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Central Emergency Response Fund- Two Year Evaluation CENTRAL EMERGENCY RESPONSE FUND TWO YEAR EVALUATION Martin Barber, Team Leader Abhijit Bhattacharjee Roberta M. Lossio Lewis Sida July 2008 CERF Two Year Evaluation – Final Report (July 2008) FOREWORD During the 1990s and early 2000s, funding for appeals was often inconsistent, at times slow and sometimes linked more to political considerations rather than need. Some appeals were funded over 100% (e.g. for crises such as the former Yugoslavia), while others received less than 20% of needed funds. In order to address this shortcoming, member states sought to create predictable, timely and equitable means to fund humanitarian crises. In December 2005, the United Nations passed a resolution, adding to the existing $50 million loan facility of the Central Emergency Revolving Fund a grant facility of up to US $450 million to become the Central Emergency Response Fund (CERF). Resolution 60/124, which created this new Fund, required that a 2-year independent evaluation would be conducted that would report back to the General Assembly on the progress of the new CERF. Since its launch on 9 March 2006, the CERF has grown rapidly, receiving over a billion dollars in contributions and disbursing over 1,000 grants in 62 countries. During this time, implementing agencies, OCHA, the CERF Secretariat and the UN Secretariat worked together to establish procedures, clarify roles and find innovative solutions while simultaneously responding to an increasing number of disasters. Managing the expanding CERF allowed little time for comprehensive reflection, so OCHA and its partners have eagerly anticipated this evaluation. We look to this external evaluation as not just an accountability report to member states, but as a valuable opportunity to provide strategic recommendations that we can use to sharpen and improve the functioning of the CERF. I would like to thank team leader Mr. Martin Barber and the experienced and capable evaluation team, Ms. Roberta Lossio, Mr. Abhijit Bhattacharjee and Mr. Lewis Sida, for their tremendous efforts in successfully taking up this challenging and complex assignment. I would also like to thank all of those that contributed to the evaluation by participating in consultations and providing comments and feedback on the evaluation reports. The report offers valuable recommendations addressing the need to increase the consistency in quality of CERF funded programmes, strengthen capacities at headquarters and in the field to improve efficiency and timeliness and rationalize accountabilities. The CERF is a unique mechanism that has a broad variety of stakeholders, therefore implementing these recommendations will require a concerted and coordinated effort by all actors. We look forward to your support in seizing this opportunity to increase the effectiveness of the CERF as a critical tool for improving the quality of aid brought to people in need. John Holmes Under-Secretary-General for Humanitarian Affairs And Emergency Relief Coordinator 2 CERF Two Year Evaluation – Final Report (July 2008) THE EVALUATION TEAM The team comprised four individual independent consultants. Dr. Martin Barber, evaluation team leader. A retired senior UN staff member, Dr Barber is currently an Honorary Fellow at the University of Edinburgh, Scotland. With extensive experience in humanitarian affairs and UN operations, both in the field and at United Nations Headquarters, Dr. Barber served as Humanitarian Coordinator in Afghanistan, Deputy Special Representative of the United Nations Secretary-General in Bosnia and Herzegovina, and Director of the UN Mine Action Service. Mr. Abhijit Bhattacharjee is an independent evaluation and strategy expert with twenty-five years of senior management and consulting experience in various parts of the world. With extensive experience in NGOs and Red Cross/Red Crescent Movement, he has carried out short-term consulting assignments for UN agencies from time to time. Ms. Roberta Medeiros Lossio is an independent evaluation expert who has been working in development for 15 years for NGOs, the European Commission and UN agencies. She has worked as a consultant for UNDP and recently led evaluations of UNDP Institutional Capacity programmes for NGOs. In the past, Ms. Lossio also held various positions with the UN and NGOs. Mr. Lewis Sida is currently working as an independent consultant in humanitarian policy, practice and evaluation. He has led multi-sector and programme evaluations for donors, UN agencies, the Red Cross and Crescent Movement, and international NGOs. THE STRUCTURE OF THE REPORT After the Executive Summary and Matrix of Conclusions and Recommendations, the report is divided into eight sections. The first two contain the Introduction, Objectives and methodology for the evaluation, and the Background to the CERF. Sections 3-6 present the findings of the evaluation based on the four key issues outlined in the GA resolution and provide answers to the questions posed in the Terms of Reference. In section 7, the findings are analysed using the OECD/DAC criteria for humanitarian evaluation. In these five sections (3-7), at the end of each sub-section, findings have been summarized into ‘Conclusions’, and wherever, relevant, corresponding ‘Recommendations’ have been made. Finally, in Section 8, some brief Concluding Remarks are offered. 3 CERF Two Year Evaluation – Final Report (July 2008) ACKNOWLEDGEMENTS The evaluation team wishes to express its appreciation to all those from governments, the UN and other international organisations and non-governmental organisations, as well as individual beneficiaries of the CERF, who have given their time, energy and expertise to contribute to this evaluation, either in interviews or by sending in written materials. Everywhere it went, the team encountered intense interest in the CERF, its achievements and its potential. The team would like to express its particular appreciation to the Resident and Humanitarian Coordinators and their staff in the countries visited, who facilitated their travel and arranged their schedules. This evaluation could not have been completed without the enthusiastic support and cooperation of the Emergency Relief Coordinator, John Holmes, his staff in OCHA, in New York, Geneva and the field, and particularly the staff of the CERF Secretariat in New York. Rudi Muller and his team responded quickly and fully to every request. The team is grateful to ALNAP and the Overseas Development Institute (ODI), and the War Studies Department of Kings College, London, which made available meeting space and other facilities for the team’s meetings. Finally, the team would like to acknowledge the support of the Evaluation and Studies Section of OCHA, and particularly of Jock Paul and Amanda Howland. 4 CERF Two Year Evaluation – Final Report (July 2008) TABLE OF CONTENTS LIST OF ACRONYMS................................................................................................................................ 7 EXECUTIVE SUMMARY .......................................................................................................................... 9 CONCLUSIONS AND RECOMMENDATIONS TABLES .................................................................................... 18 1. INTRODUCTION, OBJECTIVES AND METHODOLOGY OF THE REPORT .......................... 26 1.1. THE INDEPENDENT EVALUATION OF CERF - BACKGROUND .............................................................. 26 1.2. OBJECTIVES AND SCOPE OF THE EVALUATION .................................................................................... 26 1.3. ORGANISATION OF THE EVALUATION ................................................................................................. 27 1.4. METHODOLOGY.................................................................................................................................. 28 1.5. CONSTRAINTS..................................................................................................................................... 31 2. CERF BACKGROUND......................................................................................................................... 32 2.1. ORGANIZATION OF THE CERF ...................................................................................................... 32 2.2 CERF LOAN ELEMENT ........................................................................................................................ 34 2.3 CERF GRANT ELEMENT ...................................................................................................................... 35 2.4 RAPID RESPONSE (RR) ........................................................................................................................ 36 2.5 THE UNDERFUNDED EMERGENCIES WINDOW (UFE) ............................................................................ 37 2.6 REPLENISHMENT OF CERF.................................................................................................................. 38 2.7 CERF ALLOCATIONS ........................................................................................................................... 39 3. THE GRANT AND REVOLVING ELEMENTS OF THE FUND .................................................... 43 3.1 OVERALL IMPACT ON FUNDING ........................................................................................................... 43 3.2. IMPACT ON FUNDING OF UN AGENCIES AND NGOS............................................................................ 44 3.3 IMPACT ON FORGOTTEN CRISES
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