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 Final Report Volume 1: Main report 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 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 VOLUME I – MAIN REPORT LIST OF ABBREVIATIONS EXECUTIVE SUMMARY 1. INTRODUCTION ................................................................................................... 1 1.1 OVERALL OBJECTIVES, MANDATE AND SCOPE .............................................................. 1 1.2 KEY STAGES OF THE EVALUATION .................................................................................. 2 1.3 STRUCTURE OF THE FINAL REPORT ................................................................................. 3 2. BACKGROUND AND CONTEXT OF THE EVALUATION ........................................... 5 2.1 REGULATORY FRAMEWORK .............................................................................................. 5 2.2 OVERVIEW OF MAJOR TRENDS IN COMMISSION FINANCIAL SUPPORT TO CPPB OVER THE PERIOD 2001-2010 .......................................................................................... 7 3. METHODOLOGY .................................................................................................. 9 3.1 STRUCTURED EVALUATION APPROACH .......................................................................... 9 3.1.1 Intervention Logic .................................................................................................. 10 3.1.2 The four key dimensions of the “meaning” of the Integrated Approach ...... 12 3.1.3 The set of Evaluation Questions .......................................................................... 13 3.2 TOOLS AND SOURCES OF INFORMATION ...................................................................... 14 3.3 CHALLENGES AND LIMITATIONS ................................................................................... 18 4. ANSWERS TO THE EVALUATION QUESTIONS ..................................................... 19 EVALUATION QUESTION 1 ON MAINSTREAMING ................................................................. 19 EVALUATION QUESTION 2 ON ROOT CAUSES OF CONFLICT ............................................... 28 EVALUATION QUESTION 3 ON SHORT-TERM PREVENTION ................................................ 35 EVALUATION QUESTION 4 ON GEOGRAPHICAL DIMENSIONS ............................................ 44 EVALUATION QUESTION 5 ON COORDINATION AND COMPLEMENTARITY ..................... 50 EVALUATION QUESTION 6 ON VALUE ADDED ..................................................................... 61 EVALUATION QUESTION 7 ON COMMISSION MEANS ............................................................ 66 EVALUATION QUESTION 8 ON TIMELINESS AND COST-EFFECTIVENESS ........................... 81 5. CONCLUSIONS ................................................................................................... 89 5.1 OVERALL ASSESSMENT .................................................................................................... 90 5.2 ON COMMISSION COMMITMENTS TOWARDS CPPB SUPPORT .................................... 91 5.3 ON STRATEGY ISSUES ...................................................................................................... 94 5.4 ON RESULTS AND IMPACTS ............................................................................................. 97 5.5 ON MEANS AND IMPLEMENTATION ........................................................................... 100 6. RECOMMENDATIONS ....................................................................................... 105 6.1 ON COMMISSION’S OVERALL ROLE AND APPROACH ............................................... 106 6.2 ON SPECIFIC STRATEGY ISSUES ................................................................................... 110 6.3 ON MEANS AND IMPLEMENTATION ........................................................................... 113 Final Report October 2011 Table of Contents Thematic Evaluation of the European Commission Support to Conflict Prevention and Peace Building ADE-PARTICIP LIST OF FIGURES FIGURE 1 – EVALUATION PROCESS ............................................................................................. 3 FIGURE 2 – GENERAL OVERVIEW OF POLICIES IN THE FIELD OF CPPB ............................... 6 FIGURE 3 – EVOLUTION OF CONTRACTED FUNDS OVER 2001-2010 - DISTRIBUTION BETWEEN EC GENERAL BUDGET AND EDF ........................................................ 7 FIGURE 4 – GENERAL OVERVIEW OF THE STRUCTURE OF THE EVALUATION APPROACH .. 9 FIGURE 5 – INTERVENTION LOGIC OF THE COMMISSION’S SUPPORT TO CPPB ................ 11 FIGURE 6 – THE FOUR KEY DIMENSIONS OF THE INTEGRATED APPROACH ....................... 12 FIGURE 7 – COVERAGE OF EVALUATION CRITERIA AND KEY ISSUES BY THE EQ ........... 14 FIGURE 8 – MAIN INFORMATION SOURCES AND TOOLS ........................................................ 15 FIGURE 9 – INDICATIVE COVERAGE OF FUNDING THROUGH THE EVALUATION TOOLS…. .................................................................................................................. 18 FIGURE 10 – BREAKDOWN BY COUNTRY BENEFITING FROM COMMISSION CPPB FUNDS CHANNELLED THROUGH IO (IN €M CONTRACTED AMOUNT, 2001-2010) ...... 57 FIGURE 11 – CONCLUSIONS ......................................................................................................... 89 FIGURE 12 – RECOMMENDATIONS ............................................................................................ 105 LIST OF TABLES TABLE 1 – THE SET OF EVALUATION QUESTIONS ................................................................ 13 TABLE 2 – MAIN EMPHASIS OF COMMISSION SUPPORT ACCORDING TO SURVEY RESPONDENTS ......................................................................................................... 31 TABLE 3 – SPECIALISED COMMISSION UNITS WITH A CPPB FOCUS OR DIRECT RELEVANCE .............................................................................................................. 69 TABLE 4 – COMMISSION STAFF WORKING ON CPPB ............................................................ 73 TABLE 5 – COMMISSION’S FINANCIAL INSTRUMENTS TO TACKLE CPPB ........................... 77 LIST OF BOXES BOX 1 – MITIGATING THE IMPACT OF ROOT CAUSES IN WEST BANK AND GAZA STRIP ......................................................................................................................... 33 BOX 2 – MAJOR COMMISSION FORMAL EARLY-WARNING TOOLS AND MECHANISMS ............................................................................................................ 37 BOX 3 – EXAMPLES OF POSITIVE CONTRIBUTION OF THE COMMISSION’S SUPPORT TO CONFLICT MITIGATION, STABILISATION, RECONSTRUCTION AND REHABILITATION ..................................................................................................... 41 BOX 4 – SUCCESSFUL SEQUENCING OF COUNCIL AND COMMISSION INTERVENTIONS FOR CRIMINAL JUSTICE REFORM IN GEORGIA ...................... 54 BOX 5 – COORDINATED APPROACHES IN (POST-) CONFLICT SITUATIONS CREATING STRONG IMPACT ................................................................................... 58 BOX 6 – ISSUES ON ALIGNMENT IN TIMOR-LESTE ............................................................ 59 BOX 7 – KEY IMPLEMENTING BODIES FOR CFSP/ESDP ................................................ 68 BOX 8 – VIEWS GENERALLY EXPRESSED BY COMMISSION STAFF INTERVIEWED ON CHANGES BROUGHT ABOUT BY THE EEAS .................................................. 71 Final Report October 2011 Table of Contents Thematic Evaluation of the European Commission Support to Conflict Prevention and Peace Building ADE-PARTICIP BOX 9 – USE AND EFFECTS OF NON-FINANCIAL INSTRUMENTS IN COUNTRY CASE STUDIES ........................................................................................................... 78 VOLUME II – 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