Office of Inspector General

Office of Inspector General
Office
202.692.2900
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OIG Reports
To:
Carrie Hessler-Radelet, Director

Dick Day, Regional Director, Africa
Daljit Bains, Chief Compliance Officer
From:
Kathy A. Buller, Inspector General
Date:
March 31, 2015
Subject:
Final Report on the Program Evaluation of Peace Corps/Lesotho

(IG-15-02-E)
Hotline
202.692.2915 800.233.5874
Online Reporting Tool
[email protected]
Transmitted for your information is our final report on the Program Evaluation of Peace
Corps/Lesotho.
Management concurred with all 16 recommendations. All 16 recommendations will remain open
pending confirmation from the chief compliance officer that the documentation identified in
managements response has been received. In its response, management described actions it is
taking or intends to take to address the issues that prompted each of our recommendations. We
wish to note that in closing recommendations, we are not certifying that the agency has taken
these actions or that we have reviewed their effect. Certifying compliance and verifying
effectiveness are managements responsibilities.
Our comments, which are in the report as Appendix E, address these matters. Please respond
with documentation to close the remaining open recommendation within 90 days of receipt of
this memorandum.
You may address questions regarding follow-up or documentation to Assistant Inspector General
for Evaluations Jim OKeefe at 202.692.2904.
Please accept our thanks for your cooperation and assistance in our review.
cc:
Jacklyn Dao Dinneen, White House Liaison

Rudy Mehrbani, General Counsel
Paul Jung, Associate Director, Office of Health Services
Carlos Torres, Associate Director, Global Operations
Marie McLeod, Director of the Office of Global Health & HIV
Carl Swartz, Chief of Operations, Africa Operations
Krista Rigalo, Expert: Special Advisor in Programming, Training and Evaluation, Africa
Operations
Shawn Bardwell, Associate Director, Office of Safety and Security
Patrick Choquette, Director of Innovation
Wendy Van Damme, Country Director, Peace Corps/Lesotho
Debra Pinkney, Director of Programming and Training, Peace Corps/Lesotho
David Wallace, Director of Management and Operations, Peace Corps/Lesotho

Alyssa Karp, Chief Administrative Officer, Africa
Anne Hughes, Deputy Chief Compliance Officer
Lesotho Country Desk
IGChron
IG
Peace Corps
Butha-Buthe District, Lesotho
Flag of Lesotho
Final Program Evaluation Report:

Peace Corps/Lesotho
IG-15-02-E
March 2015
EXECUTIVE SUMMARY
BACKGROUND
More than 2,200 Peace Corps Volunteers have served the people of Lesotho since the program
was first launched in 1967. At the time of our evaluation there were three projects in Lesotho:
education (ED), healthy youth (HY), and community health and economic development. The
community health and economic development project is being phased out when the currently
serving group closes their service in 2015. At the onset of this evaluation, there were 84
Volunteers serving in Lesotho.
WHAT WE FOUND
Peace Corps/Lesotho (hereafter referred to as the post) has experienced significant upheaval in
the last couple of years beginning with the murder of a Volunteer in 2010. Since that time, the
posts focus has been on keeping Volunteers safe and the incidence rates of crimes against
Volunteers in most categories have fallen. The post has spent recent years implementing
recommendations from a post operations support team visit 1 and an Office of Inspector General
(OIG) audit, as well as implementing the Focus In/Train Up strategy 2 and other agency
initiatives.
We found that posts programming was adequate, although some Volunteers reported challenges
with their ability to achieve project goals. We also identified some issues with Volunteer work
assignments and housing in the posts site identification and development process. Site history
was not consistently used during site development and the system for collecting, filing, and
storing the information was not clear to relevant staff. The post only had one national level
memorandum of understanding (MOU) with a host country ministry even though there are
multiple ministry stakeholders. The post also did not consistently have MOUs with individual
organizations where Volunteers are placed.
Lesothos training program was working well to prepare Volunteers for most aspects of their
Peace Corps service. Language testing scores showed that all trainees from the two most recent
pre-service training (PSTs) met the posts local language requirement of intermediate low in
Sesotho, the national language of Lesotho. Technical training received the lowest average rating
of PST sessions from the Volunteers we interviewed, although scores were in line with the
agencys annual Volunteer survey (AVS) data, which is collected by all posts.
Volunteers were generally satisfied with the support they received from staff. Volunteers and
staff were effectively communicating and staff was providing quality feedback in response to
their Volunteer reporting forms (VRFs). Volunteers were mostly satisfied with the site visits they
received from staff but Volunteers who were placed in more remote locations said that visits
1
A four-person team from Peace Corps Headquarters went to Lesotho in October 2010 to advise and support the
country director, staff, and Volunteers in light of safety and security concerns and staffing issues. The team
produced a report with recommendations for consideration by the post and Peace Corps senior staff to ensure
effective operations in Lesotho.
2
FITU was an agency initiative that sought to focus on a limited number of highly effective projects designed to
maximize the skills of generalist Volunteers with limited expertise and/or work experience.
Final Program Evaluation Report: Peace Corps/Lesotho
were quick and that post leadership had not visited some areas of the country. We found that
some housing criteria was not clear, that Volunteer resource centers offered uneven support, and
the posts medical evacuation plan was not complete. We had concerns about the posts ability to
evacuate a Volunteer at night in the event of medical emergency.
We found the posts resources and management practices were adequate for effective post
operations. Staff appreciated the country directors (CDs) management style and her trust in
them to do their jobs. The post has outgrown its current office space, but has not yet budgeted for
an office move.
Without a permanent director of management and operations (DMO) since July 2013, the post
had been supported by the roving regional DMO and capable local staff with little impact to
operations. But, staff with major collateral duties such as monitoring, reporting, and evaluation
(MRE) and grants coordination was stretched thin. Most staff said morale was good, but
concerns were raised about salaries, which had been frozen since 2010, and per diem rates,
especially for those who spend a lot of time in the field supporting Volunteers.
Thirty-five percent of the posts budget for Volunteers, or 23 percent of its overall budget, is
funded by Presidents Emergency Plan for AIDS Relief (PEPFAR); after evaluation fieldwork,
the post received a decision that the Peace Corps would not receive any new requested funding
for the next year. After further negotiations, the new funding was restored. The initial decision
on PEPFAR funding highlights the risks of planning for Peace Corps activities with funding that
is not within the Peace Corps control.
RECOMMENDATIONS IN BRIEF
Our report contains 16 recommendations, which, if implemented, should strengthen post
operations and correct the deficiencies detailed in the accompanying report.
ii
TABLE OF CONTENTS
EXECUTIVE SUMMARY ......................................................................................................................... i
HOST COUNTRY BACKGROUND .......................................................................................................... 1
PEACE CORPS PROGRAM BACKGROUND ........................................................................................... 2
EVALUATION RESULTS ........................................................................................................................ 3
P ROGRAMMING ..................................................................................................................................................... 3
TRAINING ............................................................................................................................................................... 9
VOLUNTEER SUPPORT ........................................................................................................................................ 12
MANAGEMENT CONTROLS ................................................................................................................................ 20
OTHER AREAS OF CONCERN ............................................................................................................. 22

LIST OF RECOMMENDATIONS ........................................................................................................... 23
APPENDIX A: OBJECTIVE, SCOPE, AND METHODOLOGY............................................................... 25
APPENDIX B: INTERVIEWS CONDUCTED.......................................................................................... 26
APPENDIX C: L IST OF A CRONYMS ................................................................................................... 29
APPENDIX D: AGENCYS RESPONSE TO THE PRELIMINARY REPORT .......................................... 30
APPENDIX E: OIG COMMENTS ......................................................................................................... 41
APPENDIX F: PROGRAM EVALUATION COMPLETION AND OIG CONTACT................................. 42
HOST COUNTRY BACKGROUND

The Kingdom of Lesotho is a land-locked, mountainous country, slightly smaller than Maryland
with a population of approximately two million. Known as the Kingdom in the Sky, eighty
percent of the country is 1,800 meters above sea level and its lowest point is 1,400 meters above
sea level.
A history of political instability continues to trouble the country. The area now known as
Lesotho, formerly known as Basotholand, was created as a loosely federated state by King
Moshoeshoe in the middle of the 19th century. In 1868, Lesotho became a British protectorate
after a series of territorial wars that cost Lesotho much of its best agricultural land. It gained its
independence in 1966, by which time Lesotho had already become economically dependent on
South Africa. The civilian government suspended the constitution in 1970 and remained in office
until a military coup in 1986. The first democratic elections were held in March 1993.
Figure 1: Map of Lesotho
Crime is a significant issue for the country, and the Department of States Bureau of Diplomatic
Security rates Lesotho as a critical crime threat post. Most reported incidents are crimes of
opportunity, such as simple assault, pick-pocketing, and petty theft. The limited amount of police
data available indicates that violent crimes, including armed robberies, sexual assaults,
homicides, residential break-ins, and crimes committed at gunpoint, have increased in recent
years. Vehicle accidents are also a major safety concern and the embassy has advised personnel
not to drive outside of well-lit urban areas at night.
HIV is a considerable health issue in Lesotho that the U.S. government, including the Peace
Corps, and the government of Lesotho is trying to combat. Lesothos HIV prevalence rate among
adults is 23 percent, the second highest in the world. Multiple donors have responded to
Lesothos HIV/AIDS epidemic. The Global Fund and PEPFAR program in Lesotho
complements a significant HIV/AIDS effort by the government of Lesotho and other donors.
PEPFARs 2014 country operating plan encourages the use of services such as anti-retroviral
therapy and voluntary male medical circumcision with behavioral changes like HIV testing and
reducing stigma.
Lesotho is completely surrounded by and is economically integrated with South Africa.
Lesothos economy is based on exports of water and electricity sold to South Africa,
manufacturing, agriculture, livestock, and remittances. Lesotho also exports items such as
diamonds, wool, mohair, and clothing. Most households subsist on farming or migrant labor,
primarily miners who remain in South Africa for three to nine months a year. Lesotho falls in the
category of low human development and is ranked 158 out of 187 countries and territories
according to the 2013 United Nations Human Development report.3
PEACE CORPS PROGRAM BACKGROUND

Over 2,200 total Volunteers have served in Lesotho since 1967, most having worked in the
education and agriculture sectors. Volunteers are geographically distributed throughout all 10
districts of the country and are primarily placed in rural areas. Lesotho has maintained a
relatively consistent number of 80 to100 Volunteers since its inception, although there have been
times when the program was temporarily suspended because of political instability. In September
1998, the Peace Corps temporarily withdrew all Volunteers to South Africa due to the civil
unrest and prolonged protests against the outcome of parliamentary elections; Peace Corps
Lesotho resumed operations in November 1998. In September 2014, Volunteers were again
temporarily consolidated to South Africa for a few weeks due to political instability.
The posts fiscal year (FY) 2014 budget was approximately $1.5 million. 4 At the time of
fieldwork, 27 staff were supporting 84 Volunteers. Once the community health and economic
development project is fully phased out, there will be two primary projects in Lesotho: ED and
3
The United Nations Development Program publishes an annual Human Development Index. The Index provides a
composite measure of three basic dimensions of human development: health, education and income. Countries are
ranked from very high human development to low human development based on related data.
4
This amount does not include the salaries, benefits, and related cost of U.S. direct hires assigned to post and other
costs the agency has determined should be centrally-budgeted.
HY. The post receives two trainee inputs per year; the ED trainees arrive in October and HY
trainees arrive in June. In 2015, the HY trainees will arrive in April to allow for a longer lapse
between training classes. Additionally, 17 Volunteers (20 percent) from the community health
and economic development project were still serving at the time of field work, although this
project will be phased out when the currently serving group closes their service. The post did not
have a Peace Corps Response program at the time of evaluation.
A more detailed explanation of the two project areas are discussed below:
Education (ED)
The ED project in Lesotho began with the first group of teachers in 1967. The Peace Corps
serves at the request of the Ministry of Education and Training and seeks to improve the quality
of teaching and learning in Lesothos education system through promoting teacher communities
of practice, strengthening school-community relationships and directly instructing learners in the
classroom. The project deploys English teachers in primary schools and math teachers in
secondary schools. According to the country briefing paper, aspects of the project that are
currently being phased out include science and English teaching at the secondary level and
teacher coaching and mentoring at the early childhood and primary levels. The projects purpose
is to improve the quality of teaching and learning in Lesothos education system and has four
goals: to improve learning in English, learning in math, teaching, and HIV mitigation.
Healthy Youth (HY)
The HY project has roots in nutrition, small business development, and HIV/AIDS awareness. In
2013, the community health and economic development project, which was formed in 2004, was
renamed HY. The project was re-focused on preventing the spread of HIV among youth through
health education and by mitigating the impact of HIV by preparing youth for the world of work.
The purpose of the HY project is to prepare Basotho children and youth, aged 10-24, for their
adult roles as healthy, productive and active community members. The project has three goals:
prevention and sexual health, care and treatment for HIV positive youth and HIV mitigation for
affected youth. Volunteers are placed with youth groups, nongovernmental organizations
(NGOs), community based organizations, host ministry partners, U.S. government-funded
partners, and vocational and farmer training centers. The HY project collaborates with the
following ministries: health; gender, youth, sports and recreation; and social development. The
posts PEPFAR budget funds 80 percent of the HY Volunteers.
EVALUATION RESULTS
PROGRAMMING
The evaluation assessed the extent to which the post has developed and implemented programs
intended to increase the capacity of host country communities to meet their own technical needs.
To determine this, we analyzed the following:
the coordination between the Peace Corps and the host country in determining
development priorities and Peace Corps program areas;
whether post is meeting its project objectives;
counterpart selection and quality of counterpart relationships with Volunteers;
site development policies and practices.
The overall condition of programming was adequate, although the evaluation did uncover some
areas for improvement. While post had focused both of its project frameworks through the
(FITU) initiative, we could not determine that it had reaped the intended benefits, particularly for
the HY project. Volunteers in this sector reported challenges in their ability to achieve their
project goals; these challenges are discussed below. Despite the challenges, most interviewed
Volunteers were satisfied with their sites as a part of their overall experience.
Monitoring, Reporting, and Evaluation. MRE was evolving at post, as it is throughout the
Peace Corps worldwide. Because of the transition from old project frameworks to newly focused
frameworks, activities conducted under the new framework were reported against the old one in
2013 project status reports. As a result, region senior staff recognized that that the 2013 project
status reports did not paint an accurate picture of programming, training and evaluation efforts at
post. Additionally, a new version of the Volunteer Reporting Tool (VRT) distributed to posts
lacked the capability of generating summary reports and did not allow staff to copy other staff
when sending feedback to Volunteers. The reporting challenges created extra work for staff.
Because post was required to report to PEPFAR quarterly, staff had to manually go through
VRFs to aggregate information for PEPFAR reports. An additional challenge was that post did
not have a full time MRE coordinator. The ED associate Peace Corps director (APCD) was
filling that role in addition to his primary responsibilities. He commented
I have seen the quality of reporting has improved tremendously. We are beginning to see
something out of this. We are now grappling with fine tuning our data collection tools. Thats a
challenge. With the Project Advisory Committee (PAC) we have been working on it; some of the
Volunteers on PAC have been working tirelessly.
Volunteers commented that they appreciated the data collection tools that had recently been
rolled out but had not had a chance to fully use them. When asked the question how reliable is
the information in your trimester or quarterly reports, 79 percent of Volunteers responded
favorably, and the remaining 21 percent said that it was neither reliable nor unreliable. 5 They
were hoping for more tools that would help them measure behavior change in areas such as
critical thinking.
The posts MRE were causes for concern. Because efforts were underway at headquarters to
improve the functionality of the VRT, we are not developing findings or issuing
recommendations specific to Lesotho and will continue to monitor how headquarters supports
this area of post operations.
5
Volunteer interviews were conducted using a standardized interview questionnaire, and Volunteers were asked to
rate many items on a five-point scale (1 = not effective, 3 = neutral, 5 = very effective). The percentage of
Volunteers who gave a favorable rating includes those who gave ratings of 4 or 5.
Counterpart Relationships. Among Volunteers who had counterparts, most (9 of 14) reported
that they had favorable working relationships with them. Volunteers choose their own
counterparts after their first three months at site. Upon arrival at site, Volunteers hosting
organizations select a supervisor and an introductory liaison, who introduces them and helps
them get established in the community. Seventy-nine percent of Volunteers interviewed (15 of
19) stated they had at least one community member whom they considered a counterpart.
Site Development. On paper, the posts site identification and development process seemed
solid. The post had adapted its site identification and development process based on the Africa
Region guidance and it has been approved by the region. All of the required elements are
included in the site selection criteria. Programming and safety and security staff were actively
involved in the process. Neither of the two new Peace Corps medical officers (PCMOs) had yet
been involved but had been oriented to the type of input they would be expected to give. Staff
felt positive about the process and attributed the decrease in crimes against Volunteers to the
attention post dedicated to site development. Community meetings during the initial visits seem
to establish proper expectations about the communitys role in keeping a Volunteer safe.
In practice, we saw issues with work assignments and housing for CHED and HY sites that could
have been alleviated with better site development. We additionally found that site history
information was not consistently used during site development. The system and location for
filing the information collected during site development was not clear to all staff involved. Staff
raised questions about Volunteer privacy and to whom information should be accessible.
All staff involved in the site development for the first group of HY Volunteers (HY 13)
recognized challenges with this iteration of site development. We believe this is a cause for
Volunteers being unable to meet their project objectives, a topic that is discussed below.
While the post has many fundamental programming elements in place, the evaluation did
uncover some areas that require management attention. The remainder of this section provides
more information about these topics.
Volunteers reported challenges with their ability to achieve their project goals.
Although Volunteers in Lesotho were satisfied with their assigned sites, only 32 percent of
interviewed Volunteers (four ED and two HY) rated favorably their ability to achieve project
goals. Some Volunteers were placed in sites where their partner organizations did not have a
clear understanding of the Peace Corps or the ability to accomplish project goals was not realistic
within the job assignment. Some CHED and HY Volunteers said that they had to find their own
work because their organizations did not have jobs for them or expected something different than
what they were able to provide. For three of the Volunteers we interviewed, the challenges they
faced related to work and security issues were so significant that they requested and were
authorized a change in their sites. Volunteers faced challenges such as the following:
Job assignment was not viable (e.g., the schools construction was not complete)
Project goals were not realistic within job assignment (e.g., HIV prevention activities,
other than abstinence, were not allowed because the organization was faith-based)
The project goals or the role of Volunteer was not understood by the host organization,
which wanted funding instead of skills transfer
Host organization based in the capital city wanted a Volunteer, but the regional branch
where Volunteer was placed did not.
To avoid these kinds of issues, the Peace Corps Programming and Training Guidance: Project
Design and Evaluation section E.1.4 advises post staff to use a site selection strategy:
Each Post and APCD/PM should establish and document criteria for selecting communities,
partner agencies, and housing for VolunteersIn addition to Peace Corps post health and safety
criteria, project criteria should be established for determining which sites to explore and select for
Volunteer placement.
The guidance advises staff to take into account numerous factors, including demonstrated needs
that are consistent with project goals and objectives and finding organizations with a strong
interest in hosting a Volunteer; both of these elements were lacking in some of Lesothos
Volunteer sites.
All staff involved in the site development for HY13 recognized challenges with site development
for this cohort. The contributing factors follow.
The APCD for the HY project, the programming and training specialist (PTS) for the HY
project and the director of programming and training (DPT) were new to their positions.
There was some confusion about roles and working relationships had not yet been solidly
established.
The process was behind schedule.
The HY project had no clear government structure to work through to develop jobs for
Volunteer sites; most Volunteers are placed with individual organizations with varying
knowledge of the Peace Corps. This requires extra effort to find, develop, and maintain
relationships with these organizations.
Inadequate site selection negatively impacts Volunteer success in achieving their project goals.
Volunteers had to shift their focus and find their own jobs. While Volunteers in Lesotho seemed
resourceful in their ability to identify community needs to be addressed, they were not aligned
with project goals and objectives.
We recommend:
1. That the country director and director of programming
and training clarify the role of the director of
programming and training in site development.
and training explore ways to further develop
relationships with appropriate stakeholders.
3. That programming staff develop indicators for viable

host organizations for Volunteer placements and
incorporate them into the site identification and
development process.
and training ensure that site history information is used
as part of the posts process for selecting sites for
Volunteers.
5. That the director of programming and training ensure
that site development is guided by the focused-in
framework for the HY project.
The post does not have viable MOUs with stakeholder partners.
The country program works with stakeholders and partners at all levels of government, many of
whom often have multiple interests. At the project level, the post works with partners including
government ministries, international and local NGOs and local communities. The post has had an
active country agreement with the government of Lesotho since 1967.
Coordination with the government of Lesotho was strong in some areas but could use
improvement in others. In the ED project, the Peace Corps works with ministry partners at the
national level and through the decentralized government with the senior education officer at the
district level. The Peace Corps does not have a national level MOU with the Ministry of
Education, though there are individual MOUs with schools.
In the HY projects, there is room for improvement in coordination at the national and local
levels. The post had recently established a national level MOU with the Ministry of Gender,
Youth, Sports, and Recreation for the HY project. Both the Ministry of Health and Ministry of
Social Development have interests in the goals of the HY project, but the post does not have
MOUs with either. Furthermore, the post does not consistently have MOUs with individual
organizations where Volunteers are placed for the HY project.
The Peace Corps Programming and Training Guidance: Project Design and Evaluation section
B.3.2 highly recommends that every project have a current national/ministry level MOU:
Each Peace Corps project should ideally operate under an agreement signed at the national level with the
host country government.... Memoranda of Understanding that establish a clear understanding of the goals,
objectives, and working relationship between the Peace Corps and host ministries help to manage
expectations and affirm the host governments support of the Peace Corps work in the country.
Further, the Peace Corps Manual section 103, Procedures for In-Country Strategic Partnerships
section on Agreements Regarding Volunteer Placement states an agreement should be signed
between the Peace Corps post and the hosting organization to ensure that roles and
responsibilities, expectations and other terms and conditions of the placement of Volunteers are
clearly understood and documented. The specific documentation that is required differs
depending on the Peace Corps broader institutional relationship with the organization. At a
minimum, the post must have a discussion and come to agreement with the hosting organization
regarding the terms and conditions of the Volunteers assignment and make a record of such
exchanges with the hosting organization (for example, through a letter to the organization, a
memorandum to the file, or similar means) and place such documentation in the appropriate post
file.
The decentralized nature of the Lesotho government and the countrys political instability
contribute to the challenge establishing MOUs at the national level. Additionally for the HY
project, the project framework and programming staff are new. Volunteers have been primarily
placed in community based organizations, rather than through governmental structures such as
health clinics. The HY project is cross-cutting and has multiple interested stakeholders.
Typically, the posts APCDs have the primary responsibility for developing and managing
relationships with government ministry stakeholders for project work. In the new HY project,
programming staff believe that it would be beneficial for the country program if there was an
established relationship between post leadership and ministry officials so that a commitment to
work with and support the Peace Corps was established at the highest levels. We assessed that
the lack of MOUs exacerbated challenges that staff was having with site development. An MOU
could establish a clear understanding of the goals, objectives and working relationships among
the Peace Corps and the host ministries and organizations at which Volunteers are placed. These
tools could help ensure that all stakeholders have appropriate expectations for Peace Corps
projects, and that project efforts are focused.
We recommend:
6. That the country director establish memoranda of
understanding with appropriate stakeholders.
The posts small grants process is not efficient.
Volunteers reported that the grants application process takes a long time and the application must
be submitted through the Internet. Staff also reported that the process is lengthy because there are
multiple informal reviews by the grants coordinator and APCDs before the committee receives
the application. Staff also echoed the concerns voiced by Volunteers about needing Internet
access to submit a grant application in the Peace Corps Grants Online (PC/GO) system.
The Peace Corps Small Grants Program Staff Handbook requires that each post establish a small
grants committee to review and approve applications for grants. Each post has discretion as to
how its committee will be structured, the approval process the committee will follow and the
specific functions and responsibilities to be assumed by the committee.
A possible contributing factor to the lengthy process is that the small grants committee does not
have a set schedule. It meets on a rolling basis, whenever the grants coordinator deems that a
sufficient number of applications have been received. Another challenge is that all of the
committee members are not often in the office at the same time. An additional challenge is that
the grants coordinator duties are collateral duties to the staff members full time responsibilities
of being the HIV/AIDS coordinator.
Some Volunteers have chosen not to participate in the grants program because the process is
drawn-out. One Volunteer commented, Ive stayed away from grants because I was afraid of the
process and people go weeks without hearing anything. It seems like a long drawn out process
when it seems like it could be streamlined. Staff was overburdened with the requirements as
well.
We recommend:
7. That the country director review the small grants
committee organization and process, consider approval
timelines, committee composition, and resource needs
for the grant program and make adjustments where
necessary.
TRAINING
Another objective of the post evaluation is to answer the question, Does training prepare
Volunteers for Peace Corps service? To answer this question we considered such factors as
training adequacy and planning and development of the training life cycle.
The posts training program was working well to prepare Volunteers for most aspects of their
Peace Corps service. The post had established learning objectives that applied to all Volunteers
as well as sector-specific learning objectives. In the June 2014 PST, the post had adopted the
global learning standards and Trainee Assessment Portfolio to assess core competencies. 6 The
post also employed its own assessments, which included written tests for safety and security and
medical topics and practicals or observations of practice teaching or facilitation with
community members.
Language testing scores showed that all trainees from the two most recent PSTs met the posts
local language requirement of intermediate low in Sesotho. Lesothos training manager
commented that the agencys effort under FITU made the training design and evaluation process
easier and more meaningful with standardization and concentration on Learning Objectives.
6 According to a December 2013 decision memo, Peace Corps posts will adopt global learning standards as a means
to guide high quality training. Having global learning standards ensures that all posts measure achievement of a
standard set of learning objectives through a standard set of methods. The Trainee Assessment Portfolio functions as
a formative assessment throughout PST and summative evaluation of a trainees knowledge, skills and abilities at
the end of PST.
In reviewing the posts training objectives, how trainees are assessed, and how the staff evaluate
and adjust training each year, we found no significant areas of concern that would necessitate
action by the post.
Trainee Assessment. Training staff used different methods to assess trainees. During PST the
training staff observed and assessed trainees on particular aspects of their service. These
assessments included presentations on the role of the Volunteer in development and host
Volunteer visits, written tests on technical and core learning objectives, feedback on practice
teaching or community facilitation and language testing. Language testing scores were
maintained and all Volunteers had passed the language requirement at the end of PST.
Staff Evaluation of Training. The post used training evaluation information to improve its
training program. Staff had made a number of adjustments to PST based on evaluations and
feedback from Volunteers. The regional programming and training advisor and Volunteers are
involved in the TDE process. During PST feedback is sought from trainees mid-PST and at the
end. Programming and training staff used the evaluation comments from Volunteers to revise
trainings in a collaborative manner.
Volunteer Views of Training. Volunteers generally had positive views about the effectiveness
of PST training.
Table 1. Volunteer Ratings of Training Effectiveness
Pre-Service Training
Cross Cultural
74%
Medical
74%
Safety
Technical
5%
21%
11%
21%
68%
21%
53%
5%
11%
84%
Language
11%
16%
26%
Other Training
Phase 3
35%
47%
PDM
6%
94%
% favorable
% neutral
18%
% unfavorable
Source: Volunteer interviews conducted by OIG evaluators. Every Volunteer did not answer every question.
a
N= 19, bN= 17, cN= 16.
Volunteers believed cross-cultural and safety and security training sessions were effective,
though a few Volunteers commented that safety and security sessions employed scare tactics.
Volunteers reported that medical and health sessions were also effective but wanted more
information on what to look for and how to take precautions for poisonous snakes and spiders
they could encounter in their homes or latrines. Volunteers overwhelmingly agreed that project
design and management training was effective.
10
Volunteers reported PST language training to be mixed in terms of its effectiveness, though
language testing scores showed that all Volunteers had achieved the local language requirement
by the end of PST. Some Volunteers voiced challenges with mixed level classes or being
shuffled from teacher to teacher.
We found the posts approach to language training to be reasonable. Since June 2011, the post
has used an entirely community based training model; upon arrival to country, trainees go
directly to their training villages for 10 weeks and are immersed in language and culture. All
trainees received instruction in Sesotho for the entirety of PST. Language workshops are held at
subsequent in-service trainings. The post encourages Volunteers to find local tutors at site and
will reimburse for local language tutoring. Given the balanced approach at the post to local
language training, and the generally positive results and viewpoints of Volunteers, we
determined the post had provided Volunteers with sufficient opportunity and resources for their
local language acquisition.
Phase 3 training needs improvement.
Technical training received the lowest average rating of PST sessions from the Volunteers we
interviewed. However this score is in line with 2013 AVS global averages (44 percent favorable,
35 percent adequate, and 20 percent unfavorable). The HY Volunteers who rated technical
training as ineffective did so because they said they were limited in what they could effectively
initiate or engage in at their sites and that only a minimal portion of training was applicable.
Technical training scores in ED inexplicably fell from one cohort to the next. Many ED
Volunteers expressed appreciation for the opportunity to practice teaching as part of their
technical training, but noted that other technical training sessions were less relevant in their sites.
Table 2. Technical Training Effectiveness by Group
CHED12
HY13
40%
20%
40%
ED13
ED14
33%
33%
33%
17%
83%
20%
40%
% favorable
% neutral
40%
% unfavorable
a
N= 3, bN= 5, cN= 6 dN=5.
Only 47 percent (8 of 17) of interviewed Volunteers rated Phase 3 training as effective. Some
Volunteers commented that it was a low point in their service. Some said that more technical
training would have been useful. Others said that there was not enough information to warrant
five days of training. Many Volunteers commented that the language training component was
good and they enjoyed seeing other Volunteers in their cohort.
11
We believe that the issues observed could be related to challenges with poorly developed sites,
the time period lapse between when projects are focused-in and change becomes evident or the
Volunteer cohorts time in service. A more thorough needs assessment could help align the
interests and needs of Volunteers and the objectives of training.
We recommend:
8. That the director of programming and training ensure
that future Phase 3 trainings are designed to achieve
learning objectives that have been identified through a
needs assessment process.
VOLUNTEER SUPPORT
Our country program evaluation attempts to answer the question, Has post provided adequate
support and oversight to Volunteers? To determine this, we assessed numerous factors,
including staff-Volunteer communications; project and status report feedback; medical support;
safety and security support including staff visits to Volunteer work sites, the Emergency Action
Plan (EAP), and the handling of crime incidents; and the adequacy of the Volunteer living
allowance.
The post has developed a solid Volunteer support structure and Volunteers are generally satisfied
with the support they received. Volunteers rated almost all staff high on the quality of their
support, although some dissatisfaction was expressed with programming staff support. The post
had been promoting resiliency and had started using a coaching approach to address Volunteer
challenges. In reviewing staff-Volunteer communications, responding to Volunteer work reports,
site visits, the Volunteer Advisory Committee (VAC), allowances, and overall staff support, we
found no significant areas of concern that would necessitate action by the post.
Staff-Volunteer Communications. Generally, Volunteers and staff were effectively
communicating with one another. Volunteers provide feedback to staff through various means
such as training evaluations, the VAC and personal communications. Volunteers communicate
with staff by phone and email. Volunteers said the timeliness of email responses had improved. .
Many Volunteers requested that they be able to communicate with staff via data messaging
applications such as WhatsApp or Viber as data rates are cheaper than text message rates.
Some Volunteers raised concerns that the Peace Corps was not informing them of important
information such as the political situation in the country, or crimes that happened close to their
sites.
Responding to Volunteer Work Reports. In general, staff were providing quality feedback to
Volunteers in response to their VRFs. All interviewed Volunteers reported that they always or
most of the time received feedback on their VRFs. Fourteen of 18 Volunteers said that the
quality of feedback from staff was either good or very good.
12
Site Visits. Generally, Volunteers were satisfied with the site visits they received from staff.
Seventy-nine percent (15 of 19) of interviewed Volunteers thought the number of site visits they
had received was adequate. Seventy-four percent of interviewed Volunteers rated the quality of
site visits favorably, although Volunteers who were placed in more remote locations said that
visits from staff were quick and that post leadership had not visited certain areas of the country
like Qachas Nek. Site visit forms were completed by staff and information was entered into the
Volunteer Information Database Application (VIDA), which provided a record of these site
visits.
VAC. Fifty percent of Volunteers (6 of 12) favorably rated the VAC in terms of effectiveness.
Forty-two percent rated it neutrally and eight percent rated it unfavorably. Seven Volunteers
chose to give a no-basis rating. Some Volunteers raised concerns about not being informed of
what transpired at VAC meetings or resolution to issues that were raised.
Volunteer Allowances. Generally, Volunteers were satisfied with the adequacy and timeliness
of their settling-in and living allowances. Eighty-nine percent (17 of 19) of Volunteers reported
that their settling-in allowance was sufficient or more than sufficient. Seventy-eight (14 of 18)
percent of Volunteers reported that their monthly living allowance was sufficient or more than
sufficient. A living allowance increase of approximately nine percent was granted in January
2014.
Overall Staff Support. Overall, Volunteers rated the quality of support from staff very
favorably. The lowest support score rating was given to programming, and in particular, the
programming and training specialist role. Leadership at the post had plans in place to address the
PTS role and improve support.
Table 3. Volunteer Ratings of Staff Support
CD
6%
94%
Admin
100%
Programming & Training
20%
74%
Safety & Security
95%
Medical
86%
% favorable
% neutral
6%
5%
14%
% unfavorable
a
N= 17, bN= 9, cScores combine scores for the DPT, APCDs, PTSs, TM, and HIV/AIDS coordinator dN=19. N=14
Medical Support. Recent staff changes in the posts health unit appear to have contributed to
improved medical and health support for Volunteers. In the 2013 AVS, 35 percent of Volunteers
said they were minimally or not at all satisfied with the healthcare they received from their
PCMOs; 29 percent said that their expectations about the health care provided by Peace Corps
13
were minimally or not at being met. Two new PCMOs were hired in 2014. All Volunteers
interviewed during fieldwork provided a favorable or neutral response to medical support,
indicating that medical support has improved since the new PCMOs were hired. Volunteers
commented:
[The new PCMO] is doing a good job and has turned the office around.
I've seen a huge improvementbefore we had trouble getting medications or getting in touch, but since
[the new PCMO has] been here, things are organized. I've gone from being critical and unhappy to being
happy with it for the past few months.
Crime Incident Response. The post adequately responded to crimes against Volunteers. Of the
Volunteers we interviewed, five were the victim of a crime. Two of them were reported to Peace
Corps and three were not. For the two that were reported, the Peace Corps handling of the
situation was given the highest rating of a five. For those not reported, reasons included the
following: the Volunteer did not feel personally threatened; the Volunteer was able to stop the
crime; that the Volunteer was afraid that the Peace Corps would make a scene or take action
and not think about the consequences [to the Volunteer] because the Peace Corps takes safety
so seriously.
The incidence rates of crime against Volunteers in most categories have fallen since FY 2010.
Staff attribute this to posts strong stance on safety and security being a top priority in site
identification and development. The safety and security manager (SSM) said that sensitizing and
educating community members on the collective responsibility to ensure that Volunteers are safe
is a key piece of the process. Community meetings during site assessment visits to explain the
role of the Volunteer and the role of the community are now regularly held as part of the process
and are conducted with a police presence. Police also advise staff on which areas are safe to
place Volunteers.
Emergency Preparedness. The post is generally doing well with emergency action planning. Of
the nine Volunteers interviewed at their homes, six had a copy of their Emergency Action Plan
(EAP). 7 All Volunteers knew where there consolidation points were although the posts EAP
listed the wrong consolidation point for two Volunteers.8 In the January 2014 consolidation tests,
80 of Volunteers were contacted within four hours and 100 percent within seven hours. The post
additionally conducts a weekly mini-communications activity requiring Volunteers to respond to
their district security representative. The posts duty officer system seems to function well. Eight
staff members serve as duty officers. Although emergency preparedness is generally going well,
we have a concern with posts ability to evacuate a remote Volunteer at night in the event of a
medical emergency. This is discussed in more detail in the next section of the report.
While Volunteers were generally satisfied with the support they received, the evaluation
uncovered some areas that require management attention. The remainder of this section provides
more information about these topics.
7
We interviewed 12 Volunteers at site nine at home and three at their worksite or Volunteer Resource Center. We
interviewed seven additional Volunteers at regional training events.
8
The SSM explained that EAPs are only updated when a new training class arrives. Current information is kept in
VIDA.
14
The post had not completed its medical evacuation plan.

MS 264 Medical Evacuation requires each post to prepare a country-specific medical
evacuation plan. Section 3g of this policy states:
Each post must prepare a country-specific Medical Evacuation Plan (Plan), keep it current, and adjust it
according to changes available in commercial transportation or conditions at the medevac locations that
could impede or prevent medevac to such locations. The Plan is intended to be a comprehensive, countryspecific reference guide designed to assist the Post with the safe and efficient medical evacuation of
Volunteers, in individual cases and/or as a group. The Plan should be prepared by the PCMO in
consultation with embassy medical personnel as appropriate, and approved by the Country Director (CD).
Medical Technical Guideline (TG) 380 on Medical Evacuation requires that medical evacuation
plans contain specific information and TG 385 on Medical Emergency Evacuation outlines how
to prepare for an Emergency Medical Evacuation. There is no requirement for the medical
evacuation information to be organized into sections on routine medical evacuations and
emergency evacuations so that what is needed in an emergency situation is readily accessible.
The post did not have a complete medical evacuation plan at the time of the evaluation. The post
provided a set of six documents that contained required contact information, however some
information required by TG 385 such as emergency supplies and equipment, and emergency
transfusion procedures were not included.
The procedures for MS 264.4.2 requires that the CD must ensure that all staff members are
familiar with the medical evacuation plan, that periodic drills are held to ensure that staff can
perform their assignments and that each staff member is provided with information listing
immediate steps to be taken in case of life-threatening emergencies.
The post had significant turnover in the medical unit and had numerous items to resolve from the
2013 Office of Health Services (OHS) site visit. 9 That assessment determined that the post was
not performing a monthly check of emergency equipment and emergency drugs and supplies.
The health unit assessment tool does not assess the adequacy of the complete medical evacuation
plan, whether periodic drills are held, or that each staff member has a listing of immediate steps
to be taken in case of life-threatening emergencies.
In our discussion with the regional Peace Corps safety and security officer, he highlighted the
issue of personnel recovery because of the heavy snow and mountainous geography of the
country. While OHS, post leadership and Volunteers expressed confidence in the new medical
officers, the lack of a comprehensive medical evacuation plan represents an area of weakness in
medical operations in Lesotho. It raised the level of risk that a Volunteers needs would not be
properly addressed in a medical emergency if the PCMO or other experienced staff were not
available.
OHS conducts health unit assessments every three years.
15
We recommend:
9. That the Peace Corps medical officer complete the
medical evacuation plan.
10. That the Office of Health Services review the posts
medical evacuation plan to ensure its completeness.
11. That the Office of Health Services add elements to the
health unit assessment tool to ensure that posts are
prepared to respond in the case of a medical emergency.
12. The Office of Health Services require medical
evacuation information to be organized into sections on
routine medical evacuations and emergency evacuations
so that what is needed in an emergency situation is
readily accessible.
The post did not maintain sufficient safety and security related documentation in site history
files.
The Office of Safety and Securitys Standard Operating Procedure: Site History Files specifies
that certain procedures need to be followed in order to ensure that relevant, site specific, safety
and security information is being collected, stored and made readily available to programming
staff with an active role in the site development and site selection process. These procedures
include identifying what kind of information needs to be centrally maintained in an electronic
format, periodically reviewing site history files to ensure that the right information is being
collected on each site, and reviewing each potential site for any security concerns. The procedure
also specifies the sort of information that should be included in site history files: site
development reports, notes of any security concerns or incidents that have occurred at the site,
and other relevant reports from the media or other sources.
Additionally, MS 270.6.7, Site History Documentation, requires
Each post must maintain a system for recording the history of a site from the time that initial
evaluation begins. The site history must also capture security issues that could affect future
Volunteer placements in particular areas. Information should include Volunteer concerns about a
location, safety or security incidents that occur in the community, and other conditions that could
otherwise affect a future decision to place a Volunteer in that location.
The post did not maintain sufficient site history files in accordance with the standards set out by
the Office of Safety and Security. Information was not consolidated or organized in a manner
that could be easily used. Staff rather relied on the SSM to provide input when they asked about
particular sites. The post used VIDA and an electronic folder on the office share to capture more
recent site history information. Older paper site history files were kept in a storage facility and
16
were not used. Some information related to site history was kept with the SSM, some with
programming staff and some with the executive secretary.
Staff reported that site history files were not consistently used during site development and that
there has not been a collective effort to determine what information to include and where to store
it. Programming staff said they either minimally used them or did not use them because Lesotho
is a small country or because the data was not easily accessible. Concerns about how privacy
requirements impacted storage and access were also raised.
The lack of site-specific safety and security documentation means that staff who play an active
role in identifying and developing new sites are operating without important information, and
may inadvertently recommend sites that are inappropriate for Volunteers. We encountered
several Volunteers who reported serious safety and security episodes at their sites. These
incidents are the sorts of safety and security concerns that should be captured in site history files
and referred to in site development.
We recommend:
13. That the country director lead a collaborative staff
effort to establish and implement a system for the
collection and maintenance of site history files including
where this information should be located and to whom
it should be accessible.
Volunteer Resource Centers offer uneven support for Volunteers.
Many Volunteer sites in Lesotho are rural and remote. Volunteers come into their closest camp
town to do business such as banking, shopping and accessing the internet. The post has set up
Volunteer resource centers (VRCs) to provide support to Volunteers. There are five Volunteer
VRCs located in major camp towns throughout the country: Maseru, Mohales Hoek,
Mokhotlong, Qachas Nek and Quthing. Two of the most remote VRCs, Mokhotlong and
Qachas Nek, are a hybrid of traditional resource centers, with resources like books and
computers, printers and Internet access, and transit houses with overnight accommodation.
Some Peace Corps countries, particularly those with poor infrastructure, have transit/regional
houses that provide short-term, safe accommodation to Volunteers when they are away from
their sites. It is not a common occurrence because as Peace Corps policy states:
It is the policy of the Peace Corps that Volunteers participate fully in the culture of their host communities.
Accordingly, they are expected to be at their sites unless they are on official Peace Corps business or on
leave. Experience has shown that Volunteer use of transit/regional houses can be at cross-purposes with
this policy.
MS 218.6.3, Volunteer Use of Transit/Regional Houses clearly states that all transit/regional
houses must be established and managed by the post and may only be established/approved when
17
certain conditions are met and that the SSM and other staff will continually review the use of the
house.
1. The CD has determined that the transit/regional house is or will be safe and well-managed;
2. The CD is committed to the strict enforcement of this policy and those policies governing a Volunteers
travel away from his or her site;
3. The CD and the Volunteer Advisory Council will closely monitor occupancy and behavior at the
transit/regional house; and
4. Lists must be maintained detailing names of Volunteers and the length of each Volunteers stay (If the
lists are not maintained, the CD must send warning notes to applicable Volunteers and, if that fails,
approval for use of the transit/regional house must be withdrawn).
Africa regional management said that Lesotho did not have transit houses and that Volunteers
were not allowed to stay in VRCs. There used to be a transit house located in Maseru however
the post closed it in January 2011 on recommendation from the post operations support team
assessment following the Volunteer murder in 2010. The Volunteer handbook does allow
Volunteers to use posts VRCs as transit houses. The handbook specifically prohibits Volunteers
from spending the night in a VRC:
Volunteers are not permitted to stay past 5:00 pm Friday through Saturday or spend the night in the VRC.
We visited the VRCs in Mohales Hoek and Mokhotlong during fieldwork and found that each
VRC does not offer the same resources to Volunteers. The VRC in Mohales Hoek was located
in a small room inside a hotel. While the hotel had wireless Internet access, the VRC did not
have a computer with a printer. The VRC in Mokhotlong had a computer and printer, but no
working Internet. It also had books and evidence that Volunteers were staying overnight, such as
sleeping pads and toiletries. Volunteers told us that each Volunteer in the district was given a key
to the VRC. Volunteers also expressed the need for a place to do Peace Corps required office
work.
My frustration is that there is not a place that is convenient for me to get to that gives me time to do what
I need to do in my camp town. Its hard for me to do paperwork and there are a lot of things that the Peace
corps requires that require Internet. I am not able to do it at my site and I have a short amount of time in my
camp town. It would be very helpful to have a place to do office work. According to our handbook, there is
a VRC. According to a Volunteer who used to live in site recently, there is a VRC. According to Peace
Corps, there is no VRC. Weve heard its a closet in the Ministry of Education but they haven't given us
keys because they are trying to phase it out
This remains an ongoing issue for the post. The posts 2013 request for authorization to operate a
transit house justifies the need for a transit house because some Volunteers cannot return to their
site in one day, either on a trip to the camp town for shopping or to the capital for Peace Corps
business. The PCSSO reported that he had recommended that the post standardize VRCs and
develop a policy to maintain them or to close them. Post was in the process of reviewing this
issue with the Volunteer Advisory Committee (VAC). The CD said that the most commonly
voiced need for VRCs was for overnight accommodation. Similar needs were expressed to us
during Volunteer interviews:
I love everything about where Im at but the transportation is kind of limited It just takes a long time to
get to the camp town. In the mornings it takes 4 to5 hours and to come back it can take 5 to7 hours The
18
last stretch is rough conditions. There is a VRC in town that we stay at... I know they are talking about
taking the VRCs away and if that happens I don't know what I will do.
I really need it I cannot make it to Maseru in one dayI need that VRC. They say, stay with a
Volunteer and that is not fair. He has a really small place Its necessary and we have nowhere else to
stay. The VRCs have been a tremendous help.
Weve been putting Volunteers in more and more remote sites in Mokhotlong and Qachas Nek. They
cannot make it home in one day, but they are told that they cant stay at the VRC because they are not
transit houses.For right now, you have Volunteers in a position of failure the Peace Corps is placing
the Volunteers in the super remote sites.
As noted in Volunteer comments, travel from remote sites to camp towns is often long and it is
difficult to make it to and from in one day safely. For the Volunteers placed in camp towns there
has been an implicit expectation for these Volunteers to host those who travel in from remote
sites which has caused friction between some Volunteers. With the status of VRC transit houses
in flux, Volunteers face a situation of breaking Peace Corps rules and staying in the VRC,
staying in a place that has not been vetted by Peace Corps, or taking transportation to their site
after dark.
We recommend:
14. That the post and region determine whether transit
houses are needed and can be supported. If so, establish
and manage them in accordance with the Peace Corps
Manual section 218. If not, provide options for safe
overnight accommodations for remote Volunteers who
travel to their camp town to conduct business.
15. That the post communicate to Volunteers the resources
available in volunteer resource centers and maintain
them.
Some housing criteria were not clear.
MS 270.6.4 Housing Standards requires, All V/T [Volunteer/trainee] housing or host family
arrangements must be inspected by post staff (or a trained designee) prior to occupancy to ensure
each house and/or homestay arrangement meets all minimum standards as established by the
Peace Corps and the post. Reports of the inspections must be documented and maintained by the
post. Although Volunteers houses were generally in compliance with items on the posts
housing checklist, some criteria require judgment that exceeds a physical inspection and requires
familiarity with the site. Acceptable parameters for clean, reliable water source and a
reasonable walking distance to work site need clarification. Multiple Volunteers reported that
they did not have water during the winter. One Volunteer reported having little water (five liters
per week) for a 10 month period. Additionally, more than one Volunteer reported having to walk
over an hour to their work site.
19
Another element on the posts housing checklist that could be difficult for someone unfamiliar
with the site to approve is reputation of the neighborhood. When discussing this element as
part of our housing compliance check, we heard troubling stories from Volunteers about the
reputations of neighborhoods in which they are placed.
The neighborhood is supposedly safe, but a 20 minute drive from here there was a murder of three people
in October for traditional medicine In 2010 there was another murder for traditional medicine. Peace
Corps knows, I heard it from the police here.
My host family told me that the neighborhood used to be unsafe, but all of those people were killed.
Students strike and will beat teachers almost to the point of death. All the students ganged up and tried to
kill the principal because they weren't getting meat with meals. It happens.
One Volunteer described feeling unsafe because on her first night at site her house was tagged
with graffiti and there were threats made against her host family. When these concerns were
raised to Peace Corps, the SSM immediately evacuated her.
The lack of clear criteria places the post at risk of having different staff members evaluate the
sites in different ways and may place Volunteers at risk if critical housing criteria are not
understood.
We recommend:
16. That the post assess the clarity of the housing criteria
and site review and approval process, and update the
housing checklist and site approval process, as
necessary.
MANAGEMENT CONTROLS
Another key objective of our country program evaluation is to assess the extent to which the
posts resources and management practices are adequate for effective post operations. To address
this question, we assess a number of factors, including staffing; staff development; office work
environment; collecting and reporting performance data; and the posts strategic planning and
budgeting.
The post has experienced significant upheaval in the last couple of years starting with the murder
of a Volunteer in 2010. Since, the posts focus has been on keeping Volunteers safe; agency
attention was given to whether or not the post would remain open. The post leaderships vision
for the post is for Volunteers to be safe, for their service to matter and for everyone to be aware
of the Peace Corps impact in Lesotho.
We found the posts resources and management practices were adequate for effective post
operations. The U.S. direct hire management team was supportive and encouraging of staff
professional development and training opportunities. Staff appreciated the CDs management
style and her trust in them to do their jobs. Staff found the working environment to be generally
20
positive though some concerns were raised about salaries which had been frozen since 2010; we
heard from administrative staff at post that this freeze had recently been lifted. Some staff felt
overworked but believe Peace Corps is an interesting and unique place to work.
With headquarters support, the post was managing the vacancy of key positions well. The post
had been without a permanent DMO since July 2013, but has been supported by the regional
roving regional DMO and capable local staff with little impact to operations. Temporary duty
PCMOs had also back-filled the medical office while post hired new PCMOs. In its budget
request, the post proposed adding a MRE coordinator, a Volunteer support coordinator, and a
program assistant/grants coordinator in the Programming Unit.
Programming and Training staff raised some questions about the role and responsibilities of the
DPT and how the other programming and training roles fit together. In 2012, the DPT role was
introduced in Lesotho and the former program assistant role was upgraded to a PTS role with
added technical training responsibilities. The reporting structure for PTSs was different for each
project.
We found positive levels of mutual understanding, respect, communication, and support existed
between post and headquarters. Post leadership felt that when they raised a concern to
headquarters staff, it was listened to and addressed. Representatives we spoke to at headquarters
expressed high regard for the jobs being done by staff and management in Lesotho. The post also
had a positive working relationship with the U.S. Embassy in Maseru. Post leadership regularly
participated in embassy meetings. The embassys regional security officer has worked closely
with post to support the Volunteer murder case which is ongoing in Lesothos legal system. The
post is working with general counsel and the embassy to explore replacing or amending the
country agreement with the government of Lesotho.
While it was not budgeted for in the posts most recent budget proposal, the post has outgrown
its office space in Maseru. Since the 2010 post assessment, there has been an open
recommendation to move the office because of the crime environment of the neighborhood.
There is less urgency about moving for safety reasons.10 However, the office space is
insufficient. The post has been resourceful in converting hallways into additional staff offices,
but the office also has structural problems and a leaky roof. The post is continuing to look at
different spaces, but appropriate office space is difficult to obtain in Maseru.
10
The PCSSO believes that the relocation should be given some attention because the crime climate in Maseru
hasnt changed, although the regional security officer said that the area where the office is currently located has less
crime activity.
21
OTHER AREAS OF CONCERN

We noted the following additional area that could be improved to enhance efficiency at the post.
Significant PEPFAR funding for the post was unexpectedly cut.
PEPFAR provides funding to the Peace Corps posts to help expand and enhance their response to
the HIV/AIDS epidemic. Approximately 23 percent of posts overall budget and 35 percent of
Volunteer-years are funded by PEPFAR. This amount includes funding for two staff members,
46 HY Volunteers, all HIV/AIDS workshops and some portion of PST and other trainings.
The U.S. Mission PEPFAR coordinator in Lesotho reported that during an extensive technical
review in 2013, the Peace Corps was designated the lead implementer for youth prevention on a
recommendation from the Office of the U.S Global AIDS Coordinator (OGAC) at the
Department of State. He reported that while the posts budget is small, Volunteers play an
important role in connecting the needs of local communities to implementing partners who offer
goods and services. Thirteen Volunteers are placed with PEPFAR implementing partner
organizations. He also noted that budget pipeline has been a global issue. This has been a
challenge for Peace Corps, and other U.S. government agencies, to manage. One reason for this
is because agency specific financial systems dont easily allow for the information needed by
OGAC.
Staff at post echoed this sentiment. The Peace Corps financial systems and Volunteer
performance reporting systems cannot easily provide the information needed by OGAC. Peace
Corps staff have used multiple time-consuming workarounds to provide financial and
performance reports.
After evaluation fieldwork, the post learned that its Country Operating Plan FY14 was approved,
but that the Peace Corps would receive no new funding. The CD reported that this decision was a
surprise to the entire Lesotho PEPFAR team. Peace Corps staff explained to OGAC that without
the new funding post cannot receive new Volunteers nor do the planned activities in the
implementation plan. In reviewing Peace Corps budget, it might appear that there are a lot of
pipeline funds, but funds must cover a Volunteers entire 27-month service; the post cannot
accept a Volunteer without the assurance the whole service can be supported.
After further explanations and negotiations, the new funding was restored. However, we wanted
to highlight our concern about planning for Peace Corps activities with funding that is not within
the Peace Corps control. Budgetary dependence on an outside entity could put posts ability to
carry out its mission at risk if the funding is unexpectedly cut.
22
LIST OF RECOMMENDATIONS
WE RECOMMEND:
1. That the country director and director of programming and training clarify
the role of the director of programming and training in site development.
2. That the country director and director of programming and training
explore ways to further develop relationships with appropriate
stakeholders.
3. That programming staff develop indicators for viable host organizations
for Volunteer placements and incorporate them into the site identification
and development process.
4. That the country director and director of programming and training ensure
that site history information is used as part of the posts process for
selecting sites for Volunteers.
5. That the director of programming and training ensure that site
development is guided by the focused-in framework for the HY project.
6. That the country director establish memoranda of understanding with
appropriate stakeholders.
7. That the country director review the small grants committee organization
and process, consider approval timelines, committee composition, and
resource needs for the grant program and make adjustments where
necessary.
8. That the director of programming and training ensure that future Phase 3
trainings are designed to achieve learning objectives that have been
identified through a needs assessment process.
9. That the Peace Corps medical officer complete the medical evacuation
plan.
10. That the Office of Health Services review the posts medical evacuation
plan to ensure its completeness.
11. That the Office of Health Services add elements to the health unit
assessment tool to ensure that posts are prepared to respond in the case of
a medical emergency.
23
12. The Office of Health Services require medical evacuation information

to be organized into sections on routine medical evacuations and
emergency evacuations so that what is needed in an emergency
situation is readily accessible.
13. That the country director lead a collaborative staff effort to establish
and implement a system for the collection and maintenance of site
history files including where this information should be located and to
whom it should be accessible.
14. That the post and region determine whether transit houses are needed
and can be supported. If so, establish and manage them in accordance
with the Peace Corps Manual section 218. If not, provide options for
safe overnight accommodations for remote Volunteers who travel to
their camp town to conduct business.
15. That the post communicate to Volunteers the resources available in
volunteer resource centers and maintain them.
16. That the post assess the clarity of the housing criteria and site review
and approval process, and update the housing checklist and site
approval process, as necessary.
24
APPENDIX A: OBJECTIVE, SCOPE, AND METHODOLOGY

In 1989, OIG was established under the Inspector General Act of 1978 and is an independent
entity within the Peace Corps. The purpose of OIG is to prevent and detect fraud, waste, abuse,
and mismanagement and to promote economy, effectiveness, and efficiency in government. The
Inspector General is under the general supervision of the Peace Corps Director and reports both
to the Director and Congress.
The Evaluation Unit provides senior management with independent evaluations of all
management and operations of the Peace Corps, including overseas posts and domestic offices.
OIG evaluators identify best practices and recommend program improvements to comply with
Peace Corps policies.
The Evaluation Unit announced its intent to conduct an evaluation of the post on April 17, 2014.
For post evaluations, we use the following researchable questions to guide our work:
To what extent has post developed and implemented programs to increase host country
communities capacity?
Does training prepare Volunteers for Peace Corps service?
Has the post provided adequate support and oversight to Volunteers?
Are post resources and management practices adequate for effective post operations?
The evaluator conducted the preliminary research portion of the evaluation April 18 June 13,
2014. This research included review of agency documents provided by headquarters and post
staff; interviews with management staff representing Africa region, Office of Volunteer
Recruitment and Selection, Office of Victim Advocacy, OHS, Overseas Programming and
Training Support, Office of Safety and Security, General Counsel, OGHH; and inquiries to
Office of Intergovernmental Affairs and Global Partnerships.
In-country fieldwork occurred from June 16July 3, 2014, and included interviews with post
senior staff in charge of programming, training, and support; the U.S. charge daffairs; the U.S.
Embassys regional security officer; and host country government ministry officials. In addition,
we interviewed a stratified judgmental sample of 19 Volunteers (23 percent of Volunteers
serving at the time of our visit) based on their length of service, site location, project focus,
gender, age, and ethnicity. The post modified its housing checklist when adopting its new site
identification and development process. We used the former checklist to verify compliance as the
sites we visited had been developed before the new checklist went into effect.
This evaluation was conducted in accordance with the Quality Standards for Inspections, issued
by the Council of the Inspectors General on Integrity and Efficiency. The evidence, findings, and
recommendations provided in this report have been reviewed by agency stakeholders affected by
this review.
25
APPENDIX B: INTERVIEWS CONDUCTED

As part of this post evaluation, interviews were conducted with 19 Volunteers, 17 staff incountry, and 22 representatives from Peace Corps headquarters in Washington D.C., the U.S.
Embassy in Lesotho, and key ministry officials. Volunteer interviews were conducted using a
standardized interview questionnaire, and Volunteers were asked to rate many items on a fivepoint scale (1 = not effective, 3 = neutral, 5 = very effective). The analysis of these ratings
provided a quantitative supplement to Volunteers comments, which were also analyzed. For the
purposes of the data analysis, Volunteer ratings of 4 and above are considered favorable. We
interviewed 12 Volunteers at site, nine at their homes and three at their worksite or VRC; we
inspected nine of these homes using post-defined site selection criteria. We interviewed and
additional seven Volunteers at two different regional training events. The period of review for a
post evaluation is one full Volunteer cycle (typically 27 months).
The following table provides demographic information that represents the entire Volunteer
population in Lesotho; the Volunteer sample was selected to reflect these demographics.
Table 5. Volunteer Demographic Data
Project
CHED
ED
HY
Gender
Female
Male
Age
25 or younger
26-29
30-49
50 and over
Percentage of
Volunteers
20%
58%
21%
Percentage of
Volunteers
63%
37%
Percentage of
Volunteers
60%
25%
10%
5%
Source: Volunteer Information Database Application for PC/Lesotho (4/28/2014).

Note: Percentages may not total 100 percent due to rounding.
At the time of our field visit, the post had 28 staff positions. The post also employed six
temporary training staff to assist with PST. We interviewed 17 staff. The staffing configuration
of posts often varies and staff may hold additional responsibilities relevant to the evaluation in
addition to their official job title. We conduct interviews with sexual assault response liaisons;
grants coordinators; monitoring, reporting, and evaluation champions; and Peace Corps
Response coordinators as necessary and when appropriate for the post.
26
Table 6. Interviews Conducted with Post Staff

Position
Status
Country Director
Director of Programming and Training
Acting Director of Management and Operations
Program Manager
Program Manager
Programming and Training Specialist (2)
HIV/AIDS Coordinator
PEPFAR Administrative Assistant
Safety and Security Manager
Regional IT Specialist
Training Manager
Language, Cultural and Homestay Coordinator
Medical Officer (2)
Executive Secretary
P&T Secretary
General Services Officer
Financial Assistant
Cashier
Receptionist
General Services Assistant
Driver/PST Logistician
Driver/Mechanic
Training Center Manager
Gardner
Custodian
USDH
USDH
PSC*
PSC
FSN*
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
PSC
Interviewed
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Data as of July 2014. *PSC is personal services contractor; FSN is foreign service national.
Twenty-two additional interviews were conducted during the preliminary research phase of the
evaluation, in-country fieldwork and follow-up work upon return to Peace Corps headquarters in
Washington, D.C.
Table 7. Interviews Conducted with Peace Corps Headquarters Staff,
Embassy Officials and Key Ministry Officials
Position
Organization
Regional Director
Chief of Operations
Chief Administrative Officer
Chief of Programming and Training
Country Desk Officer
Regional Security Advisor
PC Headquarters/Africa
Region
Region
Region
Region
Region
Region
27
Programming and Training Specialist

Director, Office of Victim Advocacy
Peace Corps Safety and Security Officer
Senior Advisor on Orphans and Vulnerable
Children
Programming & Training Gender Specialist,
Overseas Programming and Training Support
U.S. Charge dAffairs
Regional Security Officer
PEPFAR Coordinator
Representatives (4)
Representatives (2)
Data as of July 2014.
Region
PC Headquarters/Office of
Victim Advocacy
Safety and Security
Global Health and HIV
Programming and Training
Support
U.S. Embassy/Lesotho
Ministry of Education
Ministry of Gender, Youth,
Sports and Recreation
28
APPENDIX C: LIST OF ACRONYMS

APCD
AVS
CD
DMO
DPT
EAP
ED
FY
FITU
HY
OHS
OIG
MER
MOU
NGO
MS
OGAC
PCSSO
PEPFAR
PST
SSM
VRC
VRF
VRT
Associate Peace Corps Director

Annual Volunteer Survey
Country Director
Director of Management and Operations
Director of Programming and Training
Emergency Action Plan
Education Project
Fiscal Year
Focus In/Train Up
Healthy Youth Project
Office of Health Services
Monitoring, Evaluation, and Reporting
Memorandum of Understanding
Nongovernmental Organization
Peace Corps Manual Section
Office of the U.S. Global AIDS Coordinator
Peace Corps Safety and Security Officer
Presidents Emergency Plan for AIDS Relief
Pre-service Training
Safety and Security Manager
Volunteer Resource Center
Volunteer Reporting Form
Volunteer Reporting Tool
29
APPENDIX D: AGENCYS RESPONSE TO THE

PRELIMINARY REPORT
30
APPENDIX E: OIG COMMENTS

Management concurred with all 16 recommendations. All recommendations remain open. In its
response, management described actions it is taking or intends to take to address the issues that
prompted each of our recommendations. We will review and consider closing recommendations
all recommendations when the documentation reflected in the agencys response to the
preliminary report is received.
We wish to note that in closing recommendations, we are not certifying that the agency has taken
these actions or that we have reviewed their effect. Certifying compliance and verifying
effectiveness are managements responsibilities. However, when we feel it is warranted, we may
conduct a follow-up review to confirm that action has been taken and to evaluate the impact.
41
APPENDIX F: PROGRAM EVALUATION COMPLETION AND

OIG CONTACT
PROGRAM
EVALUATION
COMPLETION
This program evaluation was conducted under the

direction of Assistant Inspector General for Evaluations
Jim OKeefe, by Senior Evaluator Susan Gasper.
Additional contributions were made by Senior Evaluator
Jerry Black.
Jim OKeefe
Assistant Inspector for Evaluations
OIG CONTACT
Following issuance of the final report, a stakeholder

satisfaction survey will be distributed to agency
stakeholders. If you wish to comment on the quality or
usefulness of this report to help us improve our products,
please contact Assistant Inspector General for Evaluations
Jim OKeefe and at [email protected] or
202.692.2904.
42
Help Promote the Integrity, Efficiency, and

Effectiveness of the Peace Corps
Anyone knowing of wasteful practices, abuse, mismanagement,
fraud, or unlawful activity involving Peace Corps programs or
personnel should contact the Office of Inspector General. Reports or
complaints can also be made anonymously.
Contact OIG
Reporting Hotline:
U.S./International:
Toll-Free (U.S. only):
202.692.2915
800.233.5874
Email:
[email protected]
Online Reporting Tool: PeaceCorps.gov/OIG/ContactOIG
Mail:
Peace Corps Office of Inspector General

P.O. Box 57129
Washington, D.C. 20037-7129
For General Information:

Main Office:
Website:
Twitter:
202.692.2900
peacecorps.gov/OIG
twitter.com/PCOIG

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Office of Inspector General

Carrie Hessler-Radelet, Director

Kathy A. Buller, Inspector General

March 31, 2015

Final Report on the Program Evaluation of Peace Corps/Lesotho

Jacklyn Dao Dinneen, White House Liaison

David Wallace, Director of Management and Operations, Peace Corps/Lesotho

Butha-Buthe District, Lesotho

Final Program Evaluation Report:

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

OTHER AREAS OF CONCERN ............................................................................................................. 22

HOST COUNTRY BACKGROUND

Final Program Evaluation Report: Peace Corps/Lesotho

PEACE CORPS PROGRAM BACKGROUND

Final Program Evaluation Report: Peace Corps/Lesotho

Healthy Youth (HY)

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

3. That programming staff develop indicators for viable

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

Programming & Training

Safety & Security

Final Program Evaluation Report: Peace Corps/Lesotho

The post had not completed its medical evacuation plan.

OHS conducts health unit assessments every three years.

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

OTHER AREAS OF CONCERN

Final Program Evaluation Report: Peace Corps/Lesotho

Final Program Evaluation Report: Peace Corps/Lesotho

12. The Office of Health Services require medical evacuation information

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX A: OBJECTIVE, SCOPE, AND METHODOLOGY

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX B: INTERVIEWS CONDUCTED

Source: Volunteer Information Database Application for PC/Lesotho (4/28/2014).

Final Program Evaluation Report: Peace Corps/Lesotho

Table 6. Interviews Conducted with Post Staff

Final Program Evaluation Report: Peace Corps/Lesotho

Programming and Training Specialist

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX C: LIST OF ACRONYMS

Associate Peace Corps Director

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX D: AGENCYS RESPONSE TO THE

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX E: OIG COMMENTS

Final Program Evaluation Report: Peace Corps/Lesotho

APPENDIX F: PROGRAM EVALUATION COMPLETION AND

This program evaluation was conducted under the

Following issuance of the final report, a stakeholder

Final Program Evaluation Report: Peace Corps/Lesotho

Help Promote the Integrity, Efficiency, and

Peace Corps Office of Inspector General

For General Information:

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