Independent Evaluation of Expenditure of DEC Kosovo Appeal Funds Phases I and II, April 1999 – January 2000
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Independent Evaluation of Expenditure of DEC Kosovo Appeal Funds Phases I and II, April 1999 – January 2000 Volume I Peter Wiles Mark Bradbury Manuela Mece Margie Buchanan-Smith Nicola Norman Steve Collins Ana Prodanovic John Cosgrave Jane Shackman Alistair Hallam Fiona Watson Overseas Development Institute In association with Valid International August 2000 ,QGHSHQGHQW(YDOXDWLRQRI([SHQGLWXUH RI'(&.RVRYR$SSHDO)XQGV 3KDVHV,DQG,,$SULO¤-DQXDU\ 7KHHYDOXDWLRQFRQVLVWVRIWKUHHYROXPHVRIZKLFKWKLVLVWKHILUVW 9ROXPH,0DLQ)LQGLQJVRIWKH(YDOXDWLRQ 9ROXPH,,6HFWRUDO6HFWLRQV LQFOXGLQJDVHFWLRQRQ:DU$IIHFWHG 3RSXODWLRQVDQG%HQHILFLDULHV 9ROXPH,,,,QGLYLGXDO'(&$JHQF\6XPPDULHV Overseas Development Institute :HVWPLQVWHU %ULGJH 5RDG /RQGRQ 6( -' 7HO )D[ (PDLO KSJ#RGLRUJXN :HEVLWH ZZZRGLRUJXN *UHDW 3RUWODQG 6WUHHW /RQGRQ :1 $+ 7HO )D[ )XUWKHUGHWDLOVDERXWWKLVHYDOXDWLRQFDQEHIRXQGRQWKH'(&ZHEVLWHDW ZZZGHFRUJXN &RYHU5RPDUHIXJHHFKLOGUHQIURP.RVRYRQRZOLYLQJLQ6DUDMHYR 3KRWRJUDSKWDNHQE\3HWHU:LOHVGXULQJWKHHYDOXDWLRQILHOGZRUN0DUFK 'LVDVWHUV(PHUJHQF\&RPPLWWHH Acknowledgements Acknowledgements Many people have made this evaluation possible. The ODI team wishes to acknowledge the support given to the team by DEC member agency staff, both in the UK and in the Balkans. The staff of the Oxfam offices in Belgrade, Pristina, Sarajevo, Skopje and Tirana, CARE International in Pristina and World Vision in Montenegro deserve special mentions, particularly Ollga Cipa, Sonia Cakovic, Merita Mehman, Liz Sime, Tatjana Masic, Samira Krehic and Natasha Kurashova for their tremendous logistical support to the team. Thanks also to Mariola Xhunga and Besiana Belaj for their interpreting work in Albania and Kosovo respectively. In the UK, Heather Hughes of Oxfam and Jamie McCaul and Kate Robertson of the DEC Secretariat provided continual support. The team also wishes to thank all those many people in other agencies and organisations who submitted to our questioning and those directly affected by the crisis who were prepared to talk about their experiences. Debora Kleyn performed great works in establishing the huge document database and keeping up a steady flow of analysis and information. Joanne Aitken worked long hours on the formatting and production of the report. Finally, our great thanks to Nicola Norman for her enormous contribution to making this evaluation possible, for her never-failing support to the team and her calm and unflagging attention to detail. i Table of Contents Table of Contents Acknowledgements ................................................................................................................... i Table of Contents....................................................................................................................iii Figures, Tables and Boxes ....................................................................................................vii Glossary ................................................................................................................................... ix Overall Conclusions and Findings ......................................................................................xiii Executive Summary...............................................................................................................xv Maps..................................................................................................................................... xxxi Regional Map of the Balkans ........................................................................................... xxxi Map of Kosovo ................................................................................................................xxxii 1. INTRODUCTION ............................................................................................................... 1 1.1 Background...................................................................................................................... 1 1.2 Methodology.................................................................................................................... 2 1.3 Limits to the Evaluation .................................................................................................. 4 1.4 This Evaluation in Context.............................................................................................. 5 1.5 About the Report ............................................................................................................. 6 2. CONTEXT OF THE KOSOVO EMERGENCY ............................................................. 7 2.1 Events Leading to the Emergency................................................................................... 7 2.2 The Humanitarian Crisis.................................................................................................. 9 2.3 The Humanitarian Response.......................................................................................... 14 2.4 Rehabilitation in Kosovo: An Uncertain Future............................................................ 17 2.5 Constraints and Achievements ...................................................................................... 18 2.6 Lessons from Kosovo .................................................................................................... 19 3. PREPAREDNESS AND INITIAL RESPONSE............................................................. 21 3.1 Context........................................................................................................................... 21 3.2 DEC Agencies ............................................................................................................... 22 3.3 Situational Analysis....................................................................................................... 22 3.4 Prior Presence in Region ............................................................................................... 25 3.5 Organisational Commitment and Capacity.................................................................... 26 3.6 Conclusions ................................................................................................................... 29 3.7 Recommendations ......................................................................................................... 30 4. APPROPRIATENESS ...................................................................................................... 33 4.1 Context........................................................................................................................... 33 4.2 Needs Assessments........................................................................................................ 33 4.3 Consultation with Beneficiaries..................................................................................... 34 4.4 Appropriateness of Assistance....................................................................................... 34 4.5 Programmes Outside Areas of Competence.................................................................. 38 4.6 Innovation...................................................................................................................... 39 4.7 Conclusions ................................................................................................................... 39 4.8 Recommendation........................................................................................................... 39 5. COVERAGE ...................................................................................................................... 41 5.1 Affected Populations ..................................................................................................... 41 5.2 Targeting........................................................................................................................ 46 iii Independent Evaluation of DEC Kosovo Appeal Funds: Volume I, August 2000 5.3 Conclusions ................................................................................................................... 47 5.4 Recommendations ......................................................................................................... 47 6. PROTECTION .................................................................................................................. 49 6.1 Introduction ................................................................................................................... 49 6.2 A Crisis of Protection .................................................................................................... 49 6.3 Protection Issues During the NATO Bombing Campaign ............................................ 49 6.4 Protection in Post-War Kosovo ..................................................................................... 51 6.5 Conclusions ................................................................................................................... 52 6.6 Recommendation........................................................................................................... 53 7. EFFECTIVENESS AND IMPACT ................................................................................. 55 7.1 Monitoring..................................................................................................................... 55 7.2 Evaluations .................................................................................................................... 56 7.3 Effectiveness.................................................................................................................