1.
This background paper, which was developed using the United Nations Relief and Works Agency for
Palestine refugees in the Near East (UNRWA) evaluation methodology, provides a background on scope, objectives, and methodology for the evaluation of UNRWA’s Resource Mobilization Strategy 2012-2015, based on document review of relevant documentation, discussions with key stakeholders, and analysis of this information.
2.
The scope and objectives of the evaluation were developed by the Evaluation Division and the External
Relations and Communications Department (ERCD) based on a review of background documentation and initial discussions with some of the key stakeholders on their views of the scope and objectives of the evaluation. The evaluation of the Resource Mobilization Strategy will facilitate an objective assessment of the overall results against the planned achievement, including the design of the Resource Mobilization Strategy's logical framework and its implementation and execution. .
3.
This evaluation is being undertaken in accordance with the Resource Mobilisation Strategy document, which called for an evaluation at the end of the strategy.
4.
Following the 1948 Arab-Israeli conflict, UNRWA was established by UNGA Resolution 302 (IV) of 8
December1949 to carry out direct relief and works programmes for Palestine refugees. The Agency began operations on 1 May 1950. In the absence of a solution to the Palestine refugee problem, UNRWA’s mandate is to provide vital services for the wellbeing, human development and protection of the Palestinian refugees.
UNRWA is furthermore required to make progress in addressing the needs and rights of children, women and persons with disabilities in its operations in accordance with the relevant human rights conventions.
5.
The Advisory Commission (AdCom) recommendation to the Commissioner-General dated 22June 2011, suggests UNRWA to continue delivering its programmes and services to Palestine refugees in its fields of operations, in accordance with the mandate of UNRWA (General Assembly resolution 302, IV). The AdCom document included a recommendation to support a strategic approach to external relations and communications and encouraged UNRWA to deliver by the November 2011 session the resource mobilization strategy, along the lines presented to the Sub-Committee. Accordingly, UNRWA was encouraged to:

Engage AdCom members in a constructive dialogue, on how to secure long-term contributions from emerging private and public donors. The resulting plan should be a sub-section of the resource mobilization strategy and should clearly spell out targets and methodologies to support the jointactions of traditional donors, hosts and UNRWA;

Strengthen internal skills in order to increase UNRWA’s visibility and further improve donor-market intelligence and communications;

Continue to expand and strengthen partnerships with NGOs, other UN Agencies, private sector and government entities with the objective of maximizing the value of UNRWA interventions in support of refugees in line with its mandate.
1
6.
In 2011, UNRWA renewed its commitment to develop its resource mobilisation capacity in a number of key areas to ensure uniformity executing the Recourse Mobilization Strategy:

Merging the department of external relations with the HQ public information office to create the
External Relations and Communications Department (ERCD).

Developing a Partnership Strategy and establishing a Partnerships Division within ERCD;
1 Advisory Commission Recommendations to the Commissioner-General document (2011)


Establishing a new representative office in Washington; and

Strengthening the existing representative office in Brussels
7.
ERCD analysed the challenges for UNRWA in meeting funding requirements for its core budget; the
General Fund. More than 95 percent of contributions came from a small group of traditional donors. As a result of the economic crisis, many donors faced financial constraints which lead to reduced contributions to
UNRWA. At the same time demand for UNRWA services grew, corresponding to the steady increase of
UNRWA beneficiaries, with 4.9 million refugees registered in 2011.
8.
Following the June 2011 AdCom recommendations and the internal analysis ERCD identified the need to improve resource mobilization efforts and re-structure ERCD. UNRWA's ERCD believed it needed to build its capacity in innovative areas of fundraising to strategically respond to the urgent humanitarian needs of the
Palestine refugee community. With this capacity and strategic approach ERCD aims to overcome the Agency’s funding deficit that has put severe constraints on management responses over the past years.
9.
The Resource Mobilisation Strategy 2012-2015 aims to address these challenges. It details the opportunities, risks, assumptions, and perceptions for the Agency. The Agency's Resource Mobilisation
Strategy was developed in order to maximise the resources available to the Agency by fully utilising the opportunities arising from a variety of donor instruments and bilateral budget lines in all fields of operations.
10.
The Resource Mobilization Strategy aims to stabilize the predictable revenue for UNRWA. To achieve that goal, it aims to make resource mobilization more efficient and effective. To be more efficient and effective the Resource Mobilization Strategy delineates three key outcomes to be achieved: (a) strengthened traditional donor partnerships, (b) diversified donor-base and (c) an enabling environment is established supporting donor-relationship management.
11.
Strengthening the partnership with traditional donors is expected to be achieved by: (a) institutionalizing the relationship with concrete processes, and (b) by more systematic communication with traditional donors.
12.
To increase funding the Resource Mobilization Strategy indicates complementary sources of funding through a diversification of the donor base. This is not expected to reduce the burden placed on traditional donors to provide the majority of UNRWA’s funding, but will steadily decrease their share. To achieve this the
Resource Mobilization Strategy aims to: (a) build relationships with Emerging Markets; (b) improve relationships with non-traditional donors; consolidate relationship with Arab partners; and (d) establish functional private-sector fundraising.
13.
To support the achievement of deepened relationships with traditional donors and a diversified donor base the Resource Mobilization Strategy highlights the mechanism for improving the internal environment by
(a) corporate alignment in resource mobilization; (b) institutionalize project control and management, and (c) harmonize the communication structures and systems.
14.
Annex one contains the full logframe of the Resource Mobilization Strategy for reference.

Output 1: Institutional relationships with donors improved
Output 2: Systematic communications with traditional donors established
Immediate outcome1:
Deepen relationship with traditional donors
Output 3: Developed relationships with Emerging
Markets
Output 4: Improved relationship with Non
Traditional Donors
Output 5: Consolidated relationship with Arab partners
Output 6: Established functional private sector fundraising
Immediate outcome2:
Diversified sources and donors-base contributing increasingly to resource needs
Intermediate outcome:
Effective and efficient resource mobilization
Impact: Stable predictable revenue ( sufficient to implement UNRWA programme and support operations benefiting Palestine
Refugees
Output 7: corporate alignment in resource mobilization
Output 8: Institutionalized project control and management
Output 9: Communication structures and system harmonized
Figure (1): Resource Mobilization Theory of Change
Immediate outcome3: enabling environment established to support donor relationship management
15.
There are no previous evaluations, assessment or studies undertaken on the Resource Mobilization
Strategy 2012 – 2015. However, during the evaluation of the Medium Term Strategy in 2013, the results of evaluation showed that “the external funding structures are relevant to the MTS in at least two ways: aligning funding cycles to those of major donors and in how the general fund, emergency appeals, and project funding are positioned to support the MTS’s strategic objectives 2 ”.
16.
The Resource Mobilization Strategy evaluation will determine as systematically and objectively as possible the relevance, efficiency, effectiveness, impact and sustainability of the Resource Mobilization
Strategy. The evaluation will contribute to better accountability of the funds spent on implementation of the
Resource Mobilization Strategy in relation to results. The evaluation will provide advice to the ERCD that can
2 Medium term strategy mid-term evaluation (2013)

serve as an input for the next Resource Mobilization Strategy and help to align this next strategy with the upcoming Medium Term Strategy 2016 - 2021. Moreover the evaluation will review lessons learned from strategy implementation.
17.
The stakeholders in the evaluation are ERCD, the Executive Office, Finance Department, Planning
Department, field offices, UNRWA programmes, UNRWA donors, UNRWA hosts, the Advisory Commission.
18.
The evaluation will cover all fields of UNRWA operations if accessible and look at all aspects of the
RSM including stages of development. It will cover all evaluation domains:

Relevance describes the extent to which the objectives of an intervention are consistent with UNRWA needs, global priorities and partners’ and donors’ priorities.
3

Efficiency is a measure of how economically resources and inputs are converted to results.
4 True efficiency occurs when the proposed results are desired results are achieved using the least costly resources.

Effectiveness relates to the extent to which the intervention has achieved (or is likely to achieve) its objectives, taking into account the perspectives of its beneficiaries. It assesses the contribution made
(or expected to be made) to the objectives.

Impact assesses positive and negative, primary and secondary long-term effects produced by an intervention directly or indirectly, intended or unintended.
5

Sustainability is seen as the continuation of benefits from a development intervention after major development assistance has been completed and funding has been withdrawn.
19.
This evaluation is focussing on the predictable revenue / income side. It may touch lightly on the implications for planning in the Agency but not cover impact to beneficiaries.
20.
The background paper was developed by the evaluation division and ERCD. The evaluation will be guided by a steering committee composed of internal and external stakeholders. This background paper is an input to the steering committee, which will approve the scope and objectives of the evaluation. A modified version of this paper may therefore be produced as part of that process.
21.
The evaluation will be conducted by a team of consultants with DIOS managing the process and providing quality assurance. Information collected for the evaluation will be triangulated. The information collection methods will include, but are not limited to: literature review of best practices in strategy implementation, primary data collection and analysis by the evaluation team, secondary data analysis; and analysis of time series of financial data.
22.
A key data are available and a theory of change was included in the strategy document.
23.
This evaluation will focus on the relevance of Resource Mobilisation Strategy towards predictable revenue of UNRWA. Suggested evaluation questions include:
3 http://www.oecd.org/development/peer-reviews/2754804.pdf
4 http://www.oecd.org/development/peer-reviews/2754804.pdf
5 http://www.oecd.org/development/peer-reviews/2754804.pdf


Is the Resource Mobilisation Strategy in line with the UNRWA strategic framework (Medium Term
Strategy, Sector Strategies, and Emergency Appeals) as stated in the documentation and as perceived by internal and external stakeholders?

What is an appropriate duration of a Resource Mobilization Strategy, given the changing socio political context, the conflicts in several of UNRWA fields and the need to align with the MTS?

Did the design and the implementation of the RMS cover all funding portals?

Is the support structure (Representative Offices, reorganized ERCD Staffing etc.) consistent with direction of the strategy and appropriate for the implementation of the strategy?

Were recommendations, lessons learned and best practices from previous strategies considered when planning the Resource Mobilization Strategy?

To what extend do internal and external stakeholders perceive ownership of the resource mobilization strategy?

To what extent was the Resource Mobilization Strategy designed to monitor progress and to ensure evaluability?
24.
The Resource Mobilisation Strategy is evaluated as efficient if it uses resources appropriately and produces the desired outputs. The evaluation will assess the processes to implement Resource Mobilisation
Strategy. Suggested evaluation questions include:

Where activities undertaken considering cost and austerity measures?

Were the most cost effective methods selected for implementation?

Did the ERCD structure and the implementation modalities adequately support the implementation of the Resource Mobilization Strategy?
25.
It will aim to identify what elements of the Resource Mobilisation Strategy project were achieved. The suggested questions that will be used to assess the effectiveness include:

To what extent has the Resource Mobilisation Strategy achieved the planned results as mentioned in the logframe?

Has the Resource Mobilization Strategy budget been allocated and spent as planned?

What are the key elements of the Resource Mobilisation Strategy which had effectively supported
UNRWA's programmes?

Were the support structures to the Resource Mobilization Strategy adequate to support the achievement of the results of the Resource Mobilization Strategy?

How do the practices that emerged from the Resource Mobilization Strategy relate to good practice on networking and collaboration used by other organizations?

To what extent has the Resource Mobilisation Strategy contributed to UNRWA’s donor visibility?

Does UNRWA dedicate adequate financial resources to resource mobilization?
26.
Impact measures the contribution of the Resource Mobilization Strategy towards additional UNRWA revenue. Suggested evaluation questions include:

To what extent does the Resource Mobilisation Strategy contribute to (a) providing additional predictable GF income, (b) sufficient emergency funding, and (c) an appropriate level of project funding for UNRWA?


Are there any significant un-intended effects (positive or negative) not mentioned in the Resource
Mobilization Strategy document?

What were the most important achievements of the Resource Mobilization Strategy implementation?

To what extend have external factors been influencing the impact of the planned results of the
Resource Mobilization Strategy?
27.
Sustainability measures the extent to which the benefits of Resource Mobilisation Strategy will continue in the long term. Suggested Evaluation questions include:

To what extent is UNRWA expected to be able to sustain the increases in income?

Is UNRWA able to sustain the organizational and management structure required for the implementation of future Resource Mobilization Strategies?

How likely are linkages / relationships with donors maintained?
28.
The process of the evaluation will take approximately eight months with the key steps being:

August 2014: Establishment of the steering committee

October 2014: Finalization of the background paper of the evaluation clearly describing the background, objectives, scope and approach of the evaluation. First Steering Committee meeting

November 2014-December 2015: Identification of a suitable consulting company/consultant

January 2015: Inception report

January- February 2015: Field work

March 2015: Draft report and presentation of preliminary findings

April 2015: Final report

April 2015: Final report being disseminated
29.
It is worth noting that the above timeline is contingent upon the success of the recruitment process and the ability to mobilize the selected company / individuals immediately.
30.
The results will be shared with Sub-committee and AdCom. The evaluation results will be public (to be available on UNRWA’s website) and form the subject of specific sessions by both the SubCom and the June
AdCom.

intervention logic goal (impact): stable, predictable revenue sufficient to implement
UNRWA programme and support operations benefiting Palestine refugees intermediate outcome: effective and efficient resource mobilisation provides requisite funding
Indicators
-Percent of general fund income pledged by 2nd quarter;
-Percent of emergency appeal income pledged by 2nd quarter;
-Share of traditional donor in general fund income drop from
89 percent to 84 percent;
-UNRWA Emergency Appeal contribution level sources of verification assumptions immediate outcome 1:
Traditional donor partnerships strengthened
-Traditional donors cover 60 percent of general fund increase;
-Number of signed general fund multi-year framework agreements increase by 100 percent;
-Income from general fund multi-year framework agreements increases by 25 percent
-Financial management system ERCD annual resource mobilisation report
-Commissionergeneral’s report to the general assembly
-Stable or declining global environment of natural and man- made disasters/ global political environment permits Palestine refugee issue to maintain its level of priority.
-Growth in global economy and in overall official development assistance policy of traditional donor governments as per strategy.
-Stable political and security environment in host countries
-Agency capacities and competencies are sufficient to implement strategy
-Palestine refugee needs output1: Institutional relationships with donors improved
-Number of multi-year framework agreements increase by 25 percent
-Income from multi-year agreements increases by 25 percent
-ERCD annual resource mobilization report.
-UNRWA donor harmonized reporting framework.
-quarterly donor enewsletter adequately met by existing
UNRWA services.
-Donors agree and commit to
Resource Mobilization Strategy in line with the Paris declaration and Accra accords output2: Systematic communications with traditional donors established
Activities
-Publication of bi-weekly donor newsletter;
Broaden UNRWA networks with constituencies in traditional donor countries

UNRWA outreach in capitals with key decision-makers and political constituencies
 proactive marketing (locally and in capitals) of thematic field visits
Build deeper understanding of identity and priorities of key decision-makers
 annual political and financial risk/opportunity assessments to update country-plans
Seek multi-year agreements with all traditional donors
Set multi-year mutual expectations for traditional donors with no multi-year agreements
Undertake joint exploration with traditional donors towards establishing new donor relationships
Reinvigorate multi-lateral fora (AdCom) immediate outcome2: -Diversified sources cover 40
Diversified donor-base contributing increasingly to resource needs percent of general fund increase;
-Overall general fund contribution from diversified sources goes from 11 percent in
2011 to 16 percent in 2015 output3: Developed relationships with emerging market
-Emerging market share of general fund income increases from 0.3 percent to one percent
-Adequate capacity in partnership division
-ERCD annual resource mobilisation report
-Financial management system output4: Improved relationships with nontraditional donor output5: Consolidated relationship with Arab
-Non-traditional donor share of general fund income increases from 3 percent to four percent
-Arab share of general fund income increases from three

partners output6: Established functional private-sector percent to four percent
-Overall income from private sources increases from 0.2 percent to two percent fundraising
Activities
Establish systematic communications from UNRWA toward diversified donor-base

Emerging markets
Develop targeted work-plans for prioritized Emerging Markets opportunities

Outreach to and engagement with embassies and rep offices (Jerusalem, Amman, Tel Aviv, New York, Brussels,
Geneva)

Emerging Markets familiarisation with UNRWA fields of operations (field visits with local reps and officials from capitals)

UNRWA outreach in capitals with key decision-makers and political constituencies
Non-traditional donors (traditional donor) – includes some highly-developed donors (newer to UNRWA) and others

Develop targeted work plans for newer EU members (‘EU12’)

Prepare marketing and communications tools tailored to individual EU12 markets (including translation into local language)

Expand UNRWA networks with constituencies in key traditional donor countries

Mapping and nurturing of external support network (think tanks, local NGOs, lobby groups in Brussels)

UNRWA outreach in capitals and in Brussels with key decision-makers and political constituencies
Arab partners

Develop targeted work-plan for Arab partners that supports existing government and institutional relationships
Private sources

Pilot outsourced fundraising in Europe and replicate if successful

Extend national committees concept to new countries

Enhance online donations through improved communications design and upgraded technology

Improve definition and management of collaborative partnerships immediate outcome3:
Enabling environment established to support donor relationship management output7: Corporate alignment in resource mobilisation
-Percent of projects, monitored in the new aggregate project reporting template, that are submitted in a timely manner
-Agreed corporate resource mobilization work- plans
-Advisory Committee on
Resource Allocation sets framework for resource mobilization priorities
-Financial management system annual work plans (resource mobilization and communication)
-ERCD annual resource mobilization report results-based monitoring system
-Adequate capacity in ERCD, finance, PCSU and fields
-Programme and Project Cycle
Management is used and adhered with for ERCD-led, non-general fund resourced initiatives
-Sufficient capacity and competencies of project monitoring and reporting stakeholders
Establishment of aggregate project reporting in results based monitoring system
-Sufficient data in information systems systematically available to stakeholders output8: Institutionalisation of Programme and Project
Cycle Management
-Common framework in place to monitor and report (i.e., results based monitoring -based aggregate project monitoring)
-Annual communications work ouput9: Communication structures and systems harmonized plan
-Media articles in support of donor visibility;
-Application of agency branding guidelines;
Activities
ERCD participate in annual envelope discussions to set down resource mobilization priorities and annual resource mobilization work plans

ERCD to organise quarterly follow-up meetings
Increasing capacity programme and project cycle management implementation and support
 aggregate project reporting tem plate created as part of the results based monitoring system
Develop communication tools for different audiences
 develop proposals linking field and programme activities to economic, stability, developmental and humanitarian

results
Actioning donor visibility concerns
 creation of donor-visibility cycle
ERCD to organise annual cross-agency workshop to set down an annual communications work plan
Create convincing investment products illustrating social returns
Roll out branding guidelines and conduct trainings for key staff in fields and programmes