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Mid-Term Evaluation of the European Union

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Mid-Term Evaluation of the European Union Mid-term Evaluation of the European Union Emergency Trust Fund for Stability and Addressing Root Causes of Irregular Migration and Displaced Persons in Africa 2015-2019 Final Report October 2020 Development and Cooperation EuropeAid FWC COM 2015 EuropeAid/137211/DH/SER/Multi Specific Contracts N° 2019/405213 Mid-term Evaluation of the European Union Emergency Trust Fund for Stability and Addressing Root Causes of Irregular Migration and Displaced Persons in Africa 2015-2019 This evaluation was commissioned by the Evaluation and Results Unit of the Directorate-General for International Cooperation and Development (European Commission) Evaluation Team: Dr. Arne DISCH, Team Leader Dr. Ana GARCIA FEMENIA, Senior Evaluator Mr. Andrew LAWDAY, Senior Evaluator Dr. Landis MACKELLAR, Senior Evaluator Mr. Huibertus POOT, Senior Evaluator Ms. Aurelie LARQUEMIN, Research Associate Mr. Pauric BROPHY, Project Manager Mr. Stephen YEO, Quality Assuror The opinions expressed in this document represent the authors’ points of view which are not necessarily shared by the European Commission or by the authorities of the countries involved Mid-term evaluation of the European Union Emergency Trust Fund for stability and addressing root causes of irregular 1 migration and displaced persons in Africa 2015-2019 TABLE OF CONTENTS Abbreviations and Acronyms .................................................................................................. 2 Executive Summary ................................................................................................................. 4 1. Introduction and Background ................................................................................... 11 1.1 Designing the EUTF .................................................................................................................. 11 1.2 The Crisis Elements ................................................................................................................... 13 1.3 Migration as Problem and Solution ........................................................................................... 14 1.4 EUTF Structure ......................................................................................................................... 17 1.5 EUTF within EU cooperation .................................................................................................... 18 2. The EU Trust Fund for Africa .................................................................................. 20 2.1 The EUTF Financing ................................................................................................................. 20 2.2 The EUTF Portfolio ................................................................................................................... 21 2.3 EUTF’s Strategic Objectives ..................................................................................................... 23 2.4 SO-1: Increased economic opportunities and employability ..................................................... 24 2.5 SO-2: Strengthened Resilience .................................................................................................. 25 2.6 SO-3: Improved Migration Management and Governance ....................................................... 26 2.7 SO-4: Good Governance and Conflict Management ................................................................. 27 2.8 Addressing Knowledge and Quality Assurance Concerns ........................................................ 28 3. Evaluation Design ....................................................................................................... 30 3.1 The Evaluation Matrix ............................................................................................................... 30 3.2 The Evaluation Approach .......................................................................................................... 30 3.3 The Evidence Base .................................................................................................................... 31 4. Findings ....................................................................................................................... 36 4.1 EQ-1: Relevance ........................................................................................................................ 36 4.2 EQ-2: Coherence, Complementarity and Value Added ............................................................ 43 4.3 EQ-3: Efficiency ........................................................................................................................ 48 4.4 EQ-4: Improved Economic Opportunities and Employability .................................................. 53 4.5 EQ-5: Household and Community Resilience ........................................................................... 59 4.6 EQ-6: Improved Migration Management .................................................................................. 65 4.7 EQ-7: Improved Rule of Law .................................................................................................... 70 4.8 EQ-8: Conflict Management and Addressing Radicalization.................................................... 76 4.9 EQ-9: Impact and Sustainability................................................................................................ 79 5. Conclusions and Recommendations ......................................................................... 84 5.1 Conclusions ............................................................................................................................... 84 5.2 Recommendations ..................................................................................................................... 92 2 Mid-term evaluation of the European Union Emergency Trust Fund for stability and addressing root causes of irregular migration and displaced persons in Africa 2015-2019 ABBREVIATIONS AND ACRONYMS AFD Agence Française de Développement – French Development Agency AU African Union AVRR Assisted Voluntary Return and Reintegration CRRF Comprehensive Refugee Response Framework CSO Civil Society Organisation DG DEVCO Directorate-General for International Cooperation and Development DG ECHO Directorate-General for Humanitarian aid and Civil Protection DG HOME Directorate-General for Migration and Home Affairs DG NEAR Directorate-General for Neighbourhood and Enlargement Negotiations EAM European Agenda on Migration EC European Commission ECA Economic Commission of Africa ECOWAS Economic Community of West African States EDF European Development Fund EEAS European External Action Service ENI European Neighbourhood Instrument EQ Evaluation Question EUTF European Union Trust Fund for Stability and Addressing Root Causes of Irregular Migration and Displaced Persons in Africa GCM Global Compact for Safe, Orderly and Regular Migration GDP Gross Domestic Product GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit, FCV Fragility, Conflict and Violence HOA Horn of Africa ICMPD International Centre on Migration Policy Development IDP Internally Displaced Person IGAD Intergovernmental Authority on Development ILO International Labour Organisation IOM International Organisation for Migration IP Implementing Partner IR Inception Report JC Judgment Criterion MLS Monitoring and Learning System MS Member State MSME Micro, Small and Medium Enterprises MTE Mid-Term Evaluation NGO Non-Governmental Organisation Mid-term evaluation of the European Union Emergency Trust Fund for stability and addressing root causes of irregular 3 migration and displaced persons in Africa 2015-2019 NIP National Indicative Programme NOA North of Africa OAU Organization of African Unity OCHA UN Office for the Coordination of Humanitarian Affairs OECD Organization for Economic Cooperation and Development REF Research and Evidence Facility RIP Regional Indicative Programme SLC Sahel and Lake Chad SO Strategic Objective TCF Technical Cooperation Facility THB Trafficking of Human Beings TOC Theory of Change ToR Terms of Reference TVET Technical and Vocational Education and Training UNDP United Nations Development Programme UNHCR UN High Commissioner for Refugees UNICEF United Nations Children’s Fund UNODC United Nations Office on Drugs and Crime WFP World Food Programme 4 Mid-term evaluation of the European Union Emergency Trust Fund for stability and addressing root causes of irregular migration and displaced persons in Africa 2015-2019 EXECUTIVE SUMMARY Introduction In response to the massive influx of asylum-seekers and refugees into Europe in 2014-2015 and the political concerns that this caused in a number of EU member states, a high-level international summit was convened in November 2015 in Valletta. This summit agreed the Joint Valletta Action Plan, which led, in turn, to the establishment of the EU Emergency Trust Fund for stability and addressing root causes of irregular migration and displaced persons in Africa (EUTF). With an original budget of about EUR 1.9 billion that by April 2020 had grown to about EUR 4.7 billion, the EUTF was designed to “respond to the different dimensions of crisis situations by providing support jointly, flexibly and quickly”. It was to complement other development actions by the EU, member states, and other donors in the region. Since its inception, it has financed nearly 600 interventions in 26 countries, organised in three “windows”: the Sahel and Lake Chad (SLC), Horn of Africa (HOA), and North of Africa (NOA). All funds are to be allocated by the end
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