publication do not necessarily reflect the views of the 
United States Agency for International Development or the United States Government.
COVER PHOTO: Solar panels installed by BALADI-CL on a school’s rooftop. (All photos, figures, and maps by 
MEPL)
ABSTRACT
The Building Alliance for Local Advancement, Development, and Investment (BALADI) Activity
implemented by Caritas Lebanon (CL) has come to a close after completing ten years of project 
work worth $20,586,399. It consisted of two major programmatic assistance responses: The first 
supported 23 municipalities and unions of municipalities through a Request for Municipal Assistance 
(RFMA) modality in 2012-2020, and the second assisted 19 faith-based organizations (FBOs) and 
non-governmental organizations (NGOs) via a Request for Community Assistance (RFCA) modality
in 2020-2022. Building on the 2020 final performance evaluation of the RFMA work, the present
evaluation examines: a) the relevance, effectiveness, and sustainability of the RFCA work and b) the 
sustainability of the RFMA work. 
The findings in this report highlight important contributions made by the RFCAs to support the 
urgent needs of marginalized communities following the 2020 economic crisis and the Beirut Port 
explosion. Though BALADI CL’s RFCA activities did not fully align with USAID/Lebanon’s 2014-2019 
Country Development Cooperation Strategy’s Development Objectives, they demonstrated 
effectiveness, adaptability, and inclusivity in responding to a sudden humanitarian crisis. Short-term 
sub-awards with limited budgets and narrow coverage were among the factors moderating the 
project’s impact in response to the vast and growing needs of the different marginalized 
communities. Several pitfalls challenged BALADI CL’s implementation, prime among them being CL’s
lack of expertise in managing an emergency response in multiple sectors under time constraints and 
a difficult economic and political environment. Moderating these difficulties, however, was CL’s
previous procurement experience gained from managing RFMA activities, which proved instrumental 
for the rehabilitation of facilities and the purchase and installation of equipment. The in-kind 
partnership modality encouraged the engagement of sub-awardees and heightened the stakes for the 
successful implementation and sustainability of activities. RFCA and RFMA projects remained at risk 
of being impeded by Lebanon’s failing state institutions and deepening economic and political crises. 
USAID/Lebanon can align future programming with national recovery plans, integrate humanitarian 
response within development assistance objectives, and coordinate with its implementing partners
(IPs) and relevant stakeholders nationwide to conduct needs assessments. The Mission can also 
improve program management by ensuring that the selected IPs are specialized in the types of 
projects being delivered, experienced in emergency response management, capable of attaining 
national outreach, and ready to sustain staff and do an appropriate handover of projects. Program 
implementation can be better coordinated through clear Terms of References that reduce 
responsibility overlap between USAID and the IP while avoiding the delivery of short-term and 
small-budget sub-awards. USAID can ensure the achievement of sustainable outcomes through a 
partnership that includes budgeted follow-on plans to secure project continuity and future
development. The IP can help optimize resources and reduce costs by (i) building partnerships and 
connections with other projects/donors working in the same space; (ii) establishing networks 
between sub-awardees implementing similar projects; (iii) engaging the broader community that 
supports Lebanon, such as the diaspora as well as other FBOs/NGOs and international 
organizations; and (iv) integrating, along with USAID, public private partnerships in future 
programming. 
ACKNOWLEDGMENTS
The evaluation team would like to thank BALADI-CL’s current and former staff for their 
cooperation and the valuable information they provided that helped us reach key findings and draw
conclusions and lessons learned. 
The team would also like to thank the staff of BALADI’s partner organizations who took the time to 
participate in the interviews and were patient when virtual calls were interrupted due to 
connectivity issues and power cuts.
The team also acknowledges the efforts of USAID/Lebanon’s staff, who reviewed the inception 
report, took part in the interviews, provided valuable feedback, and validated the evaluation’s
preliminary findings. Their contribution has guided much of the analysis and recommendations made 
in this report.
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FINAL REPORT – JUNE 2022
TABLE OF CONTENTS
FIGURES......................................................................................................................................II
ACRONYMS................................................................................................................................III
EXECUTIVE SUMMARY...............................................................................................................IV
EVALUATION PURPOSE AND EVALUATION QUESTIONS.................................................................................. IV
BALADI-CL BACKGROUND ............................................................................................................................... IV
EVALUATION QUESTIONS, DESIGN, METHODS, AND LIMITATIONS .............................................................. IV
EVALUATION FINDINGS AND CONCLUSIONS....................................................................................................V
EVALUATION RECOMMENDATIONS.................................................................................................................... VI
EVALUATION PURPOSE AND QUESTIONS .................................................................................1
EVALUATION PURPOSE ..........................................................................................................................................1
EVALUATION QUESTIONS .....................................................................................................................................1
BALADI-CL BACKGROUND......................................................................................................3
BALADI-CL PROGRAM OVERVIEW AND APPROACH ......................................................................................3
LEBANON CONTEXT POST-OCTOBER 2019 .....................................................................................................5
PRIOR EVALUATION OF BALADI-CL/RFMA.....................................................................................................6
EVALUATING REQUESTS FOR COMMUNITY ASSISTANCE - BALADI-CL/RFCA...........................................7
EVALUATION METHODOLOGY ..................................................................................................7
EVALUATION FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS.......................................8
FINDINGS .................................................................................................................................................................8
CONCLUSIONS......................................................................................................................................................20
RECOMMENDATIONS ...........................................................................................................................................24
ANNEXES..................................................................................................................................28
ANNEX 1: SCOPE OF WORK...............................................................................................................................29
ANNEX 2: EVALUATION METHODS AND LIMITATIONS ..................................................................................30
ANNEX 3: EVALUATION DESIGN MATRIX ........................................................................................................39
ANNEX 4: SOURCES OF INFORMATION.............................................................................................................56
ANNEX 5: DISCLOSURE OF ANY CONFLICTS OF INTEREST............................................................................57
ANNEX 6: EVALUATION TEAM ...........................................................................................................................58
ANNEX 7: REVISED BALADI ACTIVITY RESULTS FRAMEWORK.....................................................................59
ANNEX 8: BALADI-CL PROJECTS BY PHASE AND CATEGORY.....................................................................60
ANNEX 9: USAID/LEBANON AND BALADI AIMS AND INDICATORS..........................................................61
ANNEX 10: CHALLENGES FACING RFCA IMPLEMENTATION ........................................................................62
ANNEX 11: CHALLENGES FACING RFMA SUSTAINABILITY............................................................................63
ANNEX 12: RELEVANT RFMA PROJECTS IN A CHALLENGING ENVIRONMENT...........................................64
ANNEX 13: BALADI-CL INDICATOR TRACKING TABLE UP TO Q1FY2022..............................................66
ANNEX 14: DATA COLLECTION LOCATIONS AND TYPE ..............................................................................68
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FINAL REPORT – JUNE 2022
FIGURES
Figure 1: BALADI-CL’s timeline in a turbulent, fast-changing environment.................................................4
Figure 2: Timeline of RFMA projects facing challenging events.....................................................................20
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FINAL REPORT – JUNE 2022
ACRONYMS
A&E Architecture and Engineering 
AOR Agreement Officer’s Representative 
BALADI Building Alliance for Local Advancement, Development, and Investment
BER Beirut Explosion Response
CA Cooperative Agreement
CBO Community-Based Organization
CDCS Country Development Cooperative Strategy
CL Caritas Lebanon
COR Contracting Officer’s Representative
CSO Civil Society Organization
DAIS Data Analysis and Interpretation Session
DEC Development Experience Clearinghouse 
DO Development Objective
ERAC Environmental Review and Assessment Checklist
FBO Faith-Based Organization
FGD Focus Group Discussion
IR Intermediate Result
IRB Institutional Review Board
KII Key Informant Interview
M&E Monitoring and Evaluation
MEL Monitoring, Evaluation, And Learning
MEPL Monitoring Evaluation Program for Lebanon
NGO Non-Governmental Organization
PII Personally Identifiable Information
RFCA Request for Community Assistance
RFMA Request for Municipal Assistance
RMF René Moawad Foundation
SMEs Small and Medium Enterprises
SOW Scope of Work
ToC Theory of Change
ToK Transfer of Knowledge
USAID United States Agency for International Development
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FINAL REPORT – JUNE 2022
EXECUTIVE SUMMARY
EVALUATION PURPOSE AND EVALUATION QUESTIONS
This endline performance evaluation builds on the final performance evaluation of the Building 
Alliance for Local Advancement, Development, and Investment - Caritas Lebanon (BALADI-CL) 
Activity conducted in 2020 to examine the relevance and effectiveness of the Request for Municipal 
Assistance (RFMA) work performed between 2012 and 2020. This endline evaluation assesses
whether BALAD-CL’s Response for Community Assistance (RFCA) modality introduced in 2020 has 
been relevant, effective, and sustainable in terms of supporting USAID/Lebanon’s 2014-2019 Country 
Development Cooperation Strategy (CDCS). It also explores whether the RFMA modality has 
demonstrated sustainability. The evaluation draws conclusions, articulates lessons learned, and 
provides a set of recommendations to help inform future USAID programming in Lebanon.
BALADI-CL BACKGROUND
The BALADI-CL Activity (2012-2022) has come to a close after completing ten years of project 
work worth $20,586,399. It was implemented within a turbulent social, political, and economic 
environment fraught with challenges. The Activity, which is one of USAID’s longest-running projects 
in the country (lasting more than ten years), was able to adapt to and address these challenges 
thanks to several factors, including receiving large in-kind contributions from partners and local 
governments. BALADI-CL’s activities responded and adapted to a development-emergency nexus 
amidst an unprecedented economic meltdown in the country and included a wide array of 
development and emergency responses, including construction, renovation, equipment-installation, 
capacity-building, and psychosocial support in multiple sectors which the help of municipalities, civil 
society organizations (CSOs), and faith-based organizations (FBOs) providing services to 
marginalized communities. 
BALADI-CL underwent a major transformation in 2020. While originally launched in 2012 to 
strengthen local development and increase economic opportunity under an RFMA agreement, it 
later shifted to an RFCA modality to support non-governmental organizations (NGOs) and FBOs in 
responding to Lebanon’s severe economic fallout and the destruction brought about by the 2020 
Beirut Port explosion. Throughout its lifetime, BALADI-CL received 17 different contract 
modifications that amended/expanded its scope of work and extended its end date to June 2022. 
BALADI-CL assisted 23 municipalities and unions of municipalities in its RFMA phase and 19 NGOs 
and FBOs in its RFCA phase.
EVALUATION QUESTIONS, DESIGN, METHODS, AND LIMITATIONS
The questions selected for this endline performance evaluation examine the extent to which 
BALADI-CL’s RFCA work responded to urgent community needs, in line with USAID-Lebanon’s 
2014-2019 CDCS, and whether it was implemented to benefit marginalized groups, women, and 
youth. These evaluation questions look at how BALADI-CL managed the Activity’s material and 
human resources while abiding by quality-assurance standards and environmental regulations and 
how its management team was able to adapt to changing circumstances, communicate its outreach 
plan, and generate awareness about the Activity’s benefits. Further questions probe for effective 
implementation and means for achieving intended objectives. This includes questions that explore 
relevant factors that contributed to or hindered the achievement of outcomes, the improvement of
equitable delivery of public services to marginalized groups, and the implementation of activities in 
participatory and inclusive ways. Finally, the evaluation asks whether BALADI-CL is able to sustain its 
activities at both the municipal and community levels. It examines whether BALADI-CL has instated 
a long-term plan to build on the benefits gained, given the various exogenous and endogenous 
challenges facing the country.
This evaluation utilizes a multi-method approach to develop evidence-based findings and draw 
conclusions (Annex 2). It compiles primary and secondary data from various sources. The evaluation 
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FINAL REPORT – JUNE 2022 
team gathered secondary data from various BALADI-CL Activity documents, including its annual and 
quarterly progress reports, the final performance evaluation conducted in 2020, and various surveys.
The evaluation team utilized and analyzed aggregate data from BALADI-CL Activity documents to 
make objective judgments. For primary data, the team conducted key informant interviews (KIIs)
with stakeholder, focus group discussions (FGDs) with beneficiaries, and site visits (SVs) to 
beneficiary sites (Annex 3). KII and FGD respondents included USAID and CL staff, sub-awardees, 
and beneficiaries. The sampling approach adopted ensures a representative selection of projects. The 
team analyzed the data through a content-coding technique to extract empirically verified
conclusions and make corresponding recommendations. 
The evaluation is limited by the fact that many of the RFCA activities were recently launched, which
makes examining their long-term outcomes and sustainability premature. 
EVALUATION FINDINGS AND CONCLUSIONS
RELEVANCE
Responding to community and development needs: The findings revealed that BALADI-CL’s RFCA
activities were able to respond to the critical and urgent needs of vulnerable communities, despite
their limited coverage and small budget. However, BALADI-CL's RFCA did not fully align with the 
2014-2019 CDCS’s Development Objectives (DOs), which were established prior to the onset of
the economic crisis in late 2019, early 2020. 
Building partnerships in a turbulent environment: BALADI-CL has benefitted from a sizable in-kind 
cost-share contribution that enhanced its ability to withstand economic and security shocks and 
adapt to an increasingly challenging environment. The procurement of equipment amid a collapsing 
banking sector and lack of credit was an important factor in the consolidation of partnerships with 
local organizations. 
Contributing to social capital: BALADI-CL supported several FBOs and NGOs working on meeting 
urgent community needs and fostered cooperative social responsibility and the preservation of social 
capital among the marginalized. This contribution could have been a more effective investment had a 
comprehensive community needs assessment been conducted by BALADI CL in the selected 
communities in order to validate proposed projects and identify possible collaboration opportunities 
between key stakeholders and had a wider pool of applicants participated.
Ensuring inclusivity in project design: BALADI-CL demonstrated a strong tendency to be gender 
inclusive on all levels of formulation in its project design. It also included youth and marginalized 
groups in its beneficiary pool and as members of its project management. 
EFFECTIVENESS
Managing amid lack of specialization: Certain management challenges arose from CL’s lack of 
technical expertise in implementing projects and from its sub-awardees’ limited experience in grant 
making. 
Managing short-term projects: Implementation was sometimes hindered by deficiencies in CL’s
management and coordination abilities due to staff shortages, lack of institutionalism, and overlap in 
management roles. Staff turnover was frequent due to multiple modifications and short-term 
assignments. Overlapping responsibilities between USAID, CL, and sub-awardees resulted in 
disparate expectations. For instance, BALADI-CL were deeply involved in developing proposals and 
project plans for sub-awardees while at the same time participating with USAID/Lebanon in the 
selection of awards. In addition, CL faced planning challenges, as it did not incorporate USAID’s 
Environmental Review and Assessment Checklist (ERAC) process in its budget early on. 
Nevertheless, despite multiple risks and challenges, BALADI-CL managed to deliver the intended 
outputs. 
Facilitating implementation through ToK and heightened benefits: Implementation was facilitated by 
transfer of knowledge (ToK) in procurement since CL built the institutional capacity of its partners 
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FINAL REPORT – JUNE 2022 
and learned valuable lessons from its RFMA projects. ToK was instrumental in the relative 
management and implementation successes of RFCA projects, which enabled the efficient 
implementation of the BALACI-CL Activity and facilitated its adaptation to the changing 
environment. Sub-awardees’ heightened benefits and in-kind contributions facilitated interactive 
implementation processes. 
SUSTAINABILITY
Responding to urgent community needs: Empowering relevant FBOs and NGOs responding to 
urgent community needs was a key aspect of project sustainability under BALADI-CL. The 
installation of essential equipment required by sub-awardees to operate sets the stage for ongoing 
community programming and service provision. Municipal projects, on the other hand, that respond
to urgent community needs and are linked to cooperative private-public partnerships (PPPs) have 
proven sustainable despite growing challenges.
In-kind partnership modality: The in-kind partnership modality was a strong component of project 
sustainability under BALADI-CL. Linked programs, such as training and community service, provided 
additional incentives for the sustainable use of equipment and performing required maintenance
thereon. Local ownership of projects increased the stakes in preserving and further developing
activities.
Exogenous obstacles: The sustainability of BALADI-CL projects is threatened by the consequences 
of further political-economic deterioration that may exacerbate the extended power shortages, 
rising fuel prices, and currency fluctuations. Other essential state provisions, such as water and 
education, that have been weakened have changed development priorities for donors. Sustainable 
development conditions are further undermined by a whole set of additional economic difficulties 
stemming from lack of financing for small and medium enterprises (SMEs), collapse of the banking 
sector, the currency devaluation and fluctuation of the exchange rate, declining foreign direct 
investments, sanctions imposed against local produce by Gulf States, and sanctions imposed by 
international actors on Syria that prevent normal transit and cross border business activities. 
Endogenous obstacles: The sustainability of BALADI-CL’s local development projects is further 
weakened by the fact that BALADI-CL, by design, has limited coordination with other existing 
national or international recovery plans, which limited the national outcomes of the Activity and 
kept benefits dispersed among various, often remote, localities. Additional risks include lack of a 
comprehensive partnerships, particularly with the private sector. Potential political capture, change 
in municipal leadership, and shifting priorities are additional risk factors. It should also be noted that 
long-term projects face different sustainability challenges compared to short-term ones. Long-term 
projects (RFMA) are affected by a fast-changing environment, such as the emergence of (i) new
technological innovations that render existing equipment inefficient or (ii) economic and political 
instabilities that shuffle development priorities. These factors can undermine original ambitions. 
Short-term projects (RFCA), on the other hand, risk producing minimal impacts in addressing a 
growing community need. 
Common to most projects is the lack of potential replicability and scalability amid high investment 
costs, lack of follow-up, and absent interlinkages between different funded projects. 
EVALUATION RECOMMENDATIONS
ALIGN PROJECT RELEVANCE
Recommendation 1: USAID/Lebanon should integrate development and emergency activities in 
future program design. BALADI-CL’s RFMA local community development objectives were 
negatively implicated by changing priorities amid the economic crisis. Those of RFCA, on the other 
hand, were of short-term return and detached from the Mission’s development objectives on the 
longer run. BALADI-CL would have been more relevant had the IP been able to follow up on 
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FINAL REPORT – JUNE 2022 
sustainable operation plans for local municipal development projects and on the sustainability plans 
of FBOs and NGOs .
Recommendation 2: USAID/Lebanon and its implementing partners (IPs) should establish a closer 
coordination with other existing national or international recovery plans. This strategy is to be 
carefully formulated in emergency conditions, where state institutions may become relevant to 
response and recovery, such as the Lebanese Armed Forces, the Internal Security Forces, and the
High Relief Commission. Other donors, international organizations, and the Lebanese diaspora may 
also become partners in offering relief, such as those provided in the aftermath of the Beirut port 
explosion. The ability of a US-funded project to integrate itself within the wider national response 
plan helps optimize resources, increase its impact, and elevate the relevance of its intervention.
Recommendation 3: USAID/Lebanon should ensure its IPs conduct a comprehensive national 
community needs assessment prior to sub-awards. This can help identify priority needs, foster 
consortium-building between sub-awardees, and achieve a more rigorous proposal solicitation phase 
that ensures a wide and inclusive pool of applicants. The relevance of BALADI-CL’s RFCA work to 
community needs was constrained by small and short-term investments as well as limited coverage. 
Such limitations necessitate that IPs conduct future proposal solicitation in a more rigorous 
approach to ensure a wide and inclusive pool of applicants. The selection of awards can then 
proceed while taking into consideration the appropriate targeting of beneficiaries and relying on a 
comprehensive national needs assessment. 
IMPROVE MANAGEMENT
Recommendation 4: USAID/Lebanon should incorporate further capacity building/strengthening
into project design and ensure its IPs target new and emerging partners and small businesses for 
their awards.1 This will help ensure diversification—and aligns with CDCS 2021-26 development
hypothesis.2 FBOs play an important role in responding to emergencies since they possess a wide 
community outreach and elaborate service provisions. However, many of these organizations lack
management specializations, which undermines their effectiveness.3 Thus, building their capacity is 
urgent to ensure the good management of service delivery and emergency response in different 
sectors. This can be achieved following a deeper organizational assessment covering human-resource
systems, procurement, financial management, and communication. Based on this assessment, a 
capacity-development action plan can be developed to support the IPs in improving their
performance.
Recommendation 5: When contracting an IP for a local development Activity, USAID/Lebanon 
should select a cross-sectarian NGO or multiple FBOs affiliated with different sects. This/these 
organization/s should be specialized in emergency response and able to take on a central role in the 
solicitation of participation and the implementation of a nation-wide partnership. This will ensure 
diversity of coverage and specialization in management.
Recommendation 6: USAID/Lebanon’s selection of an IP for a local development Activity should 
be based on the latter’s capacity to maintain staff beyond short-term project delivery. The IP should 
be able to perform a smooth handover of project assets and transfer of learning in key positions to 
the new project owner(s), as needs arise.
1 USAID provided Caritas with a full capacity building program and institutional support through Baladi CAP. 
2
 Lebanon Country Development Cooperation Strategy 2021-2026 | U.S. Agency for International 
Development (usaid.gov)
3 CARITAS conducted a pre-assessment of applicants’ qualifications prior to sub-awards.
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FINAL REPORT – JUNE 2022 
STRENGTHEN IMPLEMENTATION
Recommendation 7: USAID/Lebanon should advise its IPs to avoid short-term community 
response projects (6-12 months) and prioritize mid-term projects (12-24 months) instead. This can 
help stabilize the IPs’ human resources and provides sufficient time to monitor progress and 
measure outcomes. 
Recommendation 8: USAID/Lebanon should maintain BALADI-CL’s implementation practices in 
future programming and establish clear Terms of References with the new IPs to define roles and 
avoid the overlapping of responsibilities. 
ENSURE SUSTAINABLE OUTCOMES
Recommendation 9: USAID/Lebanon should require its IPs to budget for follow-up plans and 
approach ongoing projects with a similar proposition. This process can be managed through a 
monitoring plan. Such measure will help preserve local interests, sustain long-term partnerships, and 
avoid the equipment drop-off approach (i.e., delivering equipment only without relevant capacity 
building or service programming). 
Recommendation 10: USAID/Lebanon should require its IPs to ensure that projects providing an
emergency or disaster response: a) build partnerships and connections with other projects/donors 
working in the same space, b) network with other sub-awardees on the same project, and c) engage 
in the broader community that supports Lebanon, such as the diaspora as well as other NGOs and 
international donors. During turbulent times, the Lebanese diaspora has proven to be an active 
stakeholder in safeguarding local development and response to emergencies. 
Recommendation 11: USAID/Lebanon should design its Activities as to include PPP components 
that support sub-awards that aim to respond to local community needs. The participation of the 
private sector provides for the mutual and long-term benefits of communities as well as to the nexus 
of emergency and development.
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EVALUATION PURPOSE AND QUESTIONS
EVALUATION PURPOSE
This endline performance evaluation of the Building Alliance for Local Advancement, Development, 
and Investment – Caritas Lebanon (BALADI-CL) Activity is conducted by the Monitoring and 
Evaluation Program for Lebanon (MEPL) implemented by EnCompass LLC and Management Systems 
International (MSI). 
The evaluation builds on BALADI-CL’s final performance evaluation conducted in February 2020
(henceforth referred to as the 2020 evaluation) and intends to inform USAID/Lebanon about the 
Activity’s performance and achievements, sustainability, and lessons learned for future programming. 
It looks at the extent to which BALADI-CL Request for Municipal Assistance (RFMA) activities
achieved outputs, outcomes, and set objectives. For example, it discusses BALADI-CL/RFMA’s
efforts to empower municipalities and enable them to implement local-development projects to 
improve the social and economic conditions in their communities, with a special focus on host 
community needs in light of the Syrian refugee crisis that started in 2011. 
This endline performance evaluation includes findings from the 2020 evaluation but primarily focuses
on how the BALADI-CL adapted and accomplished its Request for Community Assistance (RFCA) 
objectives as of 2020.4 By documenting successes, challenges, and lessons learned, the evaluation 
informs future programming for both USAID/Lebanon and CL and contributes to the Mission’s 
commitment to continuously adapt and learn in emergency situations. This evaluation also addresses 
environmental compliance and the inclusion of women, youth, and marginalized groups as 
crosscutting elements in BALADI-CL/RFCA’s activities. In addition, it assesses BALADI-CL’s 
institutional and managerial context and capacity to manage similar activities in terms of human 
resources, procurement, reporting, and monitoring. 
Ultimately, the evaluation gathers and generates data to gauge BALADI-CL’s progress in contributing 
to the achievement of USAID/Lebanon’s 2014-2019 Country Development Cooperation Strategy 
(CDCS)’s Development Objectives (DOs) 1 and 2. Specifically, it focuses on how and whether 
BALADI-CL achieved to its overall goals of (1) improving the governance of municipalities and public 
service delivery; and (2) establishing sustainable local social capital, while considering the effect of 
many contextual factors outside the scope of the Activity, including the economic and political 
constraints during the same implementation period.
In line with the above, and with BALADI-CL coming to a close in June 2022, this evaluation seeks to
assess the relevance, effectiveness, and sustainability of the BALADI-CL/RFCA work and the 
sustainability of the BALADI-CL/RFMA work. It reflects on the successes and the lessons learned to 
inform future USAID programming in Lebanon, especially as the economic and political context 
continues to change.
EVALUATION QUESTIONS
RELEVANCE 
The evaluation seeks to assess the extent to which BALADI-CL/RFCA was relevant in terms of
achieving the Mission’s objectives and in its ability to respond to urgent community needs while 
targeting marginalized groups, women, and youth (Annex 3). It also assesses whether the Activity
was designed in a gender-sensitive and -inclusive manner. The three evaluation questions used to 
address relevance were: 
4 More information on RFMA and RFCA is found in the Background section
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FINAL REPORT – JUNE 2022 
1. To what extent did BALADI-CL/RFCA’s goals and results align with and contribute to the 
USAID/Lebanon 2014-2019 CDCS? 
2. To what extent did the awarded NGOs address critical community-identified needs, 
particularly those of women and youth? 
3. How did projects adapt as community needs changed? 
EFFECTIVENESS
Another objective of the evaluation is to reveal whether BALADI-CL was able to effectively manage 
the delivery of sub-awarded projects toward intended outputs. The following evaluation questions 
were used to measure management effectiveness: 
1. To what extent did BALADI-CL/RFCA effectively manage material and human resources? 
2. To what extent did the Activity comply with quality assurance requirements, procurement 
procedures, and environmental measures?
3. How did BALADI-CL/RFCA’s management adapt when the Activity context changed in 
2020, and what mechanisms and procedures most supported rapid Activity adjustment?
4. To what extent did the Activity adhere to its Communication and Outreach Plan and 
generate awareness of the Activity, its results, and USAID/Lebanon? 
Effective project implementation was another important indicator of successful achievement of 
project outputs toward outcomes. The following evaluation questions were used to measure 
implementation effectiveness: 
1. To what extent did BALADI-CL/RFCA achieve its goals and objectives? 
2. What factors (endogenous or exogenous) contributed to the achievement or non￾achievement of results?
3. What evidence is there that BALADI-CL/RFCA contributed to improved public service 
delivery in local communities?
4. To what extent were BALADI-CL results experienced by communities equitably? Were 
women, youth, and marginalized groups able to access/participate in activities and 
experience results? What were the barriers (if any) that hindered their participation, and 
how were these barriers addressed?
5. To what extent were the awarded projects developed, implemented, and closed in a 
participatory and gender-sensitive and -inclusive way?
6. What where the major challenges encountered, and the major lessons learned?
SUSTAINABILITY 
Two main questions were asked to determine whether BALADI-CL in its RFMA and RFCA 
components was sustainable: 
1. How did the BALADI-CL Activity plan for sustainability/long-term results, be it at the NGO 
or the municipality level? 
2. How did BALADI-CL leverage institutional factors, community groups/members (including 
women, youth, and people from diverse backgrounds), enterprises, and other elements to 
maximize the likelihood of sustained results?
3. What are the major factors, challenges, and opportunities encountered to sustain activities 
at the municipal or NGO level?
LESSONS LEARNED AND RECOMMENDATIONS
Per the objectives of this evaluation, several questions were included to capture the lessons learned 
and make appropriate recommendations as follow:
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1. What are the key lessons and recommendations in terms of USAID performance (program 
and context management, cross-USAID effort, political access and influencing)?
2. What lessons have been learned at the project level? What lessons on gender and inclusion 
were learned? What evidence is there of adaptive programming? 
3. What are the key lessons and recommendations for the strategic design of the program 
going forward?
BALADI-CL BACKGROUND
BALADI is a USAID Activity implemented by CL among other implementing partners (IPs). Its goal is 
to foster long-term collaboration between municipalities/unions of municipalities, non-governmental 
organizations (NGOs), community-based organizations (CBOs), and private-sector entities to 
implement and manage community projects and deliver services. More specifically, the Activity seeks 
to: (1) Improve the governance of municipalities and improve public service delivery, and (2) 
establish sustainable local social capital. The Activity’s intermediate results (IRs) include: more 
capable municipalities working inclusively with citizens to effectively accomplish local development 
objectives (IR1), enhanced participatory decentralized governance acting as a catalyst for social 
capital development (IR2), and broad-based development through support of locally-championed 
plans and reforms (IR3).5
The Activity was designed to support the USAID/Lebanon 2014-2019 CDCS, contributing to DO1: 
Public sector capacity to deliver services improved through IR 1.3: Improved governance in 
addressing citizens’ needs in public service delivery, and DO2: Economic opportunity enhanced
through IR 2.1: Increased private sector competitiveness. 
BALADI-CL PROGRAM OVERVIEW AND APPROACH
OVERVIEW
Originally, USAID awarded two cooperative agreements (CAs) to René Moawad Foundation 
(RMF)—CA No.AID-268-A-12-00004—and CL—CA No.AID-268-A-12-00005—to implement the 
BALADI project. The BALADI CA had an aggregate value of $27 million over a period of five years; 
from September 30, 2012 to September 29, 2017. The BALADI-CL Activity was later extended until 
November 2019. This is referred to in this report as RFMA I and II.
RFMA had a total budget of $12,928,203 and implemented the BALADI project in 14 Lebanese 
districts. It was designed to support achievement of the 2014-2019 CDCS DO1, through 
achievement of IR 1.3, and CDCS DO2 through achievement of IR 2.1. In particular, the project was 
designed to encourage local government service delivery by supporting municipalities and municipal 
unions nationwide to address citizen governance and economic needs. Through this assistance, 
BALADI CL offered an opportunity for municipalities, municipal unions, and Mayors to draft and 
implement developmental projects in the following six sectors: agro-processing services, sustainable 
and renewable energy, sports centers, equipment, recreational and multipurpose facilities, and eco￾tourism (See Annex 8).
Following the rapid economic deterioration in the country, USAID/Lebanon granted CL additional 
funds under Request for Community Assistance I (RFCA I) in July 2020. Further funds were allocated 
later that year under Beirut Explosion Response (BER) to support nine NGOs, including faith-based 
organizations (FBOs), through in-kind small grants (ranging from $14,000 to $50,000 each). In 
February 2021, BALADI-CL launched RFCA II, ending in September 2021, to support additional 
5 USAID/Lebanon Country Development Cooperation Strategy (CDCS) - 2014-2020
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NGOs in performing their functions. In July 2021, under modification 16, USAID/Lebanon granted 
CL an extension of five months until February 2022 and later extended the deadline once again until 
June 2022. The combined modifications and extensions increased the total funds of BALADI-CL to 
$14,649,561. The overall cost-share of the project became $5,936,838, bringing the total fund for 
both RFMA and RFCA, since inception to date, to $20,586,399 (See Figure 1 for the different phases 
of program). 
CL was to dedicate its efforts starting June 2021 to complete and close out projects under RFMA 1 
and II while implementing the operational and sustainability plan, including the leadership trainings; 
completing equipment disposition memos for municipal projects and verifying the intended use of 
public spaces; completing equipment purchases and training activities for sub grants issued under 
RFMA; and completing the project’s final close-out.
RFCA APPROACH
Under BALADI-CL/RFCA, the project utilized a competitive grants program modality to sub-award 
19 NGOs and FBOs and achieve program objectives. These objectives included providing services to 
vulnerable populations through creating 12 new employment opportunities, increasing women’s 
participation in United States Government (USG)-assisted programs by 40% to improve productive 
economic resources, and introducing 32 training or capacity-building activities (modification 16). 
RFCAs took into consideration the new economic landscape and the post-Beirut Port explosion 
environment to support urgent community needs while assisting BALADI-CL in achieving its
transition towards closure. 
To date, BALADI-CL has delivered assistance to 23 municipalities and unions of municipalities across 
14 districts (Aley, Metn, Baabda, Hermel, Baalbeck, Rachaya, West Bekaa, Zahle, Hasbaya, Nabatieh, 
Tyre, Bint Jbeil, Marjeyoun, and Saida). Municipal assistance included the implementation of 
development projects in the following sectors: agro-processing services, sustainable and renewable 
energy, sports centers, equipment, recreational and multipurpose facilities, and eco-tourism. In 
addition to municipal assistance, BALADI-CL supported 19 NGOs, including FBOs, through in-kind 
small grants (averaging $35,000 each) under RFCA I and II and BER (Figure 1).
Figure 1: BALADI-CL’s tim eline in a turbulent, fast-changing environm ent 
From 2019 onward, BALADI-CL faced challenges caused by the rapidly changing operating 
environment (Figure 1). The Activity faced major delays due to the COVID-19 pandemic (and 
resulting lockdown and restrictions in mobility). Moreover, the unprecedented economic and 
financial collapse (including currency devaluation) created delays in procurement and affected 
BALADI-CL’s collaboration with suppliers. Lastly, following consultation between USAID/Lebanon
and CL, the Activity adapted to the fast-deteriorating economic conditions by launching BALADI￾CL's RFCA I and II and supported urgent interventions to aid communities that were affected by the 
Beirut port explosion in August 2020 through the RFCA BER. These challenges resulted in a cost 
extension for BALADI-CL from September 2021 through February 2022, with additional funds 
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totaling $20,586,399. The Activity has completed and closed out municipal projects through 
operations and sustainability plans, finalized RFCA I and II, and concluded RFCA BER interventions.
LEBANON CONTEXT POST-OCTOBER 2019
POLITICAL, ECONOMIC, AND SOCIAL TURBULENCES
Since the launch of the BALADI Program in 2012, Lebanon has experienced a turbulent political and 
economic environment. Starting in 2013, political disputes prevented the election of a president, and 
the office was left vacant for more than two years. There were also recurring cabinet resignations, 
political paralyses, and deadlocks. Between 2013 and 2021, five different cabinets were formed with 
periodical transitional vacuums under caretaker governments lasting 36 months in total.6
The conflict in Syria, which started in 2011, forced more than 1.5 million Syrians to seek refuge in 
Lebanon. A protracted situation of displacement excreted immense pressures on local resources, 
shifting local priorities from development toward relief. In 2019, the economic situation in the 
country went down a rapid deterioration path. The gross domestic product (GDP) contracted by 
about 25% in 2020 and fell another 10-15% in 2021. Lebanon defaulted on its sovereign debt in 
March 2020, and between 2019 and 2021 its currency lost almost 90% of its value. Efforts by the 
government to reduce public debt by printing currency led to hyperinflation, which cost most 
Lebanese their bank savings and reduced their salaries and pensions to some 10% of their 2019 
value. Human suffering became widespread in the country as unemployment rose to 40%. More than 
half of the population now lives below the poverty line, and malnutrition, especially among children 
and refugees, is spreading.7
The economic crisis that stormed Lebanon is not just severe but virtually uniquely so in several 
regards. Lebanon imports some 80% of its basic goods, including foodstuffs, but it no longer has 
sufficient hard currency to pay for them. High import dependence is largely a result of the Lebanese 
version of the “Dutch Disease:” over some two decades, an over-valued currency undermined most 
productive sectors in favor of a dependent, rentier economy reliant upon constant infusions of 
foreign capital. But from 2011 onward, even this rentier economy stagnated. The Lebanese are left 
with little on which to fall back by way of domestic economic foundations and have few export 
opportunities to exploit, even with what is now a much more competitive currency.
All this happened and continues to happen in a context where gender inequalities are pre-dominant 
and pre-existent. According to the World Economic Forum's Gender Gap report published in 2020, 
Lebanon has one of the highest overall gender gaps in the world, ranking 145 out of 153 countries. 
Speaking of economy and livelihood, only one in four women have employment, compared to three 
in four men. Within the refugee community in Lebanon, women are the most food-insecure, and 
many experience increased vulnerability as the heads of households.
Lebanon confirmed its first COVID-19 case on February 21, 2020. The emergency measures 
adopted shortly thereafter to fight the pandemic exacerbated the preexisting economic catastrophe.
The lockdown imposed in March 2020 brought economic activity to a near-complete halt, with 
further suspended job and income losses. More businesses failed, and poverty spread fueled by rising 
unemployment, lower real wages, and the loss of savings due to the collapse of the local currency. 
Bread, medicine, and meat were all in short supply. Moreover, the government was no longer able 
to finance its own electric company thus plunging the country in prolonged blackouts. The 
emigration of skilled youth also accelerated at an unprecedented rate.8
6 Salamey, I. 2021. The Government and Politics of Lebanon. New York: Peter Lang.
7 Lebanon Political Economy Assessment 2021. USAID.
8 Ibid.
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According to the Internal Security Forces, many women and girls in Lebanon faced and continue to 
face extensive gender-based violence threats, risks, and incidents that doubled during the pandemic 
lockdowns. In addition, many girls and boys dropped out of school because of the remote learning 
modality and the lack of access to the needed information technology. Education leakage combined 
with stressful economic conditions caused an increase in child marriage and child labor.9
THE BEIRUT PORT EXPLOSION
On August 4, 2020, just as the Lebanese thought things could not possibly get worse, an estimated 
2,750 tons of unsafely stored ammonium nitrate exploded at the Beirut Port, which is adjacent to 
the downtown area and the capital’s commercial district. The catastrophic explosion killed over 200 
people and left 6,500 wounded. The port area was decimated, and the capital showered with broken 
glass. The magnitude of the blast, shooting outward from the city’s port, destroyed large parts of the 
city. Some 200,000 homes were obliterated, and 300,000 people were made homeless. Across the 
capital, windows shattered, and facades collapsed. Most buildings in the capital suffered some form of 
damage or were structurally affected. In an assessment carried out in the immediate aftermath of the 
explosion, the World Bank estimated the damage from the blast at $4.6 billion, with an additional 
$2.9 billion in related economic losses.10 Furthermore, a report published by UN Women on August 
13, 2020, following the Beirut Port blast, showed that women and girls became less resilient to 
shocks and are often facing more vulnerabilities including gender-based violence.11
LOCAL DEVELOPMENT, PRIVATE SECTOR, AND CSOS
As a consequence of the crises and events described above, local development in Lebanon was 
affected at various levels, most critically as regards failing anticipations for greater administrative 
decentralization. Political reforms were curtailed by the recurring economic crises and political 
deadlocks. Currency devaluations and fuel and power shortages devastated municipalities and 
interrupted their development priorities. 
The economic crisis had a direct toll on the private sector as well. The collapse of the banking and 
credit system put many private companies and small and medium enterprises (SMEs) out of business, 
leading to unemployment in excess of 40%. For SMEs, which represent 90% of businesses and 
employ 50% of the country’s labor force, the economic meltdown resulted in inventory losses and 
diminished personal equity by more than 80%.12 
Civil society organizations (CSOs), on the other hand, have in various ways attempted to adapt to 
the new circumstances. Some increased their readiness and capacities to respond to emergencies, 
thus providing critical assistance and support to the victims of the Beirut port explosion while others 
turned to support the immediate needs of the increasing number of citizens thrown into poverty.
PRIOR EVALUATION OF BALADI-CL/RFMA 
In February 2020, USAID/Lebanon commissioned a final performance evaluation of BALADI-CL.13
The evaluation concluded that important results were observed in BALADI-CL’s progress towards 
its objectives of improving public services and creating economic opportunities. However, the report 
pointed out shortcomings in the Activity’s effectiveness, citing failure to handle construction projects 
due to management inexperience and lack of expertise in architecture and engineering (A&E). The 
9 Fighting the spread of Lebanon's silent pandemic: Domestic abuse | Al Arabiya English 10 World Bank: Lebanon blast caused damage up to $4.6 billion (yahoo.com) 11 Lebanon Political Economy Assessment 2021. USAID. 12 Ibid. 13 PA00X4S3.pdf (resiliencelinks.org)
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evaluation also highlighted other relevant deficiencies in management and implementation 
effectiveness, including in terms of monitoring and evaluation (M&E) and outreach and 
communication. The evaluation concluded that, prior to 2020, BALADI-CL’s response to local 
demands had excessively been driven by construction projects, thus undermining other objectives, 
particularly those aimed at improving governance and local social capital. Several recommendations 
were proposed, including the need to better communicate sub-awards expectations with a longer 
start-up timeline, improve memoranda of understanding (MOUs) with municipalities, streamline the 
sub-award program with more resources, provide more gender-specific training to staff, and include 
a baseline of gender gap towards sensitizing partners and beneficiaries. 
EVALUATING REQUESTS FOR COMMUNITY ASSISTANCE - BALADI-CL/RFCA
USAID/Lebanon was capable of responding swiftly to the fast-paced economic deterioration that 
started in October 2019. This was evident in the Mission extending the timeframe for BALADI-CL 
through RFCAs and agreement modifications. The focus was to support NGOs and FBOs to achieve
a fast crisis response. BALADI-CL/RFCA implemented and managed a sub-award program in 
response to emerging community needs in a short time-interval, while also transitioning towards 
contract closure. Now that the Activity is coming to a close, it is important to consider questions 
about whether such an approach was appropriate and relevant to USAID’s country objectives, 
whether CL was effective in executing and managing the activities, and whether the designed 
responses were sustainable, gender sensitive, and inclusive. 
EVALUATION METHODOLOGY
This evaluation utilizes a multi-method approach. The evaluation team conducted document reviews 
and collected data from semi-structured key informant interviews (KIIs), focus group discussions 
(FGDs), and site visits (SVs) in order to compile and analyze information toward findings. The tools 
are available in Annex 3. 
The team collected primary qualitative data over 14 days through 21 KIIs, five FGDs (with 23 men 
and 21 women), and eight SVs. The locations of the sampled organizations and municipalities are 
available in Annex 14. Secondary data review was mostly focused on BALADI-CL’s quarterly 
progress reports, cooperative agreement and related modifications, and 2020 evaluation in addition 
to an analysis of lists of RFCA beneficiaries and other documents (Annex 4). 
The evaluation team applied purposive sampling to select 10 RFCA and four RFMA projects based 
on findings from the 2020 evaluation and BALADI-CL’s progress reports, with the objective to cover 
all sectors in diverse locations. For the KIIs, the team interviewed USAID staff, CL staff, heads or 
members of municipalities, and project/site managers, either online or in-person. The team also 
conducted FGDs with community members to learn about their experiences and satisfaction with 
the services provided by BALADI-CL. The team visited four of BALADI-CL’s 19 RFCA projects and
four of the 23 RFMA projects with which BALADI-CL had partnered. 
The 14 days of data collection were spread over a period of 4 weeks, longer than what was
originally planned due to national holidays and the limited availability of some interviewees. The team 
selected FGD participants based on convenience in terms of distance and transportation and 
mitigated response biases by clearly explaining to participants that the anonymity of the data 
collected would be ensured. The team did not identify any recall bias, as none of the participants had
issues remembering details about the projects or the services provided. The team transcribed, 
coded, and summarized all interviews then held two data-analysis and -interpretation sessions (DAIS) 
to share emerging themes and patterns and develop finding statements.
The evaluation team was composed of a team leader supported by six MEPL team members 
throughout the evaluation. 
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EVALUATION FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS
FINDINGS
This endline performance evaluation has three overarching objectives aimed at assessing the 
relevance, effectiveness, and sustainability of the BALADI CL Activity. To attain these objectives, the
evaluation team used a set of evaluation questions to generate findings and recommendations.
ACTIVITY RELEVANCE (RFCA)
Q1.1 To what extent did BALADI-CL/RF CA’s goals and results align with and 
contribute to the US AID/Lebanon 2014-2019 CDCS? 
Finding 1.1: BALADI-CL was relevant to emerging and changing community needs (RFCA I, BER, 
RFCAII) and has modestly contributed to DO1-Sub-IR 1.4.1 in supporting CSOs but was not 
directly aligned with the contexts of democratic governance, public service provision, or 
economic empowerment emphasized in DO1 (particularly IR1.3) and DO2. 
The evaluation team found that, despite responding to urgent community needs, the objectives set in 
BALADI-CL/RFCA’s M&E plan lacked a clear alignment with the 2014-2019 CDCS DOs and IRs. 
RFCA supported NGOs and FBOs in responding to an emergency situation, which can partially be 
accounted for by DO1- Sub-IR1.4.1: Citizens’ concerns increasingly addressed through CSO 
initiatives and can be indicated under Sub-IR1.4.1a: Percentage of citizens who feel that their 
concerns are well represented by USG assisted civil society organizations. Nonetheless, RFCA had 
no relevance to democratic governance or public-service provision, unlike BALADI-CL/RFMA (See 
Annex 9). 
RFCA attempted to modify aims in order to adapt to the new environment. Modification 15 states 
that the RFCA aims “to provide quality social services across Lebanon to vulnerable people”. 
Modification 16 reiterates the same objectives for RFCA I and II “in fulfilling the urgent needs of 
vulnerable communities across the entire country.” The Beirut Blast’s RFCA echoed a similar urgent 
response (see Annex 7). Modification 16 led to the establishment of the Activity Results Framework 
and attempted to align RFCA activities with BALADI and CDCS objectives (Annex 7).
As reported by USAID/Lebanon staff, the deviation from the original BALADI/CDCS objectives to 
those established under RFCA stems from many factors, namely the modification of the project in 
response to emerging and immediate needs rather than planning for long-term development 
objectives. Evidently, post-2020 conditions were different than those of 2014 when the development 
goals were established to “improve accountability and credibility of public institutions, and broader 
economic prosperity.”
Q1.2 To what extent did the awarded NGOs address critical com m unity-identified 
needs, particularly those of wom en and youth? 
Finding 1.2: BALADI-CL’s awarded projects served women, youth, children, persons with special 
needs, and minority groups across the country, in all districts. BALADI-CL selected sub-awards in 
an interactive and participatory process to ensure they served critical community needs. Yet, a 
significant portion of vulnerable groups and communities did not participate in BALADI. Modest 
funds and limited coverage prevented a more-comprehensive inclusion. 
RFCA’s initial aim was to help FBOs and NGOs provide urgent socio-economic services to 
vulnerable communities throughout the country. Modifications stated that the aim was “to provide 
quality social services across Lebanon to vulnerable people… in fulfilling the urgent needs of 
vulnerable communities across the entire country.” (RFCA Mod 15 & RFCA Mod 16) 
The evaluation found that sub-awardees had indeed contributed to the mentioned objectives, as they 
were located among and provided services to vulnerable communities. The sub-awardees proved to 
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have a staff composition and service-delivery mechanism that served women, youth, children, 
persons with disabilities, and minority groups in different districts of the country. Through the 
analysis of 13 beneficiary lists, the evaluation team found that the majority of sub-awardees served an
average of 40-50% female beneficiaries. One sub-awardee’s beneficiaries were all women, while two 
others had less than 30% women in their beneficiary pool. One of the organizations targeted youth
only (average age 24) and seven others had youth among their beneficiaries.
BALADI-CL, in consultation with USAID/Lebanon, made significant solicitation efforts to ensure the 
selection of sub-awardees capable of serving affected communities. BALADI-CL’s team carried out 
the awarding process while promoting interaction and responsiveness with the sub-awardees, 
particularly in terms of ensuring proposals were informed by a needs assessment when possible 
(applicable for 6 of the 10 NGOs interviewed), developing the proposal, and closely accompanying 
the implementation process. FGD participants also noted that the projects were very relevant to 
their needs or the needs of their community and that they would be willing to participate again in 
similar activities to enhance their skills and knowledge. 
Among the shortcomings of the awarding process, however, is the fact that a major portion of the 
vulnerable groups and communities supported by NGOs/FBOs in different Lebanese districts did not 
apply to BALADI-CL (as per interviews with BALADI-CL and USAID staff). This was particularly 
evident in the fact that the pool of applications included a majority of Christian or non-sectarian 
organizations, with only three Muslim organizations, two of which withdrew early on in the process. 
This resulted in a modest coverage of vulnerable Muslim communities’ critical needs.14 Another 
major shortcoming facing BALADI-CL’s capacity to comprehensively address nation-wide critical 
community needs lies in the fact that the RFCA awards were limited by small funds, types, and short￾term implementation. Thus, the contribution of BALADI-CL to community support was 
overwhelmed by disproportional needs amid fast-deteriorating social and economic conditions in the 
country.
14 Projects have disproportionally awarded Christian FBOs/NGOs (14 of the 19 or 74%) while including only 
one Muslim minority FBO (Alawites) and five NGOs that are mostly Christian-led. Major Muslim FBOs (Shia 
and Sunni) were not included. This is a fact that challenges relevance assumptions by limited coverage and 
short-term project that do not respond to the “all of Lebanon” objective (see modifications 15 and 16). 
Despite being majority-Christian FBOs operating in Christian majority districts, they indiscriminately served 
diverse sectarian populations, including Muslims (Lebanese and Syrians). Interviews with several Christian FBOs 
indicated that their beneficiaries were of mixed nationalities and religious groups, including Syrian refugees and 
foreign domestic workers. CL’s monitoring reports, however, did not identify the religious compositions of 
beneficiaries.
“The objective of the project centered 
around young people who wanted to 
leave Lebanon because of their economic 
situation, especially in the locations I 
talked about. They can barely continue 
their education. So, we did a context 
analysis. The result was the need for 
training on search engine and user 
interface.”
Sb d ff 
“The idea of the project was based on 
the needs of our area. We conduct a 
needs assessment on an annual basis. 
Based on the results, we determine 
challenges and what the community looks 
for.”
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Q.1.3 How did projects adapt as com m unity needs changed? 
Finding 1.3: BALADI-CL was found to be adaptive and flexible. It adopted various modifications 
to accommodate changing community needs within short periods of time.
BALADI-CL adopted various modifications in order to accommodate changing community needs. 
The RFCA was, in itself, a modification of the RFMA intended to respond to emerging economic 
hardships facing communities. In its short two-year lifetime, and despite its limited funds compared 
to the massive needs, BALADI-CL/RFCA evolved into three phases amid turbulent socio-economic, 
emergency, and pandemic conditions.
RFCA I, RFCA II, and RFCA-BER each attempted, in its own terms, to address particular emerging 
community needs. Ultimately, they were all developed and implemented successfully along 19 sub￾awardees while demonstrating BALADI-CL’s adaptive flexibility within a short period of time. The 
selection of the sub-awardees and their programming also aimed to address fast-changing community 
needs. Sub-awardees’ fast responsiveness and interaction with BALADI-CL stems from the high 
stakes in the benefits being received and demonstrated by the in-kind contribution made to achieve 
objectives. This partnership modality contributed to BALADI-CL’s fast adaptation to serve changing 
community needs. 
MANAGEMENT EFFECTIVENESS (RFCA)
Q2.1 To what extent did BALADI-CL/RF CA effectively m anage m aterial and hum an 
resources? 
Finding 2.1.1: BALADI-CL managed the projects well while abiding by implementation 
requirements, though they encountered significant challenges and management risks as a result 
of their small team, high staff turnover, and poor institutionalization of management practices 
and reporting.
The most serious concern is that CL lacked technical specialization in the projects being 
implemented.15 CL is a charitable organization that targets marginalized communities across more 
than 25 locations in Lebanon. It is neither a development organization nor equipped to respond to 
emergency and disasters. At the same time, the sub-awarded projects were technically diverse and 
relatively complex and had a wide variety of objectives. BALADI-CL lacked the institutional 
requirements to manage the types of projects being implemented.
Still, this deficiency in technical specialization was largely alleviated by the experience and knowledge
that the BALADI-CL team had gained from managing RFMA sub-awards earlier. For example, CL’s 
15 See also 2020 Evaluation: PA00X4S3.pdf (resiliencelinks.org)
“I am proud that we helped all applicants to 
fine-tune the projects and make them more 
relevant to the scope of BALADI; we also 
helped them adapt to COVID. Some of the 
shortlisted had to remove a section of the 
project because it doesn’t fall under scope of 
USAID.” 
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procurement department proved timely for the RFCA, as it established internal procedures in line 
with international standards while serving RFMA and other CL projects.
An important aspect that further facilitated the management of RFCA sub-awards rested in the 
nature of the projects being implemented. Most projects required modest-size budgets and the 
purchase and installation of equipment. Hence, beyond consultation and procurement tasks, the 
management of purchasing and installation were transferred to a contracted third party. BALADI￾CL’s management focused more on following up on deliverables and receiving progress reports from 
sub-awardees. 
Nevertheless, the small-sized BALADI-CL team, the lack of handover and documentation of learning, 
and the heavy reliance on a single grant manager to coordinate the different tasks heightened the 
project management risks. This, in turn, added additional pressure to communicating with sub￾awardees about the progress being achieved.
Human resources were particularly challenged by anticipating the conclusion of BALADI-CL, then 
learning it had been extended and modified under RFCAs. Modifications prolonged the Activity for a 
few months only, and, as reported by some BALADI CL staff, their colleagues felt the need to start 
seeking employment opportunities elsewhere. According to interviews with BALADI CL staff, CL 
attempted to retain some by allocating them to other projects closer to the closure date of the 
Activity. Several staff members were also multitasking in order to attain the objectives before the 
close-out. 
Finding 2.1.2: Sub-awardees overall had positive experiences with the BALADI-CL team in 
terms of information sharing, coordination, communication, and flexibility. Respondents noted, 
however, that there was room for improvement in processes related to the selection of 
contractors and for more coordination at the outset and close-out. 
Interviewed sub-awardee staff were all very approving of BALADI-CL. They described the BALADI￾CL team as extremely helpful and supportive, and communication with them as well channeled and 
participatory. While they voiced no complaints regarding the awarding process, most said they 
would have liked to receive more equipment or to have had the opportunity to expand the benefits 
beyond BALADI’s timeframe. There were individual complaints from three organizations, with staff 
saying they had received insufficient communication and coordination from BALADI-CL at the start 
of the project, during the installation of equipment, and towards the end. 
Q2.2. To what extent did the Activity com ply with quality assurance requirem ents, 
procurem ent procedures, and environm ental m easures? 
Finding 2.2.1: BALADI-CL succeeded in delivering intended outputs despite internal and 
external challenges to the procurement and installation of equipment and rehabilitation of 
facilities. For provisions beyond equipment purchase and installation and facility rehabilitation, 
quality assurance in project delivery was undermined.
BALADI-CL’s management faced some challenges that hindered their full compliance with quality￾assurance requirements. These challenges include (i) the wide topical and sectoral diversity of the 
projects implemented, (ii) the limited number of staff handling key day-to-day management functions, 
(iii) the lack of action to acquire the needed technical knowledge for adequate managerial support 
and oversight, and (iv) the pressure to achieve implementation in a short period of time. This was 
particularly evident in the fact that RFCA required close assistance to the sub-awardees in 
developing project concepts through a single grants manager acting as a focal point for all sub￾awardees and supported by a single M&E coordinator (not specialized in management or 
coordination). The grants manager needed to coordinate the implementation of 19 different types of 
projects in a short period of time and a challenging environment. Though stretched, these two staff 
members still visited as many of the projects as possible to monitor quality, provide direct support 
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to sub-awardees, and validate progress reports. One of them said that more monitoring was needed 
to ensure an M&E quality as good as the one achieved in RFMA work earlier. 
BALADI-CL’s management team lacked knowledge in the type of equipment and training to be 
provided and relied on consultants for advice and procurement. This did not sit well with all sub￾awardees, with some saying they wished BALADI-CL had consulted with them closely when 
identifying providers, given their past experience in the market. One sub-awardee that works in a 
field in which BALADI-CL has no vast experience said the trainer they had recruited to work with 
him was not a good fit nor was able to provide quality training, which resulted in a subpar
deliverable. There were also delays in identifying a replacement afterwards. 
What worked in favor of BALADI-CL were the small-sized and equipment-focused projects that 
transferred much of the work into a centralized procurement procedure. The establishment of a 
procurement department during RFMA contributed significantly to ensuring that the tender process 
is robust and compliant with USAID standards. The load was however shared by two staff members 
only, who at times were overwhelmed by the quantity and diversity of the equipment, the endless
back-and-forth communication with some NGOs to gather detailed specifications, and the number 
of issues that needed to be addressed with suppliers when equipment needed replacement. Adding 
to that, delays in implementation were primarily due to exogenous economic conditions, the limited 
availability of goods in the market, global shipping problems, and price fluctuations. 
Finding 2.2.2: Compliance with environmental measures within RFCA was closely guided by 
USAID, outsourced, and not sufficiently planned prior to awards, which prevented full compliance.
The evaluation team found that the management of environmental reporting was not consistent 
throughout the RFCA, primarily because BALADI-CL lacked the expertise and know-how to manage 
the environmental component of the Activity, as revealed during interviews with CL staff. This is in 
part due to (i) end of contract of a key partner that supported BALADI-CL in the delivery of this 
requirement under RFMA, and (ii) the limited experience of BALADI-CL’s staff, who despite their 
best efforts to ensure compliance did not have sufficient knowledge and capacity to review the 
reports submitted by this partner’s successor for accuracy and relevance. 
USAID staff tried to fill the gaps by following more closely the implementation of Environmental 
Review and Assessment Checklists (ERAC) for each of the projects, especially those with 
construction works. Feedback was provided in detail to BALADI-CL and training was provided to 
the staff to increase capacity of the BALADI team to comply with the requirements. 
The investments from both sides were however not sufficient to compensate for the delays and 
inaccuracies in the ERACs. These issues resulted in challenges for six of the 19 ERACs, as the 
original budget for equipment and program costs was unable to reallocate funds to accommodate
ERAC requirements. Actions were assigned to BALADI-CL’s staff when they should have been 
assigned to the sub-awardees, and irrelevant measures were recommended for equipment that were 
not purchased. Therefore, some projects that were implemented with safety or environmental 
requirements were satisfactory, but at the financial expense of the sub-awardee, or simply did not 
comply with environmental requirements. 
“The project already provided us 
with the machines for composting, 
and we will start using them once 
our engineer deals with the basic 
issues. We are fine environmentally￾wise, our water has been tested for 
safety measures. Our garbage is 
separated.” 
Sb d ff
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Q2.3 How did BALADI-CL/RF CA’s m anagem ent adapt when the Activity context 
changed in 2020, and what m echanism s and procedures m ost supported rapid Activity 
adjustm ent? 
Finding 2.3: BALADI-CL adapted well to emerging and unforeseen circumstances, as it 
benefitted from past RFMA management experiences, centralized operation (procurement), and 
heightened sub-awardee benefits, despite lack of expertise in the sectors funded.
As discussed earlier, BALADI-CL’s management of RFCA work benefitted significantly from CL’s
past experience with RFMA work. The transfer of knowledge (ToK) improved BALADI-CL’s
management’s capacity in terms of purchasing and installing equipment and efficiently adapting M&E 
systems to a new phase. A newly-established procurement department also supported rapid 
adaptation. Management was able to deliver the projects despite unforeseen challenges and multiple 
risks, including currency devaluation and fluctuation, difficulties in importing products, extended 
delays in delivering equipment, and internal challenges related to high staff turnover at various 
management levels. 
The nature of the projects being implemented though did not require much management beyond 
small-scale facility rehabilitation and purchase and installation of equipment. This also minimized 
centralized-management difficulties in contrast to projects that required capacity building in different 
localities or sectors.
Another major factor that facilitated RFCA management was the fact that the stakes in project 
implementation were to the benefit of the sub-awardees. Rehabilitation work and equipment 
installation at sub-awardees’ facilities were essential for the working functions or the presumption of 
activities, a matter that elevated cooperation and responsive engagement between the management 
team and the sub-awardees, particularly in application and during installation stages.
All the above factors and procedures helped BALADI-CL’s management adapt to the contextual 
changes that occurred as of 2020. 
Q2.4 To what extent did BALADI-CL/RF CA adhere to its Com m unication and 
Outreach P lan and generate awareness of the Activity, its results, and US AID/Lebanon? 
Finding 2.4: All projects visited by the evaluation team were found to be adhering to USAID’s 
branding requirements (USAID logo is displayed on all equipment and visible to onlookers). 
BALADI-CL and sub-awardees communicated project results to direct beneficiaries. It is
premature to assess the extent of results communication to a wider audience. 
Interviews with sub-awardee staff showed that three projects held small launch events at the 
community level with limited attendance from project staff and potential beneficiaries. Five 
organizations published posts on social media that recognized USAID’s contribution to these three 
projects. CL also posted on its website about an event held to celebrate the signing of MoUs with 11
FBOs and described the scope and reach of the projects. All sites visited by the evaluation team
featured USAID banners and visible sponsorship. Communication and outreach plans were limited 
by the nature of the projects implemented (which responded to emergency and were centered 
around equipment provision and renovations) and their relatively small number of beneficiaries 
(estimated at 3,570 direct beneficiaries). It remains premature to assess the extent to which 
BALADI-CL’s RFCA projects are aligned with the original communication and outreach plan as 
formulated in their original proposals. By June 2022, most sub-awards had only completed facility 
rehabilitation or equipment installation. Relevant post-rehabilitation and equipment installation
services are now in the process of being launched. Thus, the sub-awardees did not have sufficient 
time to communicate benefits to a wider audience. 
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IMPLEMENTATION EFFECTIVENESS (RFCA)
Q3.1 To what extent did BALADI-CL/RFCA achieve its goals and objectives? 
Finding 3.1: BALADI-CL/RFCA has achieved its immediate objectives and has overcome various 
challenges, most significantly through providing equipment and renovating facilities, and to a lesser 
extent through human-resource development and capacity building. Long-terms goals and 
objectives await future evaluations.
A review of BALADI-CL’s last three quarterly progress reports shows that all RFCA projects were
satisfactorily implemented. Most indicator targets were met by Q1FY2022 with the exception of 
Indicator 3.2’s targets on sustainability of projects, and the targets of the indicator related to training 
of youth (Annex 13). BALADI-CL explained that sustainability could be assessed once handover has 
been completed for all projects in Q2. As for youth, BALADI-CL said that the target was originally 
too high, and RFCA did not require that all projects target youth. 
The evaluation team did not observe any serious challenges facing equipment installation or facility 
rehabilitation besides delays in procuring equipment or requests for additional programming support,
which were beyond the control of BALADI-CL or not within its scope of work. The predominantly 
equipment-based sub-awards were relatively easy to implement, as they were completely handled by 
BALADI-CL’s procurement department and coordinated by the grants manager, including bidding, 
purchasing, and installation.
Whenever a training component was attached to sub-awards, sub-awardees managed to deliver their 
training and capacity-building sessions successfully. The evaluation team did not see any cancelations 
of or major changes to training sessions beyond occasional postponements, minor revisions of plans, 
change of trainees, and lack of full participation.
RFCA-project implementation was occasionally hindered by heightened expectations in the sub￾awards’ proposal phase. This was the case whenever sub-awards promised to achieve immediate 
outcomes, such as ensuring the employment, internship, or empowerment of trainees. As reported 
by sub-awardee staff, projects that entailed capacity building encountered additional difficulties, such 
as curriculum development, training delivery, participation, and/or managing participant expectations. 
Exogenous factors were sometimes responsible for disrupting participation in capacity-building 
activities, such as gas prices/transportation costs. The economic crisis also hindered the ability of 
securing employment for the trainees. These challenges caused some delays in the procurement 
process as well, including throughout the purchase of equipment. (For a detailed list of challenges,
see Annex 10). 
Still, the cumulative contributions of the various sub-awards to BALADI-CL’s ultimate goals and 
objectives remain below the original expectations set in Mod 16, i.e., to achieve “long-term 
collaboration between municipalities or unions, NGOs, FBOs, CBOs, and private sector entities to 
implement and manage community projects and deliver services.” A more accurate assessment can 
be performed in the future once additional evaluations have been conducted that can link the 
different projects’ outputs to the overall BALADI-CL/RFCA outcomes. 
 
 
 
 
 
 
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Q3.2 What factors (endogenous or exogenous) contributed to the achievem ent or non￾achievem ent of results? 
Finding 3.2: Among the factors that contributed to the achievement of results were (i) BALADI￾CL’s retention of key staff and experience acquired from the previous RFMA work, (ii)
USAID/Lebanon’s technical support and close follow-up, and (iii) sub-awardees’ experience in 
their respective communities. However, BALADI-CL’s implementation was negatively affected by:
• BALADI-CL’s sub-granting approach that removed the sub-awardees from a comprehensive 
partnership. 
• High staff turnover at BALADI-CL and change in management at USAID/Lebanon. 
• Unclear selection criteria at the start of RFCA. 
• Sub-awardees’ lack of experience in procurement and proposal writing. 
• Contextual governance challenges in Lebanon, including the economic, energy, and health 
crises. 
Factors that contributed to the achievement of BALADI-CL/RFCA are many. First, the sub-awardees 
held a significant stake in the success of the Activity and thus actively cooperated to facilitate 
implementation. Second, BALADI-CL’s implementation of the RFCA work was aided by the 
experience they gained from the previous RFMA work. Third, USAID/Lebanon’s close follow-up 
with BALADI-CL’s team allowed for a timely implementation, ensuring compliance, troubleshooting 
and quality reporting. Fourth, CL managed to retain some of the BALADI-CL staff despite the 
approaching end date of the Activity (though these staff were assigned to multiple projects each and 
had to multitask). 
RFCA-project implementation faced exogenous and endogenous challenges. Exogenous challenges 
included the country’s socio-economic crisis and collapsing institutions (specifically the public 
electricity utility, Electricité du Liban), all of which undermined timely implementation and the 
sustainability of operations. As a result, the sub-awardees had to rely on their own diesel-fuel 
generators to run their operations (training, workshops, etc.), which proved costly and jeopardized
the continuity of project implementation. Other external factors included poor government 
facilitation and support to essential economic activities, such as providing incentives and seeking 
export markets for local agricultural products. The COVID-19 lockdowns were also among the 
external factors responsible for delays in implementation.
As for endogenous challenges, BALADI-CL’s sub-granting approach removed the sub-awardees from 
a comprehensive partnership, which made their contribution and responsibilities in project
implementation limited. This was not included in the original design of the RFCA. Furthermore, the 
in-kind nature of BALADI-CL/RFCA heightened the stakes in terms of partnership and ownership of 
the projects implemented, which caused overlapping of the responsibilities each party had. For 
example, BALADI-CL’s team became overly involved in drafting proposals for sub-awardees while, at 
the same time, making final selections alongside USAID/Lebanon. As such, sub-awardees receiving 
equipment appeared more like beneficiaries than implementers, dealing with BALADI-CL as a donor 
rather than a partner (according to BALADI CL staff). Thus, the sub-awardees were mostly removed 
from a comprehensive partnership while CL entirely took over implementation responsibilities. 
These issues were evident in several disagreements that emerged early on in RFCA’s selection 
process. 
Other endogenous challenges to implementation included the high staff turnover at BALADI-CL, 
especially the one caused by the approaching end date of the Activity, with staff seeking more 
permanent employment elsewhere (For a detailed list of challenges, see Annex 10). Moreover, the 
AOR for BALADI-CL at USAID/Lebanon changed during RFCA implementation.
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Q3.3 What evidence is there that BALADI-CL/RF CA contributed to im proved public 
service delivery in local com m unities (and for wom en and youth in particular)? 
Finding 3.3: Beneficiary organizations that received equipment and facility-renovation services 
are now fully operational and capable of serving their communities. 
Preliminary evidence indicates that beneficiary FBOs/NGOs have had their functions improved and 
are now able to effectively serve the local communities (women and youth in particular). These sub￾awardees are now capable of training women and youth, building their capacities, and providing them 
with critical services. For instance, three beneficiaries are now fully equipped, operational, and ready 
to provide women in their respective communities with vocational skills to build their capacities, 
generate income, and support their small businesses. Equipped training facilities are capable of 
catering to hundreds of local women, developing the skills they need to enhance their employability 
and business ventures. These NGOs/FBOs offer services that complement and support BALADI￾CL’s objective of delivering “public-services” targeting women and youth beneficiaries. Other 
organizations have already generated results in terms of improving service delivery to the 
community. For instance, one organization operates a school that is now equipped with solar panels, 
an important shift towards renewable energy and less reliance on diesel fuel for generators. The 
resulting cost savings help counter the school’s declining income and increasing operation costs.
Q3.4 To what extent were BALADI-CL/RF CA’s results experienced by com m unities 
equitably? Were wom en, youth, and m arginalized groups able to access/participate in 
activities and experience results? What were the barriers (if any) that hindered their 
participation, and how were these barriers addressed? 
Finding 3.4: RFCA projects benefitted women, youth, children, minorities, and people with 
special needs, allowing them to access the organizations and participate in decision making. 
However, BALADI-CL failed to reach NGOs/FBOs with certain religious affiliations in certain 
regions through solicitation.
BALADI-CL succeeded in soliciting applications from different regional communities, sub-awarding 
19 FBOs/NGOs to receive support in different areas, including agribusiness, education, vocational 
training, special needs, and psychosocial support. These organizations were provided different types 
of support, mainly facility rehabilitation and equipment installation (16 out of 19, or 85%). The 
remaining three received capacity-building/training support. These rehabilitation and equipment 
awards are intended to serve mostly women, youth, children, and marginalized groups, including 
those with special needs. While the evaluation team did not have enough time to interview 
beneficiaries of these facilities, we can confirm that they are accessible to the community at large. 
The team also noted that mostly Christians benefited from RFCA activities. This is because the 
majority of the solicited sub-awardees were Christian FBOs/NGOs (14 out of 19, or 74%) and none 
were Shia or Sunni. Interventions were concentrated in Christian-majority districts (Annex 14) and 
did not target CSOs in Muslim-majority areas in the South, Bekaa, and Akkar. This indicates that 
BALADI-CL did not achieve equity in service delivery to different religious denominations and 
geographic areas despite their efforts, and USAID’s requirement, to reach out to organizations of 
different religious affiliations even if these do not fully meet the institutional capacity requirements. 
One possible reason Muslim-affiliated organizations did not apply to the RFCA is the fact that the 
project is led by a Christian FBO (CL). Thus, equity in service delivery across religions and regions of 
the country appears not to have been achieved (Annex15) . 
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Q3.5 To what extent did BALADI-CL/RFCA develop, im plem ent, and close the 
awarded projects in a participatory, gender-sensitive and inclusive way? 
Finding 3.5: Most RFCA projects were developed with the active participation of the sub￾awardees. Yet, their closing was not often participatory, and most did not have a follow-up plan.
As reported by all interviewed sub-awardee staff and three BALADI-CL staff, all RFCA projects 
were developed with the active participation of the sub-awardees in terms of drafting proposals and 
selecting equipment. However, sub-awardees were often not included in project close-out 
processes, and most projects did not have a follow-up plan involving the sub-awardees, as this was 
considered beyond the scope of the Activity. In many instances, the sub-awardees were only notified 
about project closures and were not provided with feedback or ways to connect with other 
projects. This is despite the fact that operation sustainable plans emphasized the follow-up 
requirements but were not properly monitored, and NGO proposals included plan for sustainability 
and responsibilities which were not being followed up by the IP as observed by the evaluation team. 
SUSTAINABILITY (RFCA & RFMA)
Question 4.1: How did BALADI-CL plan for sustainability/long -term results at the (a) 
NGO/FBO and (b) m unicipal level? + How did the BALADI-CL Activity leverage 
institutional factors, community groups/members (including women and youth), 
enterprises, and other elements to maximize the likelihood of sustained results? 
Finding 4.1.a (RFCA): Respondents noted that the most critical factors influencing sustainability 
were equipment and in-kind contributions/funds. 
In RFCA activities, BALADI-CL’s plan for sustainability was embedded in every proposal developed 
by the awardee. Another notable aspect of sustainability is the fact that the sub-awards furnished 
most NGOs/FBOs with essential equipment for programmatic activities and the organizations’ work. 
Sub-awardees provided in-kind contributions whenever possible in order to ensure the installation 
and proper use of equipment, thus demonstrating ownership and stake in preserving the long-term 
use of equipment. This demonstrates the importance of partnership and in-kind contributions in 
making RFCA projects sustainable. 
Most sub-awardee respondents said they were currently seeking partnerships with new NGOs, 
donors, and municipalities. They are also trying to secure donations to buy additional equipment and 
provide training and/or planning to extend their services to paying customers or patients to expand 
their market reach. The income generated from the activities is expected to cover the projects’ 
operating costs. 
There are two caveats here, however. First, it is premature to assess the sustainability of all sub￾awarded projects at the moment, given that most have only been recently equipped and 
programmatic activities have not been launched yet. Second, exogenous factors, such as the rising 
diesel-fuel prices, undermine the organizations’ ability to continue operations despite the availability 
of equipment.
“Every applicant has a sustainability 
plan in the application, and we follow 
up on issues related to sustainability. 
Every month, we receive a progress 
report from the granters to the 
reporting and compliance officer and 
when she left, I received them and 
translate them into the quarterly 
reports.” 
BALADI CL St ff
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Finding 4.1.b (RFMA): Community needs are a critical reason for sustaining projects. 
Unfortunately, partner municipalities under RMFA did not utilize the original business￾development plans that were developed by experts recruited by BALADI-CL and did not
mainstream them into the implemented projects. 
The initial sustainability and business-development plans that were developed by experts recruited 
by BALADI-CL were embedded in project proposals at the municipal level. 
There were significant in-kind investments made by municipalities that demonstrated ownership and 
important stake in sustaining the activities. This supports previous observations made in the 2020 
evaluation, which noted “positive indications pointing towards sustainability of the services and 
economic benefits... Mayors and other respondents cited satisfaction with the projects. High usage 
rates and strong demand suggests that users may generate pressure to maintain the facilities, and by 
association, the jobs they created.16 Notably, sports facilities and hiking trails are being used, the 
tourist cabins are heavily booked, and the agri-business processing and cold storage units are also in 
use. Cost savings from solar power projects are greatly appreciated in the communities. Facility 
managers and municipal leaders expressed desire to expand some facilities, such as the cold storage 
facility and the tourist cabins, which suggests there is excess demand. As noted in the Findings, some 
of the completed projects are generating fees or other revenues but hard data was not available 
because the projects have not been in operation long enough. Sustainability of increased local council 
capacity and improved governance are not very relevant, as little was done towards these 
outcomes.”17
Site visits conducted by the evaluation team attest to previous evaluation notes about associating 
community needs and local investments with sustaining project services. During interviews, however, 
the team noticed that focal points at municipalities were hardly aware of the presence of 
sustainability plans. There was no evident mainstreaming of these plans within the implemented 
projects. 
Q4.2 What are the m ajor challenges encountered in m aintaining the gains achieved in 
BALADI-CL at the (a) NGO/FBO and (b) m unicipal level? 
Finding 4.2.a (RFCA): The economic crisis and the failure of the Lebanese state are among the 
major challenges undermining the gains achieved by RFCA. 
At the NGO/FBO level, the major challenge to sustainability is cost-efficiency. All projects that seek 
to respond to urgent community needs are faced with challenges caused by the ongoing economic 
crisis in the country, especially the rising cost of fuel and electricity, which is hindering the
sustainability of operations. As such, external support will continue to be required to sustain the 
gains achieved. This undermines the future scalability and/or replicability of most RFCA projects. 
There is a whole set of challenges that may threaten project sustainability, but they are mostly linked 
to exogenous variables associated with failing state institutions (utilities, facilitating export, lack of 
credit, banking capital control, currency devaluation, etc.). As for endogenous factors, the most 
important one is the lack of a follow-up plan for the BALADI-CL/RFCA activity and the lack of 
linkages with other USAID-supported projects, which keeps the RFCA projects isolated. This affects 
16 The evaluation team confirmed through site visits and KIIs the creation of one job in the first town, two jobs
in the second town, and six job in the third town. No full time job was created in the fourth town. 
Remuneration remained however quite low and difficult to sustain. 
17 Final Performance Evaluation, Final Report, February 2020, Page 31. 
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USAID/Lebanon’s ability to examine how its local-development projects will be maintained and 
whether or not they will continue to be oriented towards serving community needs. (For a detailed 
list of challenges, see Annex 10). 
It is worth mentioning though that these RFCA sub-awards were provided in a rushed manner to 
respond to urgent community needs following the Beirut port blast. Therefore, sustainability 
expectations are moderated in favor of serving the immediate needs of communities.
Finding 4.2.b (RFMA): Challenges to sustaining municipal projects are mostly linked to 
exogenous variables, such as the economic crisis, the high fuel prices, the poor state enabling 
environment, and the continuously changing leadership in municipalities. Endogenous factors
include the lack of (i) “development will” amongst local leadership, (ii) resource optimization 
between the different BALADI-CL projects, and (iii) follow-on plans for these projects. 
Challenges facing municipal projects under RFMA are similar to the ones facing NGO/FBO projects 
under RFCA. Sustainability concerns include the management and operation costs of projects, as fuel 
prices continue to rise, and municipal human resources remain unstable. Currency devaluation has 
placed significant pressure on human resources involved in project management, with a high risk of 
staff resignation and complete shutdown of projects. Furthermore, the management of projects at 
the local level remains a topic of concern in terms of how benefits and services are distributed. The
evaluation team noted one instance where community benefits may not have been equitably shared 
or appropriately managed, and complaints were made by community members. There was another 
instance where municipal leadership was tightly linked to the distribution of benefits in communities, 
which heightened the centrality of mayors in management and decision making and made
sustainability dependent on the political will and intentions of municipal leadership. Similar challenges 
include the lack of follow-up plans and linkages with other USAID-supported projects. Incentives to 
sustain the projects are also lacking (revenues, future partnerships, etc.) 
Based on the observation of four municipal projects (that were covered by the 2020 evaluation and 
included in the present evaluation as well to capture the type of sectors and regions served) 
revealed different types of challenges yielding different risks (Annexes 11 and 12). The evaluation 
team found a sustainability failure in one of the projects due to unforeseen challenges (economic 
crisis and new technology). Another project was semi-operational and facing a declining local 
interest in its sustainability (lack of public and private partnership). The remaining two were 
operating at high risk (declining revenues and high maintenance cost). Figure 2 shows the challenges 
that faced RFMA projects since 2015.
“It is very hard to maintain 
production with the current fuel 
problem. Last week we had 3-4 days 
without electricity because we 
couldn’t get fuel to function 
generator. We are going through 
harsh times now.” 
Sb d ff 
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Figure 2: Tim eline of RFMA projects facing challenging events
CONCLUSIONS
RFCA RELEVANCE
CONCLUSION 1.1: RFCA PROJECTS DID NOT DIRECTLY ALIGN WITH CDCS DOI AND DOII
BUT RESPONDED TO URGENT COMMUNITY NEEDS
While the BALADI-CL/RFCA sub-awards were not relevant to the longer-term economic and 
democratic empowerment objectives of the 2014-2019 CDCS (DO1 and DO2), they did respond to 
the critical and urgent needs of vulnerable populations. In a way, they may have contributed to DOI￾Sub-IR1.4.1a: “Percentage of citizens who feel that their concerns are well represented by USG 
assisted civil society organizations” (Finding 1.1). This contribution, however, remained modest 
compared to the vast community needs, as RFCA sub-awards were constrained by small budgets and 
limited communal group coverages (Finding 1.2). 
CONCLUSION 1.2: MODEST CONTRIBUTION TO PRESERVATION OF SOCIAL CAPITAL IN
SOME COMMUNITIES
USAID’s investment in BALADI-CL has contributed—albeit modestly—to strengthening cooperative 
social responsibility among the most marginalized to preserve the country’s social capital. A more
effective investment could have been made had more comprehensive community needs assessments 
been conducted in order to validate proposed projects and identify possible collaboration 
opportunities between stakeholders and had a larger number of applicants been targeted prior to
the sub-awards.
CONCLUSION 1.3: TIMELY PARTNERSHIPS CONTRIBUTED TO INCREASED ADAPTABILITY OF 
SUB-AWARDEES AND CL 
BALADI-CL adapted to Lebanon’s fast-changing environment in short intervals of time despite 
challenges. Its partnership with NGOs benefitted from a sizable, in-kind cost-share fund that 
enhanced projects’ resilience and adaptability amid economic and security shocks. The provision of 
equipment proved timely for and critical to the operation of sub-awardees, which helped achieve a 
responsive partnership and adaptation to a fast-changing environment (Finding 1.3).
CONCLUSION 1.4: ENSURED INCLUSIVITY IN PROJECT DESIGN
When designing projects under RFCA, BALADI-CL ensured they were gender-inclusive on all levels 
of implementation. The same applied to youth and marginalized groups (Finding 3.4). Most sub-
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awards had outreach plans for marginalized groups, and these were managed or coordinated by 
female staff. RFCA’s in-kind contribution modality was timely, particularly for purchasing equipment, 
given the banking crisis and the lack of liquidity.
RFCA EFFECTIVENESS
Management 
CONCLUSION 2.1: LACK OF SPECIALIZATION UNDERMINED EFFECTIVE MANAGEMENT 
BALADI-CL’s management lacked the needed specialization to effectively manage an emergency 
response in different sectors (Finding 2.1.1), which affected its ability to deliver intended outputs. 
Due to its lack of technical knowledge, BALADI-CL’s management demonstrated shortcomings in its 
handling of the implemented projects that went beyond equipment procurement and provision 
(Finding 2.2.1, Finding 3.1). This was also reflected in its poor planning and disregard of important 
environmental specifications (Finding 2.2.2). BALADI-CL put only one (unspecialized) person in 
charge of coordinating the implementation of all 19 -sub-awards (Finding 2.1.1). Fortunately, low￾management requirements that allowed for subcontracting third parties to purchase and install 
equipment through procurement procedures saved the day (Finding 2.2.1 and Finding 2.3). 
CONCLUSION 2.2: OVERLAPPING ROLES AFFECTED MANAGEMENT OF SHORT-TERM 
PROJECTS 
BALADI-CL’s management team had overlapping roles and responsibilities and were deeply involved
in developing proposals and project plans for sub-awardees while, at the same time, participating 
with USAID/Lebanon in the selection of awards. In addition to undermining fair selection, this made 
the CL management team responsible for the coordination and implementation of sub-awards. As a 
result, the sub-awardees became mere beneficiaries rather than actual implementers (Finding 2.1.1). 
CONCLUSION 2.3: UNCLEAR EXPECTATIONS UNDERMINED PLANNING AND REPORTING 
Overlapping roles at BALADI-CL confused reporting expectations between the three parties 
involved: USAID/Lebanon, CL, and the sub-awardees (Finding 2.1.1 and Finding 3.2). The 
management of expectations also suffered as a consequence. The sub-awardees expected a post￾equipment partnership to support training and further development (Finding 2.1.2). USAID expected 
CL to develop projects that adhered to environmental regulations in addition to follow-up plans
(Finding 2.2.2).
CONCLUSION 2.4: SHORT-TERM ASSIGNMENTS INCREASED STAFF TURNOVER 
Project management was affected by a high staff turnover at CL due to RFCA’s short-term contracts 
and multiple shot-term contract modifications, which made staff less enthusiastic/committed and 
pushed them to leave. In addition, the approaching end date of the BALADI-CL Activity pushed 
many staff to look for more permanent employment elsewhere (Finding 2.1.1). 
CONCLUSION 2.5: SHORT-TERM NATURE OF PROJECTS LIMITED COMMUNICATION AND
OUTREACH
Communicating RFCA projects’ benefits to the wider community through an outreach plan is 
limited. Communication efforts consisted mainly of branding work, such as placing the USAID logo 
on equipment and hanging sponsorship plaques in rehabilitated facilities (Finding 2.4). Only a few sub￾awardees recognized USAID’s sponsorship of their projects on their websites and social media
pages. The evaluation team did not come across any information circulated in targeted communities 
explaining the projects’ benefits. This is most likely because most projects have not become fully 
operational and are not serving the wider community yet. 
Implementation 
CONCLUSION 3.1: IMPLEMENTATION FACILITATED BY TRANSFER OF KNOWLEDGE
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ToK facilitated the successful implementation of RFCA projects. This is manifested in the efforts that 
CL made to build the capacity of institutions and the experience it acquired from the previous RFMA 
projects (Finding 2.3). ToK was instrumental in both the successful management and successful
implementation of RFCA projects. All equipment-provision projects have been satisfactorily 
implemented and are currently operational (Finding 3.3).
CONCLUSION 3.2: PROCUREMENT DEPARTMENT AIDED ADAPTATION
ToK allowed BALADI-CL to adapt and efficiently implement the RFCA projects amid a fast-changing 
and difficult environment (Finding 2.3). The establishment of a procurement department aided by 
experts in the RMFA phase was instrumental in the implementation of the three RFCA phases. A 
few factors supported BALADI-CL’s adaptation, including USAID/Lebanon’s close follow-up 
regarding project implementation as well as the sub-awardees’ relevance to the targeted 
communities (Finding 3.2).
CONCLUSION 3.3: SUB-AWARDEES HEIGHTENED BENEFITS IN PARTNERSHIP AND 
FACILITATED IMPLEMENTATION
The stakes that the sub-awardees have in the projects’ success and the benefits they gain from them 
facilitated implementation and partnership with CL (Finding 2.3 and Finding 3.5). This is particularly 
true for sub-awardees receiving equipment or facility-rehabilitation support that help increase their 
capacity to deliver services in their respective communities (Finding 3.1).
CONCLUSION 3.4: DESPITE ATTEMPTS TO ACHIEVE INCLUSIVE PARTNERSHIP, EQUITABLE 
BENEFITS WERE NOT ATTAINED
While BALADI-CL benefited socio-economically marginalized and vulnerable groups as well as 
women and youth, it failed to reach a comprehensive national sample of communities (Finding 1.2 
and Finding 3.4). In a divided sectarian environment, CL being a Christian FBO may have discouraged 
the participation of certain NGOs/FBOs in the solicitation process. The emergency nature and 
short-term orientation of the awards prevented BALADI-CL from conducting a more rigorous effort 
to ensure a comprehensive and equitable national coverage. 
RMFA AND RFCA SUSTAINABILITY
CONCLUSION 4.1: RESPONDING TO URGENT COMMUNITY NEEDS SERVES SUSTAINABLE 
PROJECTS
Pressing community needs are an important reason for sustaining sub-awards’ provided services 
(Finding 4.1.b). BALADI-CL, through RFCA, has equipped relevant FBOs and NGOs with the 
capacities to serve socio-economically marginalized groups. These organizations are now also in a 
better position to maintain and expand their services. Thus, there is reason to expect RFCA￾supported projects to be sustained over time, as long as the sub-awardees are able to cover their 
operation and maintenance costs (as well as staffing) (Finding 4.1.a). This is supported by the fact 
that previous RFMA projects were able to sustain their operations and continue to respond to
urgent community needs despite growing challenges.18
18 The evaluation teams observed in one of the RFMA projects visited that despite high running costs, the 
urgent community needs and the qualified and engaged leadership of the municipality head contributed to 
sustaining the project. 
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CONCLUSION 4.2: IN-KIND MODALITY INCREASES THE STAKES IN SUSTAINING THE 
PARTNERSHIP
The in-kind grant modality is one of the key components of project sustainability (Finding 4.1a). This 
is the case for RFMA projects, where in-kind contributions are significantly high, which increases the 
stakes in maintaining the projects. In RFMA projects, in-kind contributions, such as land and labor, 
helped reduce operational costs and preserve activities.
CONCLUSION 4.3: PARTNERSHIP IS SUSTAINED BY LOCAL OWNERSHIP AND HEIGHTENED 
BENEFITS
Serving the community while getting support through in-kind grants is the essence of a sustainable 
partnership. In RFCA projects, sub-awardees played the role of beneficiaries rather than that of 
implementers, which heightened the benefits and stakes in their partnership with CL. In-kind 
contributions strengthened these FBOs and NGOs’ capacity to deliver services. In RFMA awards, 
project ownership was fully transferred to the municipalities, and the projects were integrated into 
communities’ service networks. Whenever a partnership included the private sector and invited 
additional donors on board, project sustainability was guaranteed. In this spirit, getting support from 
the Lebanese diaspora, for example, can contribute to ensuring project sustainability, particularly at 
the local level. This applies to both RFCA and RFMA.
CONCLUSION 4.4: LACK OF INTER-PROJECT RESOURCE OPTIMIZATION RAISES COST OF 
PROJECT SUSTAINABILITY
Local ownership of projects increases the stakes in preserving and developing a project. 
Unfortunately, most RFCA and RFMA projects were faced with a significant rise in costs that 
threatened their sustainability. Reducing costs through the introduction of new technology or the 
optimization of resources is essential to overcome economic pressure and rising prices. In both 
RFCA and RFMA projects, there was a lack of resource optimization and a continuous reliance on 
external support for project sustainability, especially for projects unable of launching income￾generating activities. For instance, there are no interlinkages between the different USAID-supported 
awardees to exchange resources and benefits and optimize operational costs. 
CONCLUSION 4.5: LACK OF FOLLOW-UP UNDERMINES INTEREST IN SUSTAINING ACTIVITIES
All implemented RFCA and RFMA projects lack follow-up activities (Finding 3.5). This is despite the 
presence of follow-up plans in the original proposals (Finding 4.1b). Follow-up actions that include
incremental project-development incentives provide important reasons for project sustainability. 
Lack of follow-up plans has lowered interest in sustaining the activities.
CONCLUSION 4.6: TURBULENT ENVIRONMENT IS SERIOUS THREAT TO SUSTAINABILITY
Many factors undermine the sustainability of BALADI-CL’s sub-awards, prime among them are the 
economic crisis and the ongoing failure of the Lebanese state (Finding 4.2a and Finding 4.2b). 
Extended blackouts and the continuous reliance on costly diesel fuel to provide electricity for 
business operation remain the number one threat against project sustainability. High gas prices are 
also hindering operations by limiting transportation. Other external factors affecting sustainability 
include the devaluation of the local currency, which reduces the purchasing power and salary values 
of employees. RFCA, the operation of equipment is costly compared to the returns. In RFMA, 
currency devaluation affected municipalities’ ability to retain employees working on the projects and 
maintain the originally intended services, such as transportation. In RFMA projects, which were
originally formulated with a development logical framework (e.g., ecotourism), the emergency 
situation facing the community is changing priorities in favor of humanitarian support. At the 
municipal level, priorities are determined by municipal leadership and sometimes by political 
interests, hence tying the prospect of projects to the local political will. 
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RECOMMENDATIONS
Following the onset of the economic crisis in late 2019, Lebanon witnessed fundamental and 
permanent changes. Then, following its Eurobond default in 2020, the country experienced a total 
financial meltdown. Institutional collapse and government paralysis deepened the socio-economic 
crisis and plunged the nation deeper into the abyss. It is premature now to anticipate when the 
country will start recovering. Thus far, there are only promises for reforms with international 
anticipation for bailout. Whether they will be attained remains highly unlikely, given the country’s 
growing political disputes and economic paralysis. In the meantime, and as a consequence of failing 
state institutions, the population appears vulnerable to insecurity and shortages including food, 
water, and energy. This new environment necessitates strategies that respond to emergencies at the 
regional and local levels, in anticipation of a long-term and difficult road to recovery. 
BALADI-CL has indeed been operating in difficult conditions amid economic and state failures, as 
well as COVID-19 restrictions. The Activity responded to emergency conditions through 19 RFCA
projects, providing small awards to NGOs/FBOs. Fourteen of these projects focused on purchasing 
and installing equipment. Three included capacity-building components in addition to equipment 
installation while the remaining two focused explicitly on capacity building. As is evident, RFCA 
projects were predominantly formulated around the urgent procurement and installation of 
equipment for a selected pool of sub-awardees that are in a position to serve vulnerable 
communities. This was an appropriate response that provided urgent and immediate support to 
people. 
Although BALADI was appropriately designed to serve community needs in emergency and 
responded and adapted well to changing environments, future programming should build on the 
many experiences and lessons learned from the implementation of the BALADI-CL. 
This BALADI-CL endline performance evaluation has the following recommendations for future
USAID programing in Lebanon: 
ALIGN PROJECT RELEVANCE
RECOMMENDATION 1: USAID/Lebanon should integrate development and emergency 
activities in future program design. RFMA was designed to achieve development objectives
while RFCA was introduced to respond to urgent community needs. RFMA’s local community 
development objectives were negatively implicated by changing priorities amid the economic crisis. 
RFCA’s objectives, on the other hand, were short-term in nature and not linked to the Mission’s 
development objectives on the long run. BALADI-CL would have been more relevant had the IP 
been able to follow up on sustainable operation plans for local municipal development projects and 
on the sustainability plans of FBOs and NGOs. The design of sub-awards would have been stronger 
had it included, in addition to the essential provision of equipment required during emergency 
(Conclusion 1.3 and Conclusion1.4), training and capacity-building components to ensure the 
continuity of service delivery to communities. 
RECOMMENDATION 2: USAID/Lebanon and its implementing partners (IPs) should establish a 
closer coordination with other existing national or international recovery plans. This strategy is to 
be carefully formulated in emergency conditions, where state institutions may become relevant to 
response and recovery, such as the Lebanese Armed Forces, the Internal Security Forces, and the 
High Relief Commission. Other donors and international organizations may also become 
stakeholders in offering relief, such as the one provided in the aftermath of the Beirut port 
explosion. The ability of a US-funded Activity to integrate itself within the wider national response 
plan helps optimize resources, increase its impact, and elevate the relevance of its interventions. It is 
true that BALADI-CL attempted to play such a role in its BER phase by attending joint meetings with 
relief and donor agencies to coordinate the selection of sub-awardees, but it would have been even 
better to adopt this approach in RFCA 1 and 2. 
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RECOMMENDATION 3: USAID/Lebanon should ensure IPs conduct a comprehensive 
national community needs assessment prior to sub-awards. Conducting a comprehensive 
national needs assessment will help IPs identify priority needs, foster consortium building between 
partners, and achieve a more rigorous proposal solicitation phase that ensures a wide and inclusive 
pool of applicants. The relevance of BALADI-CL/RFCA to community needs was constrained by 
small and short-term investments as well as limited coverage (Conclusion 1.1). Such limitations 
necessitate that future proposal solicitation be conducted in a more rigorous approach to ensure a
wide and inclusive pool of applicants. The selection of awards can then proceed while taking into 
consideration the appropriate targeting of beneficiaries and relying on a comprehensive national 
needs assessment (Conclusion 1.2). The appropriate selection of awardees contributes to the overall 
effectiveness of the projects. Gender participation in all levels of management, implementation, and 
benefits ensures inclusivity, which is a critical component for effective project outcome (Conclusion 
1.4).
IMPROVE MANAGEMENT
RECOMMENDATION 4: USAID/Lebanon should incorporate further capacity building into 
project design and ensure IPs target new partners and small businesses for their 
awards. This will help ensure diversification and aligns with the “locally led development” 
commitments made by USAID/Lebanon.19 One of the lessons learned from the BALADI-CL 
experience is that while the sub-awarded FBOs benefited various communities in Lebanon, they
were not specialized in the kind of emergency response required to serve different socio-economic 
sectors, such as agriculture, solar energy, or special needs (Conclusion 2.1). As such, building their 
capacities is critical to ensure service delivery and respond to emergencies in different sectors. This 
can be achieved following a deeper organizational assessment, covering human-resource systems, 
procurement, financial management, and communication. Based on this assessment, a capacity￾development action plan can be developed to support the IPs in improving their performance. 
CL has, for example, developed a Livelihood Unit to respond to growing humanitarian-assistance and 
relief requirements. Thanks to the lessons learned and ToK from the previous RFMA work, 
BALADI-CL was able to successfully deliver its RFCA projects (Conclusion 3.1) despite the various
shortcomings in its management (Conclusions 2.1-2.4). 
RECOMMENDATION 5: When contracting an IP for a local development Activity, 
USAID/Lebanon should select a cross-sectarian NGO or multiple FBOs affiliated with 
19 USAID/Lebanon Country Development Cooperation Strategy (CDCS) - 2014-2020
“One of the lessons learned was that 
Caritas Baladi needed to do first a 
needs assessment and orientation for 
NGO before accepting their 
proposal.” 
BALADI CL t ff 
“Another thing, we recommend that 
the service providers whom Caritas 
chose to do a study on the area 
where they will be providing the 
service.” 
Sb d t ff 
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different sects. This/these organization/s should be specialized in emergency response and able to 
take on a central role in the solicitation of participation and the implementation of a nation-wide 
partnership. This will ensure diversity of coverage and specialization in management.20 A mono￾sectarian FBO (like CL) is less likely to achieve the participation of entities affiliated with other sects
(Conclusion 3.4). 
RECOMMENDATION 6: USAID/Lebanon’s selection of an IP for a local development 
Activity should be based on the latter’s capacity to maintain staff beyond short-term 
project delivery. The IP should be able to perform a smooth handover of project assets and 
transfer of learning in key positions to the new project owner(s). 
STRENGTHEN IMPLEMENTATION
RECOMMENDATION 7: USAID/Lebanon should advise its IPs to avoid short-term 
community response projects (6-12 months) and prioritize mid-term projects (12-24 
months) instead. This can help stabilize the IPs’ human resources and provides sufficient time to 
monitor progress and measure outcomes. 
RECOMMENDATION 8: USAID/Lebanon should maintain BALADI-CL’s implementation 
practices in future programming and establish clear Terms of Reference with the new 
IPs to define roles and avoid the overlapping of responsibilities (Conclusion 2.2). One of 
the key lessons learned from the BALADI-CL experience is that implementation is best facilitated by 
heightened benefits in the partnership between the IP and the sub-awardee (Conclusion 3.3). In 
addition, coordination and follow-up between USAID and the IP are instrumental in the successful 
and timely implementation of projects (Conclusion 3.2).
ENSURE SUSTAINABLE OUTCOMES
RECOMMENDATION 9: USAID/Lebanon should require with a monitoring plan its IPs to 
budget for follow-up plans and approach ongoing projects with a similar proposition.
This will help preserve local interests, sustain long-term partnership, and avoid equipment drop-off.
Follow-up through incentivized project-development actions is an important resilience strategy 
against instability to preserve local interests and sustain partnerships (Conclusion 4.5). 
RECOMMENDATION 10: USAID/Lebanon should require its IPs to ensure that projects 
providing an emergency or disaster response: a) Build partnerships and connections 
with other projects/donors working in the same space, b) Network with other sub￾awardees on the same project, and c) Engage in the broader community that supports 
Lebanon, such as the diaspora as well as other NGOs and international donors.
BALADI-CL has demonstrated that sustainability is best guaranteed by building a strong community 
partnership that supports urgent needs (Conclusion 4.1). The in-kind, cost-share project modality 
heightened the stakes in the partnerships, which improved the projects’ sustainability (Conclusion 
4.2 and Conclusion 4.3). However, the emerging challenges were overwhelming and put most 
projects at risk (Conclusion 4.6). 
Under such circumstances, projects’ efficiency is key to their survival and can be best achieved via 
the optimization of collective resources across different sub-awardees (Conclusion 4.4).
20 Since USAID has also partnered with RMF to implement BALADI, RMF’s upcoming endline performance 
evaluation will help assess the ability of multiple IPs to achieve national coverage under one Activity. 
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During turbulent times, the Lebanese diaspora has proven to be an active stakeholder in 
safeguarding local development and emergency responses. Therefore, it is crucial to encourage and 
support projects connected to other donors and partners, such as the Lebanese diaspora. 
RECOMMENDATION 11: USAID/Lebanon should design its Activities as to include PPP 
components that support sub-awards that aim to respond to local community needs. 
The participation of the private sector contributes to the mutual and long-term benefits of 
communities as well as to the nexus of emergency and development. Extending partnerships to the 
widest possible pool of stakeholders to include different donors and organizations (local and 
international) is important to ensure the projects’ resilience. And most critical to local sustainability 
is the participation of the private sector, whose interest can contribute to mutual and long-term 
benefits (Conclusion 4.3).
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ANNEXES 
Annex 1: Scope of Work 
Annex 2: Evaluation Methods and Limitations
Annex 3: Data Collection and Analysis Tools
Annex 4: Sources of Information
Annex 5: Disclosure of Any Conflicts of Interest
Annex 6: Evaluation Team
Annex 7: Revised BALADI Activity Results Framework
Annex 8: BALADI-CL Projects by Phase and Category
Annex 9: USAID/Lebanon and BALADI Aims and Indicators
Annex 10: Challenges Facing RFCA Implementation
Annex 11: Challenges Facing RFMA Sustainability
Annex 12: Relevant RFMA Projects in a Challenging Environment 
Annex 13: BALADI-CL Indicator Tracking Table up to Q1FY2022
Annex 14: Data Collection Locations and Type 
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ANNEX 1: SCOPE OF WORK 
BALADI-CL Endline 
Evaluation SOW.doc
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ANNEX 2: EVALUATION METHODS AND LIMITATIONS
EVALUATION METHODS
This evaluation utilized a multi-method approach to develop evidence-based findings, and draw 
objective conclusions. Evaluation approach relied on conducting document reviews and collecting 
data from semi-structured key informant interviews (KIIs), Focus Group Discussions (FGDs), and 
Site Visits (SVs) in order to compile and analyze information toward findings.
The ET applied purposive sampling to select 10 RFCA and 4 RFMA projects based on findings from 
the previous evaluation, progress reports and with the objective to cover all sectors and diverse 
locations. In total, 21KIIs were conducted with USAID staff, IP staff, heads or members of 
municipalities and project or site managers, The ET visited 4 out of the 19 CSOs and NGOs and 4 
out of the 23 RFMA projects and completed respectively 4 and 1 FGDs in those sites. In all, the ET 
interviewed 23 males and 21 females (Table 1 and Table 2). The sampling and data collection were 
carried out as follow: 
Document Review: examined all documents related to activities performed after the Final 
Evaluation of February 2020. These documents include Theory of Change (ToC) iterations, quarterly 
progress reports and final evaluation reports, among others. The ET continued to review project 
documents iteratively throughout the evaluation process, as needed. Primary data collection yielded 
access to additional documents relevant to the evaluation, which was then incorporated into the 
iterative document review. Documents have been provided by USAID and CL during the evaluation 
design phase. All referenced and analyzed documents are listed in Annex 4. 
Key Informant Interviews (KIIs): The team conducted in-depth, semi-structured KIIs with key 
stakeholders, including USAID and BALADI CL staff. These interviews have been carried out 
virtually. The ET selected respondents purposively in consultation with the program team and to 
include staff members who have been involved in program strategy, design, and/or implementation. 
These individuals included relevant points of contact; Agreement Officer’s Representatives; and CL 
admin and MEL staff, including staff who collect, verify, store, analyze, and report data. Some KIIs 
were conducted in person when was possible based on the preference of the respondent(s), and the 
preference of the interviewer(s). 
KIIs were conducted with RFCA sub-awardees’ staff and relevant stakeholders. The team evaluate 
ten out of 19 sub-awardees. Their selection ensured representation from different RFCA phases 
(RFCA 1, II, and BER) and took into account different targeted districts of the country and diverse 
types of projects.
Focus Group Discussions (FGDs): The ET conducted FGDs with BALADI CL beneficiaries, 
selected purposively from different projects. Four out of the sampled ten sub-awardees were 
selected to ensure the participation of women, youth, and marginalized groups. The selection of 
project beneficiaries included districts coverage, type of projects, and target groups and randomized 
to the extent possible. This included selecting beneficiaries from diverse backgrounds and 
disaggregating FGDs by sex (when possible), in addition to holding the FGDs in single or sex￾disaggregated spaces, while making sure the facilitator is the same sex as participants.
The ET conducted five FGDs with RFCA and RFMA sub-awardees (further discussed in next 
paragraph).
Site Visits (SVs) to RFCA and RFMA sub-awardees: The ET examined selected projects and 
collected data from the field for visual observations. This was particularly the case to observe 
project continuity and sustainability after project closure. The SVs were coordinated with the sub￾awardees’ project focal persons. The team visited four RFMA and four RFCA sites to observe the 
sustainability of the project and reflect from the field on prospects and challenges for future 
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programing. The selection of these SVs was based on previous evaluations, district coverage, type of 
projects, and target groups.
TABLE 1: RFCA Data Collection Activities
NGO / FBO Name District RFCA KIIs Site visit FGD
[redacted] Zgharta 1 1 1 1
[redacted] Keserwan 1 1
[redacted] Sour 1 1 1 
[redacted] Tripoli 2 1 1 1
[redacted] Chouf 2 1 1 1 
[redacted] Metn 2 1 
[redacted] Keserwan 2 1
[redacted] Metn 2 1 1
[redacted] Beirut BER 1 
[redacted] Beirut BER 1
Total Male 9 5
Total Female 10 10
Total data collection activity 10 4 4
TABLE 2: RFMA Data Collection Activities
Municipality/ Union District Site visit FGD KII
[redacted] Baalbek 1 1 1
[redacted] Baabda 1 1
[redacted] Metn 1 1 
[redacted] Aley 1 1
Total Male 1 4
Total Female 5 0
Total data collection activity 4 1 4
DATA ANALYSIS
The data analysis was guided by the evaluation questions. The ET followed a rigorous procedure for 
data cleaning, coding, inter-coder reliability checks, and quality assurance. With a “start list” of codes 
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based on a literature review, the team expanded, revised, and adjusted this list as data are collected 
and analyzed.
The ET disaggregated the data across key variables, such as respondent category, gender, sub￾awardee and location. After the ET completed preliminary analysis for these evaluation questions, 
they came together for three internal data analysis and interpretation sessions (DAIS) to share 
emerging themes and patterns, and develop finding statements for each of the evaluation questions. 
Following these sessions, the ET presented the preliminary findings to USAID and BALADI-CL teams 
during two separate online validation sessions. Through this process, the ET validated findings. 
GENDER AND SOCIAL ANALYSIS
This evaluation addressed the gender aspect as a crosscutting element in all activities, showing to 
what extent BALADI-CL/RFCA has adhered to USAID’s gender integration requirements. 
Consistent with the USAID Evaluation Policy, and recognizing that the effects of integration and the 
success of the Program might vary across gender, the ET applied a gender perspective and ensured 
that research activities included female study participants. The MEPL Gender, Youth and Inclusion 
Learning Officer helped the ET ensure compliance and gender sensitivity of the data collection 
protocols and tools, as well as other deliverables. A key component of the ET’s analysis was its 
capturing of gender-based findings and conclusions whether they specifically benefit (or do not 
benefit) women or men. The KIIs and FGDs included questions to assess the extent to which gender 
has been integrated into BALADI CL. 
Participant-level data were disaggregated by sex, when feasible. In order to capture different 
perspectives to the extent possible, FGDs was disaggregated by age and gender and held in sex￾segregated spaces, when feasible. The ET analyzed how gender issues have been addressed both in 
the initial design of the Program and in implementation. More specifically, the ET assessed the 
following: 
• How women were involved in the supported communities. 
• The extent to which women actively participated in the identification and the 
implementation of the grant-funded community projects. 
• Whether and how successfully women were encouraged to take on leadership roles in the 
projects. 
• What aspects of the program demonstrate women’s sustainable participation beyond the life 
of the Program. 
DATA QUALITY CONTROL AND CONFIDENTIALITY
The data-collection teams uploaded the collected data to OneDrive on a daily basis. The ET cleaned 
and analyzed these incoming data and flagged any recurring data or upload errors for the data￾collection teams so that these issues were addressed on a timely basis and errors minimized. 
Data collection and management adhered to the protection and confidentiality of Personally 
Identifiable Information (PII) as follows:
• The team administered informant consent forms prior to conducting recorded interviews, 
ensuring respondents are aware of the purpose of the study and their participation options 
(see below discussion and Annex 2: Informed Consent Form).
• All interview recordings and notes were electronically stored in a password-protected and 
encrypted shared folder.
• The dataset and shared folder were stored in EnCompass’s OneDrive account, which is 
highly secured and protected by U.S. standards. Only team members had access to the 
project password-protected folder.
• Team members immediately shredded any documents containing PII. There were no 
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information or documents stored on personal computers.
• The anonymity of informants were ensured by assigning a number to each respondent when 
referring to her/him in the report (ex: respondent 1, respondent 2, etc.), to avoid any PII 
from being utilized.
• Team members were instructed not to use emails with PII contents unless encrypted.
• The PII data remained stored in the encrypted OneDrive File and no such data were shared 
outside the evaluation team. Data shared with USAID did not include PII. 
• Finally, all PII will be deleted once the final report is approved by USAID and the project is 
certified as complete.
KIIs have been kept gender inclusive to ensure women key informants are represented. They were 
held with appropriate protocols to protect the confidentiality of responses (See Annex 2) and abide 
by COVID-19 health regulations during in-person interviews. 
ETHICAL CONSIDERATIONS 
Informed Consent
At the start of each interview, data collectors were read a standard informed consent and 
confidentiality statement explaining (see Consent Form Document): 
• The purpose of the evaluation and why the respondent(s) was(were) selected. 
• The length of the interview (generally one hour), and if recorded, that the recording are to
be used only by the data collectors to fill any gaps in their notes and that all notes and 
recordings will be stored in a secure location and destroyed when the evaluation has 
concluded. 
• That participation in the interview is completely voluntary and the respondent may decline to 
answer any question and also end the interview at any time. 
Respondents received a copy of the Informed Consent form, either as a soft copy through e-mail 
before the virtual interview or as a hard copy at the beginning of an in-person interview (Annex 2). 
Respondents were asked for oral consent to participate, and permission to audio-record the 
conversations. If consent is granted, data collectors began recording. 
No financial incentives or compensation were provided to the respondents, and data collection 
occurred during work hours or at a time convenient for the respondents.
Data Management
After data collection, data collectors uploaded all raw data, including recordings, interview notes, 
and KII sheets onto EnCompass’s secure server where they will be stored for a period of three 
years, at which point they will be destroyed. Data collectors will permanently remove data from 
their personal computers, tablets, cloud-based servers, and external hard drives. 
PII have been collected from all respondents so the ET can follow up with any questions for 
clarification, given that all respondents are intimately involved or benefiting of the program. 
Respondents are assigned a unique identification number. There was a single file in which the 
personal identifying information are linked to this unique identification number. Data were 
thoroughly scrubbed of names and other identifiers before being electronically transmitted via email 
or uploaded to EnCompass’s secure cloud storage (SharePoint). 
Only applications that required password-protected accounts to access were used so that the ET 
can control project file sharing and grants access only to those working on the evaluation. 
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Risk Mitigation
The ET conducted interviews in locations that assure privacy or, if not fully private, are comfortable 
for the respondents. Data collectors reiterated that conversations will remain confidential and 
remind participants to be respectful and maintain privacy. Data collectors refrained from discussing 
interview content amongst themselves except when they are in private settings.
Adverse Events
There are two categories of adverse events, defined as: 
Category A: Any Serious Adverse Event that Occurs within 48 Hours of Participation in the 
Research/ Evaluation    
Serious adverse events are those resulting in death, a life-threatening experience, hospitalization or 
prolongation of existing hospitalization, or a persistent or significant disability or incapacity. Every 
serious adverse event must be reported on a form provided by EnCompass’s Institutional Review
Board (IRB), even if the event does not appear to be associated with the research protocol. In 
addition, the IRB (at irb@encompassworld.com) should be notified within 24 hours of discovery of 
any serious adverse event. 
Category B: Any Event for which All Three of the Following are True: 
• Subject or Risks to Subject or Others Adversely Affected: An event or outcome has occurred 
that has resulted in harm to the subject, has affected the subject detrimentally, has worsened 
as a result of their participation, or that has resulted in increased risk to the subject or to 
others, whether or not the risk has actually resulted in harm (for example, misplacing a 
subject’s research records would constitute an increased risk event that should be reported). 
• Unexpected Event: The event or outcome was not described as a risk of participation in the 
research, or, though described as a risk, the event or outcome has occurred with unexpected 
severity or frequency. 
• Possibly, Probably, or Definitely Related Event: The event or outcome was definitely related 
to participation in the research or it is reasonable to conclude that the event or outcome 
was related to participation or it is possible the event or outcome was related but not 
enough information is available at this time to assess the likelihood of this possibility. 
If an evaluation team member or data collector becomes aware of an adverse event, they must 
immediately report it to team leader Dr. Imad Salamey on [Phone number] or [Email] referring to 
the Adverse Event Report provided by the IRB.
Incidents
EnCompass takes personal and organizational security seriously. Physical, personal, and cyber￾security measures are employed to avoid, mitigate, and respond to threats as a matter of policy. 
Understanding that no security measures are invulnerable, EnCompass requires all employees, 
independent contractors, and beneficiaries to document any incident that represents a threat to the 
organization, its employees, contractors, and beneficiaries. Where more than one employee, 
independent contractor, or beneficiary has first-hand knowledge of an incident, team leader, Dr. 
Imad Salamey, is obligated to take responsibility for assembling a full description of the incident, 
documenting the context, correspondence, and other information. When a member of the 
assessment or data collection team becomes aware of an incident, they must complete an incident 
report, provided by the IRB, and submit it to Dr. Imad Salamey, who will review and transmit it to 
the appropriate vetted personnel based on a need-to-know basis to address the incident as needed.
35 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV
FINAL REPORT – JUNE 2022
Institutional Review Board (IRB)
Data collection instruments and protocols have been submitted for approval by the EnCompass IRB. 
Data collection will not begin until IRB approval has been granted. The ET will inform USAID if there 
is any unexpected delay in the timeframe for IRB approval.
EVALUATION REPORT, VALIDATION, AND DISSEMINATION 
Validation Session(s)
The ET will share the draft report, including findings, conclusions, and preliminary recommendations 
through a virtual validation session with select participants from BALADI-CL and key stakeholders 
from USAID/Lebanon who participated in the inception meeting. The ET and USAID will identify 
participants in this session during evaluation implementation. This session will be used to validate 
findings and conclusions and to co-create and refine recommendations through a participatory and 
collaborative process. The outcomes of the validation session will be used to finalize the report. 
Dissemination
After USAID/Lebanon approves of the evaluation report, the ET will redact it and make it 508-
compliant before uploading it on the Development Experience Clearinghouse (DEC) repository for 
wider dissemination and use by the development community. MEPL will hold a debrief with 
USAID/Lebanon to discuss the implications of the evaluation’s findings for the Mission and obtain its 
feedback about the evaluation process. Additional dissemination materials will be developed 
including a 2-3 page Executive Summary document in both English and Arabic for easy sharing with 
all evaluation participants and other interested stakeholders. Other dissemination modes may be 
discussed with USAID/Lebanon. 
LIMITATIONS
The evaluation has targeted selected projects (53% of total), which have added to the reliability and 
validity of the findings. However, sample selection might have some drawbacks and limitations on the 
external validity of findings, as coverage may not be comprehensive. Other limitations on the findings 
may include spurious variables and the lack of control research design. Lebanese political volatility is 
always an intervening variable that often upsets expectations, planning, and findings. 
Recall bias is expected, especially with beneficiaries and sub-awardees who received the services and 
support more than a year ago. They may also respond with answers that blend their experiences 
into a composite memory, and those who participated previously in similar activities may not 
separately distinguish their BALADI CL experience. The ET has increased sample size as much as 
possible as one method to mitigate this bias. In addition, in interviews the ET used references to 
related project or historical events to assist in accurate recall.
The ET is aware of potential response bias from the key informants and beneficiaries, as these may 
be motivated to provide responses that would be considered socially desirable or influential in 
obtaining additional support. To mitigate such bias, the ET clarified at the start of every interview 
that the responses will not influence the possibility of obtaining future assistance while emphasizing 
the confidential nature of the interview and the importance of collecting factual information.
Additional limitations stem from the fact that much of the RFCA projects’ activities have been
recently launched and remained premature to be assessed in their capacities to sustain benefits and 
achieve long terms outcomes. The evaluation attempted to sketch the likelihood of sustaining 
activities based on persisting community needs and reasonable operation cost. This, however, 
remains indicative pending verifications by future evaluations.
36 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
Consent Form Document
INFORMED CONSENT FORM FOR VIRTUAL KII (12TH GRADE READING LEVEL) 
Principal Investigator: 
Organization: EnCompass LLC 
Sponsor: United States Agency for International Development 
This informed consent has two parts: (1) information sheet and (2) provision of oral consent. 
PART I: INFORMATION 
The United States Agency for International Development has recently commissioned an independent Endline Evaluation of 
their BALADI-CL program in Lebanon, also referred to as the Building Alliance for Local Advancement, Development, and 
Investment – Caritas Lebanon (BALADI-CL) Program. Our objective is to collect the knowledge and experiences you feel 
comfortable sharing about your communities. The overall goal of the evaluation is to derive evidence to inform strategy 
and future programming.
Before you decide to participate, you can talk with or ask questions of anyone you feel comfortable with. If you have any 
questions regarding this content, please let me know. If you have questions later or in the future, you can contact any 
member of the evaluation team. Information about how you can reach the evaluation team is included in this information 
sheet. 
METHODS OF DATA COLLECTION 
For this study, we are collecting information by conducting virtual interviews, focus group discussions with BALADI-CL 
staff, partner organization staff, local government officials, civil society organizations, community leaders, and community 
members, as well as an online survey as needed. This interview will last approximately one hour.
Data will be collected between February - March 2022. 
RESPONDENT SELECTION 
You have been chosen for a key respondent interview because you either have knowledge of and/or experience with the 
BALADI-CL program or within the communities that BALADI-CL has worked. 
VOLUNTARY PARTICIPATION AND RIGHT TO WITHDRAW 
Your participation in this evaluation is entirely voluntary. If you choose not to participate, we will remove the contact 
information we have for you from our data set. If you decide to participate, you may change your mind and withdraw from 
the study at any time, and we will remove your contact details and any other information you have provided up to that 
time. Choosing not to participate in this study will not affect your relationship with United States Agency for International
Development or EnCompass LLC. 
If you decide to participate, you may ask to skip any question or stop the interview at any time. You do not have to share 
anything you are not comfortable sharing. After the interview, if you decide you do not want your remarks/answers to be 
used, you may let us know and we will immediately destroy all information and it will not be used. 
PERMISSION TO RECORD
We would like to take notes and record this discussion via the online platform used to conduct the virtual interview (e.g., 
Teams, Zoom, Jitsi, Signal). This is so that we can develop an accurate transcript of what you say that will help us in 
analyzing the data. The recording will be kept on EnCompass’ secure password-protected web-based platform specific to 
this evaluation, which is only accessible to the EnCompass team conducting this evaluation. You will not be identified by 
name in the recording file name, and any identifying information will be removed during transcription. Once the 
transcription is complete, the recording will be deleted and any written notes will be destroyed, and only the transcript will 
be kept. In the meantime, no one outside of the EnCompass assessment team will have access to the recordings or notes. 
RISKS 
The study team will keep all of your answers and personal information in a secure location, and will not share this 
information with anyone not involved in the study. Your responses will not be shared with colleagues or your supervisor 
or anyone else. 
Your personal information, including your name, will not be included in the final report or any presentation of findings. Any 
risk of breaching your privacy or confidentiality has been significantly reduced by the strict rules and ethical principles all 
our team members have agreed to observe. 
In terms of risks: 
37 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
1. Some questions may cause discomfort or distress. If that is the case, we will give you a list of people you can call 
or meet for assistance. You can ask us at any time for this information—now, during, or after we finish the interview. You 
can also leave the interview for a while or leave and not come back. 
2. There is a chance that the conversation could be intercepted online from the platform we are using to conduct 
the virtual interview (e.g., Zoom, Jitsi, Signal). We are taking many steps to prevent this from happening, such as using 
password-protected meeting links and choosing encrypted platforms when possible. However, it is still possible that the 
discussion could be intercepted through a security breach in the online platform. 
3. There is a chance that the information you share will not stay private due to a data leak. We are doing many 
things with the data we collect to prevent the leak from happening, but it could happen. 
4. You may be worried someone will learn what you said and not like that you joined the meeting. You may not feel 
safe. Again, we will do everything we can to keep your answers safe and private. If someone does find out, somehow, you 
may not feel safe. You can contact people listed on this consent form. We will give you a copy of this form, if participating
in this study affects your safety. There are actions we can take to keep your answers safe. 
BENEFITS 
You may receive no direct benefits from participating in this study, but your participation is likely to help inform USAID’s 
programming. 
REIMBURSEMENTS 
No compensation is provided for this interview. 
CONFIDENTIALITY 
The information you share will be kept confidential. We will not share the information you provide to us with anyone who 
is not part of the evaluation team. We will store information, such as recordings, transcripts, and notes, electronically in 
password-protected and secure web-based data storage and analysis platforms specific to this evaluation. The interview 
transcripts, notes, and recordings will be de-identified, with each participant assigned a number ID. The ID linked to each 
participant will only be available in a participant tracker, which is saved separately on the password-protected platform 
specific to this evaluation that is only accessible to the EnCompass assessment team. Information analyzed will be 
anonymous. We will destroy all the information you provide three years after the publication of the final report. 
SHARING SUMMARY RESULTS 
The evaluation team will combine the information you provide with that from other interview respondents, focus group 
participants, reviewed documents; and/or survey respondents as needed, and we will present it in a final report that we will 
share with the USAID and other stakeholders. An external version summary will also be produced and we can send it to 
you. This report will also be available to other data collection participants and members of the public. 
WHOM TO CONTACT 
This study has been reviewed and approved by the EnCompass LLC Review Board [insert reference number], whose 
members are tasked with making sure participants are protected from harm. If you wish to find out more about the ethics 
review, contact IRB at irb@encompassworld.com. 
If you have any questions about this research study in the future, please contact me using the following information: 
Name and phone # of interviewer: _________________________________________________ 
If you have complaints about our team or the study, please contact: 
Dr. Imad Salamey
Team Lead, BALADI-CL Program Evaluation 
Email: isalamey@encompassworld.com 
PART II: PROVISION OF ORAL CONSENT, CONSENT TO RECORD AND CONSENT TO BE 
CONTACTED TO RECEIVE EXTERNAL SUMMARY
Say to the respondent: I want to confirm that you have read the consent form or I have read it to you. Do you have any 
additional questions? 
After answering respondent’s questions: Do you voluntarily consent to participate in this study? 
Following verbal consent, note the response of the respondent with your initials: 
Yes ___ No ___ Interviewer’s initials: ________ 
If the respondent answers no: 
Thank them for their time and end the interview. 
38 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV
FINAL REPORT – JUNE 2022
If the respondent answers yes: 
Ask them for their verbal consent to audio and video record the conversation using the virtual platform: I/We would like 
to both take notes and audio and video record our conversation. This is so we can develop an accurate transcription of 
what you say. The recording can be stopped at any time, if you choose to do so. We will delete the recording and destroy 
written notes immediately after creating a transcription of the conversation. The transcription will be deleted three years 
after the publication of the final report. In the meantime, no one outside of the study team will have access to this 
information. 
Do you give me/us permission to record the audio and video of this virtual interview, using the record feature of this 
platform? 
Following verbal consent to audio and video-record, note the response of the respondent with your initials:
Yes ___ No ___ Interviewer’s initials: ________ 
If the respondent answers yes: Continue with the interview. If the respondent answers no: I understand your 
decision not to have our conversation recorded. Would you be comfortable proceeding with this interview if I take 
written notes only and do not use the record feature on this platform? 
If the respondent agrees to hand-written notes, proceed with the interview. 
Would you like us to send the report using the same contact information that we used to contact you?
Yes ___ No ___ Interviewer’s initials: ________ 
If the respondent does not consent to hand-written notes, end the interview. 
Signature of the interviewer: _______________________________________ 
Date: _______________________________________ 
39 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
ANNEX 3: EVALUATION DESIGN MATRIX
Evaluation Question 1: Did BALADI-CL/RFCA projects contribute to CDCS? (Relevance)
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
To what extent 
was the project 
appropriately 
designed to reach 
outcomes?
To what extent 
was the project 
designed in a 
gender-sensitive 
and inclusive 
manner?
• Did the package of 
interventions together 
generate the desired 
outcome level changes? 
• Was there a clear 
enough identification of 
assumptions/strategy/ 
ToC/logical framework 
including an analysis of 
constraints and how to 
tackle these?
• Cumulative 
review of
evidence 
against 
program aims 
and KPIs. 
• Cause-and￾effect analysis
• Desk Review
• Project MEL 
Plan 
• Modification 
Agreements 
• RFCA 
Agreements 
• Progress 
Reports 
• Desk Review • Comprehensive 
documents 
selection.
To what extent did 
the awarded 
municipal projects 
and NGOs address 
critical 
community￾identified needs?
How were the 
needs of women 
and youth 
identified and 
taken into 
consideration? 
Were they 
addressed? How?
• Evidence of a clear and 
appropriate targeting 
strategy for all projects
• Evidence that the 
cumulative targeting at 
programme level also 
has a strategy/ 
rationale 
• Have hard-to-reach 
and/or “difficult” 
groups (e.g. 
marginalized) been 
targeted? 
• Programme 
and project 
document 
review
• # beneficiaries 
reached (total 
and sub-divided 
by gender, age, 
geographical 
location)
• Interviews with 
IP 
• Interviews with 
sub-awardees 
• Interviews with 
beneficiaries
• Sub-Awardees 
Projects 
Documents 
• Sub-Awardees 
progress 
reports
• Lists of 
beneficiaries
• IP
• Sub-Awardees 
• Beneficiaries
• USAID
• Desk Review
• 2020 
Evaluation 
Review
• KIIs
• FGDs
• USAID
• USAID
• IP and sub￾awardees
• Beneficiaries 
How did projects 
adapt as 
community needs 
changed? 
How were the 
projects tweaked 
and adapted in a 
way to meet 
• Evidence of targeting 
to different groups 
including geographical, 
gender, age. 
• Whether activities 
have been able to 
adapt to changes.
• Review of 
project 
proposals, 
reports and 
evaluations 
• Interviews with 
project staff
• Project 
documents 
• Project 
progress 
reports
• Lists of 
beneficiaries
• Modification 
Agreements 
Review
• RFCA 
Agreements 
Review
• KIIs
• 1 FGD with 
USAID team.
• 1 KII: IP Director
• 9 KIIs with Sub￾awardees 
[RFCA1 2/5, 
RFCA BER 2/4, 
RFCA2 5/11]
40 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
women, youth and 
people with diverse 
backgrounds 
needs? 
• Interviews with 
Sub-Awardees 
• Interviews with 
beneficiaries
• IP
• Sub-Awardees 
• Beneficiaries
• FGDs • 4 FGDs with 
beneficiaries 
[RFCA1 1/5, 
RFCA BER 1/4, 
RFCA2 2/11]
Evaluation Question 2: To what extent has the project achieved its intended outputs and outcomes? (Effectiveness)
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
Were the inputs 
appropriate 
towards producing 
the intended 
outputs?
• Evidence that awarded 
projects had robust 
project designs.
• Evidence that project 
approaches are 
informed by 
international best 
practice as well as 
being relevant to the 
context. 
• Document 
review
• Interviews with 
IP project staff
• Interviews with 
Sub-Awardees 
• Interviews with 
beneficiaries
• Project 
documents 
• Project 
progress 
reports
• IP
• Sub-Awardees 
• Beneficiaries
• Modification 
Agreements 
review
• RFCA 
Agreements 
review
• Project 
progress 
reports 
Review
• KIIs
• FGDs
• 4 KIIs: IP
• 9 KIIs with Sub￾awardees 
[RFCA1 2/5, 
RFCA BER 2/4, 
RFCA2 5/11]
• 4 FGDs with 
beneficiaries 
[RFCA1 1/5, 
RFCA BER 1/4, 
RFCA2 2/11]
What factors 
(endogenous or 
exogenous) 
contributed to the 
achievement or 
non-achievement 
of results?
• Evidence that different 
factors have acted as 
enablers and 
constraints in delivery 
of both outputs and 
outcomes
• Review of IP 
reports
• Review Sub￾Awardee 
reports
• Interview with 
IP and Sub￾Awardees
• Project 
documents 
• Project 
progress 
reports
• IP
• Sub-Awardees 
• Project 
progress
reports 
Review
• KIIs
• 5 KIIs: IP 
• 9 KIIs with Sub￾awardees 
program 
directors [RFCA1 
2/5, RFCA BER 
2/4, RFCA2 5/11]
What evidence is 
there that 
BALADI-CL/RFCA 
contributed to 
• Evidence of the local 
impacts due to 
programme and 
• Project reports
• Interviews with 
Sub-Awardees 
• Project 
documents 
• Project 
progress 
reports 
Review
• 2 KIIs: IP
• 9 KIIs with Sub￾awardees 
[RFCA1 2/4, 
41 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
improved public 
service delivery in 
local communities?
project 
implementation. 
• Interviews with 
beneficiaries
• Project 
progress 
reports
• Sub-Awardees 
• Beneficiaries
• KIIs
• FGDs
RFCA BER 2/5, 
RFCA2 6/11]
• 4 FGDs with 
beneficiaries 
[RFCA1 1/5, 
RFCA BER 1/4, 
RFCA2 2/11]
To what extent 
were BALADI-CL 
results 
experienced by 
communities 
equitably? Were 
women, youth, or 
marginalized 
groups able to 
access/participate 
in activities and 
experience results?
• Evidence of benefits 
received by diverse 
groups including 
women, youth, and 
marginalized. 
• Evidence of access and 
benefits obtained by 
diverse groups.
• Interviews with 
local 
beneficiaries
• Beneficiaries • FGDs • 4 FGDs with 
beneficiaries 
[RFCA1 1/5, 
RFCA BER 1/4, 
RFCA2 2/11]
To what extent 
were the awarded 
projects developed, 
implemented, and 
closed in a 
participatory and 
gender-sensitive 
and inclusive way?
• Evidence of 
engagements during 
projects/proposal 
developments 
• Evidence of support, 
communication, and 
participation during 
project 
implementations. 
• Evidence of effective 
communication and 
smooth transition 
toward project closure.
• Interview with 
IP and Sub￾Awardees
• IP
• Sub-Awardees 
• Desk review
• KIIs
• 3 KIIs: IP 
• 9 KIIs with Sub￾awardees 
[RFCA1 2/5, 
RFCA BER 2/4, 
RFCA2 5/11]
To what extent did 
BALADI-CL/RFCA 
effectively manage 
material and 
human resources? 
To what extent 
were quality 
• Evidence of IP 
performing appropriate 
mobilization of 
resources and 
management of HR.
• Evidence of transparent 
and appropriate 
• Interview with 
IP staff
• Project 
documents 
• Project 
progress 
reports
• IP
• Project 
progress 
reports 
Review
• KIIs
• 7 KIIs: IP 
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FINAL REPORT – JUNE 2022 
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
assurance 
requirements, 
procurement 
procedures, and 
environmental 
measures complied 
with?
procedure in 
procurement and 
environmental 
compliance 
To what extent did 
the Program
adhere to its 
Communication 
and Outreach Plan, 
and generate 
awareness of the 
Program, its 
results, and 
USAID/Lebanon?
How were women, 
youth and people 
with diverse 
backgrounds 
outreached? What 
strategies were 
used?
• Evidence of effective 
management and 
communication 
outreach with sub￾awardees.
• Evidence of effective 
communication and 
reporting with USAID.
• Interviews with 
IP staff and 
Sub-Awardees 
• Project reports
• Progress 
Reports 
• IP
• Sub-awardees 
• Project 
progress 
reports 
Review
• KIIs
• 4 KIIs: IP 
• 9 KIIs with Sub￾awardees 
[RFCA1 2/5, 
RFCA BER 2/4, 
RFCA2 5/11]
How did Program
management adapt 
when the BALADI￾CL context 
changed in 2020, 
and what 
mechanisms and 
procedures most 
supported rapid 
Program
adjustment?
• Evidence of handling 
and mitigation of 
transition in challenging 
environment. 
• Evidence of 
mechanisms and 
procedures 
supporting/undermining 
rapid and effective 
transition. 
• Interviews with 
IP staff
• Progress 
Reports 
• IP
• Project 
progress 
reports 
Review
• KIIs
• 7 KIIs: IP 
43 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
Evaluation Question 3: Are the projects and the overall program B-CL/RFMA and RFCA likely to be sustainable into the future? (Sustainability)
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
What are the 
major factors/ 
challenges and 
opportunities 
encountered to 
sustain activities at 
the municipal or 
NGO level?
• Evidence for ownership by 
key partners of the activity 
or project
• Evidence of sustained 
activities after project 
ending 
• Evidence of challenges 
undermining sustainability 
• Interviews with 
key 
stakeholders 
• Context 
analysis 
• Reviews of 
relevant 
documents 
• Interviews with 
IP staff
• Interviews with 
Sub-Awardees 
• Interviews with 
beneficiaries
• Project 
documents 
• Project 
progress 
reports
• IP
• Sub-Awardees 
• Beneficiaries
• Evaluation 
Report 2020 
review
• Project 
progress 
reports 
Review
• KIIs
• FGDs
• Site Visits
• 3 KIIs: IP 
• 9 KIIs with Sub￾awardees [RFCA1 
2/5, RFCA BER 2/4, 
RFCA2 5/11]
• 4 FGDs with 
beneficiaries 
[RFCA1 1/5, RFCA 
BER 1/4, RFCA2 
2/11] 
• 4 RFMA municipal 
site visits 
• 2 RFMA FGDS
• 5 site visits to RFCA 
Sub-awardees 
(sustainable vs. 
unsustainable).
How did the 
Activity leverage 
institutional 
factors, 
community 
groups/members, 
including women, 
youth and people 
with diverse 
backgrounds, 
enterprises, and 
other elements to 
maximize the 
likelihood of 
sustained results? 
• Evidence of scalability of 
activities
• Evidence of attracting 
partnership 
• Evidence of self-sustaining 
activities
• Interviews with 
key 
stakeholders 
• Interviews with 
Sub-Awardees 
• Interviews with 
beneficiaries
• Project 
documents 
• Project 
progress 
reports
• IP
• Sub-Awardees 
• Beneficiaries
• Evaluation 
Report 2020 
review
• Project 
progress 
reports 
Review
• KIIs
• FGDs
• Site Visits
• 3 KIIs: IP 
• 9 KIIs with Sub￾awardees [RFCA1 
2/5, RFCA BER 2/4, 
RFCA2 5/11]
• 4 FGDs with 
beneficiaries 
[RFCA1 1/5, RFCA 
BER 1/4, RFCA2 
2/11] 
• 4 RFMA municipal 
site visits 
• 2 RFMA FGDS
• 5 site visits to RFCA 
Sub-awardees 
(sustainable vs. 
unsustainable). 
44 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
Lessons learned and recommendations: What are the key lessons learned and what recommendations are there for future programme design?
Core Evaluation 
Questions/Sub￾Questions
Judgement Criteria Evaluation 
Tools/Methods
Data source Data collection 
method
Sample
What are the key 
lessons and 
recommendations 
in terms of USAID 
performance 
(programme and 
context 
management, 
cross-USAID 
effort, political 
access and 
influencing)?
• Evidence that the 
programme has clear 
links to USAID policy 
objectives and that its 
contribution to these is 
assessed.
• Evidence of adaptive 
programming 
• Evidence of good 
Embassy-partner 
relationship and 
management of IPs
• Review of 
programme 
alignment with 
CDCS strategy 
or its 
modifications
• Interviews with 
USAID
• Feedback from 
IP on USAID 
approach 
• Project MEL 
Plan 
• CDCS 
Document 
• Modifications 
• RFCA 
agreements 
• IP
• USAID
• Evaluation 
Report 2020 
review
• Project MEL 
Plan Review
• Modifications 
Review
• RFCAs Review
• KIIs
• FGD
• 3 KIIs: IP
• 1 FGD with 
USAID team
What lessons have 
been learned at the 
project level? 
What lessons on 
gender and 
inclusion were 
learned? What 
evidence is there of 
adaptive 
programming? 
• Evidence of lesson￾learning and adaptive 
programming by the 
Implementing Partners
• IP reports
• Interviews with 
IP
• Interviews with 
USAID
• IP
• USAID
• KIIs
• FGD
• 3 KIIs: IP 
• 1 FGD with 
USAID team
What are the key 
lessons and 
recommendations 
for the strategic 
design of the 
programme going 
forward?
• Suggested strategic focus, 
approach, ToC, target 
groups. 
• Pointers and criteria for 
ensuring best use of limited 
resources to achieve USAID 
strategic objectives amid 
volatile environment.
• Assessment of 
overall findings 
and 
implications for 
forward 
programming 
• All documents 
reviewed and 
responses of 
KII and FGD 
participants 
45 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
RFCA Sub-awardees selection 
 
NGO / FBO Name Sub-Awardee District RFCA Project Concept Deliverable KIIs Site visit FGD 
[redacted] NGO Zgharta 1 Provision of sewing and embroidery 
machines and computers and a 
training in sewing and embroidery and 
GBV awareness sessions for 48 
women.
Sewing 
equipment and 
training 
X X X
[redacted] Christian FBO Keserwan 1 Equipment provision to an educational 
Argo-processing food center for GBV 
survivors and providing Agro￾processing training to beneficiaries 
from two FBOs. 
Agricultural 
equipment 
X
[redacted] Christian NGO All districts 1 Training provision, in partnership with 
USAID’s partner, Lebanon Investment 
in Quality, (LINQ) on modern 
agricultural practices to youth coming 
from the regions and suburbia’s of 13 
dioceses and Provision of agricultural 
machinery, equipment and tools that 
will be used during the practical 
component of the training and after 
the end of the project to support 
these youth and other vulnerable 
farmers.
Agricultural 
equipment and 
training 
X X
[redacted] Alawite FBO Tripoli 2 Vocational training provision on digital 
skills including equipment
Computer 
equipment and 
training 
X X X
[redacted] NGO Chouf 2 Equipment provision for Fruit and 
vegetable packaging center.
Agricultural 
equipment 
X X X
46 | BALADI-CL – ENDLINE PERFORMANCE EVALUATION USAID.GOV 
FINAL REPORT – JUNE 2022 
[redacted] Christian FBO Metn 2 Rehabilitation and Equipment 
provision of a Community Kitchen 
unit including a production unit.
Kitchen 
equipment 
X
[redacted] Christian NGO Beirut 2 Capacity building and psychosocial 
support 
Training and 
psychosocial 
support 
[redacted] Christian FBO Keserwan 2 Equipment provision for an Intensive 
rehabilitation program for children 
with non-progressive neurological 
disorder 
Special needs 
equipment 
X
[redacted] Christian FBO Metn 2 Photovoltaic system equipment 
provision for the School
Solar 
equipment 
X X
[redacted] NGO Beirut BER Capacity building for front line aid 
workers on psychosocial first aid and 
provision of psychosocial activities to 
the affected population and 
distribution of PSS kits.
Psychosocial 
Support 
X
[redacted] Christian FBO Beirut BER Rehabilitation of damaged premises 
and equipment provision for a daycare 
Medical 
equipment 
X
[redacted] Christian FBO Beirut BER IT and laboratory equipment provision 
for a Technical School
Computer 
equipment 
X
 
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RFMA Sub-awardees 
Municipality/ 
Union
District Project Description Rationale Site visit FGD 
[redacted] Baalbek Construction of a cold storage facility to help the farmers store their crops and sell 
them during the off-season. 
Selected by previous 
evaluation and relevant 
for beneficiaries input x x 
[redacted]
Baabda Rehabilitation of a Sports Court, and the establishment of a kiosk, dressing rooms, rest 
rooms…
Selected by previous 
evaluation and 
representative x 
[redacted]
Metn Establishment of a hiking trail 
Selected by previous 
evaluation and 
representative x 
[redacted]
Aley Installation of three solar stations of 227 panels providing 60 KWp of electricity and a 
generator 
Selected by previous 
evaluation and relevant 
for beneficiaries’ input x x 
 
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KII Tools with BALADI CL Staff
A. How did the project provide for environmental reporting and compliance?
1. Can you please describe the process for: USAID Environmental monitoring, reporting/ and compliance?
2. Can you describe the process for the development of ERACs?
3. Who are the staff involved in the process? (Names, positions) and what are their responsibilities. Were female 
staff involved? What positions did they hold and what contributions did they make?
4. Follow up question: Turnover rate, how many people assumed these specific functions during the past two 
years.
5. Did you contract a company to support with environmental reporting, If yes can you describe the process? 
What went well and what did not?
6. Follow up question: what led to the termination of the contract with the company? 
7. What is the current quality assurance mechanism implemented? Can you generally describe what your Program
has done from 2020 to date to ensure practices in this area are up to standards of quality? 
8. Who has ultimate responsibility, within the hierarchy of the organization to ensure the quality and timeliness of 
response, (Names, positions)
9. What are you especially proud of with regards to environmental reporting and compliance? What went well? 
Can you provide examples. What were the major challenges that you encountered in terms of environmental 
reporting and compliance? what should have been done differently, and what were the major lessons learned? 
Can you provide examples
10. Additional probes: 
• What were the major factors internal or external contributing to these challenges?
• Can you explain these specific ERACS: [redacted]
• what can you tell me about them? Where you able to implement the EMMP included in these documents, why 
/why not? Do you have any final comments or last thoughts that you would like to share with us?
B. Whether procurement was effectively managed?
 Can you please describe the process for: procurement for the BALADI-Caritas project?
 Do internal guidelines, manuals exist? If yes, can you share, if no, why not?
 Who are the staff involved in the process? (Names, positions). 
 Follow up question: Turnover rate, how many people assumed these specific functions during the past two 
years.
 What is the current quality assurance mechanism implemented? Can you generally describe what your Program
has done from 2020 to date to ensure practices in this area are up to standards of quality?
 Who has ultimate responsibility, within the hierarchy of the organization to ensure the quality and timeliness of 
response, (Names, positions)
 What are you especially proud of with regards to procurement processes? What went well?
 Are you usually involved in asset transfer to NGOs or municipalities? If yes describe your role, and the major 
challenges you faced in transferring the equipment to municipalities
 What were the major challenges you encountered that caused delays in procurement, or the non-procurement 
of certain items what should have been done differently, and what where the major lessons learned?
 Additional probes: 
• What were the major factors internal or external contributing to these challenges, delays in procurement, can 
you mention a few examples?
• Can you mention some instances where you exceeded budget on some procurements, why did that happen? 
• Can you provide examples of a time when you did not procure certain equipment, why did that happen?
• Can you share the procurement log, where issues and challenges can be tracked?
• Where can we find the procurement budget, can you share that
Do you have any final comments or last thoughts that you would like to share with the evaluator?
C. How effective was human resource management?
1. Can you please describe the process for recruiting staff under BALADI Caritas project?
2. How many females are recruited? How many persons with disability, if any?
3. Do internal guidelines and manuals exist? If yes, can you share, if no, why not?
4. Who are the staff involved in the process? (Names, positions). 
5. What were the positions that had the highest turnover rate, during the past couple of years? what were the 
reasons?
6. Who is responsible for quality assurance in the BALADI Caritas project? Can you generally describe what has 
been done from 2020 to date to ensure practices in this area are up to standards of quality?
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7. What are you especially proud of with regards to HR/staff management? What went well?
8. What were the major challenges encountered, what should have been done differently, and what were the major 
lessons learned, can you mention examples?
9. Do you have any final comments or last thoughts that you would like to share with us?
D. How effective was Grants Management
1. Can you please describe your role under BALADI Caritas project?
2. Do internal guidelines and manuals exist? If yes, can you share, if no, why not?
3. Follow up question: Turnover rate, how many people assumed these specific functions during the past two years.
4. What is the current quality assurance mechanism implemented? Can you generally describe what your Program
has done from 2020 to date to ensure practices in this area are up to standards of quality?
5. 5.What are you especially proud of with regards to grants management? What went well?
6. What were the major challenges you encountered, what should have been done differently, and what were the 
major lessons learned, can you mention examples?
7. To what extent are you involved in the transfer of assets, what do you know about the process? If yes, what 
were the major challenges encountered? 
Additional probes: 
• Can you explain some of the challenges encountered specially when transferring assets to municipalities? Did 
you face the same challenges when transferring assets to NGOs? Why /why not?
• Do you have any final comments or last thoughts that you would like to share with the evaluation team?
E. How Effective was Monitoring and Evaluation
1. Can you please describe your role under BALADI Caritas project?
2. Who are the staff involved in the M&E process in terms of data collection, analysis, and reporting? (Names, 
positions). 
3. Follow up question: Turnover rate, how many people assumed these specific functions during the past two years.
4. What is the current quality assurance mechanism being implemented in BALADI Caritas? Do you or the M&E 
team play a role in that? If yes, what is your role?
5. What are you especially proud of with regards to M&E? What went well?
6. What were the major challenges you encountered, what should have been done differently, and what were the 
major lessons learned, can you mention examples? 
Additional Questions: 
• How soon can we receive the nominal database? Are there any challenges regarding that we need to be aware 
of?
• Do you have any final comments or last thoughts that you would like to share with us?
F. Program director 
1. Overall, how would you describe the relevance and benefit of this Program to the communities?
2. How were the needs and inclusion of diverse groups taken into consideration both at BALADI Caritas and in the 
selection and work with the awardees?
3. How would you describe the performance and deliverables of the departments at BALADI Caritas? 
4. What could have contributed to improving this?
5. What are you most proud of about the teamwork?
6. What are you most proud of about the deliverables of the Program?
7. How has BALADI Caritas adapted to the changing context?
8. What has been the learning from this Program, particularly about the partnerships with USAID, in A&E and 
ERAC? 
9. How do you see the projects funded being sustainable in the coming two years? How has BALADI Caritas 
contributed to supporting sustainability? 
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KIIs Tools for RFMA Sub-Awardees 
 Context: 
1. How many of Municipal councilwomen are there?
2. If MUNICIPAL UNION: How many municipalities are there in the union? What is your position in the union? 
And president of which municipality? How many women are there in the union? Are there any women with 
disabilities? 
3. Were you involved in the BALADI-CL program from the beginning? 
 Sustainability: 
4. What was the most important benefit to your community resulting from this project? 
5. How did these benefits impact women, youth and people with diverse backgrounds including people with 
disabilities? 
6. Are any neighboring or other municipalities benefiting from the project/facility? Describe. 
7. If MUNICIPAL UNION: Was the project beneficial for the union? 
8. If MUNICIPAL UNION: How, and how much did the other municipalities in the union participate in the design 
and selection of the project? 
9. If MUNICIPAL UNION: How, and how much did the other municipalities in the union participate in the 
implementation of the project? 
10. Did you face any challenges during the execution of the project? Describe? If Yes: Did you find the needed 
support? 
11. PRIVATE SECTOR MANAGEMENT: What type of contractual agreement is used? What is the role of the 
municipality? How is the relationship working? [is it a real PPP relationship?] 
12. If MUNICIPAL MANAGEMENT: Are you facing challenges in managing or sustaining the facility? Explain. 
13. Is the project covering its costs? 
14. Is it generating revenues above its costs [surplus revenue]? 
15. If GENERATING SURPLUS REVENUE: Who is benefiting from the surplus revenue? 
16. When and how did the handover take place? (if not yet, how much time does it still require?) 
17. To what extent are women involved in the BALADI project? [Participant? Leadership role?] were there any 
women with disabilities involved? If yes, what measures were taken to ensure accessibility and inclusiveness?
18. If WOMEN INVOLVED: How do they participate in ongoing management of the project? 
19. What challenges, including gender-based discrimination did the women face while participating in the project? 
How were these challenges overcome if so? 
20. Did the project contribute to women’s empowerment and to challenging social, cultural and gender norms? 
How? 
21. Did the project contribute to positive youth development, if so, how? 
22. To what extent has the project created jobs/employment opportunities for people living in the village/area? Any 
permanent jobs created? Seasonal? Who pays their salaries?
23. To what extent did the project contribute to improving the well-being, livelihood and income-generating 
opportunities for women? 
24. Was the project responsive enough to women needs, priorities, interests, etc. Including women with disabilities? 
25. Is the community stronger owing to this project? How do you observe this? 
26. Did the project meet your expected needs? (are you satisfied with the results?)
27. If you had the chance to change something, what would it be? 
28. What do you need or expect as additional support to evolve or sustain the project? 
 
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KIIs Tools for RFCA Sub-Awardees 
Context 
1. Since when was your NGO legally registered? 
2. Where is your office located? 
3. How many members are there in your NGO? 
4. How many permanent staff does your NGO have? 
5. Do you have employees with disabilities? If yes, how many? 
6. How many of them are women? And what positions do they hold in the NGO?
7. Were WOMEN NGO members involved in the BALADI project? If so, how did they participate?
8. What is your scope of your NGO's work in general? 
Relevance
9. How was the project designed to reach its objectives?
10. How did you select your beneficiaries? What categories were utilized?
11. How were females and youth outreached including vulnerable females and youth with disabilities and diverse 
backgrounds? 
12. What challenges were faced while trying to outreach females and youth? How were these challenges overcome? 
13. How did your project respond to current economic and turbulent environment?
14. How did your project work towards improving the well-being and livelihood opportunities for females and 
youth? 
15. Was your project designed to meet women and youth needs? Was there any gender and youth analysis 
conducted to inform the project?
16. Was the project designed to shift cultural, social and gender norms, if so, how?
17. What was the most important benefit to your community resulting from this project?
18. How did these benefits impact women and youth? How did it affect their day-to-day life?
19. Does the project fill an important need of the community? Y/N/NA]
20. Who are the main users of the facility/service?
21. Are the facilities and services made inclusive and accessible for those with disabilities and diverse backgrounds?
22. Do you know if the facility was targeted in any way to benefit women, youth or People with Disabilities?
23. To what extent has the project created jobs/employment opportunities for people living in the village/area 
including females? Any permanent jobs created? Seasonal? Who pays their salaries?
24. Does the project record sex and age disaggregated data? What is the ratio of the females in the project?
25. Is the community stronger owing to this project? How do you observe this?
Effectiveness 
29. Were you involved from the beginning: design, selection, execution, management, oversight? 
30. Would you say that a participatory approach was used to design the proposal(s)? were women staff involved in 
the process? What contributions and considerations did they add? [Probe in relations to CARITAS Management 
Team] 
31. If YES - PARTICIPATORY: Can you recall/describe BALADI management team? the community's participation? In 
the design? During implementation?
32. Did you face any challenges during the execution of the project? Describe? [Probe in relations with BALADI 
management team]
33. Were there any gender-based challenges faced? What were they and how were they overcome? 
34. If YES - CHALLENGES: Describe the challenge(s) and how you overcame it/them? Did you find the needed 
support? [Probe in relations to BALADI management team] 
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35. To what extent did BALADI team make aware about needing to design and implement the project in compliance 
with gender-sensitivity, inclusiveness, quality assurance requirements, procurement procedures, and 
environmental measures? 
36. To what extent do you think your Program adhere generate awareness about its benefits and that of 
USAID/Lebanon? Where these achievements communicated to BALADI team.
37. How would you assess the overall BALADI team’s management of your project from beginning to end? Any 
recommendations for improvement? 
Sustainability 
38. Are you facing challenges in managing the service/facility now? Explain.
39. Is the project covering its costs?
40. Is it generating revenues above its costs [surplus revenue]?
41. Did the BALADI project enhance collaboration between your NGO, the municipality/private sector, and 
community/village residents? How? 
42. Do you have new partners interested to support your project now? Are there partners that are female-led?
43. Will you face any challenges in keeping it operating the project at a good level?
44. If you had the chance to change something, what would it be?
45. What additional support is required to upscale or sustain the project and make it gender-sensitive as well as 
inclusive? 
 
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KII Tools for USAID Staff 
Context: 
1. Background about the development of the project
2. How it has been managed by USAID
Relevance [RFCA]
1. How does the USAID consider RFCAs were relevant to its country objectives?
2. How does the USAID find the sub-awarded projects contributed to its objectives? 
3. How does the USAID determine population needs and required modifications?
4. How did the USAID determine that these sub-awarded projects are targeting the right population and 
responding to needs?
5. How were the needs of women and youth identified and taken into consideration? Were they addressed? How? 
6. What kind of strategy (to reach goals) did USAID utilize toward BALADI while adapting to a turbulent economic 
and political environment?
7. To what extent do you think the B/CL program contributed to improving public services?
8. Generally, to what extent do you think the selected initiatives contributed to enhancing inclusive economic 
growth? 
9. Building social capital was part of the program design. How would you describe or define "social capital" in 
communities? How did the different projects contribute to social capital?
10. Has USAID or other IP, donor recently assessed the local development context? Are there studies we should 
see, for context? Any indicator of municipal performance, for example?
Effectiveness [RFCA]
11. How do you assess BALADI’s management’s team handling of projects in terms of effectively implementing the 
program while adapting to changes?
12. How do you assess the interactive relationship between USAID and BALADI-CL management team?
13. Do you believe that you played a participatory role in supporting the development of BALADI-CL sub award 
program? 
14. What were the areas of strengths and weaknesses in project coordination and supervision with BALADI-CL? 
[Probe for reporting, project selections, feedbacks, response to challenges, oversight, communication 
effectiveness, women participation, others]
15. How did the BALADI-CL reporting help USAID measure own achievements toward goals?
Sustainability [RFCA and RFMA] 
16. What do you consider the most significant outcomes or achievements of the project? What makes them 
significant? "Biggest success story -- big picture" 
17. What are USAID’s main lessons learned from its experience with BALADI-CL RFMA and RFCA?
18. Looking ahead: What would USAID maintain, change, or omit in BALADI-CL/ RFMA and RFCA? Why?
19. To help us frame forward-looking recommendations can you describe any relevant changes in the new CDCS, or 
the mission-wide Results Framework? E.g., new or changed Development Objectives or Intermediate Results? 
What factors triggered these changes in direction, if any?
20. Any other thoughts or forward-looking ideas for future program design
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FGD Tool with Beneficiaries of RFCA and RFMA
FGD - INFORMED CONSENT AGREEMENT
FGD QUESTIONS FOR [redacted] /Female
1 How did you learn about this project and enroll? Why did you enroll? (objective: identify knowledge of USAID, DOC 
plan, selection process)
2 Can you please tell us about your experience taking the courses and GBV awareness session? (objective: quality of 
equipment and training, diversity of beneficiaries, encouragement of feedback and complaints)
3 How have you benefited from taking these courses and the equipment? (objective: learn about your initiative, ability to 
use the equipment and moving to a new shop in August, knowledge about who to refer to for GBV issues). 
Did these courses, sessions and the project overall change any social and cultural gender norms as in changing the roles of 
women in your community and context and having women receiving an income? (understand how the overall project 
impacted the gender, social and cultural norms in the community where the project was implemented). 
4 How do you expect to continue using the equipment in the coming months? And contributing to the project? Are there 
any barriers you would like to flag that the organization can work on to facilitate using the equipment? What skills do you 
think you still need to continue using the equipment in the coming months? (objective: capture barriers and obstacles that 
women may face if they want to continue using the equipment and work on these challenges accordingly to facilitate the 
sustainability of the project).
5 What challenges have you faced to access the trainings and the shop and while working? How were they overcome? Is 
the project accessible and inclusive enough for those with disabilities? (objective: identify gender based discrimination, 
sustainability, needs of diverse groups)
Was there any gender-based discrimination you faced while trying to access the trainings and the shop? What was this 
discrimination like and how did you respond to it? (objective: identify whether any gender-based discrimination and 
harassment were faced in order to set the needed safety planning for the project or for future projects). 
6 How inclusive is this project of people of diverse backgrounds, gender? In other words, did you feel that this project was 
responsive enough to your needs as women and to the needs of other groups? 
7 What would you recommend to improve the quality, inclusivity, outreach and relevance of the project? What measures 
do you recommend setting in order for this project to speak to your needs and to ensure its sustainability? (Objective: 
identify whether the project was responsive to the needs of women and set the needed measures in order to make the 
project more informed and has the potential to respond to women and other diverse groups’ needs including people with 
disabilities).
FGD QUESTIONS FOR [redacted] / Male Youth 
1 How did you learn about this project and enroll? Why did you enroll? (objective: learn about the Outreach campaign 
through the Patriarchal Office, identify knowledge of USAID, DOC plan, selection process)
2 Can you please tell us about your experience taking the trainings and using the equipment? (objective: quality of 
equipment and training, diversity of beneficiaries, encouragement of feedback and complaints)
3 How have you benefited from taking these courses and the equipment? 
4 What challenges have you faced to access the trainings? How were they overcome? (objective: sustainability, needs of 
diverse groups) 
Are the trainings and the overall project accessible for those with disabilities? If not, how can the project become more 
accessible and inclusive? 
5 How inclusive is this project of people of diverse backgrounds, gender? Do you think this project was able to respond to 
your needs as youth? If so, what were these needs that were covered by the project? (objective: identify to what extent 
the project was informed in a way that responded to the needs of youth and people with diverse backgrounds). 
6 What is the relevance of these trainings and equipment to the farmers in your area? 
7 How do you expect to continue using the equipment and applying the skills acquired in the coming months? And 
contributing to the project? 
What skills do you still need in order to continue your participation in the project? 
How do you think what you learnt will contribute to your development as well as the development of your community? 
What positive income and results will this project generate for your and for your community? 
8 What would you recommend to improve the quality, inclusivity, accessibility, outreach and relevance of the project?
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FGD QUESTIONS FOR [redacted]/Male farmers
1 How did you learn about this project and enroll? Why did you enroll? (objective: learn about the Outreach campaign, 
identify knowledge of USAID, DOC plan, selection process)
2 Can you please tell us about your experience using the equipment? (objective: quality of equipment and training, diversity 
of beneficiaries, encouragement of feedback and complaints)
3 How have you benefited from using the equipment? 
4 How do you expect to continue using the equipment in the coming months? And contributing to the project?
5 What challenges have you faced to access and utilize the equipment? How were they overcome? (objective: sustainability, 
needs of diverse groups)
6 How inclusive is this project of people of diverse backgrounds, gender and including people with disabilities? Do you 
think this project responds to your needs as male farmers? How? 
7 What would you recommend to improve the quality, inclusivity, outreach and relevance of the project?
FGD QUESTIONS FOR [redacted] /FEMALE YOUTH
1 How did you learn about this project and enroll? Why did you enroll? (objective: learn about the Outreach campaign, 
identify knowledge of USAID, DOC plan, selection process)
2 Can you please tell us about your experience at the Digital Lab? (objective: quality of equipment and training, diversity of 
beneficiaries, encouragement of feedback and complaints) Do you think this is accessible for females with disabilities, if not, 
how can it be more inclusive? 
3 How have you benefited from the training? What skills do you think you still need? (objective: identify application of skills
outside lab, internship opportunities, work opportunities, social network building)
4 What challenges including gender-based discrimination have you faced to access the lab and utilize the equipment? How 
were they overcome? (objective: sustainability, needs of diverse groups)
5 How inclusive is this project of people of diverse backgrounds, gender and including people with disabilities?
6 What would you recommend to improve the quality, inclusivity, accessibility, outreach and relevance of the project?
FGD QUESTIONS FOR [redacted] COLD STORAGE FACILITY USERS
CS01 Can you each tell us how long you have been using the cold storage facility? How do you use it (what function it 
fills for you)?
CS02 How well does this CS meet your needs? Does it function well? Discuss, conclude. 
CS03 What features of the CS would you say are most useful or valuable to you? What features are missing? 
CS04 Are there features that you do not need or that are not useful for some reason? Discuss.
CS05 Do you have challenges accessing or using the CS? Is it accessible enough for women and people with disabilities?
CS06 How have you benefited from having this CS? (objective: check on increased income, cost saving, establishment of a 
unified local sellers’ market)
CS07 Who was responsible for establishing the CS? Do you know who was behind the initiative? Who paid for it? Who 
was involved in setting it up? Were there any females involved? 
CS08 Do you know who owns and manages the CS? Have they kept it operating well? Do you think they will be able 
to keep it operating and well maintained? Why do you think so (or not)?
CS09 Are community members involved in operating or managing the facility Including women and people with 
disabilities? 
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ANNEX 4: SOURCES OF INFORMATION
I. USAID/LEBANON DOCUMENTS
CDCS
1. 150224 Country Development Cooperation Strategy - Lebanon - Public -
FINAL.docx
RFA, Cooperative Agreement and Modifications
2. Request for Applications SOL-268-12-000006 – March 2012
3. Cooperative Agreement CA No.AID-268-A-12-00005 - Final September 2012
4. Contract Modifications: Mod 12 – November 2019; Mod 13- January 2020; 
Mod 14 – February 2020; Mod 15-April 2020; Mod16 – July 2020; Mod 17 – February 2022. 
Evaluations
5. BALADI Caritas Final Performance Evaluation – February 2020
II. BALADI DOCUMENTS
Proposal
6. Lebanon BALADI CL Technical Proposal (revised 26 Sep 2012)
RFCA: all grants documents per awardee 
RFMA: business plans of sampled municipalities
M&E
7. Approved M&E Plan – December 2020
8. M&E Tracker Updated 31-12-2021
Progress Reports: FY2022 Q1; FY2021 Q1,Q2,Q3 andQ4; FY2020 Q1,Q2,Q3 and Q4. 
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ANNEX 5: DISCLOSURE OF ANY CONFLICTS OF INTEREST
Team member Conflict of interest form
James Fremming, Chief of Party - Lebanon (EnCompass) [redacted]
Nour El Zaouk, Data Analyst (EnCompass) [redacted] 
Dr. Imad Salamey, Team Lead (Independent Consultant) [redacted] 
Stephanie Bassil, Research and Evaluation Specialist (Management 
Systems International) 
[redacted]
Dr. Pragati Godbole, (EnCompass) [redacted]
Hiba Shatila, Administrative Support (EnCompass) [redacted]
Farah Kleit, Gender Youth and Inclusion Learning Officer 
(EnCompass) 
[redacted]
Amer Haddad, Editor (EnCompass) [redacted]
Amanda Stek, Facilitator and MEPL Senior MEL Specialist 
(EnCompass) 
[redacted]
Julio Gerges, Third Party Monitoring Analyst (Management Systems 
International) 
[redacted]
Hussein Zehri, Monitoring Specialist (Management Systems 
International) 
[redacted]
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ANNEX 6: EVALUATION TEAM
Team member Qualifications Responsibility for this task
James Fremming, Chief of 
Party - Lebanon (EnCompass)
Chief of Party for USAID's 
Monitoring and Evaluation 
Program for Lebanon (MEPL), 
implemented by EnCompass LLC
Will maintain primary contact with USAID 
Lebanon country mission and insure the final 
delivery of evaluation.
Nour El Zaouk, Data Analyst 
(EnCompass)
Public health practitioner, 
specialized in health promotion 
and community health. 
Will participate in designing, implementing, and 
analyzing the evaluation plan. Will support the 
team in planning the methodology for data 
collection, management, and analysis. Will
conduct quality assurance reviews of presented 
tools, data and reports; coordinate ethics review; 
and facilitate the data analysis integration and 
synthesis workshop with the team. 
Dr. Imad Salamey, Team Lead 
(Independent Consultant) 
Associate Professor of Political 
Science. Senior MEL consultant. 
Delivered and led several 
evaluation teams for USAID.
Will work under the direct supervision of the 
Chief of Party and in close collaboration with the 
MEPL team to coordinate and implement all 
evaluation activities.
Stephanie Bassil, Research and 
Evaluation Specialist 
(EnCompass) 
Managed several evaluations while 
working with the Norwegian 
Refugee Council
Will contribute to all phases of the evaluation in 
collaboration with the team leader and the rest 
of the team, under the supervision of the Chief of 
Party. 
Dr. Pragati Godbole, 
(EnCompass) 
Project Management, Research & 
Assessment, Quantitative and 
Qualitative data collection and 
analysis, Facilitation, Staff Training 
and Delivery, Grant Writing, 
Experience with Stata, SPSS, 
HLM, In-depth familiarity with 
developing contexts and Issues on 
Girls' Education in international 
contexts. 
Will provide learning, recommendations, review, 
help with analysis, and ongoing feedback to the 
team. 
Hiba Shatila, Administrative 
Support (EnCompass)
EnCompass HR & Procurement 
Manager 
Will support in purchasing items needed for data 
collection and booking field transportation.
Farah Kleit, Gender Youth 
and Inclusion Learning Officer 
(EnCompass) 
Gender, Youth and Inclusion 
Specialist, Gender-Sensitive 
Evaluation, Gender Analysis, 
Disaggregated Data Analysis, Staff 
Training and Workshops 
Delivery, Adolescent Girls. 
Will ensure gender sensitive approach to 
evaluation. 
Amer Haddad, Editor 
(EnCompass) 
Editing Specialist Will complete required editing of draft evaluation 
reports prior to submission.
Amanda Stek, Facilitator and 
MEPL Senior MEL Specialist 
(EnCompass) 
MEL Associate Director Will facilitate the various tasks among the team 
members and ensure along the team leader the 
timely completion of the assigned tasks. Will 
provide quality assurance to deliverables.
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FINAL REPORT – JUNE 2022
ANNEX 7: REVISED BALADI ACTIVITY RESULTS FRAMEWORK
REVISED BALADI 
ACTIVITY RESULTS FR
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FINAL REPORT – JUNE 2022 
ANNEX 8: BALADI-CL PROJECTS BY PHASE AND CATEGORY
Type Number
RFMA Projects 
School Equipment 1 
Agribusiness 4 
Cultural or Social Center 4 
Solar Power 4 
Tourism or Eco-tourism 4 
Recreational Sport 6 
Total 23 
Type Number
RFCA Projects 
Computer Equipment/Training 2 
Solar and Recycling Equipment 2 
Psychosocial Support 2 
Agricultural Equipment/Training 4 
School and Special Need Equipment 4 
Kitchen and Sewing Equipment/Training 5 
Total 19
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FINAL REPORT – JUNE 2022 
ANNEX 9: USAID/LEBANON AND BALADI AIMS AND INDICATORS
Relevance of BALADI Caritas Objectives to USAID's DOs
USAID DO 1 (CDCS)
Indicators USAID (CDCS) BALADI Objectives Indicators BALADI (Mod 16)
Improved capacity of the public 
sector in providing transparent, 
quality services across Lebanon 
Long-term collaboration between 
municipalities or unions, NGOs, FBOs, 
CBOs, and private sector entities to 
implement and manage community 
projects and deliver services. 
Mission IR1.3: Improved sub￾national governance in addressing 
citizens’ needs in public service 
delivery. 
Sub-IR 1.3.1: More capable 
municipalities working 
inclusively with citizens to 
effectively accomplish local 
development objectives 
* Number of municipalities in partnership with 
lead NGOs or for-profit private sector entities 
that are implementing citizen-identified projects, 
as a result of USG assistance 
* Percentage increase in customer satisfaction 
with public services in areas receiving USG 
assistance Percentage of assisted municipalities 
that have improved internal systems 
1. Improve the governance of 
municipalities and improve public 
service delivery. 
2. Establish sustainable local social 
capital 
3. Fulfil urgent needs of vulnerable 
communities 
Ind 3.1.a: Number of public sector initiatives successfully 
implemented as a result of USG assistance. 
Ind 3.1.b: Number of FBOs/NGOs initiatives successfully 
implemented as a result of USG assistance 
Ind 3.2: Number of projects with proof of sustainability or 
other equally effective documents based on the projects’ 
nature. 
Mission IR 1.4: Strengthened civil 
society contributing effectively to 
participatory and democratic 
governance. 
Sub-IR 1.4.1: 
Citizens' concerns 
increasingly 
addressed through 
CSO initiatives 
* Number of USAID-assisted local CSOs engaged 
in community, regional and national programs 
(broken down by women-run verses other 
NGOs, and percentage of women compared to 
men in CSOs engaged in programs)
 * Number of citizens engaged in local and 
national advocacy activities 
* Percentage of citizens who feel that their 
concerns are well-represented by civil society 
organizations
 
 
Ind 4.1.b: Number of FBOs/NGOs demonstrating citizens’ 
participatory approach in their submitted 
applications 
Ind 4.2 Number of Community committee members 
representing different sectors or backgrounds, and 
engaged in long-term overseeing of the management and 
operation of community projects 
Ind 4.3 Number of capacity building activities conducted 
as a result of USG assistance 
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FINAL REPORT – JUNE 2022 
ANNEX 10: CHALLENGES FACING RFCA IMPLEMENTATION
Project
Category of Funding Observed challenges Implementation
[redacted] Livelihood and 
Protection programs 
* Outcomes cannot be measured * multiple donors, 
some are much larger than BALADI, so could not 
dedicate much time to communication and reporting * 
trained emergency team discontinued * project lacks 
follow-up.
(blue)
[redacted] Provision of equipment 
and materials
* Outcomes cannot be measured * intermediary role 
complicates reporting procedure * lacks purpose * lacks 
follow up.
(green)
[redacted] Provision of equipment 
and materials and 
Vocational training and 
capacity building 
programs 
* Fuel cost limits operation to short hours and 
challenges participation* training and staffing require 
continuous funding * market competition needs 
alternative modality of cooperative production *GBV 
sessions have no clear impacts * original objectives are 
overly ambitious *risks political capture * project lacks 
follow up.
 (blue) 
[redacted] Provision of equipment 
and materials and 
Vocational training and 
capacity building 
programs
* Fuel cost complicated participation in practical sessions
* trainee expectations regarding the ownership of tools 
were not clearly communicated * selection of 
participants was not clear * project lacks follow-up * 
project lacks linkages with other USAID projects.
(orange)
[redacted] Livelihood and 
Protection programs
* Project is tied to other externally funded component 
(packaging) * fuel cost is a major challenge to operation * 
access to overseas market is a serious challenge * lacks 
follow up * lacks linkages with other USAID projects.
(green)
[redacted] Provision of equipment 
and materials 
(Agriculture, vocational 
training, etc.…)
* Fuel cost interrupted and shortened operation * lacks 
follow up.
(green)
[redacted] Provision of equipment 
and materials 
(Agriculture, vocational 
training, etc.…)
* Lacks follow-up. (green)
[redacted] Provision of equipment 
and materials and 
Vocational training and 
capacity building 
programs
* Hyperinflation and currency fluctuation disrupted 
pricing * fuel cost complicated operations and 
participation *External bans undermine export 
opportunity * project lacks linages with other USAID 
projects * project lacks follow-up.
(blue)
[redacted] Small-scale renovation 
and rehabilitation work
* Challenged by rising fuel cost and limited operation * 
lacks linkages to other programmatic components * 
lacks linkages with other USAID projects *lacks follow 
up.
(green)
[redacted] Vocational Training and 
Economic Empowerment
* Project did not demonstrate ability to employ nor to 
intern participants * Beneficiary is now equipped with a 
lab, but without strategic planning to sustain its use * fuel 
cost undermine coverage * project lacks follow-up 
*project lacks linkages with other USAID projects.
(blue)
Green: Satisfactory implementation, 
Blue: Semi-satisfactory Implementation, 
Orange: Implementation facing difficulties.
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FINAL REPORT – JUNE 2022
ANNEX 11: CHALLENGES FACING RFMA SUSTAINABILITY
Project Category Funding Proposed concept Current Status Observed challenges to sustainability
[redacted] Agribusiness Construction of a cold storage 
facility to help the farmers store 
their crops and sell them during 
the off-season.
Operational *Diesel fuel cost * operation and maintenance cost *space 
management *export bans *political capture * lack of linkages to 
other USAID projects
[redacted] Recreational Sport Rehabilitation of Sports Court, and 
the establishment of a kiosk, 
dressing rooms, rest rooms…
Operational *Diesel fuel cost * operational and maintenance cost * *space 
management *neighborhood complaints *lack of reach to girls * 
lack of linkages to other USAID projects.
[redacted] Tourism and Eco-tourism Establishment of a hiking trail Semi-operational * Fuel and transportation cost * low visibility * lack of interest by 
municipality to attract outsiders * disconnected from local 
businesses * lack of linkages to other USAID projects.
[redacted] Solar Power Installation of three solar stations 
of 227 panels providing 60 KW of 
electricity and a generator 
Not operational * Diesel fuel cost * operation and maintenance cost * outdated 
technology *management challenges.
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FINAL REPORT – JUNE 2022 
ANNEX 12: RELEVANT RFMA PROJECTS IN A CHALLENGING ENVIRONMENT 
Sustainability Failure, [redacted] Solar Power Project
In 2018 BALADI succeeded in installing solar power systems in the town aimed to supply electricity to around 200 houses, 
thus reducing residents’ utility bills and providing day-light saving. The design of the project went into several stages, from 
initially aiming to provide individual houses with solar pallets to, later, establishing a centralized solar power station for the 
town. The solar power was supposed to run in parallel with a diesel-run power generator to sufficiently provide electricity 
to 200 homes. The beneficiaries were those of an economically marginalized community, including residents with 
disabilities, a church, a religious center, a school, and a community house. It was expected that residents will gain 30% cost 
saving out of the project. This project was very relevant to USAID’s DO1 and DO2, as it established a partnership 
between the municipality and the various local organizations and promised long-term sustainability. Following the 2020 
economic crash and the rising fuel cost, running the diesel generator during day time proved no longer cost-efficient for 
the municipality. The municipality decided to stop the entire solar project while allocating the diesel-run generator to 
night-time electricity supply. This decision was driven by the intention to save on diesel fuel for the night. Only through 
installing solar-powered batteries to store daylight energy to be released at night that the project would have appeared 
relevant. However, solar batteries are not only beyond the price reach of the municipality, but also extremely hazardous
and risk explosion. Still, by 2022, technology has advanced beyond the already installed Chinese-made model solar pallets, 
rendering them inefficient even if they were to be utilized. 
Sustainability at Risk, [redacted] Refrigerator Project
In 2018 multiple refrigerators were installed for the municipality of [redacted] to store farmers’ overproduced season 
fruits, mainly apples. This was to support local farmers in maintaining market reach throughout the year. The refrigerators 
are powered by public electricity in parallel with diesel-power generator and Chinese-made solar pallets. The project 
appeared promising in meeting DOs and supporting local farmers. Following the 2020 economic crash and the rising fuel 
cost alongside blackout, running the diesel generator around the clock increased operation cost multi-folds. The revenues 
hardly meet the cost. The project was in jeopardy. Additional challenges included the management of the storage while 
deciding on beneficiaries and the distribution of refrigerator spaces. Sustainability is now risking changing mayor or being 
politically captured by municipal leaders, but most importantly it remains vulnerable to fluctuating market prices and the 
ability of farmer cooperatives to export products for urgently needed cash to cover the cost.
Sustainability in Shortage, [redacted] Hiking Trail Project
In 2015, BALADI completed a bicycle and a hiking trail on a land donated by the municipality of [redacted]. The project 
appeared sustainable for being established on public property while running a low maintenance cost. It was expected that 
the project would attract a large number of ecotourists from around the region. Yet, the municipality appeared to have 
lost interest in the project. The reason lies in the fact that the municipality could not identify many benefits in attracting 
hikers to town. Limited gains are anticipated by a few businesses, such as wineries and bakeries, but the municipality 
appeared least enthusiastic, as it seems to have weighed the cost against the benefits of ecotourism. Local private 
businesses have not been able to capture such an opportunity to partner with municipality to increase business. 
Sustainability at Risk, [redacted] Soccer Field 
The municipality has decided to renovate a soccer field on its property, located at the historic “Green-line” that divided 
the Muslim from Christian neighborhoods during the 1975 Lebanese Civil War. It is estimated that the soccer field’s 
property is worth more than 24 million USD and owned by the municipality. Original renovation intentions, costing around 
500,000 US dollars, meant to provide the youth of surrounding areas with the opportunity to use the field for sport 
activities, thus alleviating drug use and encouraging interactions between the different social groups. Beneficiaries were 
envisioned as evenly divided between girls and boys. The project was to benefit the employment of supporting staff in 
relevant facilities, such as the cafeteria. Project sustainability and field maintenance were critically linked to revenue 
generated from rent and cafeteria sale. The project faced several challenges since its inception in 2018, starting with the 
COVID-19 curfew and the 2020 economic meltdown. The project thus endured rising fuel prices and currency devaluation, 
which rendered it impossible to extend night operation. The initiative also faced difficulties in attracting girl players or 
women employees. At current operating capacity, the field generates monthly income of approximately $2,000 of rent per 
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FINAL REPORT – JUNE 2022 
month, but this amount is barely sufficient to cover field maintenance, wages of six staff, and pay for fuel cost.21 The 
dilemma is whether to increase capacity use through an additional investment that installs solar power and generates night 
light, or builds a rain-proof court facility, constructs a fan stadium, and increases outreach to maximum use throughout the 
week or, alternatively, maintains a minimal capacity use and avoids overcrowding, management, and maintenance cost. At 
the moment conservative approach is prevailing. What is questionable is whether this recreation sport project is replicable 
to other municipalities given the required city property allocation and field’s renovation, maintenance, and operation cost.
21 The amount is calculated based on hourly rent estimated at 600,000 LL per hour or $21@ 28,000LL 
exchange for the dollar. The current schedule of occupancy shows 6 hours operation at half capacity during 5 
working days, generating monthly income of approximately 6 hours x $12.5 x 20 days = $1,500. There could 
be additional income generated from storage, equipment rent, and cafeteria of about $500/month.
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FINAL REPORT – JUNE 2022
ANNEX 13: BALADI-CL INDICATOR TRACKING TABLE UP TO Q1FY2022
Indicator Name Total 
Target
Total 
Achieved
Comment
1.1 : Number of citizens benefiting from USG supported 
municipalities, NGOs/FBOs
80,400 80,310 Target met
1.2: Number of USAID-assisted local CSOs engaged in 
community, regional and national programs.
40 41 Target met
2.1.a: Number of municipalities that are implementing citizen￾identified projects, as a result of USG assistance.
46 75 Target 
overachieved
2.1.b: Number FBOs/NGOs, that are implementing citizen￾identified projects, as a result of USG assistance
24 20 Target 
underachieved
2.2 Number of USG-supported municipalities with improved 
public services as perceived by community opinion leaders
46 n/a N/a
3.1 a: Number of public sector initiatives successfully 
implemented as a result of USG assistance
23 23 Target met
3.1 b: Number of FBOs/NGOs initiatives successfully 
implemented as a result of USG assistance
24 11 Target 
underachieved
3.2: Number of projects with proof of sustainability or other 
equally effective documents based on the projects’ nature.
47 21 Target 
underachieved
4.1 a: Number of municipalities demonstrating citizens’ 
participatory approach in their submitted applications
104 114 Target met
4.1 b: Number of NGOs/FBOs demonstrating a citizen’s 
participatory approach in their submitted applications 
24 19 Target 
underachieved
4.2: Number of community committee members representing 
different sectors or backgrounds and engaged in long-term 
overseeing of the management and operation of community 
projects. 
347 461 Target 
overachieved
4.3: Number of capacity building activities conducted as a result 
of USG assistance.
149 151 Target met
5.1: Value of Non-USG funding leveraged or cost-shared into 
the USG assisted community projects
3,100,000 6,007,004 Target 
overachieved
5.2: Number of new USG-supported public-private partnerships 
(PPPs) formed
32 36 Target met
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FINAL REPORT – JUNE 2022
5.3: Number of MSMEs receiving business development 
services from USG assisted sources
700 562 Target 
underachieved
6.1: Number of jobs created by USAID interventions 76 61 Target 
underachieved
6.2: Proportion of female participants in USG-assisted programs 
designed to increase access to productive economic resources 
(assets, credit, income or employment) (GNDR-2) 
40% 60% Target 
overachieved
7.1: Number of microenterprises supported by USG enterprise 
assistance
635 554 Target 
underachieved
8.1: Number of Participating communities’ committees that 
have women and/or youth (16-30) permanent representatives
20 26 Target met
8.2: Number of USG-supported local governments and villages 
with communities impacted by Syrian refugees’ presence
28 67 Target 
overachieved
8.3: Number of women empowerment practices adopted 
through USG assistance. 
202 165 Target 
underachieved
8.4: Total number of Beneficiaries of USAID supported multi￾Community service delivery programs
81,176 80,933 Target met
Youth-1: Number of youths trained in social or leadership skills 
through USG assisted programs
2100 350 Target 
underachieved
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FINAL REPORT – JUNE 2022
ANNEX 14: DATA COLLECTION LOCATIONS AND TYPE