ESRC CASE STUDENTSHIP: PARTNER FIELD TRIP REPORT Operation Florian Macedonia November 2015 Laura Hirst

Background and Context

Operation Florian is a UK Fire and settlements. The case study of this research make a social development contribution Rescue Service Humanitarian Aid Charity, will focus on the context of Zimbabwe; to the operation of fire and rescue services delivering projects worldwide to improve however it was suggested that the and associated disaster risk reduction, the operational capacity of fire and researcher join a scheduled project trip which acknowledges that disasters are rescue services. Operation Florian has to Macedonia in November 2015 in order the ‘actualization of social vulnerability’ been working in Macedonia since 2007, to learn more about Operation Florian’s (Lewis 1999:8 in Bankoff et al 2004:2). where it supports the capacity building work in terms of approach, methodology It is hoped that this learning can of local and national fire and rescue and achievements. This trip would also support Operation Florian in addressing services by donating fire appliances and provide an insight into a specific country developmental issues around fire and specialist equipment and delivering context of fire and rescue services, and in rescue and disaster risk reduction in training to firefighters in key technical particular the operational environment resource-poor urban settings in different areas, with the aim of creating a safe in terms of an ongoing process of countries, in a way that complements working environment and improving decentralisation. It is hoped that the its existing technical solutions and the operational effectiveness of fire and findings from this exposure will inform approaches, by recognising that all of rescue services. Additionally, Operation and contribute not only to key questions its projects operate within particular Florian has assisted with the development within the ongoing PhD research but will socio-political contexts. Therefore, how of prevention strategies encouraging fire also contribute to learning and discussion Operation Florian seeks to engage with service personnel to design and deliver for Operation Florian in terms of its and support community-led processes community-focused and participatory ongoing engagement in Macedonia, and needs careful consideration, theoretical safety programmes, seeking to reduce more widely in terms of its institutional underpinnings and an appropriately community vulnerabilities to fire risks approach. The results of this report will be designed methodology. and other disasters. discussed at a workshop to be convened between the University of Manchester At the same time, this document raises An ESRC-funded CASE PhD studentship and Operation Florian in early 2016. additional observations and questions began in October 2015 as a collaboration that may be useful for the organisation to between the University of Manchester As the focus of the studentship project reflect on as it enters the next phase of its and Operation Florian to investigate is on political pressure, advocacy and work in Macedonia. However, it must be bottom-up politics within a context mobilisation within communities in noted that this is not a formal evaluation of decentralisation, investigating fire a political context of decentralisation, or full technical assessment of Operation risks, well-being and pathways towards the report will be framed within Florian’s programme of support to date in community involvement in decentralised this background, drawing on issues the country. fire and rescue services in poor urban raised in the course of the research so far. Through a focus on bottom-up community involvement within a politics of decentralisation, the project aims to

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for local Fire Services and populations. How composition (Albanian, Macedonian has the work of fire services and Operation majorities/mixed population); , Approach Florian to date connected with processes of Probistip, Kratovo, Rankvoce, , To date, the ESRC CASE PhD studentship community engagement and participation Brvenica, , , Sveti Nikole research project has focused on issues of at the local level? How can these be built and . The full schedule of the civil society and community engagement, upon and what lessons can be learned? trip is available in Appendix 1. Available within a context of decentralisation. The documentation, including internal project Relationships between different stakeholders and programmatic material from Operation collaboration with Operation Florian at the municipal level; communities, fire introduces the role and contribution Florian was reviewed (listed at the end of services (professional and voluntary), this report). Engagement with literature on of external agencies in mediating and municipalities, and Operation Florian. facilitating processes of development citizen participation and decentralisation through disaster risk reduction activities. was also incorporated into the framing of the report. The information gathered was From reviews of literature so far, a key Methodology systematically analysed and triangulated issue within decentralisation studies is The methodology used is based on a case with the sources listed. an overwhelming focus on bureaucratic study approach to the work of Operation efficiency and service delivery outcomes Florian in Macedonia, looking at the over and above the envisioned deepened extent to which decentralisation has democratic potentials such processes are opened up new democratic spaces, and often theoretically bound to deliver. In provided opportunities for participation addition, studies of decentralisation often in securing the provision of local services, neglect the role of civil society in such in particular fire and rescue services. This processes. This report looks specifically is done in order to highlight the political at linkages between service delivery, context within which Operation Florian democratic and civil society processes, and works, and how it can seek to engage with the role of an external agency in potentially these processes in a strategic way. bridging the space between the two. The researcher visited Macedonia from 7 th To this end, the following is analysed in to 14 th November 2015, accompanying UK terms of the case study of Macedonia and and Macedonian Operation Florian staff Operation Florian’s work. on one of their regular project trips to the The type of decentralisation undertaken country. The researcher was also able to in Macedonia, and how this has affected observe Operation Florian meetings with governance and service delivery, with specific local and national stakeholders concerning reference to the Fire and Rescue Service. future projects. In addition, the researcher held informal conversations with key Mechanisms and spaces available for citizen respondents within municipal fire services, participation that address the ‘deepened government institutions and municipalities democracy’ concerns of decentralisation in Skopje and ten municipalities across Insignia of Macedonian and how Operation Florian engages with the country that represented a mix of 3URIHVVLRQDO)LUHŵJKWHUV these beyond securing material benefits urban and rural areas and demographic

2 &$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ some to be reflective of the main driver of decentralisation in Macedonia; namely the 3URJUDPPHEDFNJURXQG resolution of ethnic disparities rather than any explicit recognition or commitment to effective, substantive local governance (Mohmand and Mejia Acosta 2012:5). Many financial and administrative functions including ownership of natural resources remain under centralised jurisdiction. In 2004, when the law on municipal boundaries was passed following the OFA, Macedonia was divided into 84 municipalities (plus the City of Skopje, which consists of ten municipalities), each with its own directly elected Mayor and municipal council. Budgets are financed through personal income tax and supplemented by the national budget through block grants for services such as education and culture, which according to law should be proportional to population (Lyons 2012:204). Municipalities vary widely in terms of population, (from 1000 )RUPHU

&$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ 3 Operation Florian delivering tactical ventilation training in WKH0XQLFLSDOLW\RI7HWRYR negotiate with each national institution, and NGOs as opposed to local, community- were not widely known about by those compounding existing disadvantages faced based engagement. However, civil society spoken to. Previous research has found that by those municipalities lacking capacity to engagement can be mobilised around rates of participation in municipal activities do so. This problem is managed to some specific activities; an annual national tree are generally low, with few citizens reporting extent by the Association of the Units of Local planting day has been hugely popular in contacting a municipal representative Self-Governance (ZELS), which functions as recent years. At the same time, respondents for help, and few believing that they had an ostensibly independent association for did not consider the strong community any influence over municipality decisions mayors, and is the only formal mechanism ties that exist in many parts of Macedonia, (UNDP 2009 and UNDP 2010 in Lyon available to municipalities for influencing through the family, and local institutions 2012:124). central government policy (Lyon 2012:76). such as schools, places of worship and ZELS is comprised of a number of policy work (see box on page 8 on Volunteer Fire The Swiss Development Corporation (SDC) committees which lobby central government Services (DPDs) in Macedonia) under the ran a Community Forums Programme in on behalf of municipalities, creating both rubric of civil society. three phases from 2006 to 2014, which vertical linkages to government and horizontal aimed to support the decentralisation linkages between municipalities (Jordan Aside from the opportunity for voting for process from a participatory perspective, 2010:38). Mayors and councils, there are mixed to ‘support participatory community opportunities for citizens to participate development through direct citizens’ locally, and these appear to vary from one participation in local governance, providing Decentralisation and municipality to the next. Whilst citizens spaces for citizens to communicate directly are required by the Law on Local Self- and exchange information with mayors spaces for participation Government to ‘directly participate in the and municipal administration on various One of the key intended benefits of decision-making processes on issues of community-based issues’ (Parvex 2009; decentralisation, namely expanded local importance through civil initiative, SDC TORs in Mohmand and Mejia Acosta democratic participation or deepened citizens’ gatherings and referendum’ (2002 2012:14). Participants were given the democracy, is an ongoing concern within Art. 25 in Lyon 2012:121), in practice this is opportunity to prioritise local needs Macedonia. Generally, relations between interpreted widely between municipalities. and resulting projects have dealt with civil society and local government in The use of consultation hours and meetings infrastructure, economic development, Macedonia seem to vary according to with neighbourhood communities and water supply and environmental protection region and municipality. In Gostivar, citizen groups to discuss specific issues (Lyon 2012:123). However, sustainability one of the largest municipalities in the is becoming more widespread (Lyon has been difficult to achieve, with many country (population 81,000), located in 2012:121). Respondents also referred forums taking place only in times of north-western Macedonia and a majority to practices such as publishing approved need rather than on a regular basis, and Albanian city, numerous cooperations budgetary accounts in local gazettes or also affected by regular changes in local between the municipality and local online, broadcasting municipal sessions politicians, who may implement them at civil society organisations were cited, on local television in some areas, and their own discretion. In addition, ZELS whereas in other municipalities visited the use of regular community forums by hold community forums to consult citizens minimal collaboration was mentioned. others. Some municipal councils operate on prioritisation of projects. These forums The notion of ‘civil society’ was reported to open committees dealing with various are embedded within local legislation but be a relatively new one in Macedonia and operational issues and competencies, there was little evidence from conversations conceptualised by stakeholders generally which function as invited spaces for citizens with local stakeholders that they were in terms of international donor support to discuss particular issues. However these happening in practice.

4 &$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ Aside from formal spaces of participation, 2015:1282). Responsibility for the fire service training centre, substantive national standards Mesni or Urbani Zaednici (literally Local was shifted from the Ministry of the Interior or a functioning fire service inspectorate. Community, rural and urban respectively) to municipal authorities and the Directorate are traditional forms of sub-municipal, for Protection and Rescue (DPR). Municipal Decentralisation and the resulting lack of national community based self-government found authorities are responsible for firefighting or regional coordination of fire services has led to in many municipalities, recognised and units, forest and range fires and technical ‘friction, duplication, decision making problems regulated in the 2002 Law on Local Self- interventions. The DPR, an independent and a lack of understanding of roles and Government. Through these informal government agency with representatives in responsibilities’ (UNDP 2007:29) within the fire service as well as lack of coordination and misuse institutions, citizens may come together each municipality , is responsible for setting to discuss issues, strategies and proposals rules and legislation on how the fire services of resources. Salaries for firefighters employed and often have resources allocated to them operates, as well as supervising performance pre-decentralisation (2004/5) continue to be paid by mayors for certain tasks, thereby acting through its inspection department and by the national government, channelled through as mediating institutions between citizens providing specialist technical equipment the municipality, whereas new firefighters are and municipal governments. They often for local and national fire services. However, funded directly by municipal income, resulting focus on issues such as implementation this was reported to rarely happen in practice in lower salaries. The withdrawal of central of projects, waste management and inter- due to a lack of firefighting expertise within government responsibility has also led to loss community relations. Although they can be the directorate, and the fact that ‘firefighters of economies of scale in the procurement and strongly partisan with strong ties to Mayors in Macedonia are generally left alone’ (DPR maintenance of equipment, resulting in higher (Mohmand and Mejia Acosta 2012:21), representative). The DPR also carries out costs for municipalities, and greater reluctance they can sometimes transcend the politics local risk assessments – for companies and to commit to spending. Municipalities are that often dominate municipality functions. local municipalities – but this only takes now responsible for the entire running of local into account hazard identification, and not fire services (equipment procurement and vulnerability measures. ZELs addresses maintenance, recruitment, retention, funding, Decentralisation and fire issues through a sub-component of training), resulting in vast inequities in how fire the Committee on Communal Issues, and services in different parts of the country are run VHUYLFHGHOLYHU\ƓUHDQG through communication with the National Fire according to location and therefore ability to rescue services Services Network (created following a series of pay for and manage these different functions. workshops convened by Operation Florian Under-developed local revenue systems mean The fire service was one of the key services with Chief Fire Officers in 2009). Despite that some municipalities, especially smaller, devolved to the local level included within these additional stakeholders and linkages, rural ones find it difficult to source their own tax areas of public service; urban and rural in reality there is little to no national focus on revenue. In addition, the absence of a formula for planning; environmental protection; local fire service matters in terms of recruitment, central funding of municipalities according to size economic development; culture; local training, equipment procurement, operational means that many smaller, rural municipalities finances; primary and secondary education; competence; additionally there is no national struggle to fund local services, particularly fire social welfare; and health care (Lyon and rescue services, of which they have limited understanding or knowledge. Operation Florian has attempted to address the resulting gaps in equipment, training, and capacity of local fire services through its programme in Macedonia over the last 8 years, as well as drawing links with and attempting to address broader and underlying issues of policy and institutional change.

Operation Florian’s involvement in Macedonia The involvement of Operation Florian in Macedonia began in 2007 following a request for assistance in the form of fire appliances and equipment from the Sveti Nikole Volunteer Fire Department (DPD). Following vetting procedures, a scoping visit and viability assessment were completed. As 0DFHGRQLDVKRZLQJ2SHUDWLRQ)ORULDQWUDLQLQJDQGGRQDWLRQV a result, a three-year project was approved WKURXJKRXWWKHFRXQWU\VLQFH 6RXUFH2SHUDWLRQ)ORULDQ by the Operation Florian board to support

&$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ 5 capacity building processes of Municipal an emergency service inter-operability Fire Services, within a context of unfolding programme to improve response and decentralisation, as described. Subsequent operational effectiveness (communication contact with the British Embassy was made practices, operations and division of in order to develop a formal relationship for responsibility) at road traffic collisions. advice and financial and in-kind support. British Embassy funding streams at the time gave strong support to projects which would Fire service community assist in the integration of decentralisation engagement throughout the country, and therefore the work of Operation Florian aligned with such In Macedonia, community safety interests. Funding also came from Operation engagement related to fire was Florian local fundraising activities in the UK, historically coordinated by the and beneficiary municipality authorities Republic Fire Fighting Union (RFFU) contributed to the transportation costs of and delivered by volunteer fire equipment. Programme activities to date departments (DPDs). The RFFU retains have included the following, across more this responsibility, and produces than 20 municipalities: materials and runs young people’s Protective clothing donated schools fire safety quizzes, based on Donations of equipment, appliance and WR5DQNRYFH)LUH6WDWLRQ firefighting and science rather than personal protective equipment, including 15 prevention. However, in conversations E\2SHUDWLRQ)ORULDQ fully equipped firefighting vehicles. with professional fire services, many Comprehensive and specialist firefighting stressed their engagement with training on the use of donated equipment, local schools on community safety including equipment maintenance training. and prevention work. This had been bolstered by the community safety Donation of equipment (quad bikes programmes undertaken by Operation and specialist urban search and rescue Florian, as described previously, as well equipment) to the Directorate for Protection as events such as public fire drills and and Rescue. extrication challenges. An extrication Train the trainer training in community safety. challenge in Skopje in 2014 drew in large crowds of schoolchildren, other Road safety awareness training (including emergency services and members supporting a fire service road safety of the general public, and anecdotal initiative in schools and involvement in evidence showed an increased public )LUVW$LGWUDLQLQJGHOLYHUHGE\ road accident extrication challenges) recognition and appreciation of the 2SHUDWLRQ)ORULDQDQGWKH5HG&URVV work of firefighters. Water rescue training. 2KULG Some fire services in rural municipalities, First aid training for firefighters and such as Probistip, had good relationships volunteers, in collaboration with the with agricultural workers and collaborated Macedonian Red Cross. on preventing and managing forest fires Exchange visits for the training of local using shared equipment and vehicles, and specialist instructors and train the trainer tactics in creating firebreaks, exchanging courses in the UK. information as necessary. Prevention work in industrial zones of those municipalities Support for the creation and capacity which are home to heavy industry, such as building of a representative body for Kratovo, Radovis, and Strumica, was also Macedonian Fire Services through the cited as another area of key community work. 5RDG7UDIŵF&ROOLVLRQH[WULFDWLRQ Association of the Units of the Local In the larger, more urban municipalities, Self-Government (ZELS) following an cooperation with private companies in GHPRQVWUDWLRQ Operation Florian consultancy report executing drills, and training on emergency on the organisation of Fire and Rescue exits, hydrants and hoses were given as Services in the Republic of Macedonia for examples of activities undertaken. However, the Department of Protection and Rescue. in Radovis for example, this was not standard practice across the municipality, Since May 2015, Operation Florian has and only happened at the instigation of the been planning for its next programme business in question. This had only taken phase in Macedonia. This is focused on

6 &$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ Institutional relationships Government of the Former Yugoslav Republic of Macedonia

Ministry of Forestry Ministry of Local Self Directorate of Government Protection and Rescue

ZELS (Association of the Republic Firefighting Units of Local Self Governance) Union Committee for Communal Issues

Municipalities

PE Macedonian Forestry Municipality Fire Service Volunteer Fire Units Regional DPR Units

,QVWLWXWLRQDOIUDPHZRUNLGHQWLI\LQJNH\DFWRUVDQGVWUXFWXUHRIUHVSRQVLELOLW\IRUŵUHVHUYLFHIXQFWLRQVLQ5HSXEOLFRI 0DFHGRQLD6RXUFH-RUGDQ>@ place with large industries and businesses, to engage more proactively with their own rather than at the level of small or medium communities, especially schools. In 2011 5HODWLRQVKLSV EHWZHHQ ƓUH sized enterprises. Risk assessments and Operation Florian arranged for an exchange visit services and municipalities community education were carried out of community safety practitioners to deliver train on new, high rise buildings by some, the trainer programmes in the municipalities Conversations with a range of fire services urban, municipalities, such as in Veles and of Veles, Kriva Palanka and Stip. This was met revealed differing relationships with Strumica; however there was no equivalent by a certain level of institutional opposition municipalities. In some municipalities, practice for older buildings to be checked from professional firefighters, as historically generally smaller ones such as Probistip or equipped. In general, a good level of this had been the job of DPDs and municipality and Kriva Palanka, meetings between the community relations was said by several offices, not professional firefighters. However, fire service and the municipality happened fire services to be demonstrated through subsequent safety programmes undertaken by on an ad hoc basis, when something was the willingness of the community to call on fire services have been reported in Veles, and as needed (equipment, uniforms), or when the fire service to assist with non-fire related mentioned, the majority of fire services visited a particular incident occurred. Stronger events (locked doors, stuck elevators, lost reported undertaking fire safety and prevention relationships and/or more regular animals, etc.). Aside from the above, fire programmes in local primary schools and meetings (in some cases weekly) between and rescue services did not seem to be secondary schools. Beyond schools and a limited municipalities and fire services correlated involved in any participatory governance number of company visits, there did not appear with more affluent and larger municipalities mechanisms at the local level (community to be any other community engagement, for such as Radovis, Strumica and Tetovo. forums, committees, etc.) apart from direct example with specific groups – the elderly, people The autonomy that municipalities had to appeals or budget meetings with the Mayor. with disabilities, home safety visits, partnerships add tasks to existing fire service functions with social services etc. (such as asking them to clean waterways In terms of Operation Florian’s engagement and roads, provide refuse collection or on community safety and prevention, the security for events) as well as politicised organisation has delivered pilot projects with appointments of fire chiefs led to some the aim of encouraging municipal firefighters resentment by firefighters of municipal

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With reference to the fire service and However, in some municipalities there created a volunteer group of firefighters community engagement, the volunteer fire is no link between the two services, and and broad range of other community service (DPD) is an important institution in there is a perception among professional members (numbering approximately terms of the position it occupies between firefighters that DPDs pose a threat to their 150) to act as community safety advisors, civil society organisation and service jobs. DPDs have traditionally taken more and conducted a community based risk provider, and the opportunities it provides of a role in community prevention and assessment with Operation Florian in for local participation and engagement safety, to the point that some professional 2011. of communities. In theory, DPDs work to fire services have been resisted the idea of support and cooperate with professional incorporating community safety work into Whilst these two examples reflect the fire services. DPDs have traditionally their own work. Some DPDs receive a small potentials of DPDs, they very much depend been utilised as support for a range amount of funds from the municipality, on the enthusiasm and commitment of emergency incidents, such as forest as well as support in recent years from of volunteer leaders and as such, the fires, flooding and in some cases, minor Operation Florian. In Sveti Nikole, a DPD intensity of their activities often varies earthquakes. The DPD in Sveti Nikole has existed in some form or another since over time according to the involvement was also recently requested to provide 1935, and today its headquarters function of particular people. However, from a fire cover at a recent EU Instrument for not only as a base for volunteer firefighters, strategic perspective, DPDs would appear Pre-accession Assistance training exercise and Operation Florian, but as a training to be important entry points for community which involved setting up an internally and education centre, base for a young engagement for both professional fire displaced persons (IDP) camp for local firefighters programme, and important services and Operation Florian, in terms of residents, illustrating recognition of their community focal point for local activities opening up space in their methodology to capabilities and position within local including women’s groups, and Peace Corps support local participatory processes with communities. language training. In Cair municipality, in the aim of improving services. the city of Skopje, a local shift commander authorities, and reflected and exacerbated inequalities in pay between old and new in Probistip reported relying more on issues around the perceived status of firefighters. assistance from their DPR regional office the fire service in certain municipalities. than their own mayor. Relationships between fire services and Firefighters are currently categorised at the DPR were mixed. Some services the lowest level of technical and support cited regular and thorough reporting personnel within the municipality structure, Relationships between agreements, but many felt the DPR to be reflecting a lack of recognition of status and passive in its approach to fire protection professional capability. The positive aspects ƓUHVHUYLFHV and the fire service generally. This was of decentralisation were broadly perceived The relationship between regional fire echoed by the DPR itself, who recognised in terms of financial administration; the services was generally a positive one, a lack of specialist fire protection expertise regular payment of salaries was appreciated with mutual aid agreements reported (only two staff out of nearly 300 within across all services, and was felt by many to be in place between neighbouring the DPR currently have a firefighting fire services to be the only positive aspect municipalities in case of disasters beyond background). However, the fire service of the decentralisation process, despite the capability of one municipality. Whilst

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Decentralisation in Macedonia has been implemented in a would be interesting for Operation Florian to therefore reflect on delegated manner. Financial and technical responsibilities how now feels it can make the greatest impact in improving fire have been assigned to municipalities without sufficient services and community safety. This could mean complementing support in terms of capacity building and finance, and without its material and technical assistance by supporting and using institutionalised provision for participatory mechanisms local democratic processes and spaces to advance the status of to fulfil the increased democratic potential promised by the fire service and community safety in the future. decentralisation. The fire service has felt the full force of this process, with responsibility for management delegated to The findings from this report show that there is potentially scope often under-resourced municipalities lacking experience in fire for Operation Florian to bridge or support the intended aims of service matters and the ability to sustain and maintain services. decentralisation - effective, expanded local service delivery and democratic participation. This could be through championing Over the last eight years, Operation Florian has delivered an projects that provide a space for citizen participation, an impressive set of technical and capacity building programmes expanded space for fire service participation and recognition at to the fire services throughout Macedonia, filling gaps in the local level and thus support for wider developmental goals equipment and appliance provision, national standards of of deepened democracy and access to services for all. Closer training as well as building visibility and recognition of the work with volunteer fire services (DPDs) could be one way of service. Community safety work has also been piloted into the doing this, and can be conceived of as a form of co-production, country programme, with a focus on road safety and schools. They whereby communities engage with the state to produce basic have also made important progress in working at the national services. level on the institutionalisation of the fire service, in terms of promoting partnerships and facilitating national forums and In recent years, co-production has been applied as a way for debates on the status, problems and future of the fire service, communities to communicate and negotiate with the state through the creation of the National Fire Service Network, its as well as an extended means of local governance of public work with ZELs, the DPR, and government through the Ministry services, potentially deepening democratic practices at a city of the Interior and Ministry of Health. This is very promising level. The volunteer fire service can be viewed as a form of co- and shows that through its long-term involvement, Operation production - existing literature has shown that when strategically Florian has made considerable progress in engaging in national positioned, this can not only enhance the capacity and safety of policy-level dialogue. Some work has also been carried out on communities, but could potentially be used to stimulate further community-based disaster risk reduction in the Municipality support from municipalities and in this case to foster more of Cair, Skopje, working with local volunteer and professional substantive collaboration with professional fire services. firefighters to identify local risks and DRR strategies. Generally, Continued support to the community-based disaster risk there is a high and impressive level of partnership commitment reduction project as facilitated by the DPD in Cair municipality from all sides involved, and recognition of the transparency, could be one way of supporting co-production processes and openness and honesty about the aims of Operation Florian, as deepening democratic participation at the local level. It would well as its limitations, and awareness of where it can find new also expand the scope of the limited safety and prevention spaces for engagement. work that is currently being carried out by fire services. This Whilst this work has had undoubted impact in terms of kind of process could be used as a pilot and opened up to material provision, in the take-up of some community safety include a more diverse range of community members in work, and ultimately in increased safety and rescue provision a series of participatory planning exercises to gain a more in municipalities, Operation Florian is aware that in order contextual, grounded understanding of the hazards, risks and to avoid over-reliance in the future on its presence for any vulnerabilities to be addressed. This could be followed by continued focus on the fire service (a matter also raised by community strategising around how these can be addressed, some stakeholders), there is a need to strategically plan future what current services communities and fire services can provide operations. This raises issues of ownership of projects and the and what is still needed, in terms of both technical assistance way knowledge through Operation Florian projects is produced and community safety and prevention work with partners. and transferred, particularly in a case where a strong sense of Participatory action planning of this kind can aid in mobilising national leadership on fire and rescue services is required. It and conscientising local citizens, and if coupled with a local

10 &$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ understanding of spaces for participation that exist locally ethnicities, and professions shows that this is possible. Such (such as through municipal community forums, committees, an approach may also open up wider funding opportunities by Mesni or Urbani Zaenici or DPDs ), could raise community-based linking to other organisations working at the same level, as well awareness and community risk reduction. It could also mobilise as by broadening the scope of Operation Florian. citizens alongside fire services to use decentralised systems of governance to put upwards pressure on local municipalities to The division of responsibility for community safety and prevention uphold their end of the bargain in looking for solutions (either activities between DPDs and professional fire services could locally, or through advocacy nationally) to adequate service be addressed through building on previous Operation Florian delivery through investment, resources and development workshops to help understand responsibilities and the benefits of professional and volunteer fire services. At the same time of collaboration and perhaps repair previous tensions between this could raise more awareness around vulnerabilities of the two groups. Whether community work should solely be the particular communities (beyond working with schools and local preserve of DPDs is a matter for discussion. businesses) or neighbourhoods from a socio-spatial perspective This kind of community-based engagement could provide and improve mutual understanding and recognition between evidence and information on local, municipality-based need fire services, community groups and municipalities. In a context beyond statistical data collection, and allow for the identification like Macedonia, where municipalities are highly politicised and of common needs, and aspirations. This could be fed upwards to embedded within an ethnic context (in addition to the tensions municipalities but also to national networks such as ZELS and the mentioned between volunteer and professional fire services), National Fire Services network for wider advocacy and lobbying this would of course need to be carried out with a great deal of processes. At the same time, participatory processes may contribute sensitivity and local collaboration through partners. However, the towards engaging constituencies at the local level to apply political success of DPD Bajram Miftari in Cair municipality in mobilising pressure and advocacy for service delivery. community volunteers from a wide range of backgrounds,

5HIHUHQFHV %DQNRII * )UHUNV * +LOKRUVW ' (2004) Mapping Vulnerability: Disasters, -RUGDQ66LPSVRQ' (2007) Operation Florian Report on fact finding mission to Development and People, Abingdon, Earthscan. Macedonia 2007 for presentation to the Trustees Meeting on Wednesday 6 June -RUGDQ6 (2010) A critical analysis of the decentralisation of the fire service in 2007. post-communist states involving a case study of the Former Yugoslav Republic of +RDG % +HQVRQ $ (2008) Operation Florian Report for the Director of the Macedonia. MA International Development: Poverty , Conflict and Reconstruction Protection and Rescue Directorate of the Republic of Macedonia. dissertation, The University of Manchester. ZELS and Operation Florian Chief Fire Officers Workshop Report (May 2009) /HYLWDV 7 (2011) ‘Local Government Finances and the Status of Fiscal Operation Florian End of Phase 3 report for Macedonia (2010) Decentralisation in Macedonia: A Statistical Review 2008-2011’, The Urban Institute: Macedonia Local Government Activity, USAID. Operation Florian Disaster Risk Reduction Action Plan. Scoping visit report for the /\RQ $ (2011), ‘Municipal Decentralisation in the Republic of Macedonia: Cair Municipality, Skopje. Draft, November 2011. Preserving a MultiEthnic State?’, Federal Governance, 8(3): 28-49. Operation Florian Macedonia Update to May 2014. /\RQ $ (2012), ‘Decentralisation and the Management of Ethnic Conflict: A Operation Florian website, Latest News http://www.operationflorian.com/latest- Case Study of the Republic of Macedonia’, Submitted for the Degree of Doctor news/ of Philosophy, Department of Peace Studies, School of Social and International Studies, University of Bradford. Operation Florian website, Current Projects, Macedonia http://www. operationflorian.com/gallery/macedonia/ /\RQ $ (2015) ‘Resolving Socioeconomic Disparities through Fiscal Decent- ralisation in the Republic of Macedonia’, Europe-Asia Studies, 67 (8): 1282-1301. Operation Florian website, Newsletters http://www.operationflorian.com/ newsletters/ 0RKPDQG6.0HMLD$FRVWD$(2012) ‘Supporting Decentralisation in Macedonia: An Assessment of SDC’s support to Decentralisation in Macedonia’, Institute of Development Studies. 81'3 (2007) Assessment of Damage and Impact – Forest Fires, July-August 2007, FYR Macedonia, UNDP: FYR Macedonia. Operation Florian documents consulted:

&$6(SDUWQHUƓHOGWULSUHSRUW 2SHUDWLRQ)ORULDQ 11 Appendix: Fieldwork schedule (November 2015) 'DWH $FWLYLW\ 6DWXUGD\1RYHPEHU Travel to Skopje, Sveti Nikole

6XQGD\1RYHPEHU Sveti Nikole

0RQGD\1RYHPEHU Skopje:

AM REVHUYHGPHHWLQJDW'35ZLWKVWDNHKROGHUVRQ5RDG7UDIƓF$FFLGHQWVDQGLQWHU operability (representatives from Ministry of Health, ZELS Fire Service Network, Ministry of Interior, DPR, Municipality of Skopje, Municipality of Tetovo, Municipality of ).

PM 0HHWLQJZLWK/LOMDQD5LVWRYVND3URJUDP2IƓFHUDW%ULWLVK(PEDVV\IRUEULHƓQJRQ decentralisation in Macedonia.

7XHVGD\1RYHPEHU  6LWHYLVLWVWRƓUHVHUYLFHVLQ3URELVWLS.UDWRYRDQG5DQNRYFH - Kratovo: Meeting with Davor Trajovski - Kriva Palanka: Meeting with Ile Kocevski, Chief of TPPE, Kriva Palanka - Rankovce: Meeting with Rade Ivanoski, Chief of Rankovce Fire Service

:HGQHVGD\1RYHPEHU Visit to Skopje: AM meeting with Viktor Arnaudoski, Head of Legal Department, Association of Local *RYHUQPHQWRIWKH5HSXEOLFRI0DFHGRQLD =(/6 IRUEULHƓQJRQDFWLYLWLHVDQG decentralisation. PM meeting with Vlatko Jovanovski, Head of Sector for International Cooperation, Directorate of Protection and Rescue and Ivica Naumovski, Assistant for Operations, Directorate of Protection and Rescue.

7KXUVGD\1RYHPEHU  6LWHYLVLWVWRƓUHVHUYLFHVLQ5DGRYLVDQG6WXUPLFD - Radovis: meeting with Gerco Kocev, Chief, and Ace Spaskov, Shift Commander. - Sturmica: meeting with Aleksander Gudev, Deputy Commander, Vernen Stoilov, Chief of Shift, Goran Tomov, Dejan Ristov.

)ULGD\1RYHPEHU Site visits to Brvenica, Tetovo and Gostivar. - Brvenica: meetings with Ender Pajaziti, Mayor of Brvenica and Goce Jakimoski, President of Volunteer Fire Service (DPD), Brvenica. - 7HWRYRPHHWLQJZLWK%XULP0XVWDƓ GULYHU %DMUDP5H[KD DGPLQLVWUDWRU )DULV;KHPDLOL   ƓUHƓJKWHU 8ND$OLWL &RPPDQGHU %REDQ7USNRVNL GHSXW\FKLHIFRPPDQGHU /XDQ   3DMD]LWL ƓUHƓJKWHU 5L]D0XNDWL ƓUHƓJKWHU 7RGRVLMD'DPMDQRVNL ƓUHƓJKWHU  - Gostivar: meeting with Njoma Selimi Osmani, Head of Sector for Legal Issues, Municipality of Gostivar.

6DWXUGD\1RYHPEHU AM Sveti Nikole - Meetings with Aleksandar Danev, Sveti Nikole DPD, Kristijan Atansaov, Young   )LUHƓJKWHU6YHWL1LNROH'3''DULR3DQHY

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