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Evaluation of UN Women Country Programme in Afghanistan

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Evaluation of UN Women Country Programme in Afghanistan 2019:14 Sida Decentralised Evaluation Francis Watkins Sippi Azarbaijani-Moghaddam Evaluation of UN Women Country Programme in Afghanistan Final Report Evaluation of UN Women Country Programme in Afghanistan Final Report March 2018 Francis Watkins Sippi Azarbaijani-Moghaddam Sida Decentralised Evaluation 2019:14 Sida Authors: Francis Watkins and Sippi Azarbaijani-Moghaddam The views and interpretations expressed in this report are the authors’ and do not necessarily reflect those of the Swedish International Development Cooperation Agency, Sida. Sida Decentralised Evaluation 2019:14 Commissioned by Sida Copyright: Sida and the authors Date of final report: March 2018 Published by Nordic Morning 2019 Art. no. Sida62215en urn:nbn:se:sida-62215en This publication can be downloaded from: http://www.sida.se/publications SWEDISH INTERNATIONAL DEVELOPMENT COOPERATION AGENCY Address: SE-105 25 Stockholm, Sweden. Office: Valhallavägen 199, Stockholm Telephone: +46 (0)8-698 50 00. Telefax: +46 (0)8-20 88 64 E-mail: [email protected]. Homepage: http://www.sida.se Table of contents Table of contents ..................................................................................................................... 2 Abbreviations and Acronyms ................................................................................................. 3 Executive Summary ................................................................................................................. 4 1 Introduction ......................................................................................................................... 7 1.1 Scope of the evaluation ................................................................................................ 7 1.2 Approach and methodology .......................................................................................... 8 1.3 Limitations .................................................................................................................. 10 2 Evaluation Findings .......................................................................................................... 11 2.1 Introduction ................................................................................................................. 11 2.2 Context ....................................................................................................................... 14 2.3 Relevance .................................................................................................................. 16 2.4 Efficiency and effectiveness ....................................................................................... 19 2.5 Sustainability .............................................................................................................. 25 2.6 Impact ......................................................................................................................... 27 3 Conclusions ...................................................................................................................... 29 4 Recommendations ............................................................................................................ 31 Annex 1 – Terms of Reference.............................................................................................. 34 Annex 2 - Evaluation Matrix ................................................................................................ 45 Annex 3 – Documents Reviewed .......................................................................................... 48 Annex 4 – Stakeholders Interviewed .................................................................................... 51 2 Abbreviations and Acronyms CSO Civil Society Organisation DRF Development Results Framework EVAW Elimination of Violence against Women FGC Family Guidance Centre MTR Mid-term Review MoWA Ministry of Women’s Affairs NPP National Priority Programme OAI Office of Audit and Investigation UN United Nations UNDAF United Nations Development Assistance Framework WPC Women’s Protection Centre 3 Executive Summary The evaluation had two overarching purposes: To help Sida, Norway and Finland, as well as UN Women, to assess progress of the on-going UN Women country programme in Afghanistan to learn from what works well and less well and to inform decisions on how programme implementa- tion may be adjusted and improved. To provide Sida, Norway and Finland, as well as UN Women, with an input to upcoming discussions concerning the preparation and possible support of a new programme phase. The approach taken in the collection and analysis of the evidence was to seek to an- swer the specific evaluation questions under each of the evaluation criteria, which form the findings. The evidence was then drawn together to provide higher level an- swers to the overarching evaluation questions, which form the conclusions. Finally these conclusions were used as the basis for a number of recommendations for taking the programme forward. Has UN Women’s programme been relevant to the Afghan context and does it reflect the right balance of priorities? UN Women’s programme has been and remains broadly relevant to the context of Af- ghanistan, although the balance of priorities has been driven more by funding availa- bility than by a strategic or long-term vision of what is needed to respond to this con- text. While there is some evidence of flexibility in the implementation of the pro- gramme, what does seem to be lacking is the capacity to be able to effectively analyse the context, particularly in terms of society and governance, and to build this analysis into programme implementation. What outcomes has the programme achieved and have these contributed to wider gender equality results? There has been some progress made in the achievement of outputs, but much less pro- gress in the achievement of outcomes. While the difficult context in part helps to ex- plain the limited successes in the programme, many of the issues affecting the imple- mentation of the programme come from the management of the programme. All of these issues have had an impact on the delivery of the programme and particularly on UN Women’s reputation in the country. It is of particular concern that many of these issues, such as government commitment and resource availability, were identified as risks in the development of the programme. In terms of implementation the resources available were spread thinly across a com- plex programme, with a very wide range of outputs, and were overambitious in terms 4 EXECU TIVE SUMMARY of what could be achieved in a difficult context working with partners with limited capacity. The evaluation found considerable concerns about UN Women’s lack of overall leadership, slow decision making and poor communications, all of which have severely affected important relationships with both civil society and with government. While there has been monitoring, it has clearly been affected both by the deteriorating security situation and by the lack of staff capacity. While there have been efforts made in assessing progress in the the EVAW programme, there is little evidence of significant efforts in other parts of the programme. Even where there have been ef- forts made at monitoring and evaluation, there is only limited evidence that the results have been used to develop and manage the programme more effectively. Has the programme worked with the right partners and has it helped to build their capacity? The main focus in UN Women’s programme has been on working with government partners and, to a much more limited extent, with some CSOs. In both cases, there is there is only anecdotal evidence that capacity has been built, while there is external evidence of limited capacity in MoWA and CSOs, who have been UN Women’s main partners. UN Women has engaged in a formal manner with the UNCT and has devel- oped some partnerships with specific UN organisations, although there is considera- ble scope for the organisation to engage more effectively with other, larger partners. Overall, however, there has been a lack of balance in the support given. The outcomes that have been achieved are still a long way from being sustainable. Where there is evidence, such as in the work on EVAW, it shows that there is a need for continued donor support to sustain any achievements and that considerable work is needed to build greater ownership amongst both CSOs and government. In other parts of the programme, while there have not been similar evaluation efforts there is evidence to suggest that there is a similar lack of sustainability. What contributions has the programme made to poverty reduction and to what extent? It has been difficult to find evidence of the direct contributions that UN Women has made to poverty reduction and to gender equality results. The evidence that does exist for the EVAW programme shows that there is still a long way to go in ensuring that legislation is understood and implemented. There is also strong evidence of unin- tended effects of efforts to bring in legislation on EVAW and to provide protection for women who are affected by violence. There was no other substantive evidence of the contribution to gender equality results or of unintended effects presented for other aspects of UN Women’s programme. There was also no strong evidence that UN Women has put in place effective M&E and knowledge management systems to be able to assess and disseminate the out- comes and results of their support. 5 EXECU TIVE SUMMARY Ensuring Relevance
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