Humanitarian Performance Monitoring Toolkit

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1 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Humanitarian Performance Monitoring Toolkit See UNICEF Intranet Executive Summary Background The global humanitarian context is continually evolving with increasing frequency of disasters and continuing complex emergencies. At the same time there is an increasing examination of the effectiveness of the international humanitarian system and continued high expectations for improved coordination and greater accountability, including to affected populations. In 2010, UNICEF further reinforced its commitment to its humanitarian mandate with the release of the revised Core Commitments for Children in Humanitarian Action (CCCs), the organization s central policy on humanitarian action, which now brings a stronger results focus to UNICEF humanitarian work and aligns UNICEF commitments to global standards such as SPHERE and Education in Emergencies standards (INEE). Building on existing experience of UNICEF and partners, this Humanitarian Performance Monitoring (PM) Toolkit takes this further with a view to strengthening UNICEF performance monitoring in humanitarian situations. As the UNICEF CCCs can only be realized through close collaboration with UNICEF implementing partners, the Toolkit includes elements that are intended for use with partners and can be promoted for use at cluster/sector level. Why is this important? In on-going humanitarian situations, strong performance monitoring is essential to support effective response. Operating in humanitarian situations is associated with high risk: programme design risks of doing harm in complex contexts; implementation and financial management risks due to a scale up in operations, often after a sudden increase in resources; and reputational risk. More and more attention is being paid to the effectiveness of humanitarian response. The best way to demonstrate effectiveness is through solid, high frequency performance information, showing results for affected population. For more information see Humanitarian PM Background Note. What is different? In on-going humanitarian situations, there is a higher frequency demand for information about programme implementation and operational support. For UNICEF, there are three overarching questions that need to be answered, both to effectively manage the response and for accountability. These are: (1) How well are UNICEF and implementing partner programmes contributing to strategic results and targets; (2) As country cluster/sector lead agency (CLA) how well is UNICEF leading cluster/sector coordination; and (3) How well is the clusters/sector UNICEF is leading delivering on results for the affected population? NB. The country cluster/sector lead agency is not solely accountable for cluster/sector results (it is a joint accountability for the whole cluster/sector). The cluster/sector lead agency role is to ensure that systems are in place for the cluster/sector to monitor results and identify gaps. To monitor at these three levels, UNICEF needs to go beyond input data, which is the traditional method of performance monitoring in humanitarian situations, that may include elements situation monitoring as well as budget monitoring. UNICEF can no longer solely rely on low-frequency and high-cost outcome level surveys. UNICEF and partners need light 1

2 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 systems appropriate to context to get a combination of rough high-frequency data on outputs and estimates of coverage. What is the proposed approach to strengthen Humanitarian Performance Monitoring? For UNICEF, humanitarian PM in this Toolkit is designed to feed into the Situation Report or SitRep. The SitRep, now aligned to the CCCs, is proposed as the minimum monitoring and reporting requirement for UNICEF COs in on-going humanitarian situations. With this, UNICEF will be able to provide light but systematic results-focused reporting to the Humanitarian Country Team as well as other partners and external audiences. The Humanitarian PM Toolkit supports data collection feeding into the SitRep including: Improved and simplified programme implementation monitoring for UNICEF implementing partners through PCA Monitoring and Reporting Addendum; Field Monitoring systems providing systematic light high coverage and high-frequency data on quality of programmes, bottlenecks in implementation, end use of supplies, negative impact and as a minimum feedback mechanism for affected populations; Light, high frequency assessment of progress in meeting Cluster/Sector Lead Agency accountabilities (where UNICEF is country cluster/sector lead agency). Periodic surveys (lower frequency outcome monitoring) where funding allows and ideally as an Inter-Cluster/Sector exercise. When should Humanitarian Performance Monitoring be Used? The Humanitarian PM is designed to be flexible and adaptable to country contexts; UNICEF CO and implementing partner capacity and to the resources available. Supporting Cluster/Sector Performance Monitoring 1 This Toolkit has been developed for UNICEF and implementing partners however the approach and key tools are also intended for sharing and use with cluster/sector partners. Tools can also be easily adapted to support Cluster/Sector level monitoring and facilitate agreement on what to monitor within Clusters/sector working groups. Support for UNICEF CO Humanitarian PM. To support UNICEF COs in applying the Humanitarian PM Toolkit a Community of Practice has been established that guarantees a 48 hour response to any queries. In addition a roster of trained internal and external candidates suitable for surge capacity for Humanitarian PM. A programme performance monitoring E-tool for use by UNICEF and implementing partners (and more widely where no such national or Humanitarian Country Team platform is in place) has been developed 2. Feedback The Humanitarian PM Toolkit is based on focused pilot work in Pakistan and South Sudan, and input from an internal reference group and key external partners. UNICEF is committed to building on the Toolkit based on new experiences, adaptations and refinements. Please provide feedback to Kate Alley (ktalley@unicef.org) 1 UNICEF s Coordination accountability under Humanitarian Reform and the revised CCCs is for the sector/cluster UNICEF leads at the country level. This means it is not contingent on any formal activation of the cluster approach in a country. UNICEF s coordination accountability remains. 2 This will allow UNICEF and implementing partners to input, share and draw reports on a few common priority indicators, and to feed into Humanitarian Country Team performance management. 2

3 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Table of Contents Executive Summary Introduction... 4 Background the Core Commitment for Children in Humanitarian Action (CCCs)... 4 What is different about Humanitarian PM?... 5 What is the proposed approach for Humanitarian PM?... 6 How does Humanitarian PM link with other processes? Guide to Strengthening Humanitarian Performance Monitoring Steps to Strengthen CO Humanitarian Performance Monitoring Accountabilities for CO Humanitarian Performance Monitoring Simplified Humanitarian Integrated Monitoring and Evaluation Plan (IMEP) and Results Framework Humanitarian Performance Monitoring Tools Situation Report Indicator Guide PCA Monitoring and Reporting Addendum UNICEF PCA / Intervention Mapping Field Monitoring UNICEF Cluster / Sector Coordination Milestone Monitoring Tool Cross-Sectoral Communication for Development (C4D) Outcome Surveys

4 Humanitarian Performance Monitoring - Toolkit and Guide 01 June Introduction Background the Core Commitment for Children in Humanitarian Action (CCCs) The purpose of the Humanitarian PM Toolkit is to support the effective implementation of UNICEF Core Commitments for Children in Humanitarian Action (CCCs). This entails strengthening UNICEF Humanitarian PM to monitor progress of results for children at a greater frequency. It also entails equipping UNICEF to monitor progress for its country cluster/sector Lead Agency responsibilities. The CCCs are UNICEF s core humanitarian policy to uphold the rights of children affected by humanitarian crisis. They are a framework for humanitarian action, around which UNICEF seeks to engage with partners. The intent of the updated CCCs remains to promote predictable, effective and timely collective humanitarian action, putting forth clearly the results where UNICEF can best contribute. Initially issued in 2000 and revised in 2004, the current revision of the CCCs brings policy up to date with changes in global context for humanitarian action, including new evidence and best practices, as well as humanitarian reform, in particular the Cluster Approach. The CCCs include specific commitments to establish and support coordination mechanisms (relevant to UNICEF s role as cluster lead or partner), with interagency assessments and strategies being critical parts. The commitments combine cluster / sectoral, operational, and cross-cutting issues. The CCCs also bring a stronger results focus to UNICEF humanitarian work while at the same time aligning UNICEF commitments to global standards such as SPHERE Humanitarian Charter and Minimum Standards in Humanitarian Response and the InterAgency Network for Education in Emergencies (INEE) Minimum Standards in Education. See more The Cluster Approach, introduced as one of the pillars of Humanitarian Reform at the end of 2006, is intended is to strengthen system-wide preparedness and technical capacity to respond to humanitarian emergencies by ensuring that predictable leadership in the main sectors leads to predictable humanitarian response. UNICEF is Global Cluster Lead Agency in Nutrition and WASH, co-lead in Education (with Save the Children), focal point agency for the child protection and gender-based violence areas of responsibility in the broader protection cluster; and co-chair of the cross-cutting IASC Reference Group on Mental Health and Psychosocial Support in Emergency Settings. UNICEF s role at the country level may differ across countries since country-specific arrangements are determined based on agencies in-country strengths and contextual factors. The role of cluster/sector leads at the country level is to facilitate a process aimed at ensuring well-coordinated and effective humanitarian responses in the sector or area of activity concerned. Specific responsibilities of cluster/sector leads at the country level are detailed in the Terms of Reference for Cluster/Sector Lead at Country Level and include performance management. For further background see Background Note for CMT Why higher frequency Humanitarian PM is important. It allows UNICEF and implementing partners results for children to be regularly monitored and tracked It helps manage risks: programme design risks of doing harm in complex contexts and rapid scale-up; financial and implementation management risks when there is sudden increase in resources; reputational risks where UNICEF is unable to say what its progress is 4

5 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 The international community and especially donors are demanding increased accountability and demonstration of results. Evaluations continue to show humanitarian PM as a weakness for both the wider humanitarian system and for UNICEF specifically. For UNICEF, Humanitarian PM is a CO accountability as detailed in the CCCs What is different about Humanitarian PM? In on-going humanitarian situations, there is a higher frequency demand for information about programme implementation and operational support. For UNICEF, there are three overarching questions that need to be answered, both to effectively manage the response and for accountability. These are: (1) How well are UNICEF and implementing partner programmes contributing to strategic results and targets; (2) As country cluster/sector lead agency (CLA) how well is UNICEF leading cluster/sector coordination; and (3) How well is the clusters/sector UNICEF is leading delivering on results for the affected population? NB. The country cluster/sector lead agency is not solely accountable for all cluster/sector results (it is a joint accountability for the whole cluster/sector), the cluster/sector lead agency is accountable to ensure that systems are in place for the cluster/sector to monitor results and identify gaps. To monitor at these three levels, UNICEF needs to go beyond input data, which is the traditional method of performance monitoring in humanitarian situations, that may include elements situation monitoring as well as budget monitoring. UNICEF can no longer solely rely on low-frequency and high-cost outcome level surveys. UNICEF and partners need light systems appropriate to context to get a combination of rough high-frequency data on outputs and estimates of coverage. In humanitarian situations, UNICEF and implementing partners need light monitoring systems that are appropriate to the context to provide good enough high-frequency data on outputs that allow estimates of programme coverage. This is also needed at the level of cluster/sector coordination. Without this the gap in coverage will be unknown for too long adversely affecting effective response to the population (and UNICEF reputation). In addition, UNICEF and implementing partners need similar high-frequency data on quality of programme implementation through Field Monitoring visits. As the scale of the response increases, so must the coverage of Field Monitoring to give greater confidence in rough coverage data, to identify bottlenecks and to allow feedback from affected populations. What is the objective of Humanitarian PM? The objective of Humanitarian PM is to support UNICEF CO management in assessing performance through; Contributing to improve predictable, effective and timely humanitarian action of UNICEF and it partners, both UNICEF implementing partners and cluster/sector partners. Strengthening (wherever possible) the links between national government frameworks, UNICEF humanitarian action programmes and UNICEF regular programmes. To reinforce accountability at UNICEF Headquarters, Regional and Country Offices in line with the CCCs, within the broader framework of UNICEF s global Performance Management. When should Humanitarian Performance Monitoring be Used? 5

6 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 What is the proposed approach for Humanitarian PM? Humanitarian PM builds on the existing UNICEF CO Situation Report (SitRep) an established reporting mechanism in humanitarian situations. The SitRep is the proposed minimum reporting requirement for all UNICEF COs in Level II and III emergencies. It has been re-designed to serve as a CO management tool (or overview dashboard ) with key overview data for CO senior management to assess the progress of the response. The Humanitarian PM Toolkit provides guidance and tools to support data collection to feed into the SitRep. What is appropriate to each context will vary, starting with the most basic and extending to higher levels of investment: Low Cost Option: Improved and simplified programme implementation monitoring through selection of priority high frequency indicators for inclusion in cooperation agreements (through the PCA Monitoring and Reporting Addendum) Medium Cost Option: Field Monitoring providing systematic light high coverage and high-frequency data on quality of programmes, bottlenecks in implementation, end use of supplies and negative impacts as well as a minimum feedback mechanism for affected populations; Low Cost Option: Assessment of progress in meeting country Cluster/Sector Lead Agency accountabilities (where UNICEF is country cluster lead agency). High Cost Option: Periodic surveys (lower frequency outcome monitoring) where funding allows and ideally as an Inter-Cluster exercise. The Humanitarian PM Toolkit focuses primarily on performance monitoring of UNICEF support to service delivery and cluster/sector coordination (where UNICEF is country cluster/sector lead agency). Where COs humanitarian response role is primarily focused on capacity development and advocacy strategies with national partners, the focus of performance monitoring efforts will be more in line with mainstream UNICEF CO performance monitoring approaches. In such contexts some elements of the Toolkit may be useful to promote for national partners use. How does Humanitarian PM link with other processes? The Humanitarian PM Toolkit focuses specifically on Performance Monitoring. It does not provide detailed guidance or tools on initial Needs Assessment or humanitarian evaluation. Both are covered in Inter-Agency resources. Needs Assessments Accountability for Sudden Onset Response coordination and overall information management lies with OCHA (in coordination with the national government) The scope of OCHA s role will be a factor of its pre emergency presence, resources available and role of national government. The UNICEF CO should determine the UNICEF role in Rapid Needs Assessments and plan accordingly, see Steps to Strengthen CO Humanitarian PM Situation Monitoring Options for Outcome Surveys are contained within the Humanitarian PM toolkit and guide 6

7 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Low frequency survey indicators contained in the Indicator Guide tool are mapped onto MICS indicators where relevant Real Time Evaluations Real-time evaluations often take place at the Inter-Agency level. UNICEF will likely be involved as a key informant. UNICEF CO involvement in the evaluation method itself will be determined on a case-by-case basis Learning/Accountability Processes The following diagram shows the Humanitarian PM Toolkit in relation to wider Learning and Accountability processes See the Simplified Humanitarian IMEP for additional details and resources Figure: Humanitarian Learning/Accountability Options Early Warning / Early Action Platform Note that Humanitarian PM also includes performance monitoring of preparedness measures. For UNICEF COs, this is covered through the regular updates to the Early Warning-Early Action System The overview tool Steps to Strengthen CO Humanitarian PM contains some light, specific, preparedness steps that can be considered for Humanitarian PM. 7

8 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 VISION Programme-related data in humanitarian PM will be at a higher level of detail than Programme Component Results (PCRs) and Intermediate Results (IRs) in the Revised Results Structure (RRS) (e.g. an IR will at best be equivalent to the macro level nutrition CCC strategic result); however, programme-related data in humanitarian PM can feed into VISION performance data. Humanitarian PM will draw on operations performance data from PROMS/VISION (e.g. financial data) as well as from other stand-alone data management systems such DHR tools on surge capacity management. In Humanitarian PM, programme-related data must be outside VISION as this must feed into and be shared with national partners, NGO partners (with whom we have cooperation agreements), wider Cluster members and HCT From 2012 (after VISION is introduced), it is proposed that the current microsoft word SitRep template could be replaced with an electronic SitRep tool for greater ease and efficiency in reporting. This would draw from the country level electronic humanitarian partner reporting format (to be developed Q3/42011) as well as VISION, while allowing space for COs to add in written analysis as in the current template. The E-SitRep would handle production of internal and external versions of the report as well as allow storage of data (monthly time series) and would feed into aggregation of key data at global level. Key Assessment Questions for COs in humanitarian situations Do you have adequate monitoring systems to manage UNICEF humanitarian response taking into consideration the context, scale and scope of the response? o Do you know the rough levels of coverage being achieved in key programme activities with regular frequency? (If No consider prioritising a few key high frequency output indicators per sector selected from the Indicator Guide - and including them in UNICEF cooperation agreements using the PCA Monitoring and Reporting Addendum tool) o Do you have some form of systematic verification of the quality of implementation? (If No then consider using Field Monitors) o Do you have an overview of the financial, human resources and supply support to programmes and where the gaps are? (If No then consider using SitRep format within Humanitarian PM) o Do you know the status of cluster/sector coordination processes? (If No consider using Cluster-Sector Coordination Milestone Monitoring Tool) o Are you collaborating with other partners to get key outcome level data? What can UNICEF build upon and link up to; for example, monitoring systems that are in place or planned by national and international partners, cooperation agreement partners and wider Cluster partners? Who in the CO will be responsible for implementing, supporting and reporting on HPM? Are additional resources (human and financial) needed for UNICEF contribution to Humanitarian PM? o If yes can CO resources be reallocated 8

9 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 o Are additional Humanitarian PM resources included in any appeal documents (this is highly recommended). o Is HPM surge support needed See more under Accountabilities for CO Humanitarian Performance Monitoring Definitions Emergency; A situation that threatens the lives and well-being of a population and requires extraordinary action to ensure their survival, care and protection (UNICEF PPPM 2009, and CCCs as per CF/EXD/ , 2010) Complex Emergency: A humanitarian crisis in a country, region or society where there is total or considerable breakdown of authority resulting from internal or external conflict which requires an international response that goes beyond the mandate of any single agency/or the ongoing UN Country Programme (IASC 1994). Levels of Emergency Response 3 : Level 1: the scale of the emergency is such that a Country Office can respond using its own staff, funding, supplies, and other resources, and the usual RC/HQ support Level 2: the scale of the emergency is such that a Country Office needs additional support from other parts of the organization (HQ, RO, and COs) to respond and that the RO must provide leadership and support. Level 3:the scale of the emergency is such that an organization-wide mobilization is called for 3 Taken from Ex Dir CF/EXD/ : UNICEF s Corporate Emergency Activation Procedure 9

10 Humanitarian Performance Monitoring - Toolkit and Guide 01 June Guide to Strengthening Humanitarian Performance Monitoring Steps to Strengthen CO Humanitarian Performance Monitoring Q&A Guide on Using Tool Contents of this section Why is this important (what the Country Management Team should know) What does it take to do it 1. As preparedness actions; 2. Following a sudden onset emergency 4 3. During chronic humanitarian situation Why is this important (what the Country Management Team should know) This section is a quick reference guide to actions to strengthen CO Humanitarian Performance Monitoring (PM). It recognises that there are different contexts for implementing Humanitarian PM and will consider steps; as preparedness actions 5 ; following a sudden onset emergency, and during chronic humanitarian situations What does it take to do it 1. As Preparedness Actions The following actions should take place both as part of preparedness and immediately following the decision to implement Humanitarian Performance Monitoring. Accountabilities (Recommend decision by Deputy Rep) Decide who within the CO will be: The focal point / lead and who will be involved in CO Sudden Onset Response Planning (where a Response Plan is required) - recommend Dep Rep; Emergency Officer and CO Planning unit with someone from the monitoring section The focal point / lead for Humanitarian PM (recommend CO Monitoring unit but will depend on capacity of CO) The focal point for CO SitReps (recommend staff with link to CO Monitoring unit; Emergency Officer and Programme Sections) 4 Following a sudden onset emergency the priority for which steps to take would differ depending on when the decision to implement Humanitarian PM is taken; i.e. Immediately following the sudden onset trigger; 4 weeks after the sudden onset trigger; 8 weeks etc. At some point during a chronic emergency. The UNICEF staff leading for Humanitarian PM needs to adapt the steps and priorities to the CO priorities. 5 Preparedness actions currently outside the EW/A system 10

11 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Assessing Existing CO Monitoring mechanisms (Recommend CO Monitoring unit) Examples of questions: Is latest baseline information on population centralised and easily accessible If not recommend CO Monitoring unit collates Does baseline info provide data against age groups specified within the CCC commitments 6 - If not recommend map gaps and possible solutions for finding data High Frequency monitoring Can current CO monitoring mechanisms provide information on delivery of UNICEF supplies - If not recommend map gaps and possible solutions Can current CO monitoring mechanisms provide information on UNICEF interventions in terms of numbers of people reached? - - If not recommend map gaps and possible Where sector working groups / clusters are used can current CO monitoring mechanisms provide information on UNICEF progress in meeting sector/cluster lead agency accountabilities - If not recommend map gaps and possible solutions Do current CO monitoring mechanisms provide a structured process for Field Monitoring visits to UNICEF intervention sites, that includes a qualitative component and discussions with end-users. I.e. Use and usefulness of supplies; bottlenecks; unintended negative impacts (exclusions, Do No Harm ) - If not recommend map gaps and possible solutions Resourcing (Recommend decision/plan by Deputy Rep in coordination with monitoring section) Based on the gaps and solutions from the Assessment of existing CO monitoring mechanisms - What extra UNICEF monitoring and reporting human and financial resources would be needed to; o Implement higher frequency monitoring in a chronic humanitarian situation o Implement higher frequency monitoring during a Level 2 or Level 3 sudden onset emergency response First week 2. Following a Sudden Onset Emergency Actions as detailed in Preparedness Actions above Accountabilities Assessing Existing CO Monitoring mechanisms Resourcing In addition: Determine UNICEF role in Rapid Needs Assessments (Recommend Deputy Rep in coordination with CO monitoring unit) Accountability for Response coordination and overall information management lies with OCHA (in coordination with the national government) 6 See Target/Baseline calculator in Indicator Guide 11

12 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 At present draft OCHA guidelines 7 are seeking to agree the scope of the initial Rapid Needs Assessment (OCHA accountability) to one or two (depending on size of emergency) desk based, qualitative assessment guestimates of the response Needs to inform the Flash Appeal 8 and the revised Flash Appeal. Within the proposed MIRNA framework a Needs Assessment survey would be the responsibility of the country cluster/sector lead agency If this context immediate steps are required for the CO to secure the resources (both human and financial) to carry out a Needs Assessment survey Necessary resources should be included in the appeal. Additional dedicated surge staff would be required to lead the survey(s). An option to consider is contracting out the Needs Assessment survey work, e.g. to CDC (Centre for Disease Control) who can adapt questions to suit the sector and context. Agree SitRep Reporting format 9 (Recommend decision by Deputy Rep in coordination with Rep and Regional Office - REA) Decision to adopt revised SitRep format Task staff member with production of SitRep Support SitRep production through clear communication to Programme and Operational sections, at national, provincial and zonal levels (where applicable) SitRep reporting for weeks 1-4 will likely include programme supplies and inputs; and progress on key operational functions (resource mobilization, supply and HR) o At week 2-3 SitReps to begin to include progress on UNICEF cluster/sector lead coordination progress o After week 4 SitReps can begin to report progress from implementing partner reports (providing framework for Humanitarian PM has been established) Week 2-3: Establishing Humanitarian PM framework Align and strengthen UNICEF cooperation partner monitoring and reporting Priority low cost (Recommend CO Monitoring unit lead, supported by relevant Programme Sections) Prioritize Humanitarian PM (CCC) programme output indicators 10 that can realistically be monitored by implementing partners with the available resources (i.e. 2 or 3 per sector selected from the Indicator Guide). Validate with Programme sections (and ideally with potential UNICEF implementing partners as time allows. An ideal alternative is to share the UNICEF priority indicators in advance, noting that these are not the limit of the UNICEF planned interventions) Introduce the priority 2-3 indicators into relevant UNICEF cooperation agreements with partners 11, along with agreement that partners will report at a higher frequency (i.e. monthly following sudden onset; quarterly in chronic emergencies) 7 Multi-Cluster Initial Rapid Needs Assessment guidelines (MIRNA) draft 18April For Flash Appeal guidelines see 9 See SitRep format of Humanitarian PM toolkit 10 See Indicator Guide of Humanitarian PM toolkit 11 See PCA Monitoring and Reporting Addendum tool of Humanitarian PM toolkit 12

13 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Establish Field Monitoring Visits to UNICEF projects: 2 options medium cost (Recommend decision on option by Deputy Rep in coordination with monitoring section) A) UNICEF Programme staff visit programme sites to verify cooperation partner reports as well as discussions with end-users. I.e. Use and usefulness of supplies; bottlenecks; unintended negative impacts (exclusions, Do No Harm ); B) Where there are access issues or not enough UNICEF capacity for visits hire Field Monitors 12 (either through an organizational SSA or directly through SSAs with individuals) to carry out Field Monitor Visits on behalf of UNICEF Develop a Simplified IMEP and Results Framework low cost (recommend CO Monitoring unit) Within the first 2 weeks the CO is likely to produce a CO Sudden Onset Response plan 13 This is outside the scope of the Humanitarian PM toolkit and the format and guide is contained in the Emergency Response toolkit The Results Framework expands on the Sudden Onset Response plan and includes both high and low frequency indicators. Challenges and Solutions Preparedness / First Week Potential Challenges Possible Solutions Where Challenges not addressed Accountabilities for Humanitarian PM not clear Early decision (Dep Rep) on who should lead based on CO monitoring capacity CO Monitoring section says its Programme section responsibility - Programme sections don t have time/capacity/existing high frequency monitoring mechanisms. Humanitarian PM does not happen Poor quality SitRep adverse effect on resource mobilization. Assessing existing CO monitoring mechanisms does not happen / takes too long Assess as part of preparedness and during 1 st week after decision to implement Humanitarian PM Suitable / appropriate elements of existing CO monitoring not utilized for Humanitarian PM Resourcing Resourcing (human and financial) considered in appeal and in country plan Insufficient CO monitoring capacity Insufficient funds for Field monitoring visits (through 3 rd party organization) Poor quality SitRep adverse effect on resource mobilization. 12 See Field Monitoring Visits - Contracting and Managing Humanitarian PM toolkit 13 See Sudden Onset Response Plan Emergency Response Toolkit 13

14 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Potential Challenges Possible Solutions Where Challenges not addressed Sit Reps No-one to write Early decision (Dep Rep) on who should lead for report writing with sufficient capacity and links to monitoring, programmes and Emergency Officer Various staff write SitReps, lack of continuity in format and content. Poor quality SitRep adverse effect on resource mobilization. SitReps Format does not include programme performance tables Establish framework for Humanitarian PM Early decision (Dep Rep) to adopt SitRep version with programme performance tables CO unable to report beyond inputs and cluster/sector information where country cluster/sector lead agency. Mixing of UNICEF and cluster/sector progress. Poor quality SitRep adverse effect on resource mobilization. External criticism Week 2-3 Assess UNICEF progress in country cluster/sector coordination 14 where UNICEF country cluster/sector lead agency (Recommend led by CO Monitoring unit) After start of sector working groups / cluster: Can be carried out periodically through oneto-one interviews/discussion with UNICEF cluster/sector coordinator/focal point. Where sector working groups / clusters have been operational for some time : Utilise one of the more in depth cluster / sector coordination tools (e.g. Q-SAC developed by APSSC) Supporting Cluster/Sector performance monitoring where UNICEF country cluster/sector lead agency (Recommend led by programme section in coordination with Monitoring unit) The PCA Addendum tool of the Humanitarian PM toolkit supports cluster/sector performance monitoring through inclusion of the commitment to report: o In line with cluster-sector reporting frequency o To country Cluster/sector lead agencies o Using the OCHA 3W. Cluster/Sector performance monitoring can be further supported through the sharing of UNICEF priority programme performance indicators for use as a starting point for clusters/sectors in agreeing what to monitor. CO monitoring sections should support UNICEF cluster/sector coordinators / focal points to develop and agree realistic, appropriate and useful performance monitoring indicators. Week 4 onwards 14 See Cluster/Sector Coordination Milestone monitoring tool of Humanitarian PM toolkit 14

15 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 CO SitReps to begin to include programme performance progress tables incorporating information from UNICEF cooperation partner progress reports (NB. This will only be possible providing Humanitarian PM has been established particularly prioritising indicators and including them in PCAs) Week 12 or 16 (approximately) External CO progress report to include latest information on 2-3 prioritized indicators per sector with latest assessment results of status of UNICEF meeting cluster lead agency accountabilities. At week 26 or 52 (as appropriate) Outcome survey of programme results carried out on inter-agency basis 3. Chronic Humanitarian Situations The Humanitarian PM toolkit can be adapted to chronic humanitarian situations, however the variety of chronic situations means a higher level of adaption is required. Ongoing work includes adapting HAC planning, mid-year and end of year reporting requirements to reflect more standardized Humanitarian PM A different definition of high frequency is likely than in sudden onset responses (i.e. quarterly or twice yearly) Chronic humanitarian performance monitoring should try to build on existing planning and reporting mechanisms wherever possible. The following steps outlined above should also be considered for Humanitarian PM in chronic emergency contexts Agree SitRep Reporting format Align and strengthen UNICEF cooperation partner monitoring and reporting Standardise / Establish regular Field Monitoring Visits to UNICEF projects Assess UNICEF country Cluster/sector coordination progress Challenges and Solutions Chronic humanitarian situations * Please share Challenges and Solutions through the Humanitarian PM Community of Practice for inclusion in future drafts of the Humanitarian PM guide. 15

16 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Accountabilities for CO Humanitarian Performance Monitoring Q&A Guide on Using Tool Contents of this section Why is this important (what the Country Management Team should know) What does it take to do it Establishing Humanitarian PM Options to consider when applying Why is this important (what the Country Management Team should know) The clarification of CO accountabilities for establishing and leading for Humanitarian PM is essential. Without clear accountabilities Humanitarian PM will always be someone else s job and it will not happen. The following key decisions are required at the CO Deputy Rep / Senior Management level Tasking of Humanitarian PM within CO, including production of SitRep Reallocation of CO resources / including Humanitarian PM into appeals / proposals Request for additional Humanitarian PM surge support where necessary Endorsement of the revised SitRep format as a CO management tool to inform the response, document UNICEF CO progress and mobilize resources Senior CO management support is essential for Humanitarian PM to have any chance of successful implementation and providing progress results for UNICEF The following are recommendations 15 for CO Accountabilities, recognizing that a decision will based on a CO staff and monitoring capacities What does it take to do it Key Decisions and Actions Proposed CO Accountability Lead Supported by Senior Management Decisions Dep Rep Emergency Officer / Head of monitoring 15 Recommendations assumes that the CO has sufficient Monitoring capacity to lead for establishing Humanitarian PM otherwise additional Humanitarian PM capacity / surge support will be required 16

17 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Key Decisions and Actions Proposed CO Accountability Lead Supported by Tasking of Humanitarian PM within CO Reallocation of CO resources / including Humanitarian PM into appeals / proposals Dep Rep Emergency Officer / Head of Ops Endorsement of the revised SitRep format Rep / Dep Rep / Emergency Officer Emergency Officer Establishing Humanitarian PM Tasking of SitRep production Development of Simplified IMEP and Results Framework from: a) Response Plan; OR b) Existing Country Plan Prioritizing 2-3 indicators per sector for high frequency monitoring (i.e. monthly) Development of PCA Monitoring and Reporting Addendum Use of PCA Monitoring and Reporting Addendum Ensuring UNICEF PCA partners report frequently against priority indicators Dep Rep / Emergency Officer Monitoring Unit Monitoring Unit Monitoring Unit Programme Sections Programme Sections Emergency Officer 16 / Head of monitoring Programme Sections Programme Sections Dep Rep Dep Rep / SitRep Completion of regular Sit Reps Reports Officer 17 Dep Rep / All sections As required: Establishing Field Monitoring mechanisms: either a) 3 rd party monitoring organization or direct hire a) Monitoring Unit 16 Where a CO has an Emergency Unit / Specialist 17 Reports Officer may be part of Communications (external reporting), or the monitoring unit (donor reporting). It is recommended that CO clearly tasks SitRep production to staff with a strong operational link to both the monitoring unit and programme sections. 17

18 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Key Decisions and Actions Proposed CO Accountability Lead Supported by b) Sector specific monitoring agreements b) Programme Sections Monitoring Unit As required: Management / tasking of Field Monitors / 3 rd party monitoring organization Monitoring Unit Programme Sections Proposing UNICEF HPM priority programme indicators to relevant clusters/sector groups Completing high frequency assessment of UNICEF progress in meeting CLA accountabilities Programme Sections Monitoring Unit Monitoring Unit Cluster/Sector Coordinators / IMs Inputting / Designing and implementing outcome survey (through Inter-Agency) Monitoring Unit Cluster/Sector Coordinators Maintenance of Humanitarian PM Monitoring Unit Dep Rep 18

19 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Challenges Humanitarian PM is someone else s job Solution Clear tasking of roles from CO Senior Management Additional monitoring work for: a) CO b) Monitoring section c) Programme sections d) Implementing Partners a+b) Obtain extra monitoring capacity Humanitarian PM surge support c) Monitoring sections support Programme sections d) Priority indicators (2-3 / sector) for PCAs + Light reporting format for PCA partners share in advance Existing / regular ole of CO Monitoring section is not suited for higher frequency humanitarian monitoring SitRep is weak Obtain extra monitoring capacity Humanitarian PM surge roster through EMOPS CO monitoring section buy-in essential Dep Rep supports SitRep production SitRep is tasked to staff with sufficient capacity Humanitarian PM is established to produce monitoring outputs for SitRep * Please share Challenges and Solutions through the Humanitarian PM Community of Practice for inclusion in future drafts of the Humanitarian PM guide. 19

20 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Simplified Humanitarian Integrated Monitoring and Evaluation Plan (IMEP) and Results Framework Q&A Guide on Using Tool Contents Why is this important? (What the Country Management Team should know) What the User Should Know What does it take to do it? Simplified IMEP Template - tool Simplified IMEP Diagram Results Framework - tool Why is this important (What the Country Management Team should know)? The Humanitarian IMEP and Results Framework are intended for use following a sudden onset emergency or significant scaling up of humanitarian response with increase in CO resources requiring increased monitoring and evaluation activities in addition to those in the regular annual IMEP/Results Framework. Both the Simplified Humanitarian IMEP and the Results Framework are internal UNICEF planning documents. A simplified presentation of the IMEP is useful to explain to donors the measures UNICEF is taking for accountability and performance management and to manage expectations. See Simplified IMEP diagram for example. Both the Simplified Humanitarian IMEP and the Results Framework can be a reference for UNICEF advocacy at Inter-Agency level to (1) promote a coordinated cross-sectoral planning of major monitoring and evaluation activities and (2) promote agreement within clusters on 2-3 prioritized indicators for high frequency monitoring. The Simplified Humanitarian IMEP The purpose of the Simplified Humanitarian IMEP is to ensure that adequate resources are allocated to performance monitoring and evaluation of the humanitarian response. 18 Note that Appeal formats encourage M&E resources to be integrated in project sheets and not appearing as a separate line. The range of Humanitarian PM activities in the IMEP will depend on the country context, including level of resources available and the degree to which major monitoring activities take place at the Inter-Agency level and are therefore coordinated and led by OCHA. The CO needs to take strategic decisions on the UNICEF role in Needs Assessment as detailed in Steps to Strengthen CO Humanitarian PM. In ongoing humanitarian situations, the Humanitarian PM should be integrated in the annual IMEP. The Results Framework The Results Framework is the link between the Inter-Agency Appeal, the CO Sudden Onset Response Plan and the IMEP. It re-states the UNICEF-supported Expected Results (Outcome level) and maps out the indicators for high and low frequency performance monitoring against expected results. 18 The UNICEF Programme Policy and Procedures Manual advise that the older recommendation for monitoring and evaluation resource allocation of 2-5% of Country Programme expenditure for activities is too low. 20

21 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 Ideally the identification of priority. High frequency indicators will be in the Sudden Onset Response Plan. If this is not the case the Results Framework can clarify high frequency indicators. The critical issue for Humanitarian PM is that the Response Plan and/or Results Framework prioritise 2-3 high frequency Indicators per sector that UNICEF and Implementing partners can realistically track. These priority high frequency Output Indicators should be included in the UNICEF PCAs Monitoring and Reporting Addendum, SitReps, Humanitarian Progress reports and on to CO Annual Report and Appeal Reports The Results Framework also encourages identification of lower frequency Outcome Indicators that can be monitored through survey work. These can be further defined at a later stage in the response as necessary. What the user should know? The Simplified Humanitarian IMEP The IMEP Template should be adapted to include only those M&E activities that are appropriate and feasible to the humanitarian situation. Links to additional information on Needs Assessment and Humanitarian Evaluation are shown in the IMEP Template. The Results Framework The scope of the Results Framework, like the Sudden Onset Response plan, is focused on UNICEF-supported response with cooperation agreement partners (INGOs, NGOs, CSOs, government etc.). Reference to the Cluster/Sector Target is intended to help situate and distinguish overall coverage from UNICEF-supported coverage. The Results Framework does not serve as a framework for monitoring the Cluster/Sector response. The Expected Results in the Results Framework are drawn from the UNICEF Response Plan and should align with CCC programme commitments that are relevant to the country context. Where this formulation is weak or missing from the Response Plan, the Results Framework should clarify and ensure that results are measurable and have appropriate indicators that can be realistically monitored at higher frequency (i.e. monthly through implementing partner reporting and field visits) as well as lower frequency (i.e. bi-year or annual through an outcome survey). The priority Output Indicators (for high frequency monitoring) are mapped to the Expected Results (not Activities). This means fewer indicators. Potential Challenges Too many indicators, identified without consideration of practicalities / capacities / cost of data collection Solutions Indicators should be few and remain at a higher level If you have too many indicators it is likely results have been framed at too lower level - reframe Activity indicators are NOT necessary or helpful in the Results Framework though it is recognised that Programmes may need their own workplanning to the activity level 21

22 Humanitarian Performance Monitoring - Toolkit and Guide 01 June 2011 A selection of Output Indicators for high frequency monitoring, mapped onto CCC benchmarks, has been developed as part of the Humanitarian PM Toolkit - Indicator Guide Priority indicators should be validated with programme sections however care should be taken that the validation process does not mean an unrealistic increase in numbers of indicators, or a focus on indicators that will not yield information for an extended period. Basic information on the Target Affected Population (numbers, location) should be available from the Inter-Agency Needs Assessment, led by OCHA 19 or the equivalent National Government Disaster Management authorities. The Humanitarian PM Toolkit Sudden Onset Response Plan and Indicator Guide both include a Target Population Calculator to help determine concrete numbers for specific UNICEF and Implementing partner programme interventions. Potential Challenges UNICEF planning takes place before the Needs Assessment is finished Needs Assessment data is too weak to effectively plan Solutions It should be accepted within the CO Planning in and for a sudden onset response will never have the same level of accuracy, or have enough information as regular country planning processes. A limit should be set on CO planning to obtain a good enough plan to move forward with a proviso to revisit at a later stage (i.e. after 3months) UNICEF Targets will need to be revisited periodically based on projected funding of the response and any changes to the overall Response target UNICEF Targets are those that the CO and implementing partners can realistically achieve with its resources (assuming appeal is fully funded). o It can be calculated in real numbers or as an estimated % of coverage of the total Cluster/Sector response. o UNICEF targets are likely to require adjusting periodically as the evolution of the context and funding projections become more clear or change. Means of Verification for high Frequency Output Indicators will include: o Implementing partner (PCA) reporting (See PCA Monitoring and Reporting Addendum); o Field Monitoring visits; o Cluster/Sector Coordination milestone assessment tool. MoVs for Outcome level indicators will typically be measured through a survey, normally at the Inter-Agency level. What does it take to do it? CO capacity will often determine who is most appropriate to complete the Results Framework and this decision should be made by the Dep Rep/Rep/CMT. 19 The Flash Appeal is usually produced prior to the completion of the Needs Assessment based in pre-crisis data (DHS, MICS, SitAns etc. and best guestimates). The revised Appeal is usually issued after the Needs Assessment with updated numbers for affected populations (average 3 weeks after an emergency is declared) 22

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