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Thematic Evaluation of European Commission Support to Conflict Prevention and Peace Building

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Thematic Evaluation of European Commission Support to Conflict Prevention and Peace Building Thematic Evaluation of European Commission Support to Conflict Prevention and Peace Building Final Report Volume 2: (Annexes 1 to 3) October 2011 Evaluation for the European Commission Framework contract for Multi-country thematic and regional/country-level strategy evaluation studies and synthesis in the area of external co-operation PARTICIP GmbH Germany LOT 5: Evaluation of EC main policies and strategies in the areas of external cooperation Belgium Ref.: EuropeAid/122888/C/SER/Multi Request for Service: EVA 2007/main-pol+strat LOT 5 Italy Thematic Evaluation of European Deutsches Institut für Entwicklungspolitik Commission Support to Conflict Prevention Germany and Peace Building European Centre for Development Policy Management Belgium Overseas Development Institute, United Kingdom Final Report A consortium of Particip-ADE–DRN-DIE–ECDPM- October 2011 ODI Report prepared by: ADE s.a. Rue de Clairvaux, 40, Bte 101 B – 1348 Louvain-La-Neuve / Belgium Phone: +32 10 45 45 10 Fax: +32 10 45 40 99 Email: [email protected] Consortium leading company: This report was prepared by Particip GmbH Merzhauser Str. 183 D - 79100 Freiburg / Germany Phone: +49-761-79074-0 Fax: +49-761-79074-90 [email protected] The evaluation has been managed by the Joint Evaluation Unit in DG DEVCO. The author accepts sole responsibility for this report, drawn up on behalf of the Commission of the European Union. The report does not necessarily reflect the views of the Commission. Thematic Evaluation of the European Commission Support to Conflict Prevention and Peace Building ADE-PARTICIP Table of Contents LIST OF ANNEXES ANNEX 1: TERMS OF REFERENCE AND LAUNCH NOTE ANNEX 2: TOOLS AND SOURCES FOR THE STRUCTURED EVALUATION QUESTIONS ANNEX 3: COUNTRY CASE STUDIES ANNEX 4: GENERAL DATA COLLECTION GRID ANNEX 5: DATA COLLECTION GRID FOR META-ANALYSIS OF EVALUATIONS ANNEX 6: RESULTS OF CSP/RSP REVIEW ANNEX 7: SURVEY AND RESULTS ANNEX 8: INVENTORY AND TYPOLOGY OF COMMISSION CPPB FUNDS (2001-2010) ANNEX 9: LIST OF PERSONS MET ANNEX 10: BIBLIOGRAPHY Final Report October 2011 Table of Contents Thematic Evaluation of the European Commission Support to Conflict Prevention and Peace Building ADE-PARTICIP Annex 1: Terms of Reference Final Report October 2011 Annex 1 EUROPEAN COMMISSION EuropeAid Co-operation Office Evaluation THEMATIC EVALUATION OF THE EUROPEAN COMMISSION SUPPORT TO CONFLICT PREVENTION AND PEACE BUILDING TERMS OF REFERENCE final 1 MANDATE AND objectives Systematic and timely evaluation of its expenditure programmes is a priority of the Commission of the European Union (CEU). It is key to account for the management of the allocated funds and for promoting a lesson-learning culture throughout the organisation. The focus is on the impact (effects) of these programmes against a background of greater concentration of external co-operation and increasing emphasis on result-oriented approaches, particularly in the context of the programmes of the Relex Family of Directorates-General1. The evaluation of the Commission’s support to conflict prevention (including crisis resolution) and peace building (including demobilisation, disarmament and reintegration) is part of the 2008 evaluation programme as approved by the External Relations and Development Commissioners. The main objectives of the evaluation are: – to provide the relevant external co-operation services of the EC and the wider public with an overall independent assessment of the Commission’s past and current cooperation support to Conflict Prevention (including crisis resolution) and Peace Building (including demobilisation, disarmament and reintegration) . – To identify key lessons in order to improve the current and future strategies and programmes of the Commission. 1. BACKGROUND 2.1 Policy background In the 1990’s there was growing concern that many developing countries were failing to achieve sustainable development owing to conflicts and insecurity. 1992 the Maastricht Treaty on European Union establishing the EU created a distinct ‘second’ pillar of the EU, namely the Common Foreign and Security Policy (CFSP). The scope of the CFSP is comprehensively defined as covering ‘all areas of foreign and security policy’, including ‘to preserve peace and strengthen international security,..'. The 1992 Report2 to the European Council in Lisbon on the likely development of the CFSP stated "the CFSP should contribute to ensuring that the Union's external action is less reactive to events in the outside world and more active in [...] the creation of a more favourable international environment. This will enable the European Union to have an improved capacity to tackle problems at their roots in order to anticipate the outbreak of crises.' Before 2001, conflict prevention was considered essentially in terms of political and military activities. The consciousness of the international community of the need for an integrated approach treating the root causes of conflict grew gradually, based on a number of successes and failures. Concerning the Balkans, for instance, the Commission considered 1 Directorates General of External Relations, (RELEX), Development (DEV) and the EuropeAid Co- operation Office (AIDCO). 2 By the Ministers of Foreign Affairs: http://www.europarl.europa.eu/summits/lisbon/default_en.htm 2 that the integrated Community strategy, based on a transparent and clearly structured process providing concrete benefits in return for commitment to peace and regional stability, would eventually lead to long-expected stabilisation. El Salvador and Guatemala were also considered good examples of such an integrated approach. A reconfiguration of ideas has taken place in the development policy of the EU since the mid-1990s; greater attention has been paid in development cooperation to civilian crisis prevention and to the socio-economic and political root causes of conflicts. Guidelines for tackling aspects of conflict prevention have appeared in a number of documents, initially focusing on African countries. This paved the way for the Commission’s ambitious 2001 Communication on Conflict Prevention, which represented the first comprehensive Commission strategy in this field. COM(2001) 211 on Conflict Prevention and the Göteborg Council The central document for the Commission’s intervention in the field of CPPB is the Communication from the Commission on Conflict Prevention, COM(2001) 211 final, issued on 11 April 2001 during the Swedish presidency of the Council. In this Communication, the Commission postulated the need to address the root causes of conflict throughout the world in an integrated manner. It stated that development policy and other co-operation programmes provided the most powerful instruments at the Community’s disposal for treating the root causes of conflict. It stressed the importance of a genuinely long-term and integrated approach, in co-ordination with EU Member States (EU MS) and with international organisations. It identified thereby roles, objectives, tools, and co-operation needs with other organisations; this Communication is further detailed in Chapter 3, as it forms the core of the Commission’s intervention logic over the evaluation period. In the same effort, the Göteborg European Council of 15-16 June 2001, ending the Swedish Presidency, gave rise to two important documents relating to conflict prevention: (i) the Presidency Conclusions; (ii) the EU Programme for the Prevention of Violent Conflicts. Moreover, a first Presidency report on European Security and Defence Policy, addressed to this Göteborg European Council, stated that the Commission had an essential role to play in helping to ensure coherence of the EU’s external policies, including the Common Foreign & Security Policy (CFSP) and European Security and Defence Policy (ESDP) (see below), and to strengthen co-operation with international organisations. The Commission was to contribute to the development of common political approaches, through proposingactivities to the Council as well as through managing instruments relevant to crisis management and conflict prevention within its areas of competence. It also stated that the ongoing reform of external aid and financial management rules would make possible more effective delivery of Community support to EU crisis management operations. Certain aspects, notably the security dimension have been further outlined in subsequent documents, notably concerning Security sector reform, (SSR; COM 2006-658), demilitarization, demobilization and reintegration (DDR; EU concept 2006 and Commission Staff Working Paper); processes, and actions to curb the proliferation of anti- personnel mines (APL; Regulation (EC) N°1724/2001, Regulation (EC) N°1725) and small arms and light weapons (SALW; EU strategy 2005). The European Consensus on Development (Joint Statement 14820/05) further reiterates the importance of support to conflict prevention, stating " The EU will strengthen its efforts in 3 conflict prevention work" and explicitly refers to the EU Programme for the Prevention of Violent Conflicts 3in this context. Between 2002 and 2006, the Rapid Reaction Mechanism was designed to allow the Community to respond urgently to the needs of countries threatened with or undergoing severe political instability or suffering from the effects of a technological or natural disaster. The Instrument for Stability (IfS) replaced, on 1 January 2007, both the Rapid Reaction Mechanism, and several instruments in the fields of drugs, mines, uprooted people, crisis management, rehabilitation and reconstruction,
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