EVALUATION Evaluation of Humanitarian Mine Action Evaluation on Finland’s Development Policy and Cooperation 2015/6 EVALUATION EVALUATION OF HUMANITARIAN MINE ACTION Jon Bennett (Team Leader) Ananda S. Millard Kiira Kärkkäinen Vibol Kan 2015/6 This evaluation was commissioned by the Ministry for Foreign Affairs of Finland to FCG International Ltd. This report is the product of the authors, and responsibility for the accuracy of the data included in this report rests with the authors. The findings, interpretations, and conclusions presented in this report do not necessarily reflect the views of the Ministry for Foreign Affairs of Finland. © Ministry for Foreign Affairs of Finland 2015 This report can be downloaded through the home page of the Ministry for Foreign Affairs http://formin.finland.fi/developmentpolicy/evaluations Contact: [email protected] ISBN 978-952-281-431-9 (pdf) ISBN 978-952-281-432-6 (e-pub) ISSN 2342-8341 Cover design and layout: Innocorp Oy/Milla Toro CONTENTS ACRONYMS AND ABBREVIATIONS ........................................................................... VII TIIVISTELMÄ.................................................................................................................1 REFERAT .......................................................................................................................2 ABSTRACT ....................................................................................................................3 YHTEENVETO ................................................................................................................4 SAMMANFATTNING ...................................................................................................10 SUMMARY ..................................................................................................................16 KEY FINDINGS, CONCLUSIONS AND RECOMMENDATIONS ......................................22 1 INTRODUCTION ....................................................................................................25 2 APPROACH AND METHODOLOGY .......................................................................27 2.1 Outline of approach ......................................................................................................................27 2.1.1 Evaluation questions and judgment criteria ..................................................................................28 2.1.2 Theory of Change ..........................................................................................................................30 2.2 Methodology .................................................................................................................................30 2.2.1 Data collection and limitations .......................................................................................................32 3 FINNISH POLICY WITHIN A GLOBAL CONTEXT ...................................................34 3.1 The evolution of Humanitarian Mine Action ..............................................................................34 3.2 The funding and role of the donor community .........................................................................45 4 COMPONENT 1: REVIEW OF FINNISH SUPPORT TO HMA DURING 1991-2009 ......47 4.1 Finnish support to HMA during 1991-2002 .................................................................................47 4.1.1 Finnish development policy framework in the 1990s ...................................................................47 4.1.2 The evolution of the Finnish support to HMA in the 1990s to early 2000s ....................................48 4.1.3 Relevance of the Finnish HMA support in the 1990s and early 2000s ...........................................52 4.1.4 Effectiveness of the Finnish HMA support in the 1990s and early 2000s ......................................53 4.1.5 Efficiency of the Finnish HMA support in the 1990s and early 2000s ............................................55 4.1.6 Sustainability of the Finnish HMA support in the 1990s and early 2000s ......................................56 4.1.7 Gaps in information in the 1990s and early 2000s ........................................................................56 4.2 Finnish support to HMA from 2002-2009 ...................................................................................56 4.2.1 Finnish development policy framework during 2002-2009 ..........................................................56 4.2.2 Finnish Support to HMA from 2002-2009 ......................................................................................57 4.2.3 Relevance of Finnish HMA support from 2002-2009 .....................................................................58 4.2.4 Effectiveness of the Finnish HMA support from 2002-2009 ..........................................................60 4.2.5 Efficiency of the Finnish HMA support from 2002-2009 ................................................................60 4.2.6 Sustainability of the Finnish HMA support from 2002-2009 ..........................................................61 5 KEY FINDINGS ......................................................................................................62 5.1 Relevance of Finnish support to internationally agreed goals and Finland’s development policies ..................................................................................................62 5.1.1 Adherence to internationally agreed HMA goals ...........................................................................62 5.1.2 Adherence to Finland’s development policy and assessment of beneficiary needs ......................63 5.1.3 Adherence to aid effectiveness principles .....................................................................................65 5.2 The choice and mix of HMA partners ..........................................................................................66 5.2.1 The choice and mix of partners undertaking HMA on behalf of the MFA .....................................66 5.2.2 Cost effectiveness in the choice of partners and sub-partners .....................................................68 5.2.3 Complementarity and added-value of Finnish support to HMA with other development partners and activities ...............................................................71 5.2.4 Effectiveness and efficiency of core funding for UNMAS and GICHD .............................................72 5.2.5 Finnish support to HMA in Afghanistan .........................................................................................75 5.2.6 Management of Finnish HMA support by the MFA .......................................................................77 5.3 Results achieved by and lessons learned from Finnish support to HMA .................................78 5.3.1 Extent to which HMA results are monitored, reported and disseminated .....................................78 5.3.2 Extent to which results demonstrate a corollary between HMA and poverty reduction, economic growth and/or peacebuilding .......................................................................................79 5.3.3 Extent to which Finnish HMA resources are equal to programme ambitions ................................80 5.3.4 Extent to which achievements are sustainable in partner countries .............................................83 5.4 Cross-Cutting Objectives (CCO) of Finland’s HMA .....................................................................85 5.4.1 Extent to which CCO’s were understood, reported and advocated by partners ..........................85 5.4.2 Extent to which CCOs are monitored and reported with respect to outcomes ............................86 6 CONCLUSIONS AND LESSONS LEARNED ..............................................................88 6.1 Key conclusions 1991-2002 ..........................................................................................................88 6.2 Key conclusions 2002-2009 ..........................................................................................................89 6.3 Key conclusions 2010-2015 ..........................................................................................................89 6.4 Review of the reconstructed Theory of Change .......................................................................90 7 RECOMMENDATIONS .............................................................................................93 REFERENCES ...............................................................................................................95 EVALUATION TEAM ..................................................................................................101 ANNEX 1: TERMS OF REFERENCE ............................................................................102 ANNEX 2: PEOPLE INTERVIEWED ............................................................................113 FIGURES Figure 1. Reconstructed Theory of Change for HMA supported by Finland .............................................31 Figure 2. Finn Flail Team in Cambodia 1998-2002 .....................................................................................54 Figure 3. HMA Total Annual Expenditure Finland 2009-2014 ....................................................................67 Figure 4. Finland HMA funding by country 2009-2014 .............................................................................68 Figure 5. Finland HMA Funding by Agency 2009-2014 .............................................................................69