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Evaluation of the Operation of Regulation (EU) 2016/369 on the Provision of Emergency Support in the Union Final Report

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Evaluation of the Operation of Regulation (EU) 2016/369 on the Provision of Emergency Support in the Union Final Report Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union Final Report Written by ICF November 2018 EUROPEAN COMMISSION Directorate-General for Civil Protection and Humanitarian Aid Operations (DG ECHO) Directorate B – Europe, Eastern Neighbourhood and Middle East Unit B2 — Emergency Support Inside EU Contact: Henrike Trautmann E-mail: [email protected] European Commission B-1049 Brussels EUROPEAN COMMISSION Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union Final Report Evaluation team: ICF: Petra van Nierop (Project Director), Melanie Dubuis (Project Manager), Christina Dziewanska-Stringer, Inga Pavlovaite, Anna Manoudi, Martina Morosi, Vittorio Furci, Laurence Bedoret, Kamr Hussein, Rocio N. Sandalio, Maria Zhitkov, Fleur Nash. Independent experts: Dr Danielle Deboutte, Alejandro del Castillo Sanchez (NUNDOING S.L.), Panagiotis Christodoulou. Directorate-General for Civil Protection and Humanitarian Aid Operations November, 2018 Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union Europe Direct is a service to help you find answers to your questions about the European Union. Freephone number (*): 00 800 6 7 8 9 10 11 (*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you). LEGAL NOTICE This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. More information on the European Union is available on the Internet (http://www.europa.eu). Luxembourg: Publications Office of the European Union, 2018 ISBN:978-92-79-97251-5 doi:10.2795/182651 © European Union, 2018 Reproduction is authorised provided the source is acknowledged. Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union Table of Contents List of acronyms ................................................................................................. i Executive summary ........................................................................................... iii 1 Introduction ................................................................................................ 1 1.1 Objective and scope of the evaluation ...................................................... 1 1.2 Methodological approach ........................................................................ 1 1.3 The structure of the report ..................................................................... 5 2 Context and rationale for the Emergency Support Instrument ............................ 6 2.1 The influx of refugees and migrants in Greece........................................... 8 2.2 The international response ....................................................................15 2.3 The Emergency Support Instrument .......................................................18 2.4 The Emergency Support Instrument interventions in Greece ......................19 2.5 Theory of change and Intervention Logic .................................................26 3 Evaluation findings ......................................................................................29 3.1 Relevance ...........................................................................................29 3.2 Coherence and complementarity ............................................................46 3.3 Effectiveness .......................................................................................58 3.4 Efficiency ............................................................................................80 3.5 EU Added Value ...................................................................................91 3.6 Sustainability .......................................................................................95 4 Recommendations ..................................................................................... 105 5 Annexes .................................................................................................. 109 Annex 1. Methodological note ...................................................................... 110 Annex 2. Additional evaluative evidence ....................................................... 118 Annex 3. Mini Mobile Survey analysis ........................................................... 136 Annex 4. Field visit 1 - The handover of ESI health projects to National Authorities . .................................................................................................. 150 Annex 5. Field visit 2 - ESI accommodation projects under the ESTIA programme – working with local NGOs and municipalities ........................................................ 162 Annex 6. Focus groups on education – analysis of responses ........................... 178 November, 2018 Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union List of acronyms AMIF Asylum, Migration and Integration Fund ASB Arbeiter-Samariter-Bund Deutschland CA Caritas Athens CH Caritas Hellas CRS Catholic Relief Services DG ECHO Directorate-General for Civil Protection and Humanitarian Aid Operations DG HOME Directorate-General for Migration and Home Affairs DG REGIO Directorate-General for Regional and Urban Policy DRC Danish Refugee Council EMAS Emergency Assistance Grant Scheme ERDF European Regional Development Fund ESF European Social Fund ESI Emergency Support Instrument ESOP Emergency Support Operational Priorities ESOPs Operational Priorities ESTIA Support to Integration & Accommodation EUSF European Union Solidarity Fund FAFA Financial and Administrative Framework Agreement FCE Final consumption expenditure FEAD Fund for European Aid to the Most Deprived FPA Framework Partnership Agreement FTS Financial Tracking System GAS Greek Asylum Service GCA Greek Cash Alliance GMI Guaranteed Minimum Income ICRC International Committee of the Red Cross IDPs Internally displaced persons IFRC International Federation of Red Cross and Red Crescent Societies IO International Organisation IOM International Organization for Migration IRC International Rescue Committee ISF Internal Security Fund ISM - RMS Rapid Mobility Solution MCE Mercy Corps MDM Médecins du Monde MoE Ministry of Education November, 2018 i Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union MoH Ministry of Health MoL Ministry of Labour MoMP Ministry of Migration Policy MPCT Multipurpose Cash Transfer MSF Médecins Sans Frontières NFI Non-Food Items NGOs Non-governmental organisations NRC Norwegian Refugee Council OCAVRR II Open Centre of Migrants Registered for Assisted Voluntary Return PLW Pregnant and Lactating Women PoC Persons of Concern RIC Reception and Identification Centre RIS Reception and Identification Service SGBV Sexual and Gender Based Violence SRSS Structural Support Service SSI Greek Social Solidarity System StC Save the Children TdH Terre des Hommes ToR Terms of Reference UAM Unaccompanied Minor UCPM Union Civil Protection Mechanism UNHCR United Nations High Commissioner for Refugees UNICEF United Nations International Children's Emergency Fund VAT Value-Added Taxes November, 2018 ii Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union Executive summary Objective and scope of the evaluation The main objectives of the Evaluation of the operation of Regulation (EU) 2016/369 on the provision of emergency support in the Union, 2016-2018 were to: Provide a comprehensive and independent evaluation of the Regulation and to assess the extent to which the Regulation is fit-for-purpose, covering the period since its entry into force on 16 March 2016; Assess the relevance, effectiveness, coherence, efficiency, EU added value and sustainability of the Emergency Support Instrument (ESI) funded actions; and, Provide a series of recommendations to improve the design and implementation of the ESI if the instrument were to be activated again in the future. The scope of the evaluation covers all humanitarian actions funded by the ESI in Greece, from the activation of the ESI in 2016 to 2018 (up to 15 October 2018), in the sectors of shelter; water, sanitation and hygiene (WASH); food assistance; non-food items (NFIs); healthcare, including psychosocial support; protection, including for unaccompanied minors (UAMs); as well as education. Methodological approach and validity of the evaluation results The evaluation approaches were informed by a series of research tools specifically developed and tailored for the purpose of this evaluation to build a rich and comprehensive evidence base for this evaluation covering a wide range of stakeholders. The research tools included: Review of DG ECHO internal evaluation including the main findings reported in the draft report and underpinning sources of evidence (i.e. survey of framework partners and local implementing partners and 30 Key Informant Interviews); Literature review: 35 publicly available documents were reviewed; ESI documentation review: 166 documents were reviewed, including programming documents, mission reports, minutes of meetings, beneficiary surveys of framework partners, etc.; ESI portfolio analysis: data extracted from DG ECHO EVA and HOPE databases were analysed; ESI project mapping: all 29
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