STRENGTHENING ORGANIZATIONAL STRUCTURE for DELIVERING GENDER EQUALITY RESULTS Corporate Evaluation of the Regional Architecture of UN Women
Total Page:16
File Type:pdf, Size:1020Kb
CORPORATE EVALUATION OF THE REGIONAL ARCHITECTURE UN WOMEN EVALUATION CORPORATE STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER EQUALITY RESULTS Corporate evaluation of the Regional Architecture of UN Women Independent Evaluation Office ACKNOWLEDGEMENTS This report, and the overall evaluation process, was and Central Africa; Mohammad Naciri, Regional Director, informed and enriched by the participation of more than Regional Office for Arab States; Roberta Clarke, former 300 stakeholders, staff and partners, many of whom actively Regional Director, Regional Office for Asia Pacific; Belen contributed to the development of evaluation findings by Sanz, Country Representative, Colombia; Awa Ndiaye Seck, serving as reference group members, attending focus group Country Representative, Liberia; Leila Rhiwi, Multi-Country discussions and workshops, and completing comprehensive Office Representative, Morocco; Elaine M. Conkievich, surveys. Without the support and active participation of all Multi-Country Office Representative Kazakhstan) who these women and men involved in the consultation process, provided thoughtful comments and insights, and invested this report would not have been possible. significant time and effort during the inception phase to The evaluation was conducted by an external evaluation ensure that the evaluation would be of maximum value company with a large team and led by Tessie Tzavaras and use to the organization. Catsambas from Encompass. The UN Women Indepen- We also extend our thanks to the Senior Management dent Evaluation Office team included Marco Segone, Inga Team of UN Women for their feedback contribution to Sniukaite and Florencia Tateossian. the evaluation, particularly Yannick Glemarec, Assistant We would like to thank Evaluation Advisor (Charles Lusthaus, Secretary-General/Deputy Executive Director of Policy and Programme; Maria Noel Vaeza, Director, Programme expert in management, organizational theory, and insti- tutional evaluation and change, co-founder and senior Division; Lakshmi Puri, Assistant Secretary General/Deputy consultant at Universalia) and the Internal Evaluation Director of UN System Coordination, Intergovernmental Reference Group (Prasun Chakraborty, Human Resources Support and Strategic Partnerships; Khetsiwe Dlamini, Chief Specialist, Human Resources Division; Themba Kalua, of Staff; Moez Doraid, Director, Division of Management Strategic Planning and Coordination Specialist, Regional and Administration; Fiona Bourdin-Farrell, Director, Human Office for Eastern and Southern Africa; Alia El-Yassir, Resources Division; Kristin Hetle, former Director, Strategic Deputy Director, Regional Office for Europe and Central Partnerships Division and Julien Pellaux, Strategic Planning Asia; Moni Pizani, former Country Representative, Ecuador; and Operations Adviser. Sabine Machl, Country Representative, Palestine; Michele The evaluation also benefited from active involvement Ribotta, Coordination Advisor, Coordination Division; and buy-in from five country office visited. We thank the Julie Ballington, Political Participation Advisor, Policy country representatives and staff of these offices for all the Division; Jean-Luc Bories, Secretary of the Executive Board; dedicated time they invested in supporting the evaluation Daniel Seymour, Deputy Director, Programme Division; process and in facilitating the engagement and inclusion Donna Grimwade, Chief of Accounts, Finance Section; of a wide range partners, stakeholders and beneficiaries of Axel de Ville, Deputy Director, Regional Office for West their work. EVALUATION TEAM: EVALUATION MANAGEMENT: Tessie Tzavaras Catsambas, Team Leader UN Women Independent Evaluation Office Katherine Bourne, Senior Evaluation Expert Director: Leslie Fox, Senior Organizational Assessment Expert Marco Segone Fred Carden, Governance and Decentralization Expert Evaluation Task Managers: Kelsey Simmons, Evaluation Associate Inga Sniukaite, Senior Evaluation Task Manager Florencia Tateossian, Evaluation Task Manager Editor: Margo Alderton Design: Ursula Damm, Dammsavage Inc. Cover Photo: UN Women/Catianne Tijerina 2016 UN Women. All rights reserved. Produced by the Independent Evaluation Office of UN Women handbook for national action plans on violence against women 4 REPORT STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER EQUALITY RESULTS Corporate evaluation of the Regional Architecture of UN Women NEW YORK, SEPTEMBER 2016 Independent Evaluation Office TABLE OF CONTENTS LIST OF EXHIBITS 4 2 EVALUATION CONTEXT 31 2.1 UN Context 31 List OF ACRONYMS 5 2.2 Background on UN Women 32 3 FINDINGS 36 FOREWORD 7 3.1 Relevance of UN Women’s Regional Architecture 36 3.2 Effectiveness of UN Women’s Regional Architecture 43 EXECUTIVE SUMMARY 8 3.3 Efficiency of UN Women’s Regional Architecture 60 LIST OF FINDINGS 22 4 REFLECTIONS 80 1 BACKGROUND 24 5 PROMISING PRACTICES 82 1.1 Overview 24 1.2 Purpose, Objectives and Scope 24 6 CONCLUSIONS 85 1.3 Evaluation Approach 25 1.4 Ethics, Gender Equality and Human Rights 29 1.5 Evaluation Constraints and Limitations 30 7 RECOMMENDATIONS 94 8 ANNEXES: VOLUME 2-3 98 STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER-EQUALITY RESULTS 3 LIST OF EXHIBITS Exhibit 1: Regional architecture theory of change embedded in Executive Board Papers 11 Exhibit 2: Working definitions of evaluation criteria 24 Exhibit 3: Overview of the portfolio review and case study countries 26 Exhibit 4: Desk review and quantitative analysis data sources 27 Exhibit 5: Cases for benchmarking in relation to UN Women’s regional architecture 28 Exhibit 6: Overview of main data analysis methods 28 Exhibit 7: Evaluation limitations and mitigation strategies 30 Exhibit 8: Response to stakeholders by office type 39 Exhibit 9: UN agencies act as “boundary partners” for UN Women in the GEWE mandate 42 Exhibit 10: Theory of change for the regional architecture 44 Exhibit 11: New reporting and monitoring processes since the regional architecture 49 Exhibit 12: Operationalizing the triple mandate in five case studies 56 Exhibit 13: Weak linkages between parts of HQ and the field 62 Exhibit 14: Responsibilities and presence of policy advisors in ROs 63 Exhibit 15: Contributing factors to the insufficient response to need for policy advice in thematic areas 65 Exhibit 16: Range of delivery $ per person (staff and non-staff) in ROs in 2015 65 Exhibit 17: Average workforce per country by office type 2016 66 Exhibit 18: Programme presence offices’ more limited capacity, budget and delivery as compared to COs 67 Exhibit 19: Recently initiated process and systems improvements from HQ 69 Exhibit 20: Delivery rates were not correlated with budget size or total workforce 70 Exhibit 21: Visibility of UN Women regional architecture from different levels of the system 72 Exhibit 22: Regular or other resources 76 Exhibit 23: Polarities in UN Women that need to be balanced 81 Exhibit 24: Elements of UN Women’s promising leadership practices 83 Exhibit 25: Regional architecture theory of change embedded in Executive Board Papers 86 STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER-EQUALITY RESULTS 4 LIST OF ACRONYMS ASEAN Association of Southeast Asian Nations CO Country Office COAT Country Office Assessment Tool CSAG Civil Society Advisory Group CSO Civil Society Organization DAMS Donor Agreement Management System DMA Division of Management and Administration FPI Flagship Programming Initiative GEWE Gender Equality and Women’s Empowerment HQ Headquarters IB Integrated Budget IEO Independent Evaluation Office MCO Multi-country Office MOPAN Multilateral Organization Performance Assessment Network POM Programme Operations Manual QCPR Quadrennial Comprehensive Policy Review RMS Results Management System RO Regional Office ROAP Regional Office for Asia and the Pacific SDG Sustainable Development Goal UN United Nations UNAIDS Joint United Nations Programme on HIV/AIDS UNCT United Nations Country Team UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme UNFPA United Nations Population Fund UNICEF United Nations Children’s Fund UNIFEM United Nations Development Fund for Women UN Women United Nations Entity for Gender Equality and the Empowerment of Women USAID United States Agency for International Development WEE Women’s Economic Empowerment STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER-EQUALITY RESULTS 5 STRENGTHENING ORGANIZATIONAL STRUCTURE FOR DELIVERING GENDER-EQUALITY RESULTS 6 FOREWORD The United Nations Entity for Gender Equality and the integrated mandate the Empowerment of Women (UN Women) was cre- (normative, coordination ated in January 2011 with the goal of contributing to and operational) in the the achievement of gender equality and women’s field. However, there are empowerment. The institutional set-up was designed variations in results by the with a regional architecture that aimed to maximize office type. Overall, the the organization’s ability to deliver on its mandate. The different levels in the re- regional architecture was intended to: bring capacity gional architecture support each other well, but there closer to the field; empower UN Women staff at the are limitations in efficient response due to alignment field level; reduce transaction costs arising from mul- of structures, capacities and funding availability. tiple layers of oversight for key business processes; better distinguish higher level programmatic and Drawing on UN Women achievements and challenges operational