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Evaluation of Finland's Development Cooperation

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Evaluation of Finland's Development Cooperation EVALUATION OF FINLAND’S DEVELOPMENT COOPERATION WITH BOSNIA AND HERZEGOVINA Ms. Birgitta Berggren, SIPU International Mr. Anders Olin, SIPU International 1 TABLE OF CONTENTS 1. EXECUTIVE SUMMARY................................................................................................4 2. INTRODUCTION............................................................................................................9 2.1 The aim of the evaluation ........................................................................................ 9 2.2 Scope and approach.................................................................................................. 9 3. THE FINNISH CONTEXT .......................................................................................... 12 3.1 The Bosnian programme ....................................................................................... 14 4. THE BOSNIA AND HERZEGOVINA CONTEXT..................................................... 18 5. FINDINGS...................................................................................................................... 23 5.1 Social sector.............................................................................................................. 23 5.1.1 Women’s projects in Mostar......................................................................... 23 5.2 Economic infrastructure ........................................................................................ 31 5.2.1 District Heating Project in Sarajevo ............................................................ 31 5.2.2 Donation of a railway tracklayer machine .................................................. 37 5.3 Reconstruction and Return.................................................................................... 40 5.3.1 The return process.......................................................................................... 40 5.3.2 Fida International in the Doboj area........................................................... 41 5.3.3 FinnChurchAid/Lutheran World Federation in Ostra Luka/Orasje.... 44 5.3.4 The Finnish CIMIC work ............................................................................. 47 5.4 The judiciary............................................................................................................. 55 5.4.1 Independent Judicial Commission............................................................... 56 5.5 Other already evaluated projects........................................................................... 59 5.5.1 The Social Sector Support Project............................................................... 59 5.5.2 The Gender Equity and Equality Project ................................................... 62 5.5.3 The Teacher Education and Professional Development Project........... 65 5.5.4 The ERNO News Exchange........................................................................ 68 6. CONCLUSIONS ON THE COUNTRY LEVEL .......................................................... 71 6.1 The instruments....................................................................................................... 71 6.2 Relevance.................................................................................................................. 72 6.3 Effectiveness ............................................................................................................ 73 6.4 Efficiency.................................................................................................................. 73 6.5 Sustainability............................................................................................................. 74 6.6 Project management ............................................................................................... 75 6.7 Other administrative considerations.................................................................... 75 6.8 Coordination and cooperation.............................................................................. 77 6.9 Post-conflict issues.................................................................................................. 78 7. THE FUTURE/RECOMMENDATIONS.................................................................... 81 7.1 The need for continued international assistance................................................ 81 7.2 The future direction of finnish assistance........................................................... 81 ANNEXES 1. Terms of Reference 2. List of Informants (provisional) 3. List of References (provisional) 4. IPSA technical assessments 5. Other donors’ programmes 2 LIST OF ACRONYMS AOR - Area of Responsibility IDEJA - local NGO in Mostar BAM – Bosnia and Hercegovina Mark (currency) IDPs – Internally Displaced Persons BHRPC – Bosnia and Herzegovina Railway Public Corporation IFOR – Implementation Force, 1st Peace keeping mission in BiH BiH - Bosnia and Herzegovina IJC – Independent Judicial Commission CARDS - Community Assistance for Reconstruction, IMG - International Management Group Development and Stabilisation IPSA – a engineering consultancy in Sarajevo CCM – Civilian Crisis Management IPTF - UN International Police Task Force CEDAW - The International Convention on the Elimination of all Forms of Discrimination Against Women ISO - International Organization for Standardization CIMIC – Civil-Military Cooperation JSAP - Judicial Structure Assessment Programme CRPC - Commission for Real Property Claims LWF – Lutheran World Federation CTA – Chief Technical Adviser MFA – Ministry for Foreign Affairs of Finland CWBIH - Connecting women in BiH MHRR - Ministry for Human Rights and Refugee Return of BiH DAC – Development Cooperation Directorate of OECD NATO – Northern Atlantic Treaty Organisation DFID – Department for International Development, UK ODA – Official Development Assistance DH – District Heating OHCHR - The Office of the High Commissioner for Human Rights EBRD – European Bank for Reconstruction and Development OHR - Office of the High Representative EBU - European Broadcasting Union PBS – Public Broadcasting Service of BiH EE – Ekono Energy PIC - Peace Implementation Council EIB – European Investment Bank PIU – Project Implementation Unit ERNO – South Eastern European Regional Network of public Broadcasters PSO - Peace Support Operations Branch EUPM - EU Police Mission RRTF – Reconstruction and Return Task Force. EUPM - European Union Police Mission RS – Republika Srpska EVN – Eurovision Network RTRS – Radio and Television of RS FBiH – Federation of Bosnia and Herzegovina SAp - Stabilization and Association process FCA - FinnChurchAid SDA – Nationalist Bosniac party nd FRC - Finnish Refugee Council SFOR – Stabilisation Force, 2 Peace keeping mission in BiH FTV Federation of BiH TV SSSP – Social Sector Support Project GEEP – Gender Equity and Equality Project TAER - Technical Assistance for Educational Reform (supported by EC) GFP - Gender Focal Points TEPD – Teachers’ Education and Professional Development GTZ - Deutsche Gesellschaft für Technische Zusammenarbeit Project GTZ – The German official aid agency UNDP – United National Development Programme HDZ – Nationalist Bosnian Croat party UNESCO - United Nations Educational, Scientific and Cultural Organization HJPC - High Judicial and Prosecutorial Councils UNHCR – United Nations High Commissioner for Refugees IBHI – Independent Bureau for Humanitarian Issues UNICEF – United Nations Children’s Fund ICTY - International Criminal Tribunal for the Former Yugoslavia USAID – United States Agency for International Development ICVA – International Council of Voluntary Agencies WB – World Bank IDA – International Development Association CURRENCY In all conversions Finnish Marks to EUR the following rate has been used: 1 Finnish Markka = 0.16819 Euro; 1 Euro (EUR) = 5.94573 Finnish Markka (FIM); 4,5 Finnish Markka=1 USD. The official rate of the Bosnia Hercegovina Mark (BAM) is 0,5 Euro. 3 1. EXECUTIVE SUMMARY SIPU International carried out the present evaluation between September 2003 and March 2004. Around 115 persons have been interviewed during missions in Finland and Bosnia and Herzegovina. The report begins with an overview of the Finnish policy environment and the administrative structure in the Ministry for Foreign Affairs. It is observed that since 1996, several policy documents have been produced regarding international development cooperation to update its foundations and principles in accordance with Finland’s new foreign policy outlook. Harmonisation with EU and coherence of all foreign policy instruments is emphasised. While several administrative reforms have been carried out there is not enough capacity at the MFA to manage high quality development programmes, as has been observed in several other evaluations. The target for Finnish assistance in Bosnia and Herzegovina (BiH), the peace process, has been slow and dramatic at times. The Dayton agreement, far from perfect, has been difficult to implement, due to nationalist divisive politics and the ethnic divisions which have still to be fully reconciled. There has been dramatic progress on several fronts however, e.g. on the economic front, with low inflation and stable (albeit minimal) state finances, and considering the return of a million refugees and internally displaced. A sample of nine projects and groups of projects were studied to form a base for country level conclusions. They were the following: NGO projects 1. Reconstruction of two Kindergartens in Other Mostar, 1995-1996 8. Small scale reconstruction
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