USAID LOCAL EFFECTIVE GOVERNANCE ACTIVITY
ANNUAL REPORT July 18, 2018 – September 30, 2019
CONTRACT NO. 7201678C00001
SUBMISSION OCTOBER 30, 2019 REVISED SUBMISSION JANUARY 3, 2020 APPROVED JANUARY 28, 2020
This publication is made possible by the support of the American people through the United States Agency for International Development (USAID). The contents of this publication are the sole responsibility of the International City/County Management Association and do not necessarily reflect the views of USAID or the United States Government. USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
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USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
USAID Local Effective Governance Activity
ANNUAL REPORT – YEAR 1 (JULY 18, 2018 – SEPTEMBER 30, 2019)
CONTRACT NO. 7201678C00001
Program Title: USAID Local Effective Governance Activity
Sponsoring USAID Office: USAID/Kosovo
Contract Number: 72016718C00001
Contractor: International City/County Management Association
Date of Publication: October 30th, 2019 Date of Re-submission: January 3rd, 2020 Approved: January 28th, 2020
The author’s views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
ACRONYMS AKM Association of Kosovo Municipalities AKT Advancing Kosovo Together AWP Annual Work Plan CLA Collaborating, Learning and Adapting CSC Citizen Service Center CSO Civil Society Organizations CYAC Central Youth Action Council DRC Danish Refugee Council GEAP Gender Equality Action Plans GRB Gender Responsive Budgeting ICMA International City/County Management Association IMAWP Integrated Municipal Annual Work Plan ICA Inter-Municipal Cooperation Agreement IWG Informal Women’s Group LED Local Economic Development LEGA Local Effective Governance Activity LEPY Law on Empowerment and Participation of Youth LG Local Governments LLSG Law on Local Self-Governance LYAC Local Youth Action Council MA Municipal Assembly MACC Municipal Assembly Communities Committee MAPT Municipal Action Plan for Transparency MCR Ministry for Communities and Returns MELP Monitoring, Evaluation and Learning Plan MLGA Ministry of Local Government and Administration MOCR Municipal Officer for Communities and Return MOF Ministry of Finance MPA Ministry of Public Administration NDI National Democratic Institute NGO Non-Governmental Organization NSMM Northern Serb Majority Municipalities MACC Municipal Assembly of Communities Committee OJT On-the-Job Training OLC Office of the Language Commissioner PG Performance Grants PIO Public Information Office or Officer PYD Positive Youth Development RMA Regional Municipal Advisers SDC Swiss Agency for Development and Cooperation (DEMOS)
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
SMM Serb Majority Municipalities SIAP Service Improvement Action Plan TEAM Transparent Effective and Accountable Municipalities project UNMIK United Nations Mission in Kosovo USAID United States Agency for International Development VC Village Councils
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
TABLE OF CONTENTS
ACRONYMS 3 1. EXECUTIVE SUMMARY 6 2. PROGRAM BACKGROUND 8 3. YEAR 1 CHALLENGES AND MITIGATION MEASURES 10 4. ACTIVITY MANAGEMENT AND ACHIEVEMENTS 12 1.1 Strengthen local municipal governments and administration to improve service provision to both majority and non-majority communities. 12 1.2 Improving the ability of municipalities to articulate their municipal needs to the central-level government 17 1.3 Strengthen municipal transparency and outreach to all citizens 18 1.4 Strengthen the central-level capacities in outreach and governance to better support municipalities in addressing needs of the non-majority communities and improve municipal service delivery 25 1.5 Facilitate linkages between municipalities 30 2.1 Increase interaction between majority and non-majority communities in joint priority setting 33 2.2 Empower all communities to engage with the municipalities and hold them more accountable. 35 5. COLLABORATING, LEARNING AND ADAPTING (CLA) 45 6. COMMUNICATION AND OUTREACH 50 7. ENVIRONMENTAL STATUS REPORT (ESR) 53 8. ANNEXES 54
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
1. EXECUTIVE SUMMARY The Annual Report follows the requirement of section F.7.g of the above referenced contract and describes the progress on all Local Effective Governance Activity (LEGA) initiatives during the period of July 18th, 2018 through September 30th, 2019 in relation to the approved Work Plan. The Activity’s overall purpose is to strengthen the operations and inclusiveness of municipal governance in municipalities with non-majority communities in Kosovo. LEGA’s approach is informed by a market systems framework that simultaneously addresses both the government’s obligations to engage citizens and citizens’ ability to participate. LEGA supports municipal governments to improve the inclusiveness, quality, timeliness, transparency, and equity of municipal services. At the same time, LEGA helps non- majority and majority populations together make use of local government representational structures and oversee executive actions. As citizens make use of local services and hold local governments more accountable, local governments will in turn respond to citizens more effectively and equitably, increasing the legitimacy of local governments in the eyes of all citizens. Despite numerous challenges, as explained below in Section 3, LEGA proudly presents below some of the key programmatic accomplishments: ● Provided technical assistance to Municipal Budgeting Working Groups to develop a comprehensive Action Plan for Transparent Budgeting Process for 2020 which was approved by Municipal Assemblies in Štrpce/Shtërpcë, Gračanica/Graçanicë, Parteš/Partesh, Novo Brdo/Novobërdë, Istog/Istok, Klokot/Kllokot and Dragash/Dragaš. ● A total of 12 budget hearings have been organized in non-majority communities across LEGA partner municipalities, resulting in the adoption by the Municipal Assembly of five requests submitted by non-majority community representatives. These requests reflect primarily non- majority community infrastructure priorities. Furthermore, LEGA assisted the municipality of Zvečan/Zveçan with outreach, resulting in 1,200 citizens receiving information regarding the budget process. ● LEGA also facilitated inclusion of women groups in budget hearings, including five budget hearings for women representatives, resulting in the adoption of six initiatives by municipal assemblies. ● LEGA supported Istog/Istok, Klinë/Klina, Gračanica/Graçanicë, Novo Brdo/Novobërdë, Obiliq/Obilić, Dragash/Dragaš, Štrpce/Shtërpcë and Ranilug/Ranillug to develop Municipal Action Plans for Transparency (MAPT) in compliance with the Administrative Instruction (MLGA) No. 04/2018 on Transparency in Municipalities. ● LEGA supported the municipalities of Istog/Istok, Klinë/Klina and Ranilug/Ranillug in amending the Regulation on Transparency according to the new Administrative Instruction. ● Two Youth Action Plans were fully updated and approved by their respective Municipalities (Novo Brdo/Novobërdë and Klokot/Kllokot). ● Five LYACs – Gračanica/Graçanicë, Parteš/Partesh, Zubin Potok, Klokot/Kllokot and Zvečan/Zveçan – have been completely restructured and an additional four – Novo Brdo/Novobërdë, Istog/Istok, Severna Mitrovica/Mitrovicë Veriore and Klinë/Klina – are in the process of becoming operational. Among new youth representatives in the LYACs this year, six are from non-majority populations. ● The Conference on Gender Equality Policies at the Local Level, held on May 22, 2019, gathered more than 50 local level and central stakeholders from the government, NGOs, and donor sectors to share experiences and best practices. One of the results of the conference was that key interventions on gender equality were identified that will ensure continued cooperation and coordination between central and local level stakeholders. Another result is that the recommendations that were generated will improve municipal regulations on gender equality and
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
further define the role of the Municipal Officer for Gender Equality (MOGE) as a catalyst to empower women in communities and bridge relationships between central and local governments. ● In March-April 2019, LEGA worked with MLGA to promote the opportunity for municipalities to apply for inter-municipal cooperation grants. An MLGA grant was ultimately issued to Istog/Istok and Klinë/Klina to clean up the Istog Riverbed. The implementation phase began in late September 20191. Over the course of Year 1, LEGA performed 124 activities throughout 14 partner municipalities and with the central government. A total of 1689 people participated in various meetings, on-the-job coaching, trainings, or facilitated municipal activities, out of which 44% were Kosovo-Serbs and 43% Kosovo- Albanians. LEGA maintained a focus on gender participation and managed to gain female interest and involvement in the key program activities. Out of 1689 total participants across LEGA initiatives, 49% are women. This was mainly achieved through, but not limited to, the establishment or re-establishment of Informal Women Groups and engagement of non-majority women representatives into the existing groups. A Memorandum of Understanding that states the principles, dimensions of cooperation, and LEGA’s intervention in each municipality was signed by all 14 mayors or their representatives on July 24th, 2019, in the presence of USAID Kosovo Mission Director and the Minister of Local Government Administration. The signed MoUs demonstrate the commitment of all 14 LEGA municipalities to advance LEGA’s objectives. LEGA was designed to distribute grants and subcontracts to support initiatives to build the capacity of local organizations and contribute to the sustainability of interventions. During Year 1, LEGA focused on the operationalization of Grants Under Contract by launching the first Request for Application (RFA) that aims to create local capacity for inter-ethnic cooperation. In addition, support funds are used to provide planned technical assistance to Kosovo stakeholders via sub-awards. LEGA prepared two initiatives to be funded through this mechanism, including a survey on Citizens Perception on Local Municipal Governance and improving Local Economic Development. While the Survey was already awarded to a local organization by the end of Year 1, the other one was awarded during the first month of Year 2. LEGA has continued to advance cooperation with the central government by maintaining regular contact with the Ministry of Local Government Administration and the Association of Kosovo Municipalities (AKM). As a result of the groundwork done by LEGA during the first year, the team has collaborated with the AKM to identify inter-governmental challenges and proposed solutions which will result in a capacity- building agenda agreed on by the Government of Kosovo. LEGA engaged in cooperation and coordination with other USAID and donor-funded projects in Year 1. Potential key areas of integrated municipal assistance have been discussed with USAID’s TEAM, READY, Up to Youth and Kosovo Economic Governance Activities. Additionally, SDC’s DEMOS has been consulted on the planning of several interventions in the field, such as Citizen Service Centers/e-kiosks.
1 LEGA has drafted a success story on the awarding of the grant to the municipalities but recognizes that the “final” success story can only be written once the clean-up has been completed.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
2. PROGRAM BACKGROUND The Local Effective Governance Activity is a five year, $12 million activity implemented by the International City/County Management Association (ICMA) in partnership with FHI360 and Crimson Capital, in 14 non- majority municipalities: Dragash/Dragaš, Gračanica/Graçanicë, Istog/Istok, Klinë/Klina, Klokot/Kllokot, Leposavić/Leposaviq, Novo Brdo/Novobërdë, Obiliq/Obilić, Parteš/Partesh, Ranilug/Ranilug, Severna Mitrovica/Mitrovicë Veriore, Štrpce/Shtërpcë, Zubin Potok, and Zvečan/Zveçan. LEGA works closely with central level government agencies, including the Ministry of Local Government and Administration (MLGA), the Ministry of Finance (MoF), the Ministry for Communities and Returns (MCR), and the Office of the Language Commissioner (OLC), as well as the Association of Kosovo Municipalities (AKM). LEGA was launched in the fall of 2018 with a rapid assessment of the 14 target municipalities to inform the FY2019 Annual Work Plan and Activity MEL Plan. Interventions under LEGA are designed to strengthen both Regional Clusters municipal capacity and citizen action through integrated implementation. Interventions represent three broad Obiliq/Obilić, Istog/Istok and modalities supported by targeted technical assistance: on-the- Klinë/Klina job training, mentoring and peer-to-peer exchanges; piloting Gračanica/Graçanicë, Novo and scaling local solutions; and CLA to support learning and Brdo/Novobërdë, and Severna adaptation across municipalities. Mitrovica/Mitrovica Veriore Two Objective Leads (OL) provide technical direction for design Klokot/Kllokot, Parteš/Partesh and and implementation of program strategy and activities, work Ranilug/Ranillug closely with central government agencies and the Association of Zvečan/Zveçan, Zubin Potok and Kosovo Municipalities (AKM), and provide oversight and Leposavić/Leposavić technical support to a team of five Regional Municipal Advisors Štrpce/Shtërpcë, Dragash/Dragaš (RMAs), who are assigned to clusters of two to three partner municipalities. The RMAs work directly with municipal staff and local communities on a daily basis to respond to local priorities and facilitate project interventions, including on-the-job, peer-to-peer exchanges, targeted technical services and grant resources and support for inter-municipal cooperation opportunities. The RMAs are responsible for monitoring progress and observing local dynamics; conducting CLA activities; and proposing adjustments to local strategies, project activities or approaches. The intensity and nature of assistance provided to each municipality will be tailored to the local context and priorities and be adapted over time as each municipality improves performance on service delivery and inclusion. LEGA contributes to the Mission’s Country Development Cooperation Strategy (CDCS) Development Objective 1(DO1): “Improved Rule of Law and Governance that Meet Citizen’s Needs,” including three Intermediate Results (IRs) and seven Sub-IRs: ● IR1.2: Strengthened Effectiveness and Accountability of Assemblies, Administrations, and Election Processes o Sub-IR 1.2.1 More responsive national and municipal administrations and assemblies ● IR1.3: Improved Integration of Ethnic Minorities o Sub-IR 1.3.1 Enhanced government capacity to address minority issues o Sub-IR 1.3.2 Increased active participation of minority populations o Sub-IR 1.3.3 Increased economic interaction between minority and majority communities ● IR1.4: Civil Society Strengthened to Increasingly Engage Constructively with Government. o Sub-IR 1.4.1 Increased civic awareness and ability of civil society to advocate and monitor o Sub-IR 1.4.2 Greater representation of women, youth and other vulnerable groups.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LEGA is designed to achieve its results by undertaking interventions that work towards two objectives and seven associated sub-objectives: Objective 1: Improved equitable, efficient, and transparent municipal governance which responds to citizens’ priorities with a focus on non-majority participation in democratic structures 1.1 Strengthen local municipal governments and administration to improve service provision to both majority and non-majority communities; 1.2 Improve the ability of municipalities to articulate their municipal needs to the central-level government; 1.3 Strengthen municipal transparency and outreach to all citizens; 1.4 Strengthen the central-level capacities in outreach and governance to better support municipalities in addressing needs of the non-majority communities and improve municipal service delivery; 1.5 Facilitate linkages between municipalities. Objective 2: Increased active citizen participation of both majority and non-majority communities in municipal structures 2.1 Increase interaction between majority and non-majority communities in joint priority setting; 2.2 Empower all communities to engage with the municipalities and hold them more accountable.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
3. YEAR 1 CHALLENGES AND MITIGATION MEASURES Over the course of Year 1, LEGA has encountered numerous challenges from various perspectives, including the protest of the contract award, operational and management challenges, and delays of deliverable approvals. However, the most visible challenges remain those associated with local government institutions’ inadequate performance and their poor relations with citizens. The governance crisis in Kosovo is directly linked to the durability of corruption, poverty, unemployment, inequality, lack of respect for human rights, and strained relations between ethnic communities. On top of this, the early municipal elections in NSMMs in the summer of 2019 and early general elections called unexpectedly in the fall of 2019 disrupted an already weak governance process, including unsatisfactory relationships between the central and local governments. In each case, as explained below, ICMA took decisive action to remedy problems. Programmatic Challenges All LEGA target municipalities share common challenges and opportunities that were assessed and addressed through tailored, locally designed strategies, as described in section 3. The most significant challenges remain as follows: ● Structural constraints. Kosovo is characterized by a number of structural constraints that, while out of the scope of LEGA, nevertheless must be taken into account in program implementation: inefficiencies resulting from the lack of participation of Serb populations in the 2011 Census, which provides the basis for calculating central-level grants to the municipalities; a fragmented policy, planning and implementation process at the national level; disparities in own source revenue (OSR) generation among the municipalities; and the sheer complexity of political, social and economic relationships, both vertically and horizontally. LEGA has been working under both its components with the main local and national stakeholders to address some of these issues. ● Oversight of budget execution. The annual municipal financial audits conducted by the National Audit Office still found discrepancies between municipalities’ budget commitments and actual amounts spent. This failure to execute budgets has led to significant carryover of funds. Using various citizen participation mechanisms as presented under Objective 2, LEGA is working at the local level to strengthen the capacity of citizens, CSOs, assemblies and the media to oversee budget execution and monitor project implementation to hold municipalities accountable for spending on priority initiatives. ● Multiple parallel planning processes. Prior to LEGA, partner municipalities had several planning groups that were supposed to consolidate citizen priorities, but these initiatives were not coordinated. LEGA focused on establishing and strengthening the legal structures and mechanisms for consultation, such as the LYACs and IWGs, worked within the planning cycle to ensure that plans were aligned with each other and linked directly to budgets, and provided access to data analysis to inform a prioritization process that resulted in plans that are integrated and strategically focused. ● Relationships with the NSMMs. Initially, LEGA faced difficulties in working with the four northern Kosovo municipalities. The political interference from Serbia in supporting the parallel structures remains a concern. However, starting in the third quarter, the relationships between LEGA and NSMMs have significantly improved.
Operational and Management Challenges
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LEGA made substantial staffing changes during Year 1. Due to shared concerns between USAID and ICMA regarding the trajectory of the project, ICMA took decisive action to change leadership across LEGA in the second quarter. The new Chief of Party Daniel Serban was mobilized on April 22, 2019, and the Deputy Chief of Party Viktor Popovic was mobilized on May 6, 2019. Several immediate key actions were taken by new management, including: ● Staff appraisals that allowed LEGA to build on the individual strengths of team members and actively encourage areas for professional improvement. ● The establishment of clear lines of communications and reporting between staff, the ICMA home office, and USAID. ● The establishment of individual and staff team meetings that were regularly organized to inform the team on project progress and to make sure that everyone’s voice is heard. ● Quality and timelines of deliverables was improved, offering each team member a fair chance to equally contribute to LEGA’s activities. ● While daily communication was maintained between the ICMA home and field offices, weekly meetings were established to discuss programmatic and operational issues. ● Weekly meetings were held with the COR and ACOR that monitor specific interventions in the field to help improve communication with the client.
The Year 1 work plan was approved in April 2019, followed by MELP approval in June 2019. Along with FHI360 and Crimson Capital, CBM – a community development nongovernmental organization (NGO) with offices in South and North Mitrovica – was listed among ICMA’s main initial partners to lead community mobilization and citizen participation in the north. The contractual discussions with CBM’s representative, which started only in May 2019 after the work plan approval, were productive and substantive until a certain moment. In August 2019, unfortunately, after discussions with ICMA leadership and the team in the field, ICMA decided not to subcontract CBM. To fill the technical void, LEGA opened an RFA process with a similar SoW that encouraged various NGOs to apply. At the time of reporting, a subcontract focused on supporting communities’ ability to monitor the implementation of municipal strategic plans has been already awarded to Communication for Social Development (CSD), a local NGO, which will carry out activities in the first half of Year 2.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
4. ACTIVITY MANAGEMENT AND ACHIEVEMENTS This section presents the progress in each project area in relation to the approved Work Plan.
Objective 1: Improved equitable, efficient, and transparent municipal governance which responds to citizens’ priorities with a focus on non-majority participation in democratic structures.
Kosovo’s larger, more established municipalities have high-functioning, advanced local governments whereas LEGA partner municipalities – which are mostly small, newly-established, and non-majority communities – lag behind. As such, LEGA has taken the approach of improving select processes which will result in improved and more responsive services as well as more inclusive municipalities which are better equipped to articulate their needs to the central level.
Below is a summary of the activities of the Year One work plan, achievements and lessons learned during the implementation, as well as next steps on where the project anticipated to move forward to.
1.1 Strengthen local municipal governments and administration to improve service provision to both majority and non-majority communities. To contribute to the achievement of sub-objective 1.1 in Year 1, LEGA planned to support the improvement and implementation of transparent and effective municipal processes and services, with an emphasis on Kosovo fiscal year 2019 budget execution, improving public service delivery and citizen services to non-majority communities, and enhancing capacity for local economic development.
Activity 1.1.1 Facilitate integrated municipal planning, budget execution and oversight Context
LEGA planned to strengthen inclusive and responsive service delivery to all communities by strengthening internal program cycle processes and capacity, institutionalization of participatory mechanisms for citizen engagement, and the oversight role of the Municipal Assembly. Thus, LEGA conducted research on the current legislation regarding municipal plans, strategies, and similar documents that Kosovo municipalities are obliged to draft, adopt, and implement. The research resulted in a comprehensive list of relevant mandatory documents, which informed how LEGA structured its assistance to partner municipalities regarding the design and development of Integrated Municipal Annual Work Plans. In addition, LEGA has adapted ICMA’s Municipal Institutional Self-Assessment (MISA) tool and initiated piloting in three partner municipalities: Gračanica/Graçanicë, Štrpce/Shtërpcë, and Novo Brdo/Novobërdë. The piloting was originally planned to be conducted earlier in Year 1, but was not completed before the end of Year 1.
Accomplishments
● By the conclusion of Year 1, LEGA revised the MISA tool and initiated the piloting in three partner municipalities. Based on the outcomes and lessons drawn from the pilot, the tool will be fine-tuned to ensure compatibility with the particularities of the local context and enable the identification of critical areas for improvement.
● Additionally, in response to a request from the Municipality of Dragash/Dragaš, which had established a working group for drafting municipal regulation for subsidies, LEGA provided
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
technical support to the working group. The need for further regulation was identified in the National Audit Office’s report on the municipality.
Geographic focus
● The self-assessment tool was piloted in Gračanica/Graçanicë, Štrpce/Shtërpcë, and Novo Brdo/Novobërdë. In Year 2, it will be rolled out to the remaining 11 LEGA partner municipalities.
Activities/Inputs
● Facilitation of Self-Assessment tool piloting ● Facilitation of internal consultations to review and respond to results
Outputs/Milestones
Planned according to the work plan Actually achieved
Three municipal institutional self-assessments Not Achieved conducted July 2019
Three short-term local solutions identified and Not achieved initiated that facilitate budget execution
September 2019
Three draft IMAWPs for preselected Not achieved municipalities developed
September 2019
Contributes to Performance Indicator
● LEGA Governance Index (#1) ● Number of solutions adopted by partner municipalities with LEGA assistance that improve citizen service delivery (#2)
Activity 1.1.2 Facilitate inclusive municipal service delivery performance assessment, planning and improvement Context
Municipalities often fail to meet the expectations of citizens due to a lack of resources and the political capital to implement service delivery projects. LEGA works with the appropriate municipal directorates, the budget and planning office, the MOCRs and the Public Information Officers (PIOs) to conduct a local citizen survey on citizen and public services among both majority and non-majority communities and compare the results to internal data on service delivery. Surveying both majority and non-majority communities will provide a way to assess whether issues are specific to non-majority communities or generalized across the population. The survey is meant to help partner municipalities understand local concerns and priorities to inform planning and improve performance. The results of the survey will also inform municipal and citizen support activities under both Objectives 1 and 2.
Accomplishments
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
During the last quarter of Year 1, LEGA drafted a request for proposals to conduct the survey in its 14 partner municipalities. The survey will not only provide the data on municipal services and citizens’ priorities but will also provide input to the LEGA’s MELP indicators. The survey targets citizen satisfaction with municipal services, their priorities in terms of receiving services from their municipality as well as key governance elements such as inclusiveness, efficiency, transparency etc. This will be the first local subcontract to use Support Funds.
The activity was planned to be completed during Year 1 but will largely be conducted in Year 2. By the end of Year 1, the contract for citizen survey was signed. The sub-contract is anticipated to be concluded by January 2020.
Geographic focus
● The citizen survey will be conducted in all 14 partner municipalities and will be followed by consultations and focus group discussions to identify strategies and solutions to improve service delivery.
Activities/Inputs
● Design and initiated implementation of citizen survey
Outputs/Milestones
Planned according to the work plan Actually achieved
A citizen survey conducted in 14 partner Not achieved municipalities July 2019
Fourteen municipal service improvement Not achieved consultations conducted July 2019
Seven communications strategies for the Not achieved municipal services improvement effort incorporated into MAPT August 2019
Seven local public service improvement solutions Not achieved identified and incorporated into 2020 budget September 2019
Contributes to Performance Indicator
● LEGA Governance Index (#1) ● Number of solutions adopted by partner municipalities with LEGA assistance that improve citizen service delivery (#2) ● Number of mechanisms implemented by partner municipalities with LEGA assistance that promote the participation or address the priorities of women and youth (#3)
Activity 1.1.3 Improve municipal efficiency and availability of citizen services Context
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Eight of the partner municipalities have Citizens Service Centers (CSCs); those that do not are Zubin Potok, Zvečan/Zveçan, Leposavić/Leposaviq Ranilug/Ranillug, Klokot/Kllokot, and Parteš/Partesh. Some partner municipalities such as Klinë/Klina, Istog/Istok, and Štrpce/Shtërpcë have also established e- Kiosks to provide more convenient 24/7 access to services outside the center. The quality of citizen services varies across the partner municipalities, but all face a general challenge in responding to citizen requests in an effective manner due to poor inter-departmental coordination, lack of procedures and information systems, lack of resources for space and staff for the center, and generally limited management capacity. In addition, there is no role for the MOCRs in the existing CSCs and many CSCs have not taken advantage of technological possibilities that can make it easier for citizens to access certain online information and services, including paying municipal fees and taxes.
Of the LEGA municipalities, Klinë/Klina, Istog/Istok and Obiliq/Obilić have Citizens Service Centers (CSC) that are well-established and operational. Peer-to-peer learning was requested by less advanced municipalities, such as Ranilug/Ranillug and Parteš/Partesh.
Accomplishments
LEGA facilitated a study visit of Ranilug/Ranillug and Parteš/Partesh municipalities to Gnjilane/Gjilan municipality. The purpose of the study visit was to familiarize both partner municipalities with the operation of a successfully operating CSC.
Participants had a chance to observe and understand the services provided by the CSC; the online database, logbook and archive; the internal flow of cases and communication; customer service policy and practice; and the CSC’s IT infrastructure from both front and back-end perspectives.
LEGA designed an RFA to deliver this activity and meet its outputs and milestones and was planning to launch it during the third quarter of Year 1. After submitting it for approval, USAID requested a follow- up meeting to discuss. LEGA was instructed by the USAID to not move forward with the RFA, even though it was included in the approved Year 1 work plan. Instead, the team was directed to assess CSCs, their operations, and situation prior to having the action plans drafted. LEGA prepared the scope of work to conduct the assessment, which will be launched as an RFP early in Year 2 .
Geographic focus
● Ranilug/Ranillug, Parteš/Partesh
Activities/Inputs
● Conduct peer-to-peer exchange visit ● Design RFA
Outputs/Milestones
Planned according to the work plan Actually achieved
One exchange visit on best practices related to Not Achieved – May 2019 the CSC/e-Kiosk service provision
May 2019
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Fourteen Action Plans for Not achieved establishment/improvement of CSC/e-Kiosks developed depending on the current need and capacity of each municipality
August 2019
Fourteen activities deriving from Action Plans Not achieved implemented
September 2019
One technical step-by-step guide on establishing Not achieved and operating a CSC
September 2019
Contributes to Performance Indicator
● LEGA Governance Index (#1)
Number of solutions adopted by partner municipalities with LEGA assistance that improve citizen service delivery (#2)
Activity 1.1.4 Strengthen municipal government support for local economic development Context
LEGA intends to bring together the partner municipal economic development authorities to explore and strengthen inter-municipal cooperation on economic development and competitiveness. Considering that a significant number of LEGA partner municipalities are relatively small, their potential for economic development is low. One solution for creating greater impact is to bring municipalities together through regional economic development roundtables with partner and non-partner municipalities to identify joint economic opportunities and potential areas for cooperation.
Accomplishments
During the reporting period, LEGA participated in meetings with RIINVEST Institute and the representatives of partner municipalities to discuss the 2019 Municipal Competitiveness Index (MCI) results, a long-standing USAID-funded initiative in Kosovo. MCI data, along with our individual municipal assessments, will inform local economic development initiatives in LEGA selected municipalities.
Geographic focus
● 14 LEGA partner municipalities
Activities/Inputs
● Design RFP
Outputs/Milestones
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Planned according to the work plan Actually achieved
Economic opportunities identified Not achieved
June 2019
Potential for intermunicipal cooperation on joint Not achieved economic development and improved competitiveness identified
June 2019
Contributes to Performance Indicator
● Number of municipalities with capability to promote local economic development, supported by LEGA assistance (#4)
1.2 Improving the ability of municipalities to articulate their municipal needs to the central-level government Activity 1.2.1 Strengthen Intergovernmental Relations through the Association of Kosovo Municipalities (AKM) Context
The aim of this sub-activity is to work with AKM and partner municipalities to develop institutionally sustainable communication channels that foster inter-governmental relations and ensure access to support from the central government to solve problems shared by the 14 partner municipalities.
LEGA and AKM identified the following interventions in support of inter-governmental relations:
● Production of a concept paper on intergovernmental relations in Kosovo ● Facilitation of intergovernmental action planning and implementation ● Peer-to-peer exchange sessions between northern and southern SMMs
Accomplishments
After mobilizing the inter-governmental specialist, the team concluded a study on inter-governmental relations and drafted a report with 11 recommendations which will serve as input to AKM’s concept paper on inter-governmental relations. The report investigates challenges and needs of the municipalities that should be addressed by the central level institutions. The report was completed during the last quarter of Year 1 and was shared with USAID. LEGA will also support AKM to lobby on behalf of municipalities to the relevant central-level institutions. Simultaneously, the team started working with central-level institutions to lay the foundation for future cooperation with AKM and partner municipalities (see Activity 1.4.1).
Geographic focus
● Kosovo-wide
Activities/Inputs
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
● Design RFA ● Multiple discussions with partner municipalities and central level institutions to drafting the inter-governmental challenges report
Outputs/Milestones
Planned according to the work plan Actually achieved
One AKM concept paper on intergovernmental Not achieved relations in Kosovo developed
May 2019
Two roundtables to identify issues and challenges Not achieved conducted
June 2019
One Intergovernmental Agenda and Action Plan Not achieved drafted
July 2019
One Peer to peer exchange between North and Not achieved South partner municipalities
TBD
Five recommendations identified and supported Not achieved by AKM collegium
September 2019
Contributes to Performance Indicator
● Number of activities that support municipalities to jointly articulate needs to the central level, supported by LEGA assistance (#5)
1.3 Strengthen municipal transparency and outreach to all citizens Activity 1.3.1 Strengthen inclusive municipal budgeting process Context
In all 14 partner municipalities, weaknesses in the planning and budgeting process are resulting in budgets that do not correspond to citizens’ priorities. A major part of the problem is the pro forma nature of budget consultations conducted by mayors, finance directors, chairpersons and other responsible municipal officials. In addition, LEGA will soon have the data collected through a citizen survey to better understand the scale of this problem. The internal process of preparing the budget for
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
presentation is hampered by lack of knowledge of the Budget Circular and poor internal coordination among municipal officials, especially with the PIO, who is responsible for informing the public. To promote a more inclusive and transparent budgeting process, LEGA is facilitating the formation of mandatory Municipal Budget Development Working Groups as per Kosovo’s legal framework and developing the Action Plan for Inclusive and Transparent Budgeting Process where it has not been done.
Accomplishments
During the last quarter, LEGA facilitated the establishment of the Working Group on Transparent Budgeting Process, consisting of representatives from the legislative and executive bodies, in Štrpce/Shtërpcë, Gračanica/Graçanicë, Parteš/Partesh, Novo Brdo/Novobërdë, Istog/Istok, Klokot/Kllokot and Obiliq/Obilić.
Additionally, LEGA provided technical assistance to the municipal Working Groups to develop a comprehensive Action Plan for Transparent Budgeting Process for 2020 which were approved by Municipal Assemblies in Štrpce/Shtërpcë, Gračanica/Graçanicë, Parteš/Partesh, Novo Brdo/Novobërdë, Istog/Istok, Klokot/Kllokot and Dragash/Dragaš.
Following on the establishment of Working Groups and the development of Action Plans, LEGA facilitated implementation of budget hearings in remote areas (as well as non-majority communities under Objective 2). These action plans resulted in a large number of budget hearings overall (over 40), 10 of which were facilitated by LEGA in selected partner municipalities.
Geographic focus
● Štrpce/Shtërpcë, Gračanica/Graçanicë, Parteš/Partesh, Novo Brdo/Novobërdë, Istog/Istok, Klokot/Kllokot, Obiliq/Obilić and Dragash/Dragaš
Activities/Inputs
● Supported establishment of Municipal Budget Development Working Groups as per legal framework ● Facilitated development of Action Plan for Inclusive and Transparent Budgeting Process ● Facilitated the organization of budget hearings in remote areas
Outputs/Milestones
Planned according to the work plan Actually achieved
Seven Municipal Budget Development Working Achieved (7) – July 2019 Groups established as per legal framework
May 2019
Seven Municipal Action Plans for Inclusive and Achieved (7) - August 2019 Transparent Budgeting Process adopted and select activities implemented
June 2019
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Seven budget hearings supported by LEGA, Achieved (10) – September 2019 additional to the regularly scheduled hearings which municipalities conducted themselves held in remote or non-majority communities
September 2019
Contributes to Performance Indicator
● Number of mechanisms developed or implemented by partner municipalities with LEGA assistance that promote the participation or address the priorities of women and youth (#3) ● Number of public consultation mechanisms used by partner municipalities, with LEGA assistance (#6)
Activity 1.3.2 Strengthen Municipal Offices for Communities and Returns (MOCRs) Context
MOCRs were established by law as the key local government mechanism to ensure protection and promote the rights and inclusion of non-majority communities. There are few regulations, however, that define their role or guide their participation in municipal planning, decision making, and provision of citizen services, which limits their ability to engage non-majority communities in local processes. Moreover, the MOCRs in general lack resources and capacity to implement specific projects/activities on behalf of non-majority communities. Nevertheless, the legislation establishes a powerful and critical mission for the MOCRs. Better knowledge and understanding of the role of the MOCRs and the rights of non-majority communities, combined with improved coordination with the Ministry of Communities and Returnees (MCR), will be important for the fulfillment of municipal obligations to non-majority communities. In Year 1, LEGA focused on supporting the integration of MOCRs into municipal planning and decision-making processes, while building skills that allow them to participate effectively.
Accomplishments
LEGA provided on-the-job mentoring sessions to the MOCRs in 12 out of 14 partner municipalities. Severna Mitrovica/Mitrovica Veriore did not want any assistance in this direction and Parteš/Partesh did not need it as it has no non-majority communities living in its territory. These activities were conducted in support of the integration of MOCRs into municipal planning and decision-making processes. The mentorship sessions served to strengthen the ability of MOCRs to work with local authorities and CSOs to develop networks and communications strategies that keep non-majority communities informed of their work as well as opportunities to participate in local processes, and to continually gather citizen feedback.
Additionally, LEGA facilitated MOCR meetings with non-majority CSOs and village representatives in the 12 municipalities. The variety of issues identified in these meetings demonstrated that the non-majority population is affected by lack of or poor waste collection, water supply, sewage, unemployment, absence of village councils, parks, etc. Of note, the same issues have previously been identified as equally affecting the majority communities. Through the implementation of the survey (activity 1.1.2), LEGA will also get results on citizen priorities clustered by ethnicity. This will enable a comparison of
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
whether the same priorities apply to both majority and non-majority communities in each partner municipality.
Selected sub-activities were put on hold upon instruction received by USAID to not continue with the approach as laid out in the work plan. USAID suggested that LEGA to meet with the Danish Refugee Council DRC, which occurred in the last quarter of Year 1, to re-think the activity and coordinate. As DRC was in its planning phase, LEGA and DRC agreed to conduct a follow-up meeting early in Year 2.
Geographic focus
● Gračanica/Graçanicë, Štrpce/Shtërpcë, Novo Brdo/Novobërdë, Klokot/Kllokot, Ranilug/Ranillug, Istog/Istok, Klinë/Klina, Obiliq/Obilić, Dragash/Dragaš, Zvečan/Zveçan, Zubin Potok and Leposavić/Leposaviq.
Activities/Inputs
● On-the-job training and mentoring ● Facilitation of meetings between MOCRs and non-majority communities
Outputs/Milestones
Planned according to the work plan Actually achieved
Twenty-eight on the job training and mentoring Partly achieved (22) - September 2019 sessions delivered
One knowledge sharing event organized Not achieved
Fourteen MOCR communication and outreach Not achieved plans developed
Two meetings by each of the 14 MOCRs with Partly achieved (22) - September 2019 non-majority communities facilitated
Fourteen MOCR actions from the communication Not achieved and outreach plan implemented
Contributes to Performance Indicator
● Number of public consultation mechanisms used by partner municipalities, with LEGA assistance (#6)
Activity 1.3.3 Strengthen municipal transparency and accountability Context
Nine of the 14 partner municipalities (Gračanica/Graçanicë, Istog/Istok, Klinë/Klina, Novo Brdo/Novobërdë, Obiliq/Obilić, Štrpce/Shtërpcë, Parteš/Partesh, Ranilug/Ranillug, and Severna Mitrovica/Mitrovicë Veriore) have established a Public Information Office or appointed a Public Information Officer. The assessment revealed that the PIOs generally work on an ad hoc basis and do not have plans, policies, or mechanisms for communications aside from the municipal websites. Currently, LEGA focuses on mentoring and on-the-job training for existing PIOs to develop a Municipal
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Action Plan for Transparency (MAPT); implement specific strategies supporting Year 1 activities, including budget execution, municipal service improvement, intergovernmental communications; and, work with the MOCRs. The PIOs and communications activities will play a critical role in linking Objective 1 and 2 activities.
Accomplishments
LEGA supported the municipalities of Istog/Istok, Klinë/Klina and Ranilug/Ranillug in amending the Regulation on Transparency according to the new administrative instruction. In addition, LEGA supported Istog/Istok, Klinë/Klina, Gračanica/Graçanicë, Novo Brdo/Novobërdë, Obiliq/Obilić, Dragash/Dragaš, Štrpce/Shtërpcë and Ranilug/Ranillug to develop Municipal Action Plans for Transparency (MAPT) in compliance with the Administrative Instruction (MLGA) No. 04/2018 on Transparency in Municipalities. In Severna Mitrovica/Mitrovicë Veriore and Parteš/Partesh, this process is expected to be completed early in Year 2. The process was not initiated in the remaining four northern municipalities due to the political situation and local circumstances.
These Action Plans will improve the transparency and outreach to citizens. Municipalities that implement MAPTs, are expected to be more open towards their constituents. However, as this was the first time that municipalities had undertaken such efforts and, considering that the central-level regulatory framework was recently revised, it is still an imperfect process from which municipalities and LEGA can learn valuable lessons. LEGA facilitated and supported municipal officials (particularly PIOs) involved in the process, and in doing so the project also had the opportunity to learn and improve the support provided to municipal officials. Ultimately, this activity is expected to result in more citizens involved in municipal affairs.
This activity faced some obstacles in timely implementation because it was dependent on the efforts of the AKM’s Transparency Collegium, which took longer than expected to design an MAPT template which municipalities can build on and adapt for their specific working environments. Some LEGA partner municipalities were reluctant to start the revision process prior to having the template finalized.
Geographic focus
● Istog/Istok, Klinë/Klina, Gračanica/Graçanicë, Novo Brdo/Novobërdë, Obiliq/Obilić, Dragash/Dragaš, Štrpce/Shtërpcë and Ranilug/Ranillug.
Activities/Inputs
● On-the-job training and mentoring ● Facilitate development of MAPT
Outputs/Milestones
Planned according to the work plan Actually achieved
Fourteen MAPTs drafted June 2019 Partly achieved (8) – September 2019
Fourteen MAPT initiatives implemented Not achieved
September 2019
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Contributes to Performance Indicator
● LEGA Governance Index (#1) ● Number of public consultation mechanisms used by partner municipalities, with LEGA assistance (#6)
Activity 1.3.4 Utilize new technology to improve transparency and outreach Context
The features of newly-redesigned municipal websites by MLGA and voting technologies used by Municipal Assemblies have not been fully enabled by the municipalities. Where they have been enabled, utilization is low and content is limited due to inadequate capacity and technical challenges. Except for NSMMs, all partner municipalities use the official websites. LEGA has analyzed the situation and a tailored approach is being designed to overcome these challenges.
Accomplishments
Initially, LEGA attempted to support municipal officials through coaching sessions with PIOs in Štrpce/Shtërpcë and Dragash/Dragaš, with the goal of building their capacity to operate the websites and update content. However, due to low municipal capacity, and the volume of information, the process has taken longer than anticipated. There are also challenges regarding official languages that are not reflective of majority populations. LEGA has worked with current municipal staff to identify elements of the website that have missing or incomplete content. Limited improvements to the websites in Štrpce/Shtërpcë and Dragash/Dragaš have been made.
LEGA continued to monitor the situation and with municipal input, reached out to MLGA. The websites of all municipalities are hosted at the GoK’s data center and supervised by MLGA in its role as administrator. Municipal officials have local administrator functions, but the entire system is managed by MLGA. As such, options for activation of new features are limited.
Geographic focus
● Štrpce/Shtërpcë and Dragash/Dragaš.
Activities/Inputs
● Support update of content and operationalization of municipal web portal features
Outputs/Milestones
Planned according to the work plan Actually achieved
Ten municipal websites with up-to-date content Not achieved August 2019
Ten municipal websites livestreaming Municipal Not achieved Assembly sessions
September 2019
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Ten municipal website using e-participation Not achieved features
September 2019
One Concept paper on e-assemblies developed Not achieved and disseminated
September 2019
Contributes to Performance Indicator
● LEGA Governance Index (#1) ● Number of public consultation mechanisms used by partner municipalities, with LEGA assistance (#6)
Activity 1.3.5 Strengthen the role of the Village Councils (VC) Context
The MLGA started the process of modifying the regulation on Village Councils to address some of the shortcomings that have emerged through implementation over the last few years. Most notably, the regulation was no longer meeting the needs for effective collaboration between municipalities and villages. The new regulation process was initiated early during 2019 and was supported by LEGA. Also, “Syri I Vizionit” an NGO from Peja/Peć was also supporting the process, through donor funding (Olof Palme International Center).
Accomplishments
LEGA supported MLGA in the process of drafting the Administrative Instruction (AI) on Memorandums of Cooperation of Municipalities with Villages, Settlements and Urban Settlements. The AI aimed to overcome legal obstacles towards effective functionality of Village Councils to improve citizen participation in decision making processes at the local level. As a member of the Municipal Working Group, LEGA also facilitated outreach and discussions with Working Group members from all Kosovo municipalities as well as a few existing village council representatives. Regional workshops covering all 38 municipalities were organized and conducted in seven of the largest municipalities. The purpose of these workshops was to: a) get information on the upcoming AIs and its draft provisions disseminated and discussed as widely as possible to those mostly affected; and b) provide an opportunity for the Working Group to learn and better understand the reality on the ground and how their decisions could influence real change. The new AI was finalized by the Working Group and approved by the end of June 2019.
Immediately after the AI approval, LEGA initiated preparations to support all its partner municipalities to revise and amend their local regulations. This is a process which all Kosovo municipalities should go through, to comply with the new AI and all its elements. MLGA requested LEGA’s assistance in supporting the process of drafting a model regulation to be used by municipalities to revise their local regulations. Thus, instead of moving ahead with providing support to partner municipalities individually as planned to revise their local regulations, LEGA re-thought its approach and adapted it to take into
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
account the MLGA request.2 LEGA will now work with the MLGA in the development of the model municipal regulation and support its partner municipalities to implement the model which is expected to be replicated and have an impact on all 38 Kosovo municipalities.
Geographic focus
● Kosovo-wide (38 municipalities)
Activities/Inputs
● Facilitate roundtable with all 38 municipalities and MLGA on new Village Council regulation ● Facilitate regional information sessions in partner municipalities ● Support revision and adoption of AI on Village Councils ● Support the process of drafting the model-regulation for local level
Outputs/Milestones
Planned according to the work plan Actually achieved
One round table with all 38 municipalities and Achieved - May 2019 MLGA conducted
April 2019
Five regional information sessions conducted Achieved – May 2019
September 2019
Fourteen municipal regulations on VC revised and Not achieved adopted
September 2019
Contributes to Performance Indicator
● Number of mechanisms implemented by partner municipalities with LEGA assistance that promote the participation or address the priorities of women and youth (#3) ● Number of public consultation mechanisms used by partner municipalities, with LEGA assistance (#6)
1.4 Strengthen the central-level capacities in outreach and governance to better support municipalities in addressing needs of the non-majority communities and improve municipal service delivery In Year 1, LEGA focused on the development of a mechanism for better communications and coordination between levels of government. This included a learning process that was expected to bring central and municipal officials together to explore the problems and solutions from multiple perspectives. The priorities identified through this process will inform the programming of activities in the coming years.
2 One exception is Dragash/Dragaš which has decided to move ahead. LEGA is supporting the municipality.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Activity 1.4.1 Improve communications and coordination between the central level and municipalities Context
Partner municipalities report consistent challenges getting central-level ministries to respond to requests for guidance or assistance in solving service delivery or operational problems. When municipalities reach out to central ministries on an ad hoc basis to address a problem, they may get no response or different responses from different units in the ministry. The municipalities need a structured way to access timely and relevant assistance from the central ministries that also allows the central government to devise solutions across municipalities rather than dealing with them on an ad hoc basis.
Accomplishments
After several discussions between LEGA and MLGA on initiation and implementation of this activity, MLGA agreed to take the leadership role in establishing a cross-institutional working group, with LEGA supporting the establishment of the working group. The working group is expected to be tasked with reaching out to municipalities and supporting them with their needs and challenges. Activity 1.2.1 and its results will complement this activity and vice-versa. LEGA and MLGA worked extensively on preparations for the establishment of the working group. A draft decision was produced by the government which would formally establish it. However, due to MLGA’s internal dynamics and environment,3 it was put on hold for the time being. LEGA anticipates this process to resume early in Year 2.
In preparation for the establishment of the working group, LEGA conducted a round of visits to partner municipalities to collect their inputs. During these meetings, municipal representatives provided comments and observations about central level institutions and gave suggestions to further improve communication, coordination, and information sharing, as well as how central-level institutions could better support their needs. This process was concluded with a detailed report articulating these suggestions. This report will also serve as an input document to the AKM’s anticipated Concept Paper on Inter-governmental Relations (See Activity 1.2.1). LEGA identified 11 concrete recommendations from the information-gathering exercise:
1. The establishment of an inter-ministerial working group at the functional civil service level, led by the Ministry of Local Government Administration, which should include key line ministries such as:
(1) Ministry of Finance (2) Ministry of Public Administration (3) Ministry of Environment and Spatial Planning (4) Ministry of Education Science and Technology (5) Ministry of Health (6) Ministry of Infrastructure (7) Ministry of Regional Development
3 The mandate of the current Secretary General has expired and there is uncertainty as to whether she has the mandate to sign executive orders beyond what was originally planned in their annual planning process
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
(8) Ministry of Labor and Social Welfare (9) Ministry of Communities and Returns (10) Ministry of Agriculture, Forestry and Rural Development (11) Ministry of Culture Youth and Sports (12) Ministry of Economic Development
2. Within each line ministry, the permanent secretary should identify a staff member with Serbian language knowledge and assign them the duties and responsibilities as the point of contact for the Serb Majority Municipalities for that Ministry.
3. The establishment of a Centralized Municipal Translation Unit. The centralized translation unit will serve as the assurance for the appropriate implementation of the Law on the Use of Languages. Further, it would support all Kosovo municipalities, including LEGA partner municipalities, in providing citizens of Kosovo with translated information in all national languages across Kosovo. This incentivizes civic participation in the decision-making process.
4. With the aim of furthering system integration, the establishment of a working group under the leadership of the Ministry of Public Administration for supporting the northern Kosovo municipalities in the process of integration in the Kosovo IT and telecommunication system. The work of this body will consist in but will not be limited to the integration in the rks-gov.net domain, centralized intranet, and the centralized telephony system (Centrex).
5. To address the ongoing staff shortages, the establishment of a cross-ministerial working group with the participation of the Ministry of Finance and the Ministry of Public Administration to support the northern Kosovo municipalities in the process of systematization of the personnel under the Kosovo system. Systematization is considered to be the basis for the further development of the local administration in northern Kosovo.
6. The establishment of a working group by the Ministry of Finance to deliver training and support to northern municipalities in the process of acquiring knowledge and competence in the use of the central level financial software such as Free Balance, e-Pasuria, e-Prokurimi, and other software that are an integral part of the financial system of the Republic of Kosovo.
7. LEGA should help revise legislation related to the Central Procurement Agency and should address the legal requirement for the provision of goods and services to remote municipalities (i.e., Dragash/Dragaš and Leposavic).
8. The Public Procurement Regulatory Commission should establish a Serbian speaking helpdesk. Serbian speaking helpdesk operators would be responsible for the provision of support on requests from the procurement officers of Serbian nationality.
9. The Ministry of Economic Development is the main shareholder of the Regional Publicly Owned Enterprises responsible for the delivery of water and sewage services. With USAID LEGA and other donor support, organizations can organize regional roundtables where LEGA partner municipalities can meet with heads of these companies and present concerns and identify solutions that would guarantee the provision of public service.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
10. Through the AKM and the well-established mechanism of thematic collegia, establish the Gender Officer Collegia and train respective municipal officials in gender-responsive budgeting. In the same line, establish the Youth Officer Collegia. Further, through the Ministry of Finance, support all USAID LEGA partner municipalities in creating the youth-dedicated budgetary code.
11. In cooperation with the Kosovo Cadaster Agency, Ministry of Environment and Spatial Planning and other relevant government agencies establish a task force for the establishment/functionalization of Cadaster and Property Departments in northern Kosovo municipalities. USAID/LEGA in cooperation with UN-Habitat can provide the material and technical base for the functionalization of these departments in all northern partner municipalities.
Drafts of terms of reference, action plan and agenda of the Inter-Ministerial Working Group have been jointly prepared by LEGA and MLGA staff. As soon as the Working Group is formally established, it is expected to discuss and endorse these guiding documents for its operations at least for the first year of its existence and start functioning.
Geographic focus
● Kosovo wide (38 municipalities)
Activities/Inputs
● Facilitate and coordinate of outreach meetings ● Facilitate and coordinate cross-ministerial meeting and work group establishment discussion
Outputs/Milestones
Planned according to the work plan Actually achieved
Cross-ministerial working group established Not achieved
July 2019
Fourteen (14) outreach meetings in Not achieved municipalities organized
August 2019
One (1) report on center-municipal issues and Not achieved solutions
September 2019
Contributes to Performance Indicator
● Number of central solutions that help partner municipalities improve equity, inclusion and service delivery, with LEGA support (#7)
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Activity 1.4.2 Support the MLGA in validating performance management data received from partner municipalities Context
If the central level provides better data and analysis to the municipalities, they will be able to make more equitable and transparent decisions that address the needs of non-majority communities. There is very little reliable, validated data that is disaggregated by gender, age and community in a way that illuminates inequities in access to services, or the differential impact of policies and programs among different communities. Moreover, municipal data is inconsistent in quality and validity across ministries, resulting in subpar central decision making. Without this data, it is difficult to make evidence-based decisions that appropriately address non-majority issues, or, for that matter, that allows communities to hold their municipalities accountable. Evidence-based decision making is a critical component of adaptive management and an important element of accountability, since data is used by government, civil society and media.
Accomplishments
Towards the end of the reporting period, LEGA was involved in designing the Municipal Performance Management System data validation methodology. LEGA originally designed an RFA to support the implementation of the activity, which included original milestones and results as in the Annual Work Plan.
Due to MLGA’s internal dynamics and environment, it was put on hold for the time being. MLGA has started the process of revising the Municipal Performance Management System and until this process is finalized and concluded it is redundant to work on the validation methodology. LEGA anticipates this process to resume early during Year 2.
Geographic focus
● Kosovo wide (38 municipalities)
Activities/Inputs
● Design RFA ● Numerous coordination meetings
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Outputs/Milestones
Planned according to the work plan Actually achieved
MPMS data validation methodology tested (with Not achieved CSOs) and approved by MLGA
June 2019
MPMS data validation mechanism designed and Not achieved applied by local CSOs in partner municipalities
September 2019
Contributes to Performance Indicator
● Number of central solutions that help partner municipalities improve equity, inclusion and service delivery, with LEGA support (#7)
1.5 Facilitate linkages between municipalities To contribute to the achievement of this sub-objective in Year One, LEGA planned to facilitate an evaluation of the existing IMC Agreements to develop guidance and processes to improve and increase the use of the mechanism. One of the models would be supporting inter-municipal cooperation to develop and implement solutions that allow municipalities to consistently publish information in official languages.
Activity 1.5.1 Facilitate effective Inter-Municipal Cooperation Context
Seven of the partner municipalities have IMC agreements. For example, Novo Brdo/Novobërdë has two IMC agreements, Klokot/Kllokot and Zvečan/Zveçan have an IMC agreement for waste management, and Pelé/Peć, Klinë/Klina, Istog/Istok, Deçan/Dečani and Rahovec/Orahovac have one for emergency management. IMCs require a transparent process to determine the technical, management, administrative, financial, legal, accountability, and decision-making parameters of the partnership, and a representative board to oversee implementation. In addition to public services, IMC agreements are an important mechanism for inter-municipal cooperation on local economic development. If municipalities can be incentivized to work together, citizens will benefit from improved services.
Accomplishments
Due to MLGA’s internal dynamics (the head of IMC division, who was the key person involved in this process, left the institution) and environment, the activity was put on hold. Moreover, this activity was originally intended to support the IMC Fund, which was established by MLGA, for the first time in 2019. With the new Minister appointed, the priorities started shifting and there are serious indications that the IMC Fund will cease to exist. With the elections coming up and the establishment of a new government, LEGA will adapt and seize opportunities to support and improve the process of IMCs.
As mentioned above, early in 2019, MLGA launched the IMC Fund. MLGA also requested LEGA’s support to reach out to municipalities and discuss how the Fund operates. To ensure that municipalities knew
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
about this new funding opportunity, LEGA hosted a series of roundtable meetings between MLGA and municipal governments. During the meetings, MLGA explained the terms of the funding possibilities to the municipal governments and municipal governments had the chance to discuss and present potential windows of collaboration.
Geographic focus
● Kosovo wide (38 municipalities)
Activities/Inputs
● Facilitate regional peer-to-peer work sessions sponsored by MLGA ● Provide technical assistance to MLGA to establish IMC fund and develop funding policies and procedures
Outputs/Milestones
Planned according to the work plan Actually achieved
IMC evaluation report Not achieved
September 2019
Three regional peer-to-peer work sessions Achieved – March 2019 organized
September 2019
Two initiatives selected for support Not achieved
September 2019
Contributes to Performance Indicator
● Number of activities supported with LEGA assistance that facilitate dialogue, collaboration and knowledge sharing among municipalities (#8) ● Number of Inter-Municipal Cooperation Agreements facilitated with LEGA assistance (#9)
Activity 1.5.2 Increase the availability of public information in local languages in partner municipalities Context
Initially, LEGA planned to work with the Office of Language Commissioner (OLC), AKM, MLGA and MoF to facilitate solutions to the challenges of complying with the Law on Use of Languages, starting with a market survey to identify the supply, quality, and cost of language translation and interpretation services; assessing how the central government is currently meeting language requirements; and, quantifying demand at the municipal level in terms of level of effort needed (e.g., number, frequency and size of documents, signage, emergency alerts, etc.). The study was expected to also assess interpretation services for radio announcements and online streaming of assembly meetings. Based on the results of the market study, LEGA aimed to explore potential solutions based on cooperation among partner municipalities and engagement of non-majority communities.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Accomplishments
To date, LEGA has provided limited technical assistance, as other donors have supported the Office of Language Commission (OLC) in increasing the availability of public information in local languages in partner municipalities. However, the developments during the reporting period unrelated to LEGA’s direct initiative indicate that the Language Commissioner is moving ahead with establishment of the Central Translation Unit (CTU).
Geographic focus
● Kosovo wide (38 municipalities)
Activities/Inputs
● Coordination meetings
Outputs/Milestones
Planned according to the work plan Actually achieved
One survey of market for language services Not achieved conducted
September 2019
Multi-stakeholder solutions identified Not achieved
September 2019
Contributes to Performance Indicator
● Number of activities supported with LEGA assistance that facilitate dialogue, collaboration and knowledge sharing among municipalities (#8)
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Objective 2: Increased active citizen participation of both majority and non-majority communities in municipal structures
In Kosovo, majority and non-majority communities typically live in isolation from one another. Local mechanisms that could foster inter-ethnic cooperation are often dominated by members of majority groups, and/or lack the internal capacity to effectively channel citizen grievances and needs to local government. In response, LEGA seeks to break this isolation through local representative bodies such as Village Councils. By increasing these bodies’ representation of non-majority groups and strengthening their internal functioning and advocacy capacity, LEGA assists communities in uniting to address community priority interests that are beneficial to all citizens. Throughout its citizen engagement activities, LEGA prioritizes gender and youth empowerment, specifically in elevating their voices to local government.
In Year 1, despite delays in adoption of government regulations and subaward issuance, LEGA met or exceeded targets related to inclusion of initiatives submitted by women’s groups in municipal budgets and inclusion of non-majority women in women’s groups. In other areas, LEGA laid the foundation for future accomplishments, including:
● conducting inter-ethnic coordination meetings ● strengthening or reconstituting LYACs ● organizing a National Conference on Gender Equality in Kosovo ● facilitating the recognition of local IWGs as official authorities on gender mainstreaming by their municipalities.
Below, we outline LEGA sub-objectives under Objective 2 and describe their relevant performance indicators, geographic focus areas, accomplishments and significance.
2.1 Increase interaction between majority and non-majority communities in joint priority setting Activity 2.1.1 Strengthen the functioning and representativeness of Village Councils Context
Village Councils provide a community-level mechanism for citizens to communicate their needs, priorities and complaints to government. Village Councils currently lack the capacity to effectively channel citizen concerns to government, and they lack the participation of women, youth and non-majority community representatives. In addition, only Zvečan/Zveçan municipality has formed Village Councils. Governing regulations have not yet been adopted, and most Village Councils are not functioning. The other three northern municipalities have not taken any steps towards the establishment of Village Councils.
As explained in Activity 1.3.5, LEGA will assist the municipalities to develop and adopt a new municipal regulation that complies with new national regulations for Village Councils, after the process of drafting the model-regulation is concluded. LEGA will support VC members to comply with regulations, facilitate more inclusive participation, and better represent citizens. This will in turn support more responsive government that more effectively meets the needs of all citizens.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Accomplishments
As described in 1.3.5, during Year 1 partner municipalities postponed further actions towards establishing Village Councils to ensure compliance with the new regulations, resulting in the lack of activities at the municipal level and no major accomplishments to report under this Activity. In Year 2, local grantee Development Plus (D+) will be working under this sub-objective, specifically supporting communities and community representatives (village councils, youth/women groups, CSOs) in identifying issues of common concern (cross-ethnic or inter-municipal) and facilitating the process of addressing these issues with relevant authorities.
Geographic focus
● All LEGA partner municipalities
Activities/Inputs
● None, due to delayed adoption of VC regulation .
Outputs/Milestones
Planned according to the work plan Actually achieved
On-the-job assistance to implement and comply Not achieved with new regulations, with a focus on representativeness
Capacity building of Village Councils members on Not achieved the legal framework for local governance; advocacy; and participation in decision making processes.
Contributes to Performance Indicator
● Number of new non-majority representatives in community participation structures in partner municipalities, supported by LEGA (#12)
Activity 2.1.2 Create local capacity for inter-ethnic cooperation Context
Lack of inter-ethnic cooperation inhibits citizens in LEGA partner municipalities from jointly addressing community grievances. During the assessment phase, LEGA found that while some barriers to inclusion and participation exist at the municipal level, other barriers exist at the community level. Citizens are not accustomed to organizing independently to articulate their concerns, and generally lack access to information or skills in facilitating dialogue. Moreover, the nature of the intra-communal and inter- communal barriers differs across ethnic communities, which further inhibits inter-ethnic cooperation. Under this activity, LEGA will emphasize openings for inter-ethnic cooperation, and build awareness of inter-ethnic initiatives which support their implementation.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Accomplishments
LEGA anticipated that this work would be carried out by Community Building Mitrovica (CBM) but because LEGA did not to move forward with a subcontract, this activity was delayed.
Geographic Focus
● Gračanica/Graçanicë, Štrpce/Shtërpcë, Novo Brdo/Novobërdë, Obiliq/Obilić and Dragash/Dragaš. This activity will be expanded in five additional municipalities in Year 2.
Activities/Inputs
● Contractor (D+) selected
Outputs/Milestones
Planned according to the work plan Actually achieved
Identify potential inter-ethnic civic initiatives Not achieved within or between partner municipalities
Engage media to publicize inter-ethnic civic Not achieved initiatives
Provide support to inter-ethnic civic initiatives Not achieved
Contributes to Performance Indicator
● Number of inter-ethnic civic initiatives supported by USG assistance (#13) ● Number of media activities conducted with USG assistance to strengthen public awareness of local governance roles and responsibilities (#17)
2.2 Empower all communities to engage with the municipalities and hold them more accountable. Activity 2.2.1 Facilitate community-based participation in public hearings in non-majority communities Context
LEGA’s initial assessment indicated that most formal citizen participation bodies, including Village Councils, Informal Women Groups (IWG) and Local Youth Action Councils (LYACs), have not substantively participated in budget hearings organized by municipalities. Identified barriers to participation included a lack of information, knowledge, skills, language capacity, motivation, and mobility, as well as mistrust in the outcome of consultation. In response, LEGA supported target municipalities in implementing budget hearings in non-majority community locations, publicized the budget hearings in non-majority communities, and supported community stakeholders in addressing priorities in a systematic manner by submitting written inputs to the municipal assembly. As a result, minority communities were more effective in submitting their budget priorities to authorities for inclusion in the municipal budget.
Accomplishments
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LEGA supported partner municipalities in facilitating inclusion of non-majority-communities in municipal budget hearings and supporting these groups in articulating and submitting written recommendations for budget realignments reflecting the interests of these groups. In total 12 budget hearings have been organized in non-majority communities across LEGA partner municipalities, resulting in the adoption of five requests submitted by non-majority community representatives by the Municipal Assembly reflecting primarily non-majority community infrastructure priorities. Furthermore, LEGA assisted the municipality of Zvečan/Zveçan with outreach, resulting in 1,200 citizens reached with information regarding the budgetary process.
Geographic focus
● Istog/Istok, Klokot/Kllokot, Obiliq/Obilić, Klinë/Klina, Novo Brdo/Novobërdë, Gračanica/Graçanicë, Dragash/Dragaš, Štrpce/Shtërpcë and Zvečan/Zveçan.
Activities/Inputs
● Facilitated 12 budget hearings in LEGA partner municipalities ● Supporting non-majority communities in articulating and submitting requests to municipalities.
Outputs/Milestones
Planned according to the work plan Actually achieved
Facilitated 13 community-based public hearings in Mostly achieved - Facilitated 12 community-based non-majority communities public hearings in non-majority communities
Seven proposed civic initiatives included in the Partially achieved - Five proposed civic initiatives municipal budget included in the municipal budget
Contributes to Performance Indicator
● Number of citizen oversight and accountability tools supported with LEGA assistance (#14)
Activity 2.2.2 Support communities’ ability to monitor the implementation of municipal strategic plans Context
Previous donor assistance in Kosovo has often focused on the development of municipal strategic documents, some required by the government and some developed for project purposes. The mandatory plans required by Law No. 03/L/048 on Public Financial Management and Accountability include Local Transparency Action Plans, Gender Equality Action Plans, and Transparent Budgeting Action Plans. Many of the mandatory plans have been only partially implemented, or not implemented at all, and some are rapidly becoming outdated. The state of implementation is not subject to review by any legal entity and the general public is not aware of these plans. In response, this activity will raise citizen awareness of municipal obligations under Law No. 03/L/048, highlighting the required plans and their implementation status. This will in turn contribute to local government accountability by supporting civil society oversight of government obligations and presentation of CSOs’ findings to government.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Accomplishments
During Year 1, LEGA developed a potential SoW for CBM, a northern-based NGO, to assist citizen groups and local CSOs in the partner municipalities to monitor the implementation of key municipal strategic documents, contribute to annual reports of the municipality and assembly, and work with the Village Councils to ensure that strategic documents were being linked to budgets and implemented. However, as stated in Section 3 above, an agreement with CBM was not reached. This caused a delay but a new subcontractor, Communication for Social Development (CSD), has been selected to assist in the next year.
Geographic focus
● All LEGA partner municipalities
Activities/Inputs
● Contractor selected to implement this activity
Outputs/Milestones
Planned according to the work plan Actually achieved
Twenty CSO representatives trained and certified Not achieved on watchdog methodologies
Ten local government dialogues on findings Not achieved conducted
Contributes to Performance Indicator
● Number of inter-ethnic civic initiatives supported by USG assistance (#13) ● Number of media activities conducted with USG assistance to strengthen public awareness of local governance roles and responsibilities (#17)
Activity 2.2.3 Strengthen youth groups’ organizational capacity and increase their non-majority representation Context
LYACs were established as formal mechanisms for youth engagement in public affairs. The majority of LYACs, however, continue to struggle with internal capacity, lack of internal policies and regulations, high turnover of leadership, weak relations with the local government and a lack of success in reaching out to target groups. Ineffective performance of youth engagement structures is partly a consequence of local government officials’ involvement in the selection of youth leaders, lack of support from municipal Departments for Youth, Culture and Sport, and generally pro forma decision-making processes where youth have no meaningful role. In response, LEGA is strengthening LYAC internal capacity, building relationships between youth groups and improving linkages between LYACs and government entities. As
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
a result, LYACs are more functional and better able to represent youth concerns before government, as evidenced by the inclusion of youth-proposed initiatives in municipal budgets.
Accomplishments
During Year 1, LEGA has been involved in a variety of activities targeting the inclusion of youth in the decision-making process. Focus has been on capacity development assistance and the complete restructuring/re-operationalization of inefficient youth LYACs. The LYACs were included in peer-to-peer exchanges and engaged with local and central level authorities. LEGA’s targeted capacity development assistance resulted in the overall capacity increase of LYACs from 9.7% to 20.15% based on Organizational Capacity Assessment conducted in October 2018 and then again in 2019. Five LYACs – Gračanica/Graçanicë, Parteš/Partesh, Zubin Potok, Klokot/Kllokot and Zvečan/Zveçan – have been completely restructured and an additional four – Novo Brdo/Novobërdë, Istog/Istok, Severna Mitrovica/Mitrovicë Veriore and Klinë/Klina – are in the process of becoming operational. Among new youth representatives in the LYACs this year, six are from non-majority populations.
Increased capacity and visibility of LYACs has attracted local authorities and international stakeholders to cooperate with these youth groups. LEGA provided 47 youth representatives with trainings in various thematic topics over the past year, such as project proposal development, project cycle management, and citizen participation mechanisms. Among the results of the capacity building training on proposal development, the LYACs from Gračanica/Graçanicë and Parteš/Partesh jointly received a €15,000 grant to establish permanent dialogue between LYACs and municipalities to jointly address youth issues as barriers for youth social inclusion and to develop creative and innovative activities that would address social exclusion and motivate youth to get involved in activities and social life.
LEGA has also assisted the LYACs with the development of seven strategic youth policy documents and two peer-to-peer LYAC exchange visits have been conducted.
Geographic focus
● All LEGA partner municipalities
Activities/Inputs
● Delivery of mentorship and training sessions have been delivered to youth groups ● Restructuring and capacity building sessions for non-functioning LYAC ● Initiated operationalization of LYACs in four municipalities ● Inclusion of six new non-majority representatives in LYAC structures ● Facilitation of peer-to-peer exchanges between LYACs and meetings with the Ministry of Youth, Sport and Culture.
Outputs/Milestones
Planned according to the work plan Actually achieved
Forty-two majority and non-majority youth Not achieved representatives trained and certified in CYM
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Twenty internal youth group regulations and Not achieved policies developed and adopted
Five youth groups with increased non-majority Partially achieved - Four youth groups with representation (at least 10 new representatives in increased representation. Six new non-majority total) representatives elected in Istog/Istok, Klokot/Kllokot, Novo Brdo /Novobërdë and Obiliq/Obilić
Sixty majority and non-majority youth Partially achieved - Forty representatives trained representatives trained and certified in the in program cycle management in four partner program cycle, fundraising, networking and civic municipalities participation
Twenty youth on-the-job training and mentoring Partially achieved - Twelve mentorship sessions sessions delivered delivered
Six peer-to-peer exchanges conducted Partially achieved - Two peer-to-peer exchanges conducted with four LYAC’s
Ten Youth Action Plans developed or updated that Partially achieved - During Year 1, two Youth are approved by municipalities and integrated into Action Plans were fully updated and approved by municipal budgets their respective Municipalities (Novo Brdo/Novobërdë and Klokot/Kllokot). An additional five LYACs have developed activity plans, pending document revision and approval
Contributes to Performance Indicator
● Number of USG-supported activities designed to promote or strengthen the civic participation of women and youth (#15)
Activity 2.2.4 Facilitate the participation of women from majority and non-majority communities in joint priority setting, planning, budgeting and oversight of budget execution Context
Prior to LEGA interventions, inclusion of women in the decision-making processes had been lagging in all LEGA municipalities. Mechanisms for systematic and institutional representation of women in the governing structure, such as Informal Women Groups (IWG), had been unsuccessful due to poor capacity of these entities to effectively advocate on behalf of their constituencies. Many factors contributed to the overall failure of IWGs, including a lack of internal governing capacities, turnover of assembly members (changing every four years), the absence of a knowledge-transfer system, conflicting stances of political parties and the allegiance of female MPs to political party causes, insufficient involvement of women in
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
other sectors, low managerial skills, lack of initiative and motivation of members, as well as the inherited practice of superficial involvement in wider community decision making processes.
Accomplishments
During Year 1, LEGA provided formal trainings and mentorship sessions, resulting in an increase of overall capacity of women groups from 6.90% to 19.75% (based on OCAs from October 2018 and follow-on surveys in September 2019. LEGA also facilitated the development of seven annual work plans and conducted training. Among these trainings were gender-responsive budgeting trainings, which reached 50 people and resulted in two IWGs being recognized by local government as official mechanisms for gender mainstreaming.
LEGA also provided significant assistance in establishing and/or re-operationalizing IWGs across LEGA municipalities. Four IWGs composed of Municipal Deputies and MOGE (Municipal Officer for Gender Equality) have been created in the four northern municipalities. An additional three IWGs – in Parteš/Partesh, Ranilug/Ranillug and Gračanica/Graçanicë – which were previously dormant have been re-established. Across the LEGA-supported IWGs, 13 non-majority community women representatives have become members in these groups.
LEGA facilitated inclusion of women groups in budget hearings, including five budget hearings for women representatives, resulting in the adoption of six initiatives by municipal assemblies.
On a national level, LEGA organized a panel discussion, “Fostering Shared Ownership of Policy Choices: Challenges in Ensuring Engagement of Citizen Groups in Policy-Making Processes” on the importance for women inclusion in executive positions, innovative citizen participation mechanisms and gender equality policies during NDI’s Week of Women event. In addition, LEGA organized a National Conference on Gender Equality which gathered together more than 50 local level and central stakeholders from the government, NGOs, and donors to share experiences and best practices.
Geographic focus
● All LEGA partner municipalities
Activities/Inputs
● Participating in organization of Week of Women ● Organizing National Conference on Gender Equality ● Organizing Gender Responsive Budgeting trainings ● Establishment 4 Informal Women Groups in northern municipalities ● Delivering support to 8 IWGs ● Reestablishment of IWGs (from elections to setting up structure) ● Organization of budget hearings for women representatives ● Delivery of 11 Coaching sessions ● Facilitation of 1 IWG Exchange visit
Outputs/Milestones
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Planned according to the work plan Actually achieved
Forty women and men from non-majority Achieved - Fifty representatives trained in GRB communities trained on gender mainstreaming and Gender Responsive Budgeting (GRB)
Fourteen proposed initiatives drafted by women’s Partially achieved - Six initiatives drafted and groups and submitted to municipalities submitted by women’s groups
Five non-majority representatives’ proposed Achieved - Five non-majority representatives’ initiatives included in the municipal budget proposed initiatives included in the municipal budget
Ten non-majority representatives included in Achieved - Thirteen non-majority representatives existing women groups included in existing women groups
Contributes to Performance Indicator
● Number of USG-supported activities designed to promote or strengthen the civic participation of women and youth (#15) ● Average capacity score of representative structures for women and youth in partner municipalities increased, with LEGA assistance (#16)
Activity 2.2.5 Strengthen collaboration between non-majority community actors and municipal officials and representatives. Context
Systematic communication, coordination, and cooperation between non-majority civil society organizations, Village Councils, and communities with their legally-designated representatives at the municipal level (e.g., MOCRs, Deputy Mayors for Communities, Deputy Chairpersons for Communities, Chairperson of Municipal Assembly Committee for Communities) are facing substantial challenges. The mandate of the Village Councils representatives has expired in many municipalities, civil society organizations in smaller municipalities are too weak to generate cooperation and, in some municipalities, either personal or political hostility constitute additional challenges. In response, LEGA is facilitating coordination between non-majority representatives in target communities, with the aim of building on our successes in the coming fiscal year.
Actions/Accomplishments
During Year 1, LEGA facilitated consultative meetings between key stakeholders focused on minority issues. In total, 11 coordination meetings between municipal representatives responsible for non-majority issues and non-majority communities have been organized.
Geographic focus ● All LEGA partner municipalities except the four in the north of Kosovo
Activities/Inputs
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
● 11 coordination meetings between municipal representatives responsible for non-majority issues and non-majority communities
Outputs/Milestones
Planned according to the work plan Actually achieved
Twenty-eight coordination meetings between Partially achieved - Eleven coordination meetings municipal representatives responsible for non- between municipal representatives responsible majority issues and non-majority communities for non-majority issues and non-majority communities
Ten civic initiatives proposed by non-majority Not achieved citizens/communities included in the municipal agenda
Contributes to Performance Indicator
● Number of citizens participating in municipal structures and participatory processes in partner municipalities supported by LEGA (#11)
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Support Funds and Grants-under-Contract (GUCs) Grants under Contract and Support Funds are tightly linked to activities that contribute to project objectives, sub-objectives and achievements. Through GUC, the Local Effective Governance Activity supports initiatives under the objectives. At the same time, Support Funds are used to address common needs and interests of communities, support civic engagement and participatory processes and provide communities with the ability to effectively affect change. Through the end of Year 1, The Local Effective Governance Activity launched two Requests for Application (RFA) under GUC for Activities falling under both Objectives. LEGA has identified a potential grantee for the implementation of ‘Create Local Capacity for Inter-ethnic Cooperation’ activity. The second RFA, ‘Strengthen AKM capacity to facilitate inter-governmental relations’, plans to support AKM in organizing regional and national roundtables to discuss recommendations and draft a concept paper on inter-governmental relations in Kosovo. At the time of reporting USAID has just rejected the AKM grant proposal. Additionally, during the last quarter of Year 1, LEGA issued three requests for proposals as shown below: 1. Citizens’ perception on local Municipal Governance (Survey) 2. Strengthen inter-municipal cooperation on economic development and competitiveness (LED) Project. 3. Support communities’ ability to monitor the implementation of municipal strategic plans
Of the above-mentioned RFPs, one subcontract (the Survey) was awarded before the end of Year 1; the remaining two subcontracts will be awarded in the first month of Year 2. The following table provides GUC and SF status as of the end of Quarter 4:
Activity Name Number/RFA/P GUC Cost share Support Fund Activity
Create Local Capacity for Inter- RFA_1 $33,527.40 $0.00 Objective 2 ethnic cooperation
Citizens’ perception on local RFP_1 $43,326.00 Objective 1 Municipal Governance (Survey)
Strengthen inter-municipal RFP_2 $52,935.90 Objective 1 cooperation on economic development and competitiveness (LED) Project.
Support communities’ ability to RFP_3 $33,749.70 Objective 2 monitor the implementation of municipal strategic plans
Public hearing/ Mentoring and PO $28,108.70 Objective 1 and coaching/ Conferences/ 2 Exchange visit facilitated by LEGA Grand Total $33,527.40 $0.00 $158,120.30 $191,647.70
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
By the end of the Year 1 LEGA committed $191,647.70 under GUC and Support Funds, of which one subcontract has been signed for the value of $43,326 and $28,108.70 through purchase orders.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
5. COLLABORATING, LEARNING AND ADAPTING (CLA) LEGA continuously follows adaptive management principles in its approach. CLA is incorporated across activities and team members – especially those in the field – are constantly encouraged to apply CLA in activity implementation. To enable tracking and introduction of CLA efforts, LEGA uses a web-based system for approving the activities by management, as well as reporting on the completion of activities through post-activity reports (PAR). Weekly reporting allows the team to continuously share feedback from the field, report on progress and problems, inform performance indicators, as well as address issues in a timely manner. Besides internal team coordination, LEGA continuously adapts in response to changes in local as well as national contexts. Close collaboration with the partner municipalities, combined with engagement with central level authorities, allows the LEGA team to remain constantly aware of emerging or sensitive issues and to communicate these issues to USAID to inform risk management. The USAID-approved Monitoring, Evaluation and Learning Plan (MELP) for LEGA supports the team to stay focused on results and how Project activities are contributing to the 17 Performance Indicators and established targets (outputs and milestones). Over the course of Year 1, LEGA performed 124 activities (accelerated after the year 1 AWP approval) throughout 14 partner municipalities and the central government. A total of 1689 people participated in various meetings, on-the-job coaching, trainings, and facilitated municipal and MLGA activities, facilitated MLGA activities.
TOTAL OF 1689 PARTICIPANTS Throughout activity Unreported implementation, LEGA 3% maintained focus on gender participation and Albanian managed to gain female 43% interest and involvement in Serbian the overall process. This 44% was mainly achieved through, but not limited to, the establishment and re- establishment of IWGs and Bosnian RAE Gorani 4% engagement of non- 4% 2% majority women Figure . Ethnic breakdown of Year 1 participants representatives into the existing groups. Figure 2 below shows that out of 1689 total participants, 49% are women. LEGA’s first year was difficult in many ways and adapting 18 through learning was a crucial approach toward reaching the desired targets. As a result, a majority of the planned Female activities have been conducted to some degree in the field, 822 Male but there are a number of activities that have not been 849 Unreported implemented in full or have been delayed due to various reasons (see program report section 3). Monitoring the implementation of activities and analyzing gathered data, LEGA found out that there is a difference among partner municipalities in many aspects, such as: readiness and openness for collaboration, inclusion and transparency (especially in relation to non-majority communities), readiness to become
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
more accountable, etc. Using USAID-recognized adaptive management techniques, LEGA tailored its approach and gained results in all partner municipalities Figure . Gender participation (see Figure 3 below).
Activities performed per municipality In this regard, LEGA played a critical role in facilitating (not leading) activities and Zvečan/Zveçan 8 mentoring/coaching activities that Zubin Potok 9 create more proactive governance 16 Štrpce/Shtërpcë efforts for partner municipalities. This Severna Mitrovica/… 5 CLA approach enables LEGA to mentor Ranilug/Ranillug 4 Parteš/Partesh 13 local partners in planning, designing Obiliq/Obilić 6 and implementing activities, aiming the Novo Brdo/ Novobërdë 7 final target of creating good governance Leposavić/Leposaviq 7 environment for partner municipalities Klokot/ Kllokot 6 and make them effective as well as Klinë/Klina 7 accountable for their respective Istog/Istok 10 citizens. Figure 4 shows Year 1 Graçanicë/Gracanica 13 interventions in the field by type. Dragash/Dragaš 8 Below are illustrative examples where Figure 3. Activities breakdown0 by municipality.5 10 15 20 the CLA approach was used in Year 1: ● LEGA staff adapted its interventions in regard to the establishment of Village 54 60 50 Councils. Although the Year 1 AWP called 50 for the re-establishment of Village 40 Councils, the GoK (MLGA) decided to 30 modify its regulations for VCs and 20 8 5 approved a new Administrative 10 2 1 4 Instruction (informed by LEGA). This 0 directly affected the planned Year 1 work plan activities. LEGA provided support Figure 4.and Types inputs of Year to 1 interventions the MLGA on the new regulation, worked with communities (especially non-majority) to maintain the motivation for engagement and informed citizens about the new regulation based on which Village Councils will be re-established across Kosovo. ● Under Activity 1.5.2, LEGA had anticipated supporting municipalities on one of the foremost issues for non-majority municipalities: compliance with the Law on Use of Languages. As per USAID guidance, LEGA conducted additional meetings and coordination with stakeholders which revealed that the Office of Language Commissioner (OLC) was moving in a different direction and activities anticipated in the LEGA Year 1 AWP were irrelevant and the target would not be achieved. In fact, the Office of the Language Commissioner has been exploring a Central Translation Unit (CTU) that, according to the OLC, is expected to be mandated to only review the (upcoming) legislation in terms of harmonization between languages, proof-reading and editing. As such, it will not be supporting municipal operations. Moreover, OLC suggested that there should be a separate unit/entity, in cooperation with line ministries (potentially MLGA and/or MPA) which would focus only on municipal needs for translation, editing and proof-reading, as
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
the CTU is not expected to cover it. Therefore, LEGA decided to cancel activities related to language use and compliance to closely monitor the priorities and developments of the OLC and accordingly plan new activities that would lead toward the achievement of the primary target. New activities will be in line with GoK’s efforts to address the issue of compliance with the Law on Use of Languages, particularly through the Inter-Governmental Working Group and AKM’s selected collegia. ● When LEGA began engaging with IWGs in partner municipalities, RMAs were confronted with the reality that municipalities lacked motivation to engage women in formal processes and that many IWGs were dysfunctional or disbanded. LEGA had to change the approach and intervene by organizing various meetings and discussions, and motivate civil society groups, citizens as well as municipalities to raise awareness, facilitate and provide information on the importance of input from female stakeholders and how IWGs could be utilized as official avenues for advocacy. As a result, a number of IWGs are newly established and re-established, and new non-majority members have been elected. Newly established groups have been active during this period and provided inputs to municipalities which were included in municipal budgets. ● The involvement, interest, and awareness of Kosovo-Albanian community youth representatives (including women) in Kosovo-Serbian majority municipalities is very low, despite Albanian language announcements. This is due to various reasons such as lack of proper representation at the municipal level, weak CSO capacity, and no effective outreach available regarding the benefits of participation into local governance structures, in this case LYAC. LEGA is now working directly with stakeholders from Kosovo-Albanian communities (CSOs and active citizens) and coordinating directly with MOCRs and local departments of youth, sports and culture to inform, gain interest, and attract higher representation of women and youth in LYACs and other local structures.
LEGA Donor Coordination During the reporting period, LEGA has extensively engaged in coordinating its activities with the various stakeholders in the sector. A series of meetings were conducted with targeted stakeholders to learn about challenges faced in implementation of activities and target potential areas of joint intervention and/or coordination. The coordination has been carried out with both USAID funded programs in relevant programmatic areas and other donors active in the sector. LEGA has organized a series of meetings with USAID’s implementing partners that play a major role under USAID’s Democracy and Governance portfolio. Based on these discussions potential areas of cooperation were identified: ● USAID’s Transparent, Effective and Accountable Municipalities (TEAM): LEGA discussed with TEAM possible interventions related to Municipal Action Plans for Transparency, including public procurement. ● In Year 2, Pending USAID’s approval of the TEAM Annual Workplan, specific collaborative interventions between the activities are expected in the selected TEAM/LEGA municipalities, such as on the youth awareness on e-procurement. ● USAID’s Responsive Effective and Accountable Governance (READY): READY organized a series of meetings to coordinate activities in conjunction with the Week of Women event that LEGA participated in. LEGA also participated in the Youth and Women Leadership Academy sessions to present the program and gauge interest of participants to take part in LEGA activities. In addition, LEGA continues to promote the inclusion of READY alumni members in LEGA target beneficiary groups (LYACs and IWGs). By joining READY’s efforts, LEGA is facilitating the recognition of local
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
IWGs as official authorities on gender mainstreaming by their municipalities and by the central level. ● USAID’s Up to Youth: LEGA shared the capacity assessment of youth groups in our target municipalities to inform Up to Youth community selection. ● LEGA also met with USAID EMPOWER to discuss local economic development activities in the northern municipalities referenced in 1.1.4. LEGA will utilize lessons learned from EMPOWER to design activities in Year 2. One potential area of interest for LEGA is in the sector of business plan development amongst youth in LEGA municipalities. This activity could potentially be of interest to and led by LYACs. ● LEGA had established contact with Peace Corps Volunteers that are currently volunteering in LEGA Municipalities. LEGA presented its activities in respective municipalities and outlined areas where volunteers could join in the implementation. ● LEGA met USAID’s Justice Matters Activity to collect information and lessons learnt on their internship program. It is expected the LEGA will continue to investigate the similar experiences of other USAID-funded activities and then develop a concept for its own internship program.
LEGA is committed to collaborating and coordinating with various stakeholders at different levels to ensure that efforts are synergized and not duplicated. The key stakeholders in the sector are TEAM and DEMOS, while UNMIK is also involved in working with women and youth groups. LEGA and DEMOS established a working relationship in Year 1, with the two programs coordinating activities in the planning phase. In Year 2 (and beyond) LEGA and TEAM will share best practices regarding transparency and good governance. Coordination of activities with other donors present in the sector remain on LEGA’s agenda, as explained below. LEGA is also involved with donor community local level coordination mechanisms for the activities that are taking place in the northern municipalities of Kosovo such as UNMIK, UN Habitat, OSCE and EUOK. Other than the most relevant stakeholders outlined above, LEGA continues to coordinate and monitor activities of other donors active in the sector, including the following. ● DRC focuses on working with the returnees and their re-integration into society. Both LEGA and DRC will be working with MOCRs in LEGA municipalities, albeit on different aspects. While LEGA focuses on communities and their inclusion, DRC will focus on returnees and their reintegration. Further coordination is required to ensure that activities in this sector are complementary. ● LEGA coordinates with SDC/DEMOS to avoid overlap. LEGA has several activities designed to help its partner municipalities improve in areas measured by the Performance Grant which is designed to lead to their improvement in the upcoming assessment cycle, thus resulting in funding increase to LEGA partner municipalities. ● LEGA is actively observing developments with the Western Balkans Security and Stability Fund, funded by the British Embassy, which will be awarded during 2020. The Fund will overlap with both objectives, if the new program targets LEGA municipalities. Once awarded, LEGA will meet with the Western Balkans Security and Stability Fund to maximize collaboration and minimize overlap. ● Along with the GIZ, UN Habitat and British Embassy, LEGA also attended a World Bank meeting on engagement in Kosovo-Serb-majority municipalities, where the World Bank’s recent study was discussed. Provided that the World Bank goes ahead with its plan for Kosovo-Serb-majority municipalities engagement, LEGA will observe its intervention to avoid duplication and encourage complementarity.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
● During Year 1, LEGA coordinated local level activities with UNMIK, which implements activities in northern municipalities focused on gender and youth. As LEGA activities in northern municipalities escalate in Year 2, LEGA will further coordinate with UNMIK at a programmatic level to avoid potential overlap and leverage each other’s activities. ● LEGA conducted a meeting with the representatives of International Business College Mitrovica (Riverview Campus, North Mitrovica) regarding potential cooperation on capacity development of LYACs in the four NSMMs. ● LEGA conducted a coordination meeting with the UN Habitat municipal advisor in Zvečan/Zveçan regarding the possible overlap in the development of the Municipal Action Plan on Transparency (MAPT) initiated by LEGA and Citizens Participation Plan currently developed by UN Habitat.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
6. COMMUNICATION AND OUTREACH The implementation of LEGA activities during the first year of the LEGA has enabled the communications and outreach department to establish a close collaboration with partner municipalities as well as central level stakeholders. LEGA’s communication team plays a critical role at the front and back end of programmatic activities and initiatives. Prior to events, LEGA utilizes resources and partnerships to promote activities to maximize awareness and participation. LEGA then uses a multi-pronged approach to reporting on programmatic impact and successes. Event and Activity Promotion LEGA regularly shares activity information with municipal PIOs, IWGs, LYACs, and non-majority community members so as to increase inclusion and representation in municipal participatory mechanisms such as budget hearings. For example, through interactive discussions at the Istog/Istok municipal budget hearing, municipal officials received constructive feedback and inputs which are now included within the municipal budget for 2019 to 2021, including three road projects for non-majority communities, irrigation system construction in Dobrusa and the reconstruction of a community center in Srbobran/Serbobran village. LEGA Outreach via Partner Municipalities and other Stakeholders/Beneficiaries LEGA’s communications department has actively worked with partner municipalities in promoting LEGA’s initiatives. The team has also stayed on top of informing relevant stakeholders with information of our activities and achievements to better reach target audiences. This includes other LEGA stakeholders and beneficiaries, as demonstrated below:
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
Reporting Outcomes and Successes Beyond LEGA’s contractual reporting requirements (i.e.: weekly and quarterly reports), LEGA utilizes a range of media and mechanisms at different times to report on both programmatic success and impact in the municipalities. Methods for communicating have included traditional media (newspaper, television) and social media such as USAID’s Facebook page. Recognizing that success or impact may occur weeks or months after LEGA supports an activity, LEGA tracks programmatic impact then promotes success using the appropriate medium. Traditional media LEGA recognizes that a high percentage of citizens in Kosovo still receive news from traditional news outlets such as newspapers, television and radio. To maximize outreach, LEGA invites traditional media outlets to large events. For example, television stations and newspapers were invited to the memorandum of understanding signing ceremony in July 2019.
USAID Kosovo Facebook page LEGA communications focused on promoting our activities through USAID Kosovo’s Facebook page, which disseminates information on the project’s events and news to a broader audience. LEGA works closely with the USAID Kosovo Mission’s communications staff on social media appearance which included posts that raise awareness of initiatives across partner municipalities. For example, LEGA supported LYACs from Leposavić/Leposaviq in organizing an awareness event on the harmful effects of smoking as part of World No Tobacco Day in May 2019. LEGA also promoted the establishment of IWGs in northern Kosovo.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LEGA has used a standardized preselected list of hashtags by relevance to the activity on the Mission’s Facebook page. This minimizes users’ search for LEGA activities and events by separating posts according to relevance. All posts on USAID Kosovo’s Facebook can be found by searching the following hashtags. #KosovoLocalEffectiveGovernance – our team’s main hashtag #KosovoCommunitites – material representing collaboration between communities #KosovoNonMajorityInclussion – material when non-majority inclusion is evident #BringingCommunitiesTogether – material on joint communities’ actions #eGovernanceKosovo – material on e-platforms relevant for governance #EffectivePublicServices – material where USAID supported the improvement of public services #MyMunicipalityKosovo –material from all benefits of the municipality from USAID #KosovoWoman - material on woman groups related activities #KosovoGenderEquality – used for gender-related activities #KosovoYouth – used for youth related activities #KosovoGoodGovernance – used to highlight governance enhancement activities #ParticipateKosovo - a piece of material enhancing Kosovo community’s inclusion. Success stories By the end of Year 1, LEGA began drafting longer success stories that demonstrate LEGA’s impact on municipalities and citizens. As LEGA’s technical approach focuses less on implementing activities and more on building capacity of municipal actors and citizen groups, these stories take longer to unfold and thus take longer to produce. For example, in March-April 2019, LEGA worked with MLGA to promote the opportunity for municipalities to apply for inter-municipal cooperation grants. A grant was ultimately issued to Istog/Istok and Klinë/Klina to clean up the Istog Riverbed, with the implementation phase beginning in September 2019.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
7. ENVIRONMENTAL STATUS REPORT (ESR) During Year 1, LEGA did not have any activity with negative determination (and no Environmental Report was produced). All LEGA interventions follow environmental regulations per the IEE.
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
8. ANNEXES ANNEX 1.1 Sample Posts and Hashtags for Communications and Outreach Activities
LINK: https://www.facebook.com/usaidkosovo/posts/2247960115288430
LINK: https://www.facebook.com/usaidkosovo/posts/2188146601269782
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LINK : https://www.facebook.com/usaidkosovo/posts/2194640260620416
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
ANNEX 1.2 Content from MLGA Website
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
LINK: https://mapl.rks-gov.net/en/news/minister-hodzic-in-a-meeting-with-the-representatives-of- usaid-and-the-representatives-of-the-usaidlega-project/?cptadid=100100035
LINK: https://kk.rks-gov.net/obiliq/news/kryetari-xhafer-gashi-priti-ne-takim-drejtorin-e-ri-te-usaid- it-daniel-serban/
USAID Local Effective Governance Activity – Annual Report, July 18, 2018 – September 30, 2019
ANNEX 2 LEGA Brochure