Evaluation of Danish Humanitarian Assistance to Sudan 1992-98
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Evaluation of Danish Humanitarian Assistance to Sudan 1992-1998 Final Report Margaret Buchanan-Smith Steve Collins Christopher Dammers Fred Wekesa Joanna Macrae October 1999 Overseas Development Institute Portland House, Stag Place London, UK, SW1E 5DP. Tel: (+44)20 7393 1600. Fax: (+44)20 7393 1699. Email: <[email protected]> Website: <www.oneworld.org/odi/hpg/> ACKNOWLEDGEMENTS Our thanks go to the numerous people who met with us and patiently answered our questions and requests for documentation. In particular, we would like to thank UNICEF, for hosting the team in Kenya and for facilitating the programme and travel to South Sudan. Particular thanks to Gillian Wilcox for all her help. The UNICEF office in Khartoum gave us persistent support in our efforts to obtain visas to travel to Khartoum. Special thanks to Mohammed Abdel Hameed, and to the UNICEF- Khartoum office for hosting Fred Wekesa and facilitating his programme and travel to Wau. We are extremely grateful to Birthe Nautrup and Pia Nielsen for their excellent support in Copenhagen, with documentation, translations, media searches, meeting arrangements and hospitality. Mark Bradbury and Joanna Macrae of the London-based Peer Review Group, provided excellent background briefings to the team, and feedback on our findings. The interaction with the Afghanistan team throughout, to cross-check findings and exchange information, was very valuable. Finally, a special thank-you to Kanwal Amara-Bangali for her unfailing support throughout, in so many ways, including all the administrative arrangements, collection of documentation and editing. iii iv TABLE OF CONTENTS ACKNOWLEDGEMENTS ......................................................................................................iii TABLE OF CONTENTS............................................................................................................v LIST OF FIGURES.................................................................................................................. viii LIST OF TABLES .......................................................................................................................ix GLOSSARY....................................................................................................................................x EXECUTIVE SUMMARY: CONCLUSIONS & RECOMMENDATIONS................xiii 1. INTRODUCTION...................................................................................................................1 2. METHODOLOGY..................................................................................................................3 2.1 Approach ................................................................................................................................. 3 2.2 Evaluation of the southern sector........................................................................................ 3 2.3 Evaluation of the northern sector........................................................................................ 3 2.4 Focus of the evaluation.......................................................................................................... 4 2.5 Sources of information .......................................................................................................... 5 2.6 Constraints............................................................................................................................... 5 2.7 Other evaluations.................................................................................................................... 5 3. OVERVIEW OF THE COMPLEX POLITICAL EMERGENCY IN SUDAN...... 13 4. OVERVIEW OF THE HUMANITARIAN RESPONSE............................................. 15 4.1 OLS......................................................................................................................................... 15 4.2 Outside OLS.......................................................................................................................... 16 5. OVERVIEW OF DANISH HUMANITARIAN ASSISTANCE TO SUDAN......... 17 5.1 Overall funding ..................................................................................................................... 17 5.2 Funding channels.................................................................................................................. 18 5.3 DANIDA’s decision-making mechanisms ....................................................................... 21 5.4 Relative significance of DANIDA funding ...................................................................... 22 6. APPROPRIATENESS OF AID CHANNELS................................................................ 25 6.1 Introduction........................................................................................................................... 25 6.2 DANIDA’s selection and funding of implementing partners ....................................... 25 6.3 UN agencies and OLS.......................................................................................................... 26 6.4 DANIDA’s NGO partners................................................................................................. 27 6.5 The Red Cross Movement .................................................................................................. 29 6.6 Issues for DANIDA ........................................................................................................... 30 7. NEEDS ASSESSMENT AND APPEALS: THE STARTING POINT OF A HUMANITARIAN OPERATION ........................................................................................ 33 7.1 Analysis and understanding of the long-term context .................................................... 33 7.2 Annual needs assessments and appeals: analysis and interpretation of information.. 33 v 8. COVERAGE .......................................................................................................................... 39 8.1 Introduction ......................................................................................................................... 39 8.2 The impact of donor under-funding and resourcing ..................................................... 39 8.3 Standards of coverage......................................................................................................... 40 8.4 Security and negotiated access........................................................................................... 42 8.5 The coverage of DANIDA-funded programmes: an overview..................................... 43 8.6 Coverage of DANIDA-funded programmes: political and institutional dimensions44 8.7 Internally Displaced Persons...............................................................................................45 8.8 Issues and implications for DANIDA ............................................................................. 47 9. COORDINATION ............................................................................................................... 49 9.1 Introduction........................................................................................................................... 49 9.2 The coordination challenge.................................................................................................49 9.3 Strategic coordination ......................................................................................................... 50 9.4 Technical/programme coordination: northern sector .................................................... 54 9.5 Technical/programme coordination: southern sector .................................................... 54 9.6 Technical/programme coordination: issues for both sectors ........................................ 57 9.7 Funding constraints.............................................................................................................. 57 9.8 Issues for DANIDA ........................................................................................................... 58 10. CONNECTEDNESS.......................................................................................................... 61 10.1 Introduction ........................................................................................................................ 61 10.2 Connectedness and the policy framework of OLS........................................................ 61 10.3 DANIDA’s policy framework and its application to Sudan........................................ 63 10.4 Approaches to connectedness: DANIDA’s implementing partners .......................... 64 10.5 Implications for DANIDA ............................................................................................... 66 11. APPROPRIATENESS OF THE HUMANITARIAN RESPONSE.......................... 67 11.1 Timeliness and efficiency................................................................................................... 67 11.2 Influence of the media....................................................................................................... 70 11.3 Appropriateness and relevance of relief assistance........................................................ 71 12. MONITORING AND EVALUATION......................................................................... 73 12.1 DANIDA ........................................................................................................................... 73 12.2 DANIDA’s partner agencies ...........................................................................................