FY2023 MOFA ODA Evaluation Results
Evaluation of Japan’s ODA to Forcibly Displaced Persons and Host Countries
| Chief Evaluator | OHNO Izumi Professor, National Graduate Institute for Policy Studies |
| Advisor | OHASHI Masaaki Professor Emeritus, Keisen University |
| Consultant | International Development Center of Japan Inc. |
| Evaluation Period | FY2015 - FY2022 |
| Period of the Evaluation Study | June 2023 - February 2024 |
| Field Survey Country | Uganda, Bangladesh |
Background, Objectives, and Scope of the Evaluation
Japan’s assistance to forcibly displaced persons and host countries has been provided based on the “Humanitarian Aid Policy of Japan” formulated in July 2011, and with the perspective of “Humanitarian-Development-Peace Nexus (HDP nexus),” which was not specified at the time the policy was formulated. Japan’s refugee assistance policies are also illustrated in its speeches and announcements at relevant international conferences. This evaluation aims to evaluate Japan’s ODA policies and implementation in regard to refugee supports (including for internally displaced persons (IDPs) and host countries), and produce recommendations to improve the planning and implementation of future assistance in this area.
Summary of Evaluation Results
● Development Viewpoints
(1) Relevance of Policies
Japan’s refugee-related assistance policy has been generally consistent with its high-level policy (as outlined by the former Development Cooperation Charter (2015)), needs on the ground, and international priorities such as the Sustainable Development Goals (SDGs) and the Global Compact on Refugees (GCR). In cases where there are restrictions on refugee assistance in the policies of host countries, there seem to be some consistency issues with Japan’s policy. However, even in such cases, Japan has implemented the policy pragmatically, and in a way acceptable to partner countries. Furthermore, the policy reflects Japan’s comparative advantages, such as the utilization of diverse cooperation modalities through international organizations, JICA, and NGOs, as well as human resource development and capacity building.
(Evaluation Result: Satisfactory)
(2) Effectiveness of Results
Japan has fulfilled its commitment by making the primary inputs expressed at international conferences during the evaluation period. While showing a certain presence internationally in terms of both the volume and timing of inputs, Japan has also generally achieved outputs in individual projects, and has collectively contributed to ensuring the lives, dignity, safety, and self-reliance of refugees and displaced persons, as well as stabilizing the host communities and the society they have returned to. However, the contribution of the international community as a whole is still insufficient to address the growing refugee crisis. It is required to support the “P (Peace)” of the HDP nexus, such as addressing the causes of refugee outbreaks and supporting their return. Political and diplomatic intervention is also necessary in this regard.
(Evaluation Result: Satisfactory)
(3) Appropriateness of Processes
The policy formulation and implementation processes were generally appropriate. There is a structure to effectively understand local needs and ensure timely assistance based on the coordination mechanisms with other donors. Moreover, Japan’s diverse aid modalities have been a facilitating factor for implementing the HDP nexus, and efforts have been made to collaborate with various actors. However, some issues were identified. In MOFA, the responsibilities for schemes are spread across numerous divisions, and no coordination forum has been established for sufficient consultation with a view on overall refugee assistance in the country concerned. The projects through JICA and NGOs, and humanitarian assistance through international organizations are formulated separately. The assistance through supplementary budget contributions to international organizations — often utilized in refugee assistance — cannot fulfill the HDP nexus alone due to the short implementation period. The monitoring and disclosure of information on international organization projects are insufficient.
(Rating: Partially Satisfactory)
*Ratings: Highly Satisfactory; Satisfactory; Partially Satisfactory; Unsatisfactory
● Diplomatic Viewpoints
(1) Diplomatic Importance
While burden sharing is emphasized internationally, it is important for Japan to fulfill this responsibility as a member of the international community to enhance its diplomatic presence. Moreover, the support for refugees contributes to regional stability around the partner countries, and the stability in Asia, the Middle East, and Africa will contribute to Japan’s foreign policy of promoting a “Free and Open Indo-Pacific” (FOIP). This will lead to a stable energy supply for Japan and the protection of investment by Japanese companies.
(2) Diplomatic Impact
In this evaluation, stakeholders in all of the field survey sites expressed appreciation for Japan’s support. In the questionnaire survey of Japan’s diplomatic missions, 15 of 21 respondents provided specific responses and examples regarding the effects of “increased Japanese presence and understanding/support for Japan’s position” and “ripple effects, such as increased positive perception of Japan, impact on peace, security and prosperity of Japan, and economic development.” For example, in 2021, the Ugandan Parliament passed a resolution expressing gratitude for Japan’s cooperation over the years, including refugee-related assistance. In Ethiopia, Japan’s contribution to refugee assistance led to the establishment of personal connections between the Embassy of Japan and the governor of the target region, which in turn led to favorable support from government officials when a Japanese company expanded its business in the area.
Recommendations Based on Evaluation Results
Refugee-related assistance enters a new phase; the HDP nexus and contributions utilizing Japan’s characteristics should be further strengthened
Refugee-related assistance has entered a new phase. While the international community’s responsibility to support forcibly displaced persons continues to expand with increasing global humanitarian needs and the prolonged refugee situations, humanitarian funds allocated to individual refugee crises are decreasing. Japan should work to strengthen the HDP nexus, taking advantage of Japan’s strengths, such as diverse schemes and development assistance know-how.
(1) Clarifying the HDP nexus for Japan and providing more strategic support
To put the HDP nexus into practice, it is necessary to clarify what the HDP nexus should aim for, select cooperation modalities, and formulate support content with the aim in mind. Therefore, when the Humanitarian Aid Policy of Japan is revised in the future, the phrase “smooth transition” should be updated or supplemented, and the term “HDP nexus” and what kind of assistance it refers to should be clearly stated. Similarly, Japan’s cooperation with individual countries should be more specific and strategic. In doing so, it is important to reflect refugee-related assistance to Rolling Plans and Country Development Cooperation Policies, to adopt contributions to international organizations through supplementary budget for projects in line with the HDP nexus, to link emergency assistance to longer-term schemes, and to support “P (peace)” in refugee generating countries.
(2) Collaboration among diverse actors to strengthen the HDP nexus, and the development of a structure for such collaboration
To promote a strategic HDP nexus, MOFA, Japan’s diplomatic missions, and JICA should establish a structure to consider support strategies jointly, based on the full picture of refugee assistance and exchange information both in Tokyo and in the field. Particularly at the field level, it is appropriate to assign personnel in charge of refugee support to promote the coordination between multilateral and bilateral aid and the partnership with NGOs.
(3) Timely and flexible operations of cooperation modalities
For humanitarian and development assistance schemes, it is appropriate to consider measures such as the establishment of funds to enable speedy contributions, flexible extensions and changes in project contents, and provision of additional budget for JICA’s existing projects to support refugees.
(4) Emphasis on livelihood support
The reduction of humanitarian funding and food aid is a pressing issue for many refugee operations. Japan should make use of its many years of experience in development cooperation in the agricultural sector and vocational training to contribute to improving the livelihoods and self-reliance of refugees. In doing so, it is necessary to give due consideration to the needs of those particularly vulnerable, instead of treating all refugees the same.
(5) Visualizing and publicizing Japan’s refugee assistance, especially assistance through international organizations
To promote public understanding of ODA’s support for refugees and to attract private funds, it is necessary to publicize the overall picture of Japan’s efforts, including the support provided through international organizations and their relationship with other Japanese cooperation efforts in an easy-to-understand manner.
(6) Human resource development, appointment, and deployment related to refugee assistance and HDP nexus
Japan should support the building of career paths for personnel with experience in JICA Overseas Cooperation Volunteers (JOCVs), international organizations, NGOs, and so forth, and appoint them to official positions in charge of refugee assistance. Furthermore, Japanese embassies and JICA should encourage the promotion and career development of talented local human resources nurtured through Japanese ODA projects.
(7) Continuing and strengthening refugee admissions in Japan
Refugee admission in Japan should be continued and strengthened through methods possible within the current system, such as third country resettlement and the expansion of the JICA’s program to accept refugee students, which is considered good practice. At the same time, MOFA should also continue to examine how accepting refugees in Japan should be with the other ministries/parties concerned.
Women’s Development Center established with Japan’s support through an NGO. Refugee and host community women together undergo training in hairdressing (Uganda).