Ukraine Country Programme

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Ukraine Country Programme Evaluation Service Evaluation of UNHCR’s Ukraine Country Programme September 2017 Full Report ES/2017/03 Commissioned by UNHCR Evaluation Service Conducted by Universalia UNHCR Evaluation Service UNHCR’s Evaluation Policy confirms UNHCR’s commitment to support accountability, learning and continual improvement through the systematic examination and analysis of organisational strategies, policies, and programmes. Evaluations are guided by the principles of independence, impartiality, credibility and utility, and are undertaken to enhance the organization’s performance in addressing the protection, assistance and solution needs of refugees, stateless people and other persons of concern. Evaluation Service United Nations High Commissioner for Refugees Case Postale 2500 1211 Genève 2 Switzerland www.unhcr.org Published by UNHCR Evaluation Service Copyright © 2017 UNHCR This document is issued by the Office of the United Nations High Commissioner for Refugees for general distribution. All rights are reserved. Reproduction is authorized, except for commercial purposes, provided UNHCR is acknowledged. Unless expressly stated otherwise, the findings, interpretations and conclusions expressed in this Evaluation Report are those of the Evaluation Team, and do not necessarily represent the views of UNHCR, the United Nations or its Member States. The depiction and use of boundaries, geographic names and related data shown on maps and included in lists, tables, and documents in this Evaluation Report are not warranted to be error free, nor do they necessarily imply the expression of any opinion whatsoever on the part of UNHCR or the United Nations concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. FINAL REPORT I Acknowledgements The evaluation team consisted of Yvan Conoir, Julian Murray, Irina Negreyeva and Katerina Stolyarenko. The team wishes to thank UNHCR for its exceptional support throughout, in particular the Principal Evaluation Officer Machiel Salomons, the Kyiv management team Pablo Mateu, Noel Calhoun and Vanno Noupech, and the field offices led by Mamo Mulusew and David Karp in Dnipropetrovsk, Thomas Faustini in Kharkiv, Dumitru Lipcanu in Mariupol, Ivan Saleyeu in Severodonetsk, and who together with their teams facilitated comprehensive field visits. © UNIVERSALIA FINAL REPORT III Executive Summary In November 2016, the Universalia Management Group Limited was contracted to conduct the Ukraine Country Programme Evaluation for the United Nations High Commissioner for Refugees (UNHCR). The evaluation report provides an assessment of UNHCR’s operations in Ukraine between January 2014 and December 2016, reviewing its dual roles as an operational agency and as coordinator of the Shelter/Non‐Food Item (NFI) and Protection Clusters. It considers the relevance and appropriateness of UNHCR’s objectives and strategy, examines how the evolving policy and operational context influenced decisions with respect to UNHCR’s positioning and programme delivery arrangements, and assesses the results achieved by UNHCR in the context of the inter‐agency response to the Internally Displaced Person (IDP) situation. The evaluation is expected to be used for both accountability and learning. Methodology The evaluation was guided by OECD‐DAC Evaluation Quality Standards for Development Evaluation, the UNEG Norms and Standards for Evaluation in the UN System, the UNEG Ethical Guidelines and Code of Conduct for Evaluation in the UN System, UNHCR’s recently‐published Evaluation Policy and accompanying guidance on Evaluation Quality Assurance, and the Sphere Handbook and Standards for Monitoring and Evaluation. The overall approach to the evaluation was utilization‐focused and applied mixed methods. The evaluation had six main data sources, which included: a document review of over 600 documents, semi‐structured interviews with 112 stakeholders both face‐to‐face and via phone or videoconference, an online survey to current and former UNHCR personnel and partner agency staff, field observations in the Government Controlled Areas (GCAs), structured focus groups with refugees and IDPs, and an analysis of available databases and reporting systems. The evaluation team was not able to visit Non‐Government Controlled Areas (NGCAs) for security reasons and experienced some limitations with regards to assessing the results of the Ukraine operation due to the planning and reporting information available in the Country Operational Plans (COPs). Country and operating context Ukraine has experienced two related crises since November 2013: first, a political and security crisis that has caused 9,940 documented deaths and affected 4.4 million people (about ten percent of the population); second, an economic crisis that has seen GDP shrink by 16% between 2013 and 2016. The hardships experienced by IDPs are somewhat mitigated by a number of factors specific to the Ukrainian context, such as the hitherto declining Ukrainian population, the ability of the Ukrainian people to adapt to political and economic upheavals, and a well‐developed social welfare system. At the beginning of 2014, UNHCR in Ukraine was a small, stable regional office with a decreasing budget. From January 2014 to December 2016 the UNHCR operation in Ukraine underwent a profound transformation. The evaluation team saw this as breaking down into five distinct stages: (a) the first months of 2014 before any IDP displacements, (b) the initial Crimean displacement (March – April 2014) and unilateral UNHCR response, (c) the larger Donbass displacement (April – December 2014) with a loosely‐organized multi‐agency response, (d) 2015: the first year of the Humanitarian Response Plan (HRP) and UNHCR (co)leadership of the protection and shelter clusters, and finally (e) 2016: the second year of the HRP. © UNIVERSALIA IV FINAL REPORT Findings regarding UNHCR’s objectives and strategies UNHCR’s early work – while ad hoc and not fully compliant with UNHCR programming and financial procedures – was influential in shaping the overall humanitarian response and contributing to key strategic and policy decisions. The agency was quick to mobilize, deploying protection, shelter and field officers early, which enabled UNHCR to gain strategic advantage and advocacy leverage. UNHCR’s principled stand on access to NGCAs paved the way for UN agencies to remain engaged in the NGCAs, and the agency was largely successful in preventing the creation of IDP camps in the country as well as demonstrating the efficiency of cash‐based interventions. However, delays in the build‐up of critical supply and administrative support functions and unsettled leadership of the Ukraine operation in 2015 had a negative impact on the effectiveness of programmes and advocacy, and annual planning was not as consultative as partners would have desired. In addition, the current disposition of field offices is no longer optimal given the changing footprint of assistance and coordination mechanisms. Finally, capacity development support to key non‐governmental partners has been limited to bolstering their ability to effectively deliver UNHCR programmes, and has not addressed the need to equip them to deliver essential services after the humanitarian phase is over and UNHCR shifts to a more strategic role. UNHCR’s results in Ukraine 2014‐2016 Results for Persons of Concern (refugees/asylum‐seekers, stateless persons and IDPs) were mixed. Advocacy and programming results for asylum seekers, refugees and IDPs in GCAs were adequate, while results for stateless persons were found to be inadequate as initiatives to boost understanding and improve the regulatory environment were stalled. The effectiveness of programmes for refugees and asylum seekers was limited by a general hardening of attitudes towards refugees, the unsettled leadership of UNHCR in 2015 and the reallocation of limited staff and policy resources towards IDPs. Assessing UNHCR’s effectiveness in interventions aimed at IDPs has been more difficult, as who is and is not counted as an IDP is not always clear. UNHCR and its partners have not succeeded in resolving some political obstacles such as humanitarian access, and policy advocacy in NGCAs is almost impossible. Material assistance – in the form of community projects, legal counselling, individual protection assistance, shelter and NFIs is relevant but faces gaps in terms of coverage, especially in the NGCAs. Accountability to affected populations has been enhanced by the participatory assessments from 2015 onwards, but limited government, partner and beneficiary participation in planning has limited overall accountability. UNHCR’s cluster coordination role UNHCR initiated cluster coordination early and provided continuity of experienced protection and shelter cluster coordinators. UNHCR was able to remain neutral and impartial as a Cluster Lead Agency (CLA), fulfilling its role as an effective and trusted cluster coordinator. The protection cluster is considered by stakeholders to be strong on advocacy, while the shelter cluster was widely regarded as one of the best coordinated clusters in Ukraine. Both have adapted to the specifics of the Ukraine context as the situation as evolved. All stakeholders agreed that the emergency phase of this response is coming to an end and that the structures established in 2015 and 2016 are now too big and process‐ intensive for the current protracted situation: more specific plans for cluster deactivation
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