Evaluation summary
In January 2007, UNHCR issued a document entitled 'Policy Framework and Implementation Strategy: UNHCR's role in support of an enhanced humanitarian response to situations of internal displacement'. The primary purpose of this document was to set out the key considerations and principles guiding UNHCR's engagement with IDPs in the context of the UN's humanitarian reform process, and in particular, within the new institutional arrangements known as the 'cluster approach'.
This evaluation report is one of a series which seeks to analyse UNHCR's initial experience in the implementation of the cluster approach as part of the humanitarian reform process, with the aim of identifying lessons learned and effective practices which may be drawn upon as the cluster approach is rolled out to other operations. The evaluation process also provided an early opportunity to review field operations in the light of the IDP policy framework referred to above, together with UNHCR's paper on the Protection of IDPs and the Role of UNHCR, also issued in February 2007. The countries selected for evaluation were those in which the cluster approach was initially rolled out (the Democratic Republic of Congo, Liberia, Somali and Uganda), together with Chad. The generic terms of reference for these evaluations are posted on the UNHCR website.
The evaluation team comprised three staff members, Khassim Diagne (team leader) and Enda Savage from the Internally Displaced Persons Advisory Team, and Esther Kiragu from the Policy Development and Evaluation Service at UNHCR headquarters.
After a series of briefing sessions at UNHCR headquarters, the team travelled to Chad for a nine day mission from 22 to 30 April 2007. During the mission, the team met and held consultations with the UNHCR Representative in Chad and staff of the Branch Office in the capital, Ndjamena, and facilitated a half-day workshop on Humanitarian Reform and the Cluster Approach and an overview of the purpose and scope of Real Time Evaluations. During the mission, the team also met members of the UN Country Team, NGO operational partners and government representatives. Meetings were also held with beneficiaries of the UNHCR programme in Eastern Chad. These meetings included both refugees in Goz Amer Refugee Camp and IDPs in several sites across Dar Sila Department of Eastern Chad. Interactive debriefing sessions with UNHCR management and staff were organized in Abeche and Ndjamena. Similar debriefings were also provided to management and staff at headquarters.
Recommendations
Inter-agency coordination and partnership issues
The Humanitarian Coordinator, in consultation with the IASC Country Team, and the UN Country Team should urgently consider requesting the formal activation of the cluster approach in Chad. This should be preceded by a priority OCHA-led workshop on the cluster approach with cluster/sector lead participation.
The 90 day plan which is being formulated to respond to the IDP needs should be adapted to the evolving operational realities. It should be changed from its short term focus to include medium term requirements.
A Deputy Humanitarian Coordinator, based in Abeche, as proposed by the Emergency Relief Coordinator during his recent mission in Chad, should be urgently appointed to ensure that operational decision-making is field-based and field-driven. The roles and responsibilities as well as the added value of such position should be clearly defined and understood by all partners.
OCHA's presence in the field should be strengthened to enable it to carry out the urgently needed tasks of coordination of inter-cluster activities and the provision of overall leadership of the Cluster Approach in Chad.
All cluster/sector leads, with the support of the global clusters should engage in the identification of suitable/additional implementing and operational partners.
The establishment of the Early Recovery cluster is also recommended to ensure linkages from the outset between humanitarian agencies and development actors. - OCHA should provide support to cluster leads in defining and addressing crosscutting issues (HIV, gender issues and environment) and assume a leadership role in inter-cluster coordination matters.
Security management
The SMT, having duly consulted with UNDSS, should review the overall security environment with a view to determining whether or not Phase IV is still applicable in all areas of operations.
The Humanitarian Coordinator and the Country Team should substantively engage the government to provide physical security for its citizens, particularly in border areas.
The international community, notably countries with influence on the Chadian Government, should engage the latter in materializing the idea of deploying a multi-dimensional force in Eastern Chad for the purpose of enlarging the space for humanitarian interventions and to provide security to persons of concern in Eastern Chad.
Role of government
The Humanitarian Coordinator, together with the Country Team, should urgently host a National Workshop on IDPs in which senior Chadian government officials would be invited to discuss major policy issues particularly those related to government capacity and responsibilities.
Considering the role of the Chadian civil society organizations, the workshop should be organized in collaboration with these groups.
Clusters
The protection profile of the IDP operations in Eastern Chad should be raised by means of additional staffing, capacity-building through training and additional resources.
The Protection Working Group in Chad is encouraged to call upon the Global Protection Cluster to discuss those areas requiring further support and assist in the prioritization of protection activities and issues related to surge capacity, staff deployment and capacity-building/training.
UNHCR, in consultation with the CCCM cluster at the global level as required, should engage government and other relevant actors in order to develop a mutual understanding and policy direction on camp/site management issues in the Chad context.
The CCCM cluster should also identify staff and resources to assist in site planning, prioritization of activities and implementation strategy with clear roles and responsibilities for all the relevant stakeholders.
UNHCR should review the assistance package provided to IDPs with a view to developing clear guidance on standards, levels and types of assistance in Eastern Chad. Where necessary, the support of the Emergency Shelter Cluster at the global level should be sought.
The possibility of merging the CCCM and Emergency Shelter Clusters should be vigorously pursued.
Sustainability of the operations and beneficiary involvement
UNHCR and its partners should review the sustainability of the current interventions for IDPs in Chad by ensuring full participation and ownership of the programmes by the beneficiaries.
The Protection Working Group should revisit any discrepancies between assistance to IDPs and refugees in order to obviate any potential for conflict and also to have an inclusive strategy for both the host and affected populations.
The Protection Working group should initiate programmes that promote peaceful co-existence between refugees, IDPs and affected communities, and encourage community participation.
IDP profiling
At the conclusion of the current IDP profiling exercise (conducted with the support of the Field Information and Coordination Support Section (FICSS), and the global Protection and CCCM clusters), UNHCR should plan and conduct a participatory revalidation exercise. This exercise should involve all the relevant stakeholders and should document lessons-learned from the IDP profiling exercise in Eastern Chad so that replication in other operations may be possible.
Resources
UNHCR should undertake a thorough review of the funding as well as staffing levels of the operation to ensure the programme submission properly reflects the operational requirements, notably those close to the point of delivery.
UNHCR should seek the urgent recruitment of local interpreters (including female interpreters) for the IDP operations in Eastern Chad thus releasing Protection Assistants from this task.
UNHCR should field a joint DHRM, Staff Welfare and Medical Service mission to Eastern Chad to review living conditions and other medical/welfare issues.
Visibility of the operations
UNHCR should devise an appropriate information campaign strategy to ensure that the operation is better appreciated outside Chad.