The effectiveness of the Commission's projects in the area of Justice and Home Affairs for the western Balkans. Special report No 12, 2009.
Date: 2009-11-13
Institutions: European Court of Auditors
Subjects: EU aid, EU control, EU financing, Western Balkans, area of freedom, security and justice, management audit

IN THIS REPORT, THE EUROPEAN COURT OF AUDITORS ANALYSES THE 

EFFECTIVENESS OF THE EUROPEAN COMMISSION’S PROJECTS IN THE 

AREA OF JUSTICE AND HOME AFFAIRS FOR THE WESTERN BALKANS. 

THE REPORT COVERS BOTH INVESTMENT AND INSTITUTION-BUILDING 

PROJEC TS  IN THE  FOUR  JUSTICE  AND  HOME  AFFAIRS  SUB  AREAS: 

ASYLUM  AND  MIGRATION,  INTEGRATED  BORDER  MANAGEMENT, 

JUDICIARY AND POLICE. 

AG A I N S T   T H E   B AC KG R O U N D   O F   A   D I F F I C U LT   P O L I T I C A L   A N D 

ORGANISATIONAL ENVIRONMENT, THE COMMISSION’S MANAGEMENT 

OF  JUSTICE  AND  HOME  AFFAIRS  PR OJEC TS  HAS  BEEN  LAR GELY 

EFFEC TIVE.  HOWE VER, THE  COUR T  IDENTIFIED  SHOR TCOMINGS, 

PARTICULARLY IN TERMS OF OWNERSHIP AND SUSTAINABILIT Y OF 

RESULTS. THE REPORT CONTAINS RECOMMENDATIONS WHICH COULD 

HELP THE COMMISSION TO PROVIDE MORE EFFICIENT AND EFFECTIVE 

ASSISTANCE.

EUROPEAN COURT OF AUDITORS

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THE EFFECTIVENESS OF THE 
COMMISSION’S PROJECTS IN THE 
AREA OF JUSTICE AND HOME AFFAIRS 
FOR THE WESTERN BALKANS

EN

 
 
 
 
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special r eport no 12 

 2009

the effectiveness of 
the commission's 
projects in the area  
of justice and home  
affairs for  
the western balkans

(pursuant to article 248(4), second subparagraph, ec )

european court of auditors

european court of auditors  
12, rue alcide d e Gasperi 
1615 luxembourg 
luXembour G

tel. +352 4398-45410 
fax +352 4398-46410 
e-mail: euraud@eca.europa.eu 
internet: http://www.eca.europa.eu

special r eport no 12 

 2009

a great deal of additional information on the european union is available on the internet. 

it can be accessed through the europa server (http://europa.eu).

cataloguing data can be found at the end of this publication. 

luxembourg: publications office of the european union, 2009

isbn 978-92-9207-454-8 

doi:10.2865/80334

© european communities, 2009 

reproduction is authorised provided the source is acknowledged.

Printed in Luxembourg

contents 

3

Paragraph

I–V 

1–5 

ABBREVIATIONS

EXECUTIVE SUMMARY

INTRODUCTION 

6–10 

AUDIT SCOPE AND APPROACH

11–55 

OBSERVATIONS

11–28 
12–15 
16–19 

20–23 
24–26 
27–28 

29–49 

30–35 
36–39 

40–45 
46–49 

50–55 
51–52 
53–55 

EU INVESTMENT SUPPORT MOSTLY SUCCESSFUL BUT SUSTAINABILITY AT RISK  
real need for investments due to eu standards and dilapidated infrastructure
 miXed  results for a major cateGor Y of investment projects: border manaGement  
and securitY
aliGnment  of eu and national priorities a necessarY pre-condition  for success
impact and sustainabilitY of investment projects at risk
investments not matched with necessarY institutional capacities

 SIGNIFICANT INSTITUTION-BUILDING NEEDS BUT ONLY LIMITED CHANGE  
RESULTING FROM EU SPENDING
chanGe  manaGement  and institution-buildinG  limited and poorlY measured
 sustainabilitY of institution-buildinG  compromised because of chanGes   
in keY staff and corruption
traininG —  more outputs than results 
local ownership a keY success factor improvinG the rule of law  

MANAGEMENT APPROACHES AND DONOR COORDINATION
no siGnificant  difference bet ween manaGement  approaches
beneficiarY-led  donor coordination not enhanced

56–58 

CONCLUSIONS AND RECOMMENDATIONS

 ANNEX I  —  CARDS JUSTICE AND HOME AFFAIRS PROJECTS AUDITED  
  AND AN ASSESSMENT OF THEIR EFFECTIVENESS 

ANNEX II  —  AUDIT METHODOLOGY AND SAMPLE 
ANNEX III —  TOTAL GRANT ASSISTANCE DURING 2006–08, 4 240 MILLION EURO BY SOURCE 
ANNEX IV —  LEVEL OF PERCEIVED CORRUPTION — THE WESTERN BALKANS 
ANNEX V  —  THE COMMISSION' S MANAGEMENT STRUCTURE IN THE WESTERN BALKANS 
ANNEX VI —  TOTAL GRANTS AND LOANS DURING 2006–08, 10 488 MILLION EURO BY SOURCE

REPLY OF THE COMMISSION

 
 
 
 
special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

abbreviations

5

BiH: b osnia and herzegovina

BiHCC: c onstitutional court of bih

BCP: b order crossing point

CARDS: c ommunity assistance for r econstruction, d evelopment and stabilisation

DG ELARG: directorate-General for enlargement

EAR: e uropean agency for r econstruction

EBRD: e uropean bank for r econstruction and d evelopment

EC: e uropean commission

EIB: e uropean i nvestment bank

EU: e uropean union

EUPOL-Proxima: european union police mission in the former Yugoslav republic  
of m acedonia

HQ: headquarters

HRC: human rights commission  

IBM: i ntegrated border management

JHA: justice and home a ffairs

PAMECA: p olice assistance m ission of the european community to albania

SAp: stabilisation and association process

SR: special r eport of the european court of auditors

UNSCR: united nations s ecurity council r esolution

WCC: war crimes chamber

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

6

eXecutive   
summarY

III.
t h e   c o u r t ' s   a u d i t   c o v e r e d   b o t h   i n v e s t -
m e n t   a n d   i n s t i t u t i o n - b u i l d i n g   p r o j e c t s 
i n   t h e   fo u r   j u s t i c e   a n d   h o m e   a f f a i r s   s u b 
a r e a s :   a s y l u m   a n d   m i g r a t i o n ,   i n t e g r a t e d 
border management, judiciar y and police. 
th e c our t found t hat 1:

( a)  u n l i k e   t h e   p r e v i o u s   a c c e s s i o n   p r o -
g r a m m e s ,   t h e   c o m m i s s i o n   h a s   p r i -
o r i t i s e d   t h e   j u s t i c e   a n d   h o m e   af f a i r s 
sec tor and attempted to tack le impor-
t a n t   s t r u c t u r a l   r e f o r m s   e a r l i e r   i n   t h e 
en largement process;

( b)  a g a i n s t   t h e   b a c k g ro u n d   o f   a   d i f f i c u l t 
p o l i t i c a l   a n d   o r g a n i s a t i o n a l   e nv i r o n-
m e nt,   t h e   co m m i s s i o n' s   m a n a g e m e nt 
o f   j u s t i c e   a n d   h o m e   a f f a i r s   p r o j e c t s 
h a s   b e e n   l a r g e l y   e f f e c t i v e ,   a l t h o u g h 
t h e   c o u r t   i d e n t i f i e d   s o m e   s h o r t c o m-
i n g s,   p a r t i c u l a r l y   i n   te r m s   o f   t h e   s u s-
tain abilit y of res ults ;

( c)   t h e   n e e d s   a n a l y s e s   w e r e   s o m e t i m e s 
i n a d e q u a t e   a n d   t h e r e   w a s   a   l a c k   o f 
don or  coordinat ion;

1  the summary of findings on projects is in Graph 1.

I.
the european union's strategic interest in 
t h e   w e s t e r n   ba l k a n s   i s   t o   i n s t a l l   d e m o c -
rac y, securit y and long-term stabilit y. the 
balk an s  have  b een  af fec ted  by  in se c ur i t y 
and violence in the past. the political and 
economic environment is still fragile. the 
relevance of the justice and home affairs 
( j h a)   s e c to r   i s   t h e re fo re   h i g h   fo r   t h e   e u. 
the ince nt ive of eu m emb ership  has con-
tributed to mak ing the eu the biggest and 
m o s t   i n f l u e n t i a l   e x t e r n a l   s t a k e h o l d e r   i n 
t h e   r e g i o n .   b e t w e e n   2 0 0 1   a n d   2 0 0 6 ,   t h e 
commission has spent almost 500 million 
euro on justice and home affairs projec ts 
i n   t h e   w e s t e r n   ba l k a n s .   t h e   a i m   o f   t h e 
commis sio n' s  assist ance  was   to   ali gn   th e 
we s t e r n   b a l k a n   c o u n t r i e s   w i t h   e u   s t a n d -
a rd s   t h ro u g h   a p p ro p r i ate   a d m i n i s t rat i ve, 
judicial  and  l aw  enforcement st r uc ture s.

II.
t h e   c o u r t ' s   a u d i t   a s s e s s e d   t o   w h a t   e x -
tent:

(a)  ne eds in t he j us t ice and h o m e affair s 
area had been proper ly identified and 
the projec ts were relevant to the iden-
tified  needs, and

(b)  th e  intended  o u tp ut s  had  b een  de li v-
e r e d   a n d   t h e   e x p e c t e d   r e s u l t s   w e r e 
ach ieved  an d sus tainab l e.

G R A P H   1

SU M M A RY  O F F I N D I N G S O N   AU D I T E D  P R O J E C T S

100 %

80 %

60 %

40 %

20 %

0 %

Needs:
relevance

Needs:
assessment

Results:
achieved

Results:
sustainable

Needs:
relevance

Needs:
assessment

Results:
achieved

Results:
sustainable

Investments

Institution-building

Unsatisfactory

Partially 
satisfactory

Satisfactory

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

77

eXecutive   
summarY

( b)  i n v e s t m e n t   p r o j e c t s   w e r e   m a t c h e d 
more closely with institution-building 
projec ts;

( c)   all donors ac tive in the area, including 
the commission as the main donor, co-
o rd i n ate d   b e t te r   w i t h   e a c h   o t h e r   ( fo r 
ex a m p l e   o n e   d o n o r   co u l d   f u n d   o r   co -
f u n d   a   p r o j e c t   d e s i g n e d   b y   a n o t h e r 
don or );

( d)  t h e   p r o c u r e m e n t   p r o c e s s   f o r   e q u i p -
m e n t   w a s   r e c o n s i d e r e d   b y   t h e   d o n o r 
c o m m u n i t y.   w h e r e v e r   p o s s i b l e ,   j o i n t 
investm ent   pools   man aged  by   th e  re -
c i p i e n t   c o u n t r i e s   s h o u l d   b e   c o n s i d-
ered.

V.
pro j e c t   s u s t a i n a b i l i t y   co u l d   b e   i m p rove d 
if :

( a)  b e n e f i c i a r y   i n v o l v e m e n t   w e r e   i n-

creased;

( b)  n o   p r o j e c t s   we r e   l a u n c h e d   w i t h o u t   a 

maintenan ce plan ;

( c)   t h e   c o m m i s s i o n   m o n i t o r e d   m o r e 
closely the distribution and evaluated 
t h e   u s e   o f   e u - f u n d e d   e q u i p m e n t   a n d 
in fra str uc t ure;

( d)  t h e   d e l i v e r y   o f   t e c h n i c a l   a s s i s t a n c e 
was adequately complemented by  ac -
t i v e   e n c o u r a g e m e n t   f o r   i n s t i t u t i o n a l 
chan ge.

(d)  a l t h o u g h   n o t   a l l   i nv e s t m e n t   p r o j e c t s 
achieved fully satisfac tor y results and 
t h e   s u s t a i n a b i l i t y   i s   a t   r i s k ,   t h e   i n-
v e s t m e n t   a s s i s t a n c e   f i n a n c e d   b y   t h e 
commission made a relevant and use -
ful   cont r ib ut io n   to  the  n ational  in fra-
stru c tu re and inst it ut io ns ;

(e)  o n   t h e   o t h e r   h a n d   t h e   a c h i e v e m e n t s 
o f   i n s t i t u t i o n - b u i l d i n g   p r o j e c t s   w e r e 
only par tially satisfac tor y and unlikely 
to be sustainable. this was due to con-
t i n u e d   p o l i t i c a l   we a k n e s s   a n d   l a c k   o f 
co m m i t m e nt   ( ow n e r s h i p )   by   t h e   b e n-
e f i c i a r i e s ,   a s   m o s t   r e f o r m   i n i t i a t i v e s 
d o   n o t   c o m e   f r o m   w i t h i n   t h e   r e g i o n 
but from the european commission or 
ot her ex te r nal  stakeho ld ers;

(f )  t h e r e   w a s   n o   s i g n i f i c a n t   d i f f e r e n c e 
i n   t h e   d e g r e e   o f   s u c c e s s   a c h i e v e d   i n 
pro jec t s   manag ed  by   the  d el egat ions 
comp are d wit h t ho se managed by  th e 
euro p ean  a g enc y for r eco ns tr uc t ion .

IV.
on   t h e   b a s i s   o f   t h e s e   o b s e r v a t i o n s ,   t h e 
c o u r t   m a k e s   r e c o m m e n d a t i o n s   w h i c h 
c o u l d   h e l p   t h e   c o m m i s s i o n   t o   p r o v i d e 
m o r e   e f f i c i e n t   a n d   e f f e c t i v e   a s s i s t a n c e . 
the pro je c t resu l ts  co u ld  b e imp roved  i f :

(a )  when designing the justice and  home 
a f f a i r s   p ro j e c t s,   t h e   co m m u n i t y   s u p -
por t complied with annual programme 
o b j e c t i v e s   ( f o r   e x a m p l e   t h e   f u t u r e 
j o i n t   b o r d e r   c r o s s i n g   p o i n t s   s h o u l d 
b e   gi ve n   p r i o r i t y   a s   t h i s   wo u l d   fo s te r 
regional  co o pe ration);

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

introduction

8

 en l a r g e m e n t   s e r ve s   t h e   e u' s   s t r a t e g i c   i n t e re s t s   i n   s t a b i l i t y,   s e -
cur it y, and conflic t prevention. the present enlargement agenda 
covers the wester n balk ans, which have been given the prospec t 
o f   b e c o m i n g   e u   m e m b e r s   o n c e   t h e y   f u l f i l   t h e   n e c e s s a r y   c o n d i -
tion s.

2  cards is the acronym for 

‘community assistance for 

reconstruction, development and 

stabilisation’ and covered the period 

2000–06.

1. 

2. 

3  this represented around 10 % of 

the total cards budget. most of the 

cards spending took place during 

the first years of the programme, 

addressing the urgent post-conflict 

needs of the western balkan 

population.

4  concerning the latest 

enlargement in 2007, bulgaria 

and romania have still progress 

to make in the justice and home 

affairs sector. the eu decided to 

establish a special cooperation and 

verification mechanism to help the 

newest member states to address 

outstanding shortcomings.

 t h e   a u d i t   o f   t h e   ju s t i c e   a n d   ho m e   a f f a i r s   ( j h a )   s e c t o r   f o r   t h e 
w e s t e r n   ba l k a n s   a d d r e s s e d   a n   a r e a   o f   h i g h   p o l i t i c a l   r e l e v a n c e. 
the jha sec tor is one of the most prominent areas of cooperation 
b e t we e n   t h e   eu ro p e a n   un i o n   a n d   we s te r n   ba l k a n   co u nt r i e s   a n d 
c a n   b e   c a t e g o r i s e d   i n t o   f o u r   s u b   a r e a s :   a s y l u m   a n d   m i g r a t i o n , 
integrated border management, judiciar y and police. the value of 
justice and  home  affairs-related contrac ts under the commission 
programme for the wester n balk ans ( c ards 2) amounts to around 
470  mil lio n euro  fro m 2001 to 2 00 6 3. 

3. 

 pr ior to star ting the audit, the following pr incipal r isks to sound 
financ ial management were ident if ie d: 

(a )  justice and  home  affairs projec ts are implemented in a frag-
ile political and economic environment which means that the 
commission assistance might not achieve the intended polic y 
o bj ec t ives and mig ht b e un sus tai n able.

(b)   t h e   r o l e   o f   t h e   r e c i p i e n t   c o u n t r y   a n d   f i n a l   b e n e f i c i a r i e s   i s 
o f   f u n d a m e n t a l   i m p o r t a n c e   t o   t h e   s u c c e s s   o f   t h e   p r o j e c t s 
b e c a u s e   t h e   c o m m i s s i o n ' s   p o w e r s   t o   s t r e n g t h e n   t h e   c o m-
p e t e n c e,   p ro fe s s i o n a l i s m   a n d   i n d e p e n d e n c e   o f   ju s t i c e   a n d 
ho me  a ff airs in stit ut ion s are limited.

(c)   t h e   c o m m u n i t y   i s   u n d e r   p r e s s u r e   t o   o b t a i n   h i g h   c o n t r a c t -
i n g   r a t e s   a n d   t h e   r e c i p i e n t s '   a n d   b e n e f i c i a r i e s '   b u d g e t a r y, 
procedural and political constraints might therefore be disre-
g arde d.  this  m ig ht hamper  t he effe c t iven e ss  of  t he  o ut put s, 
e s p e c i a l l y   w h e n   a i m i n g   t o   i m p r o v e   a d m i n i s t r a t i v e   c a p a c i -
t ies.

(d)  b a s e d   o n   p re v i o u s   ex p e r i e n ce,   co m p l i a n ce   w i t h   j u s t i ce   a n d 
ho me   aff airs cr iter ia is one of  the  most, if  no t t he  mos t,  dif-
fic ul t  iss ues in e nl argement 4.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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9

4. 

the  ob je c tives  of  t he c o mmiss ion's  programmes were  to :

5  technical assistance is a resource 

used in many development projects 

(a)  reinforce the rule of law, human rights and relationships with 

and programmes of different 

civ il  so ciet y ;

types and can be defined as 

‘experts contracted for the transfer 

(b)   suppor t judicial reform and harmonisation of national legisla-

of know-how and skills and the 

t ion  w ith e u requ irem ents ;

creation and strengthening of 

institutions’. reference made to 

(c) 

refo r m  t he  p o l ice in general, and  borde r  pol ice  more  s pec i fi-
ca ll y,  and ens ure  p ub l ic order ;

court's special report no 6/2007 

on the effectiveness of technical 

(d)  f i g h t   a g a i n s t   c o r r u p t i o n ,   i l l e g a l   m i g r a t i o n ,   o r g a n i s e d   c r i m e 

development (oj c 312, 21.12.2007, 

and  ter ro r ism;

p. 3).

assistance in the context of capacity 

(e) 

fac il itate devel op ment,  trade  re lat io ns  an d t raf f ic ;

(f )  s t r e n g t h e n   i n s t i t u t i o n a l   a n d   o p e r a t i o n a l   c a p a c i t i e s ,   e . g.   i n 
a s y l u m   a n d   m i g r a t i o n ,   v i s a   a n d   i n t e g r a t e d   b o r d e r   m a n a g e -
me nt  m atters.

6  launched in 1998 for accession 

assistance, twinning provides the 

framework for administration and 

semi-public organisations in the 

recipient countries to work with their 

counterparts in member states.

5. 

 t h e   c o m m u n i t y   ju s t i c e   a n d   ho m e   a f f a i r s   a s s i s t a n c e   i s   i m p l e -
m e n t e d   b y   f i n a n c i n g   i n v e s t m e n t s   i n   i n f r a s t r u c t u r e   a n d   e q u i p -
m e n t   o r   t h r o u g h   i n s t i t u t i o n - b u i l d i n g   p r o j e c t s .   i nv e s t m e n t s   a r e 
either works or supply contracts. institution-building via technical  
a s s i s t a n ce 5  o r   t w i n n i n g 6  e s t a b l i s h e s   s t a n d a rd s   a n d   gro u n d   r u l e s 
f o r   p u b l i c   s e r v i c e ,   e . g .   l a w s   a n d   s t r a t e g i e s   w i t h   t h e   n e c e s s a r y 
tra ining.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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audit scope and approach

10

6. 

7. 

8. 

 t h e   e u r o p e a n   un i o n   h e l p s   t h e   w e s t e r n   ba l k a n   c o u n t r i e s   m a i n l y 
through specific programmes and projec t assistance. the purpose 
of the cour t's audit was to assess the effectiveness of the european  
c o m m i s s i o n ' s   (e c' s )   p r o j e c t s   i n   t h e   a r e a s   o f   ju s t i c e   a n d  ho m e 
 affairs for the wester n balk ans.  the audit wor k included a sample 
of 33 justice and  home  affairs projec ts, i.e. 30 national and three 
regional, over the 2001–05 annual programmes 7. b oth t ypes of as-
s i s t a n c e,   i . e.   i nve s t m e n t s   a n d   i n s t i t u t i o n - b u i l d i n g,   we re   e q u a l l y 
re p re s e n t e d   i n   t h e   s a m p l e.  t h e   l i s t   o f   a u d i t e d   p ro j e c t s   w i t h   t h e 
results and the cour t's findings is given in A nnex I.  d etails of the 
audit methodology and sample are given in A nnex II.

7  as provided in the cards 

regulation, the annual programme, 

drawn up for each country receiving 

community assistance, contains a 

list of projects to be financed and 

specifies the relevant amounts. the 

management committee, composed 

of representatives of member states 

and chaired by the commission, 

gives its opinion on the annual 

appropriations.

 t h e   m a i n   o b j e c t i v e s   o f   t h e   a u d i t   w e r e   t o   a s s e s s   t h e   e x t e n t   t o 
wh ich :

projects were justified in the light 

of the scope and specifications of 

(a)  jus tice and  ho m e  aff airs n eeds were proper ly  ident if i ed  a n d 
t he p ro jec t s were rel evant  to th e  i de nt if ie d  ne e ds 8, an d

the needs and whether alternative 

approaches had been considered 

and properly analysed. furthermore, 

it assessed whether the objectives 

(b)  t h e   i n t e n d e d   o u t p u t s   h a d   b e e n   d e l i ve re d   a n d   t h e   e x p e c t e d 

were in line with priorities defined 

8  the audit assessed the extent to 

which the justice and home affairs 

res ul t s were ac hieved and sus ta i nable 9.

 th e   co m m i s s i o n   u s e d   t wo   b a s i c   m a n a g e m e nt   a p p ro a c h e s   i n   t h e 
wester n balk ans: devolved and indirec t centralised management. 
i n   d e v o l v e d   m a n a g e m e n t   t h e   c o m m i s s i o n ' s   d e l e g a t i o n s   i n   a l-
b a n i a ,   b o s n i a   a n d   he r z e g o v i n a   a n d   c r o a t i a   a r e   r e s p o n s i b l e   f o r 
proj ec t  p rep arat ion, co nt rac t in g,  a nd f in an c ial  an d tec h nic al  i m-
plementation. i n the indirec t centralised management approach, 
the european agenc y for r econstruc tion (ear) managed the pro -
gra m m e s   i n   t h e   fo r m e r  Yu g o s l av   r e p u b l i c   o f   m a ce d o n i a ,   k o s ovo 
(un der   un sc r  1244/99) ,  m o nten egro  an d  s er bia  unt il  the   end   of 
2 0 0 8 .  th e   co u r t   e x a m i n e d   w h e t h e r   t h e re   w a s   a ny   e v i d e n ce   t h a t 
one  ma nage ment  ap p roac h was  m ore ef fe c ti ve t h an  th e  oth e r  a s 
reg ards t he ju stice and ho me a ffair s proje c ts 10.

in commission, council and national 

strategy documents.

9  the audit assessed the extent to 

which the beneficiary used given 

eu-funded assistance (for example 

equipment, infrastructure and 

training) effectively and whether the 

results of the projects were financially 

and operationally sustainable.

10  this additional component 

of the audit was included at the 

request of the european parliament. 

reference was made to the european 

parliament resolution of 22 april 2008 

with observations forming an integral 

part of the decision on discharge in 

respect of the implementation of the 

european union general budget for 

the financial year 2006, section iii — 

commission.

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9. 

10.  

 the european commission is financially the most significant  donor 
in the  we ster n b al k ans.  m ore t han  ha lf of  t h e grant s gi ve n  to th e 
regio n  co me  from  t he  eu  bu dge t  (A n nex  II I).   i n   th is   contex t,  t h e 
a u d i t   e x a m i n e d   h ow   t h e   re c i p i e nt   co u nt r y   g ove r n m e nt   h a d   h a r-
veste d t he be nefits fro m do nor  coord in at ion .

 th e   re p o r t   i s   s t r u c t u re d   a cco rd i n g   to   t h e   fo r m   o f   a s s i s t a n ce,   i n -
v e s t m e n t   a n d   i n s t i t u t i o n - b u i l d i n g   p r o j e c t s   a n d   d i s c u s s e s   t h e i r 
relat ive s treng th s and weak n ess es.  th e h or i zontal is sues  of  ma n-
a g e m e n t   a p p r o a c h   a n d   d o n o r   c o o r d i n a t i o n   a r e   d e a l t   w i t h   i n   a 
third  sec tio n. 

M A P   O F  T H E  W E S T E R N   B A L K A N S

S ource: european commission.

special report no 12/2009 — the effectiveness of the commission's projects in the area of justice and home affairs for the western balkans

special report no 12/2009 — the effectiveness of the commission's projects in the area of justice and home affairs for the western balkans

 
 
 
 
observations

12

E U   I N V E S T M E N T   S U P P O R T   M O S T LY   S U C C E S S F U L 
B U T   S U S TA I N A B I L I T Y   AT   R I S K

11.  

 thi s s ec tio n first deal s w ith th e re levan ce  of  inve st me nt proj e c t s 
and   t he  ne eds  ass es sments   on   whi ch   th e   proje c ts   we re   base d.   i t 
goes on to present the findings on achievement of results and on 
t h e   n e ce s s a r y   a l i gn m e n t   o f   e u  a n d   n a t i o n a l   p r i o r i t i e s,   a n d   t h e n 
c o n t i n u e s   w i t h   t h e   i s s u e   o f   s u s t a i n a b i l i t y,   d i v i d e d   i n   t wo   p a r t s : 
on e  on   t he  imp o r tance  of  mainte nan ce,  an d   o ne   on  th e   n ee d  for 
suff icient  ins titu tio nal  c ap acitie s  for   e nsu r ing  s ust ain a bili t y.

11  the emergence of six new 

states from the break-up of the 

former Yugoslavia has created over 

5 000 kilometres of new international 

borders in the region that have to be 

properly controlled.

R E A L   N E E D   F O R   I N V E S T M E N T S   D U E  TO   E U   S TA N D A R D S 
A N D   D I L A P I D AT E D   I N F R A S T R U C T U R E

12.  

 because of years of underinvestment and changes in geopolitics 11, 
th e inve st ment n eeds in t he wes ter n  balk ans  to br in g inf ras tr uc -
ture u p to  eu st andard s are s ign ific ant an d in m os t c ase s are  be -
yond the means of national budgets. the investment requirements 
res ul t  fro m t wo main  fac to rs :

B O X   1 

EX A M P L E S   O F   S T R AT E G I C   A N D   N O N-S T R AT E G I C   I N V E S T M E N T S 
P R O J E C T S

Case 1: Project following strategic objectives 

albania's prison system is below international standards. prisons and pre-trial detention centres 
are heavily overcrowded. at the time of the audit albanian prisons were occupied by 3 049 inmates, 
although their capacity was 1 510 people. this means an overpopulation of 102 %. therefore, the 
construction of fushe kruja prison to accommodate 312 detainees could be considered a key and 
relevant priority.

Case 2: Project not following annual programme

in the former Yugoslav republic of macedonia, the approved asylum project documents allocated 
a budget of 2 million euro to institution-building activities such as drafting legislation, strategies 
and national action plans. this was not done. instead, a reception centre for asylum seekers was 
built.

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(a )  e u  s t a n d a r d s   f o r   c o m p l e t e l y   n e w   i n s t i t u t i o n s 1 2  h a v e   t o   b e 
c o m p l i e d   w i t h .   fo r   e x a m p l e,   e u  s t a n d a rd s   re q u i re   a   p ro fe s-
sional border sur veillance ser vice. this is a challenge because 
u nt il  recentl y t he b orders were  mai nly  controlle d by  mi lit ar y 
co nsc r ip t s 13.   i n  addit ion ,  the  n ew  borders  sho uld  be   o pe n   to 
l egit im ate move ment s  of per son s an d g ood s but at th e sam e 
t ime b e se cu re and co nt rolled.

(b)  dilapidated  justice  and  home  affairs  infrastruc ture. the  cur-
rent  infrastruc ture  in  the  wester n  balk ans  is  poor  and  inade -
quate. for example, when external evaluators 14 visited 38  cour t 
b u i l d i n g s   i n   a l b a n i a   i n   2004–0 5 ,   t h e y   c o u l d   n o t   u s u a l l y   d i s-
tinguish judges from defendants or members of the public or 
prosecutors and cases were handled in cor r idors.

13.  

14.  

 the audit identified that in around 70 % of cases justice and  home 
a f f a i r s   i n v e s t m e n t   p r o j e c t s   s t a y e d   w i t h i n   t h e   b r o a d l y   d e f i n e d 
b o u n d a r i e s   o f   s t r a t e g i c   o b j e c t i v e s 1 5,   i . e .   t o   c r e a t e   s t a b i l i t y   a n d 
s e c u r i t y   a n d   to   e n h a n ce   a s s o c i a t i o n   w i t h   t h e   e u.  th e   re m a i n i n g 
projec ts were not in line, or only par tly in line, with the objec tives 
in t he  annual p ro gramme (B ox 1) .

 the  aud it re veal ed t hat the as sist an ce was  tr i g ge re d wi th out ad-
equate feasibility studies defining the scope and specifications of 
t h e   p ro j e c t s.   pe r fo r m i n g   s t u d i e s   i s   a   d e m a n d i n g   t a s k   gi ve n   t h at 
the  b ene ficiar y ins titu tions did n ot  have  soun dly  for m ulated  n a-
tional  s trategies  or ac tio n p l an s w hi ch  would  h ave  s e t pr ior i ti es. 
o u t   o f   t h e   1 7   a u d i t e d   i nve s t m e n t   p ro j e c t s,   t h e re   we re   o n l y   t wo 
highly satisfac tor y studies describing beforehand the impor tance 
of th e se lec ted p rojec t (B ox 2) . 

12  for example, in bosnia and 

herzegovina the border police is the 

oldest of the state-level institutions 

but less than 10 years old in 2009.

13  for example, in serbia the army 

was controlling the borders until 

2007.

14  ‘master plan for judicial 

infrastructure’ — study carried out 

by external consultants between 

january 2004 and april 2005.  

15  the court's special report 

no 5/2007 on the commission's 

management of the cards 

programme (oj c 285, 27.11.2007, 

p. 1) concluded that the strategic 

guidance was very general. this was 

adequate for the reconstruction 

phase but not for the more 

challenging institution-building 

objectives.

B O X   2

EX A M P L E   O F   H I G H LY   S AT I S FAC TO R Y   N E E D S   A N A LYS I S

the  construction  of  the  two  courts  of  appeal  in  korça  and  vlora  in  albania  were  the  two  top 
priorities in the ‘master plan for judicial infrastructure’ study. the study analysed the situation 
and prospects of all district and appeal courts in albania. the master plan was well prepared and 
detailed.

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15.  

 weak ness es   at  t he  p l an n ing   s tag e  both  by   th e  recipient  countr y 
and, in some cases, the commission led to inefficient and ineffec-
tive d is t r ibu tio n and u se of  eu-f un de d e quipm ent  (B ox   3) .

16  the national integrated border 

management strategy was adopted 

in albania in november 2006, in 

bosnia and herzegovina in july 2005, 

in the former Yugoslav republic 

of macedonia in october 2005, in 

montenegro in february 2006 and in 

serbia in january 2006.

17  it should be noted that the eu 

acquis communautaire, the schengen 

standards or community custom 

code do not provide a universal, 

‘one-size-fits-all’ model for border 

management. nevertheless, the 

standards do require the system to 

be effective and risk adjusted.  

MIXED RESULTS FOR A MA JOR C ATEGORY OF INVESTMENT 
P R O J E C T S :  B O R D E R   M A N AG E M E N T   A N D   S E C U R I T Y 

16.  

 the   eu–wes ter n  bal k an  su mmit  in   th essalonik i  in   jun e  2 00 3  em-
p h a s i s e d   t h a t   b o r d e r   i n s e c u r i t y   i s   o n e   o f   t h e   r e a l   o b s t a c l e s   t o 
t h e   r u l e   o f   l a w   a n d   c o n s t i t u t e s   a   m a j o r   p r i o r i t y   f o r   t h e   un i o n . 
t h e   c o m m i s s i o n   h a s   b e e n   h e a v i l y   i n v o l v e d   i n   t h e   s e c t o r   o f   i n-
te grate d   b o rd e r   m a n a g e m e nt ,   to   w h i c h   a   m a j o r   s h a re   o f   ju s t i ce 
and home  affairs funding (37 %) has been committed. the sec tor 
has t wo components — border management and border secur it y. 
th e   co u r t   a u d i t e d   e i g h t   i n t e g r a t e d   b o rd e r   m a n a g e m e n t   i nve s t-
ment projec ts, including the construc tion of several border cross-
ing  p o int s. the resu l ts  o f t hese  inve stments  were g en e rally  m ore 
s a t i s f a c to r y   w h e n   co m b i n e d   w i t h   i n s t i t u t i o n - b u i l d i n g   m e a s u re s 
such as drafting national strategies for integrated border manage -
m e n t 1 6.   a n   e f fe c t i ve   b o rd e r   m a n a g e m e n t   s y s t e m   re q u i re s   a   b a l-
ance   be t we en  o p en,   b ut   sec u re  borde r s 17. th is  balance  h as  been 
ach ieved  in s er b ia,  fo r example (B ox  4) .

B O X  3

EX A M P L E S   O F   I N E F F I C I E N T   A N D   I N E F F E C T I V E   D I S T R I B U T I O N   A N D 
U S E   O F   E U -F U N D E D   E Q U I P M E N T

in the former Yugoslav republic of macedonia some of the eu-financed motorcycles provided in 
summer 2005 to the border police were hardly used for the first 18 months because the government 
did not provide the police with the necessary protective gear as agreed. some pieces of equip-
ment were still missing in 2007. the government launched the complementary equipment tender 
in s eptember 2008 and the contract should be signed during the first quarter of 2009.

the opening of the asylum centre in the same country was also delayed by one year because the 
government failed to provide the necessary equipment.

computers supplied to the albanian police were still in cardboard boxes eight months after the 
contract signature awaiting the decision of the authorities concerning the allocation of the com-
puters to the final beneficiaries.

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P H O T O  1

The EU-financed B atrovci b ord er  c ro s si ng   p o i nt 
on the B elgrade –z agreb moto r way   has   le d   to   s i g ni fi c ant 
reduc tions in passeng er waitin g   t i mes. 

S ource: european court of auditors.

B O X  4

E X A M P L E   O F   H O W  T H E   U S E   O F   M O D E R N   E Q U I P M E N T 
S T R E N G T H E N S   B O R D E R   CO N T R O L S  W H I L E   PA S S E N G E R  WA I T I N G 
T I M E S   A R E   R E D U C E D

in serbia the new infrastructure and the equipment at the batrovci border crossing point made 
a difference compared to the past (Photo 1). thanks to the project, the throughput increased 
and  waiting  times  were  reduced. the  waiting  time  for  lorries  has  fallen  from  several  hours  to 
30 minutes. passenger traffic waiting times during peak season have decreased from 12 hours 
to around 20 minutes.

the border crossing point was also supplied with modern equipment so that the border guards 
could detect forged documents, even well forged ones. the ‘docubox’ was used 100 times a day 
on average and since putting it into operation the authorities have discovered almost one forged 
document a day. 

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17.  

 modern border securit y is based on four elements: mobilit y, com-
munication, intelligence and firepower. the commission's suppor t 
has   covered  al l  of  t hese  except   ar m s.   i n   sh k od ra,   in  albania ,  th e 
b o rd e r   p o l i ce   we re   o bv i o u s l y   b e t te r   a b l e   to   p at ro l   t h e   n o r t h e r n 
land borders with their four-wheel dr ive vehicles than previously 
on foot. also the land border between the former Yugoslav repub -
lic of m acedonia and Greece and the sea border bet ween albania 
a n d   i t a l y   a r e   n o w   b e t t e r   c o n t r o l l e d   t h a n   b e f o r e   ( s e e   P h o t o s   2 
and  3).  the  n um be r  o f  at tempts  for  illeg al  bo rde r   cros s in g s  from 
a n d   i n t o   t h e   fo r m e r  Yu g o s l a v   r e p u b l i c   o f   m a c e d o n i a   d e c re a s e d 
s u b s t a n t i a l l y   f r o m   2 0 0 5 ,   w h e n   t h e   v e h i c l e s   w e r e   d e l i v e r e d ,   t o 
2008 .

18.  

 a l t h o u g h   t h e   o ve r a l l   p i c t u re   re m a i n s   r a t h e r   p o s i t i ve   s o m e   we a k-
nesses were identified in this area that relate not only to the lack of 
political  will  and  legal  means  in  the  recipient  countr ies  (see  para-
graphs 36 to 39) but also to cer tain specific weak nesses in the com-
mission's management (Box 5).

B O X  5

EX A M P L E   O F   A   N O N-I M P L E M E N T E D   B O R D E R   C R O S S I N G   P O I N T 
P R O J E C T 

the Gorica border crossing point (bcp) in  bosnia and herzegovina is located on the busy interna-
tional road from mostar (bih) to  split (croatia). the croatian authorities had already constructed 
a bcp of their own but the bosnian side lacked proper infrastructure. the commission signed a 
3 million euro works contract without checking that the land expropriation process was complete. 
because of disputes over the valuation of the land, the project never started and the contract 
expired in d ecember 200618. 

the consequence is that a ‘customs terminal’ on the bosnian side is being run by a private legal 
entity which withholds 70 % of fees for access to the customs terminal (amounting to approximately 
20 euro per lorry). there is no plan for the government to take over this infrastructure. 

18  as the commission could not honour the contract, the contractor filed a request for over 550 000 euro for losses and damages and an 

amicable settlement procedure was ongoing at the time of the audit.

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19.  

 t h e   b r e a k - u p   o f   t h e   fo r m e r  Yu g o s l a v i a   c r e a t e d   o v e r   5   0 0 0   k i l o -
m e t r e s   o f   n e w   i n t e r n a t i o n a l   b o r d e r s   i n   t h e   r e g i o n .   t h e   m o s t 
co s t - e f fe c t i ve   w ay   t o   co n t ro l   t h e s e   b o rd e r s   wo u l d   h ave   b e e n   t o 
co n s t r u c t   j o i nt   b o rd e r   c ro s s i n g   p o i nt s   ( b c p ) .   h owe ve r,   t h e   co m -
mis s ion  co ntin u e s  to   f ina n ce  t he   bcp  projec ts  using   natio nal  a l-
l o c at i o n s   i n s te a d   o f   t h e   re gi o n a l   a l l o c at i o n .  th i s   a p p ro a c h   d o e s 
not su p p or t t he devel op ment of  re gion al  cooperati on.

P H O T O  2

All projec ts except  one were aud i ted   o n  t h e  s p o t.   He re 
an EU-f inanced four -wheel dri ve  vehi cle   is   b ei ng   c hec ke d 
by  Cour t staff in G evg elija on   t he  b o rd e r  o f   t he  fo rme r 
Yugoslav Repu blic of M ace don ia  fac in g   G reece. 

S ource: european court of auditors. 

P H O T O  3

A resu lt of the strengthened s ea  b o rd er  cont ro l  in   Alb ani a: 
a confisc ated sp eedb oat used  by   o rg an is ed   c rim e  to   s mug g le 
p eople into EU.

S ource: european court of auditors.

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20.  

21.  

22.  

A L I G N M E N T   O F   E U   A N D   N AT I O N A L   P R I O R I T I E S   
A   N E C E S S A R Y   P R E - CO N D I T I O N   F O R   S U CC E S S 

 r e fo r m s   i n   t h e   ju s t i ce   a n d   ho m e   af f a i r s   s e c to r,   w h e t h e r   re l ate d 
t o   i n v e s t m e n t   o r   i n s t i t u t i o n - b u i l d i n g ,   a r e   a   h u g e   a n d   c o m p l e x 
u n d e r t a k i n g.   howe ve r,   t h e   n at i o n a l   b u d g e t s   d o   n o t   p rov i d e   s u f-
ficient funding for justice and  home  affairs priorities, par ticularly 
in t he  econo micall y  les s deve lope d  we ste r n balk an  countr i es 19.

 e ve n   t h o u g h   t h e   co m m i s s i o n   i s   t h e   m a j o r   d o n o r   i n   t h e   we s t e r n 
balk ans,  eu  fu nd s  are   no t   enoug h  to  cove r   all  i nves tme nt  n ee ds. 
the   co mmis sio n  t he refo re  us ually   fin anced   pilo t  proje c ts,   wh ic h 
s howe d   t h e  b e n e f ic i a r y   t h e   a d va nt a ge s   of   u p - gra d e d  i n fra s tr u c-
t u r e .   a n   e x a m p l e   o f   t h i s   k i n d   o f   a s s i s t a n c e   i s   t h e   e u- f i n a n c e d 
‘state - of-the -ar t ’ cour t house in vlora, which improved the trans-
parenc y o f just ice (B ox 6) .

 t h e   l e v e l   o f   n a t i o n a l   f u n d i n g   v a r i e d   c o n s i d e r a b l y   b e t w e e n   t h e 
c o u n t r i e s   c o n c e r n e d .   t h e   a u d i t   i d e n t i f i e d   a   c a s e   w h e r e   d o n o r 
d e p e n d e n c e   w a s   n o   l o n g e r   a   r e a l i t y.   i n   s e r b i a   t h e   c o s t s   o f   t h e 
e u - f u n d e d   co u r t   re n ovat i o n   p ro j e c t s   we re   a p p rox i m ate l y   5   %   o f 
t h e   t o t a l   s e r b i a n   j u s t i c e   a n d   h o m e   af f a i r s   b u d g e t   fo r   t h e   ye a r s 
bet ween 2003 and 2007 (B ox 7) .

19  in the former Yugoslav republic of 

macedonia, the academy for training 

judges and public prosecutors is 

partly financed from the state budget 

under a specific law. this ensures its 

educational independence. but 63 % 

of the total funding to the academy 

in 2008 came from international 

donors. a more balanced financial 

framework is needed to ensure the 

operational independence of the 

institution.

B O X  6

EX A M P L E   O F   A N   I N V E S T M E N T   E N F O R C I N G  T H E   R U L E   O F   L AW

Construction of the Court of Appeal in Vlora, Albania

the commission invested 770 000 euro in the construction of the court of appeal in vlora,  albania. 
the short-term result of the project was positive. in the new building the average number of 
cases judged during the first operational year (2007) more than doubled compared with the cases 
judged on the old premises. also for the first time, the court of appeal had proper courtrooms. this 
 increased the transparency of the proceedings and improved the ‘reality of justice’ in general. 

however, at the time of the audit, there was no electricity from the national power grid and the 
annual budget for heavy oil for the generators had already been exhausted four months before 
the year end. for this reason, computers could not be used. this reduced the throughput of the 
cases and diminished the overall effectiveness of the investment.

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P H O T O  4

The new and more secure Cour t   o f  Ap p e al  b uild i ng   in  Vlo ra 
Albania was financed by t he Europ ea n  U ni o n.  The  wo rk s   were 
completed in 2006. 

S ource: ec delegation in tirana.

B O X  7

E X A M P L E   O F   A   S U F F I C I E N T   N AT I O N A L   B U D G E T   CO M M I T M E N T   

Renovation of the biggest court building in Serbia

following  the  assassination  of  the  serbian  prime  minister  Zoran  djindjic  in  march  2003,  the 
 authorities  arrested  a  high  number  of  suspected  criminals.  however,  the  serbian  authorities 
lacked suitable facilities to enable them to try high-profile cases in a safe and dignified manner. 
the renovation work financed from the eu budget provided the  belgrade district court with, for 
example, a modern courtroom. since the opening of the courtroom in june 2006, it was used 
for 35 trials in 2006 and 40 trials during 2007 — most of them related to high-level organised 
crime and war crimes. since then the serbian government has allocated considerable resources to 
 reconstruction of court houses throughout the country.

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23.  

 w h e n   t h e   e u   a n d   n a t i o n a l   p r i o r i t i e s   a r e   n o t   a l i g n e d ,   t h e   r e s u l t 
i s   i n e f fe c t i ve   a s s i s t a n c e.   fo r   e x a m p l e   t h r o u g h   t h e   s t a b i l i s a t i o n 
a n d   a s s o c i a t i o n   a g r e e m e n t s   (s a a )   t h e   c o m m i s s i o n   o b l i g e s   t h e 
wester n balk an countr ies to implement readmission provisions 20. 
bu t   t h e   p r o v i s i o n s   h a v e   n o t   b e e n   s u c c e s s f u l l y   a p p l i e d   b e c a u s e 
th e  re cip ient  co unt r ies   have  n ot   re s er ve d  s uff i c ie nt   f un ds   i n   th e 
n a t i o n a l   b u d g e t s .   fo r   e x a m p l e ,   i n   a l b a n i a   a   l a c k   o f   s t a f f   i n   t h e 
b o r d e r   a n d   m i g r a t i o n   d i r e c t o r a t e   o f   t h e   s t a t e   p o l i c e   p u t   a t   r i s k 
albania's ability to fulfil its obligations under the agreement. even 
when the commission financed the national strategy on migration 
and readmission for albania and highlighted the agreement's con-
ditionalities dur ing the high-level committees meeting, progress 
wa s  sl ow.

IMPAC T AND SUSTAINABILIT Y OF INVESTMENT PROJEC TS 
AT   R I S K

24.  

 si x   o u t   o f   t h e   1 6   a u d i te d   i nve s t m e nt s   p ro j e c t s   h a d   p ro b l e m s   a f-
fe c t i n g   t h e i r   s u s t a i n a b i l i t y.   a l t h o u g h   t h e   c o u n t r i e s   v i s i t e d   h a d 
c a r r i e d   o u t   s o m e   m a i n t e n a n c e   o f   t h e   i n f r a s t r u c t u r e   a n d   e q u i p -
ment  pu t in p lace,  th e level  of mai nten ance was  n ot suf fi cie nt  to 
e n s u re   t h e   s u s t a i n a b i l i t y   o f   t h e   i nve s t m e n t s.   at   t h e   t i m e   o f   t h e 
audit the beneficiar y did not have to provide evidence of a proper 
mainte nance p lan  and b u dget pr i or   to  re ce ivi n g e u f und in g.

20  the western balkan countries and 

the european union have signed a 

readmission agreement as part of 

the saa. this agreement provides 

for western balkan and eu member 

countries to accept the return of 

citizens who have illegally entered 

or illegally remained on the territory 

of any of the other countries, as well 

as to accept illegal migrants who are 

citizens of third countries or stateless 

individuals who have come to the 

territory of one of the countries 

through the territory of the other 

country. the agreement essentially 

obliges western balkan countries to 

share responsibility for eu security 

with the european union.

B O X   8

EX A M P L E   O F   I N F R A S T R U C T U R E   P R O J E C T  W I T H   L AC K   O F   I M PAC T

the commission invested over 3 million euro to upgrade the border crossing point (bcp) in  kamensko 
in bosnia and herzegovina to the level of a ‘first category’ bcp, i.e. all types of goods can enter and 
leave the country. however, since the completion of this  eu project, the government has revised 
its decision and down-graded the status of kamensko bcp. because of this decision, several types 
of goods (e.g. petrol) can no longer be declared there. the traffic levels have decreased although 
the road is the most practical road for traffic from split in croatia to the centre-west and north of 
bosnia and herzegovina.  the commission was not aware of this change.

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25.  

26.  

27.  

28.  

21

 t h e   d e l e g a t i o n s   w e r e   n o t   a l w a y s   a w a r e   o f   t h e   s i t u a t i o n   o n   t h e 
g ro u n d   b e c a u s e   t h e   u s e   o f   i n f r a s t r u c t u re   a n d   e q u i p m e n t   i s   n o t 
monitored. therefore, the impac t and sustainability of investment 
pro jec t s cou ld not  b e as s ured  by  t h e c ommiss ion  (B ox  8).

21  the delegation's own four-wheel 

drive vehicle is not serviced in tirana 

but driven to a neighbouring country.

 alt ho ug h  t he   pro curement  r ules  allow  for   th e  in clusi on  of  af ter-
s a l e s   s e r v i c e s   i n   t h e   p ro c u r e m e n t   p r o c e s s,   t h i s   p r o v i s i o n   i s   n o t 
s u f f i c i e n t l y   a p p l i e d .   i n   a l b a n i a   t h e   d e l e g a t i o n   p r o c u r e d   f o u r -
wh ee l  dr ive   vehic l es  for  the  bord er   poli ce  alth ough   it  k n ew   th at 
t h e r e   w o u l d   b e   p r o b l e m s   i n   m a i n t a i n i n g   t h e   e q u i p m e n t 2 1.   t h e 
relevant beneficiar y institutions in charge of maintenance are also 
not systematically invited as voting members to tender evaluation 
co m m i t te e s   n o r   we re   t h e y   s u f f i c i e nt l y   i nvo l ve d   i n   e a r l i e r   s t a g e s 
in t he  tender in g p rocedure.

I N V E S T M E N T S   N OT   M ATC H E D  W I T H   N E C E S S A R Y   
I N S T I T U T I O N A L   C A PAC I T I E S

 i n   m a ny   c a s e s   t h e   s i t u at i o n   i m p rove d   o n   t h e   gro u n d   b e c a u s e   o f 
the eu assistance with equipment or infrastruc ture. however, the 
inve st me nt s  o n  their   ow n  wil l   no t  ach ie ve  t he   ove rall  obj ec t ive s 
fo r   a   t a rg e t   i n s t i t u t i o n .   fo r   e x a m p l e,   i t   i s   n o t   e n o u g h   to   b u i l d   a 
modern border crossing point: the work ing practices of the border 
police  have to  c hang e acco rding ly.

 o th er  examp l es  of  investme nts   th at   were  n ot   m atc he d  wit h  ne c -
essar y inst itu tio nal  cap ac ities were t h e aud i ted it proj ec ts. even 
w h e n   t h e   e q u i p m e n t   s u p p l i e d   w a s   r e l e v a n t   t o   t h e   w o r k   o f   t h e 
p o l i ce   o r   j u d i c i a r y   a n d   a d d re s s e d   c u r re n t   a n d   f u t u re   n e e d s,   t h e 
pro jec t s' p otential  effec tiveness co uld  n ot  ye t  be  a de quately  ex-
ploited b ec ause o f :

(a)  t h e   l o w   n u m b e r   o f   b o r d e r   p o l i c e   s t a t i o n s   a n d   c o u r t   b u i l d-
i n g s   t h a t   w e r e   c o n n e c t e d   t o   t h e   n e t w o r k s .   fo r   e x a m p l e ,   i n 
m ontenegro only three out of 26 border crossing points were 
interco nnec te d;

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(b)   p ro j e c t s   re l a t i n g   t o   p u b l i c   a u t h o r i t i e s '   i n fo r m a t i o n   s y s t e m s 
re q u i re   a   s o l i d   l e g i s l a t i ve   f r a m e wo r k   a n d   a d e q u a t e   s e c u r i t y 
policies if they are to be sustainable, as confidential data are 
exchanged. at the time of the audit, no countr y had a law on 
data  pro tec t ion  w hic h was  fully  ali gne d w i th  th e  commun it y 
a c q u i s.   i n   t h e   c a s e   o f   b o s n i a   a n d   h e r z e g o v i n a ,   a   d a t a   p r o -
t e c t i o n   l a w   h a d   b e e n   e n a c t e d   i n   2 0 0 6   b u t   s t i l l   n e e d s   t o   b e 
u pd ate d to  a lign w ith t he c ommun it y  requirements;

(c)  none of the three it sof t ware projec ts audited had written in -
struc tions for access controls. access control is a key process 
that controls and limits access to the resources of a computer 
system; it should be designed to protec t against unauthorised 
entr y o r use.

S I G N I F I C A N T   I N S T I T U T I O N - B U I L D I N G   N E E D S 
B U T   O N LY   L I M I T E D   C H A N G E   R E S U LT I N G   F R O M   E U 
S P E N D I N G

29.  

 t h i s   s e c t i o n   f i r s t   d e a l s   w i t h   r e a s o n s   f o r   l i m i t e d   a c h i e v e m e n t s 
i n   i n s t i t u t i o n - b u i l d i n g   p ro j e c t s   a n d   t h e   l a c k   o f   m e a s u re m e n t   o f 
achie ve me nt s.   fac tors   cr itical  for   sustain abilit y   are   pre se nte d  in 
t h e   n e x t   s u b s e c t i o n s :   s t a b i l i t y   o f   k e y   s t a f f   a n d   a n   e nv i r o n m e n t 
f re e   o f   co r r u p t i o n ,   s p e c i f i c   f a c t o r s   re l a t i n g   t o   t r a i n i n g   p ro j e c t s, 
and  ow nership  at th e level  of  t h e  be ne f ic iar i es.

30.  

31.  

C H A N G E   M A N A G E M E N T   A N D   I N S T I T U T I O N - B U I L D I N G 
L I M I T E D   A N D   P O O R LY   M E A S U R E D

 a  justice and  home  affairs project can be said to be potentially ef-
fective if it addresses recognised needs and weak nesses, produces 
expected benefits, is suppor ted by a commitment to sustainability 
by the beneficiar y and is par t of a coordinated strategy to address 
instit ut io n- buil ding. 

 th e   re s u l t s   o f   t h e   co m m i s s i o n' s   p ro j e c t s   i m p rove d   t h e   s i t u at i o n 
o f   t h e   b e n e f i c i a r i e s.  t h i s   w a s   m o s t   e v i d e n t   i n   s u p p l y   a n d   wo r k s 
co nt ra c t s   b u t   t h e   gre ate s t   c h a l l e n g e   re m a i n e d   w i t h   t h e   s u s t a i n -
abil it y  of inst itu tion-b uil ding  proje c ts. 

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32.  

 for cases where institution-building projects did not achieve their 
obj ec t ives, t hree main reas ons  we re  i d ent if ie d by   th e c our t: 

22  the first step in the process of 

decentralised implementation is the 

national accreditation of beneficiary 

(a)  adm inist rat ive  inst ab il it y in th e re gi on ,  e. g.  s i gn i fi c ant t ur n-

authorities on the basis of capacity 

over o f s taff af ter el ec tions;

(b)  t raining  d eliver ing fewer re sult s th an  expe c ted ; 

(c) 

l ack  of  cou nt r y  ow nership  of refor m.

assessments. the next step is the 

conferral of management from the 

commission to the recipient country.

33.  

34.  

35.  

 th e   a u d i t   a l s o   n o te d   t h e   o p p o s i te,   i . e.   w h e n   t h e re   i s   s t a b i l i t y   i n 
the civil ser vice, when training is well targeted and when the top 
management of the beneficiar y is committed to change, progress 
i s   a c h i e ve d.   fo r   e x a m p l e,   i n   a l b a n i a   t h e   g ove r n m e nt   i s   co m m i t -
ted to finalising its de -mining effor ts, in b osnia and her zegovina 
t h e   c o n s t i t u t i o n a l   c o u r t   s o l v e d   t h e   b a c k l o g   o f   p e n d i n g   h u m a n 
r ights cases and the cour t in sremsk a  m itrovica in s er bia became 
a mo de l co u r t u sing  cas e manage me nt s of t ware.

 the   co mm issio n  intro du ced  few  spe c if ic   ac ti v it y-bas ed   m anag e -
m e n t   i n d i c a t o r s   i n   t h i s   a r e a .   i n   v a r i o u s   a c t i v i t y   s t a t e m e n t s   t h e 
co m m i s s i o n   n o t e s   t h a t   p ro gre s s   i n   t h e   j u s t i c e,   f re e d o m   a n d   s e -
cur it y   area  in  th e  wester n  bal k ans   has  been   m ad e,  as  j udge s  an d 
p r o s e c u t o r s   h a v e   r e c e i v e d   t r a i n i n g   a n d   p o l i c e   a n d   p r o s e c u t o r s 
have improved cooperation. however, it is not clear how the  com-
mis sio n measu res th e imp ac t  of  th es e ac t iv i ti es.

 the  co mm issio n used  to meas ure the  succes s o f i ts  ass i st ance  by 
focusing solely on contracting and disbursement rates. in 2002 the 
commission star ted aiming for sustainable capacit y development 
o f   i n s t i t u t i o n s,   w h i c h   i s   m o re   d i f f i c u l t   t o   m e a s u r e.   t h e   we s t e r n 
ba l k a n   co u n t r i e s   a re   p re p a r i n g   fo r   a   d e c e n t r a l i s e d   i m p l e m e n t a-
t i o n   s y s t e m   o f   a s s i s t a n c e ,   w h i c h   i s   p o s i t i v e   a s   t h e   c o n f e r r a l   o f 
management indicates a sufficient level of management capacit y. 
however,   the  co mm issio n  h as  not  yet  f ully  inte grate d  t he   m ea s-
ure ment   o f  cap acit y   d evel op m ent   i nto  th e   accre di tat ion   process 
of t he b en eficia r y au th or ities 22.

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36.  

37.  

S U S TA I N A B I L I T Y   O F   I N S T I T U T I O N - B U I L D I N G   
CO M P R O M I S E D   B E C AU S E   O F   C H A N G E S   I N   K E Y   S TA F F   A N D  
CO R R U P T I O N

 only two of the 15 institution-building projec ts achieved satisfac -
tor y  s ust ainab ilit y. a com mo n feature of the  in stituti on- build in g 
projec ts audited was the disruptive effec t of changes of benefici-
a r y   p e r s o n n e l.  th e   p o s i t i ve   re s u l t s   o f   i n s t i t u t i o n - b u i l d i n g   t r a i n-
i n g   p ro j e c t s   we re   a l m o s t   a l w ays   d i l u te d   by   s t a f f   c h a n g e s   i n   k e y 
pos itio ns (B ox  9). 

 t h e   a u d i t   a l s o   n o t e d   a   f e w   p o s i t i v e   e x a m p l e s   o f   i n c r e a s e d   c a-
pacities. these have resulted in improvements at operational level 
(Box 10).  despite the high staff turnover, the strategic objec tives, 
i . e.   m a i nt a i n i n g   s e c u r i t y   a n d   s t a b i l i t y   a n d   k e e p i n g   p u b l i c   o rd e r, 
w e r e   e n s u r e d .   t h i s   w a s   a c h i e v e d   o n l y   t h r o u g h   c o n t i n u o u s   e u  
assist ance. 

B O X  9

UN S TA B L E   S TA F F I N G   S I T UAT I O N   I N   P U B L I C   A D M I N I S T R AT I O N   I N   
AL B A N I A   A N D  T H E   F O R M E R  YU G O S L AV   RE P U B L I C   O F   M AC E D O N I A

in albania, three out of the eight jha projects audited included training. there were some positive 
results but staff changes, for example in the migration area, continued to hinder capacity building 
and delayed decision-making. immediately after the parliamentary elections in 2005 in albania, all 
20 persons in the regional employment offices dealing with migration issues were replaced.

in the police of the former Yugoslav republic of macedonia, 30 key managerial positions were 
identified. twenty-eight of these positions were subject to staff changes within months of the 
elections in 2006, i.e. staff turnover of 93 %.

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38.  

39.  

 the audit noted inadequate cooperation between law enforcement 
age ncies   af fec t i ng  t he  su stainabi li t y  of   proj ec ts.  for  example   al-
t h o u g h   t h e   p o l i c e   s u r v e i l l a n c e   e q u i p m e n t   a n d   t h e   f i n g e r p r i n t 
s y s t e m   w e r e   r e l e v a n t   t o   t h e   b o s n i a n   p o l i c e   a n d   s h o u l d   e n a b l e 
better detec tion rates in crime cases, it was not used to its fullest 
potential  due  to  l ack o f p ol ice cooperati on 23. 

23  it should be recognised that in 

bosnia and herzegovina 13 different 

police forces exist, two at entity and 

10 at cantonal level in addition to the 

autonomous police of brcko district.

 the  integr it y o f ju st ice  and   ho me  affair s in stitut ion s c an be bol-
s t e re d   b y   f i g h t i n g   c o r r u p t i o n .  t h e re   a re   i n d i c a t i o n s   t h a t   t h i n g s 
have   im proved  so mew hat  in  t he   countr i es   audite d,   alt hou gh   t h e 
progress is fragile. one possible overall indicator of the effec tive -
ness of eu spending is the cor ruption perception index issued by 
transparenc y i nternational. Annex IV shows how the rating (rank -
ing  and  score ) has  imp roved s light ly  s i nce  th e ye ar  2 00 4 .

B O X  1 0

EX A M P L E S   O F   E N H A N C E D   O P E R AT I O N A L   C A PAC I T Y

in the former Yugoslav republic of macedonia the ‘mountain storm’ operation in november 2007 
was planned, executed and concluded by specialised police units. in this operation, a major arms 
cache, sufficient to equip 650 solders, was discovered, including anti-aircraft weaponry.  it was 
found in the possession of what was initially described as an ‘organised crime group’ but was later 
labelled a terrorist cell. the operation was carried out without civilian casualties. according to the 
international observers interviewed by the court, an operation of this magnitude would have been 
impossible a couple of years ago.

in july 2008, the mountain storm trial verdict sentenced 17 people to a total of 192 years' impris-
onment. according to the judgement, the group's goal was to create insecurity among the citizens 
and jeopardise the constitutional order of the country. 

in albania the eu has helped the police to strengthen the authorities' law enforcement capacity 
since 1997. assistance to the police will continue until at least 2011.

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40.  

41.  

T R A I N I N G   —   M O R E   O U T P U T S  T H A N   R E S U LT S 

 a  ke y  e le ment  of   t he  p ro cess   of  int ro duc i n g  refor m s  a nd  c hange 
i s   t h r o u g h   t h e   p r o v i s i o n   o f   t r a i n i n g   t o   c i v i l   s e r v a n t s   (B o x   1 1) . 
this has been an impor tant commission pr ior it y. for example, all 
t h re e   re gi o n a l   p ro j e c t s 2 4,   w i t h   a   to t a l   b u d g e t   o f   1 0   m i l l i o n   e u ro, 
involved training. the training outputs (seminars, wor kshops and 
c o n f e r e n c e s )   w e r e   d e l i v e r e d   s a t i s f a c t o r i l y,   b u t   t h e   i m p a c t   w a s 
limite d (B ox  1 1).

 G e t t i n g   c i v i l   s e r v a n t s   f r o m   d i f f e r e n t   w e s t e r n   b a l k a n   c o u n t r i e s 
a ro u n d   t h e   s a m e   t ra i n i n g   t a b l e   i s   o f   co u r s e   a   wo r t hw h i l e   a i m   i n 
itsel f, given th e recent his tor y of t h e re gi on . but th e s pec ific ob -
jec tives of the commission's projec ts were more ambitious, e.g. to 
develop regional strategies in asylum, migration and visa matters 
b a s e d   u p o n   a   s e t   o f   co m m o n l y   a cce p te d   e u   te c h n i c a l   s t a n d a rd s 
and  pr inc iple s. 

24  because of past conflicts, regional 

cooperation has been a challenge in 

the western balkans. therefore the 

commission's regional programme 

focused on promoting relations 

between western balkan states. the 

eu has made it clear that regional 

cooperation is a prerequisite for 

progress towards accession. some 

10 % of the cards funding was 

directed to supporting this objective 

and the regional programme has 

always focused on the rule of law and 

justice and home affairs issues.

B O X  1 1

EX A M P L E S   O F   JU D I C I A L  TR A I N I N G   CE N T R E S   ( J TC s )

the court audited two training institutes for the judiciary. the overall objective of the jtcs was the 
same, i.e. to become a fully fledged training institute in line with best european practices, offering 
high-quality and targeted training to judges, prosecutors, court staff and advocates.

in the former Yugoslav republic of macedonia, the eu experts' advice was overlooked when estab-
lishing the institution. the ministry did not invite any of the international experts to participate 
in the draft jtc law, which was then heavily criticised by the donors because it was not compliant 
with european standards. furthermore, the curriculum for the initial training of 24 months was cut 
to 15 months, with a risk of reducing the impact of the training. 

in serbia, the training institute for judges lacked direction and a clear legal base. furthermore, the 
‘training of trainers’ programme proposed the use of modern teaching methods, i.e. small training 
groups with a lot of interaction. i n reality only ‘ex cathedra’ training was delivered.

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42.  

43.  

44.  

 i t   i s   i n h e re nt l y   d i f f i c u l t   to   d e ve l o p   co m m o n   t a rg e t s   fo r   re gi o n a l 
training projec ts because of the differ ing stages of advancement 
wit hin t he in dividual  co untr ies.  th e situat ion  in  croatia was usu-
ally   mo re  advanced   t han  in  the  oth er   count r ie s.  th e  commiss ion 
r ightly considered that the regional dimension had to be used to 
put the k nowledge of the most developed national system at the 
ser vice of the other recipient countries. however, the commission 
r a r e l y   m e a s u r e d   h o w   t h e   t r a i n i n g   c h a n g e d   p o l i c i e s   o r   w o r k i n g 
prac tices,  de sp ite  t his  being  a  g oo d  pra c ti cal   appro ac h  to  a lign-
ment  w it h eu st and ards.

25  the commission has contracted 

external monitors to assess the 

implementation of the projects.

 th e   co m m i s s i o n   d i d   n o t   e s t a b l i s h   a ny   s ys te m   fo r   m e a s u r i n g   t h e 
regional judicial cooperation projec t's per for mance, not even af-
ter  it   was  c r it ici s ed  by  it s   ow n   mon i tor s 25. th e  in dic ator s  did  n ot 
allow the measurement of the impac t as they were ac tivity- driven 
a n d   fo r m a l i s t i c   r a t h e r   t h a n   e v a l u a t i ve,   e. g.   n u m b e r   o f   m e e t i n g s 
or   co nferences. the  ob je c tive s  were  als o  vagu e  an d  un c le ar,   e. g. 
to enhance regional dialogue or to facilitate operational coopera-
t i o n .   at t a i n m e n t   o f   o b j e c t i ve s   co u l d   t h e re fo re   n o t   b e   m e a s u re d 
bec aus e the y were not  direc t ly  lin k e d to th e  ac t ivi ti e s.

 at  the   nat io nal   l evel   to o,   the  commiss ion's   trainin g  proje c t s  d i d 
not fully meet their objec tives, because they were run without the 
commitment of the top management. two special training courses 
within the albanian police projec t (pameca  ii) can be mentioned. 
‘s t r a t e g i c   c o m m a n d   c o u r s e s’  w e r e   g i v e n   t o   6 0   m i d d l e - r a n k i n g 
to  s enio r-ran k ing  of ficers. when   th e  t rain ed  police  m anager s   re -
tur ned  to  imp l ement  the  theo r y  th e y  fa ce d  re s ist an ce   f rom  t h eir 
sup er iors.  to  t r y  and  reme d y the potential lac k  of  im pac t, a ‘s en-
ior executive  programme’ had therefore to be launched involving 
3 4   o f   t h e   m o s t   s e n i o r   p o l i c e   o f f i c e r s.   a l t h o u g h   t h e   co m m i s s i o n 
c a n   b e   c o m p l i m e n te d   fo r   t a k i n g   t h i s   c o r re c t i ve   a c t i o n ,   i t   wo u l d 
have  b een  p referab l e to ensure t he  comm it ment of t he  top ma n-
agem ent b efo re  p res ent ing  t he cour s e to m idd le  m ana ge me nt.

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45.  

 le a r n i n g - b y - d o i n g   a n d   o n - t h e - s p o t   t r a i n i n g   a r e   e f f e c t i v e   w a y s 
o f   d e v e l o p i n g   a   m o d e r n   a n d   e f f i c i e n t   a d m i n i s t r a t i o n .   ha n d i n g 
ove r   a d m i n i s t rat i ve   re s p o n s i b i l i t i e s   c a n   b e   d o n e   a s   l o n g   a s   s t a f f 
turnover is not excessive (Box 12).  twinning projects with member 
s t a t e s   a n d   g r a n t   c o n t r a c t s   w i t h   i n t e r n a t i o n a l   o r g a n i s a t i o n s   a re 
u s e d   m o re   s i n ce   t h e   c a r d s   p ro gra m m e   wa s   re o r i e nt ate d   f ro m   a 
reco ns truc t io n- d r iven  to  a refor m - dr iven  program me.

B O X  1 2

EX A M P L E S   O F  ‘ L E A R N I N G-BY-D O I N G ’  P R O J E C T S   I N   BO S N I A   A N D 
HE RzE G O V I N A

Case 1: Complete hand-over of responsibilities to the beneficiary — Human Rights Commission  

in  2004  the  commission  signed  a  grant  contract  with  the  constitutional  court  of  bosnia  and 
 herzegovina  (bihcc )  to  establish  a  special  judicial  body  within  bihcc,  the  human  rights 
 commission  (hrc ), in order to address a back-log of almost 9 000 human rights cases 26. during 
the first year the human rights commission (hrc ) resolved more than 3 000 cases. the hrc started 
operating with international staff, but since 2005 the hrc was composed of national staff only. 
during the project the national staff applied the european convention of human rights and other 
international instruments on a daily basis. the project succeeded because 9 out of the 10 key staff 
stayed with the constitutional court. in june 2007 all back-log cases had been resolved. according 
to the beneficiary, the project made a significant contribution to the awareness of human rights 
standards in b osnia and herzegovina.

Case 2: Incomplete hand-over of responsibilities to the beneficiary — War Crimes Chamber 

the war crimes chamber ( wcc) in bih is the first permanent and specialised state-level organ de -
signed to deal with grave breaches of international humanitarian law and part of the international 
criminal tribunal for the former Yugoslavia's completion strategy 27. the number of war crimes 
suspects in bosnia and herzegovina is estimated at several thousand. at the time of the audit the 
handover from international experts to national experts was delayed. the actual number of active 
trials exceeded the number forecast, which is positive, but the court's workload well exceeded its 
capacity. this situation was aggravated by the turnover of international judges.

26  there are four main types of human rights violation cases in bosnia and herzegovina: equality before the law, property rights, right to 

work and receive education and missing persons (‘srebrenica cases’).

27  reference made to un security council resolution 1503.

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46.  

47.  

LO C A L   O W N E R S H I P   A   K E Y   S U CC E S S   FAC TO R   I N   
I M P R O V I N G  T H E   R U L E   O F   L AW

 on e   o f   t h e   m o s t   c o m m o n   s t r a t e g i c   o b j e c t i v e s   o f   t h e   a u d i t e d 
p ro j e c t s   wa s   to   re i n fo rce   t h e   r u l e   o f   l aw   i n   t h e   we s te r n   ba l k a n s. 
t h e   w e s t e r n   e u r o p e a n   c o n c e p t   o f   r u l e   o f   l a w   i s   i n   e s s e n c e   t h e 
p r i n c i p l e   t h a t   n o   o n e   i s   a b o v e   t h e   l a w.   c e m e n t i n g   t h e   r u l e   o f 
l aw   i n   t h e   we s te r n   ba l k a n s   i s   e s s e n t i a l   fo r   s t a b i l i t y   a n d   s e c u r i t y 
in  euro p e.   d es pite  so me  pro gress,  t he  rule  of   law  in   t he   wes ter n 
balk a ns is st ill  weak  (B ox  13) .

 i n   m a ny   o f   i t s   p r o g r e s s   r e p o r t s ,   t h e   c o m m i s s i o n   h a s   e x p r e s s e d 
dissatisfac tion at the slow speed of reforms. the projec t approach 
adopted by the commission has its limitations. i t is not a ‘cure all 
r e m e d y ’.   s u c c e s s   i n   t h e   c o m m i s s i o n ' s   j u s t i c e   a n d   h o m e   a f f a i r s 
projec ts requires a change in attitudes of national authorities and 
continuity of government struc tures. these fac tors lay beyond the 
commission's direc t powers and their negative impac t, in par ticu-
lar o n inst itu tio n-b u il ding, s hould  n ot be  und eres ti mate d.

B O X  1 3

R U L E   O F   L AW   CO N C E P T   I N  W E S T E R N   B A L K A N S  W E A K

the ‘rule of law’ is weak in the region and confidence in the government and institutions is low. the 
citizens distrust the legal system and they feel it benefits only certain status groups. when asked 
whether ‘some people are above the law in this country’, the percentage of positive responses in 
certain countries of the region was the following28:

montenegro: 69 %; 
serbia: 81 %; 
the former Yugoslav r epublic of m acedonia: 85 %.

it should be noted that those who feel most strongly that society is unfair and that people lack 
equality before the law are the most educated and the best politically informed.

28  see the research paper by alina mungui-pippidi: ‘deconstructing balkan particularism — the ambiguous social capital of south eastern 

europe’, 2005..

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48.  

49.  

 however, the  commission has lear nt the lesson of previous expe -
r i e n c e s .   c o m p a r e d   w i t h   t h e   c o m m i s s i o n ' s   e a r l i e r   p r e - a c c e s s i o n 
p ro g r a m m e   (p h a re ) ,   i m p o r t a n t   s t r u c t u r a l   re fo r m s   i n   ju s t i c e   a n d 
home a ffairs are now tack led ear lier in the enlargement process.

29  reference made to delevic, milica 

‘regional cooperation in the western 

balkans,’ eu-iss chaillot paper  

no 104, july 2007.

 un t i l   n o w   m o s t   re fo r m   i n i t i a t i ve s   d i d   n o t   c o m e   f ro m   w i t h i n   t h e 
r e g i o n   b u t   f r o m   t h e   e u r o p e a n   c o m m i s s i o n   a n d   o t h e r   e x t e r n a l 
a g e n t s 2 9.  t h e   re s u l t i n g   l a c k   o f   o w n e r s h i p   we a k e n s   t h e   p ro j e c t s ' 
lon g-ter m  resu lt s.  the  firs t  ser ious  i nitiative  with in  th e  re gi on  is 
the  r egion al co op eratio n co un cil, wh ich was  launch ed in febr u-
ar y  2008,  as  the   s ucces s or  o f  th e  stabilit y   pac t  for   s outh   eas ter n 
e u r o p e .   t h e   w o r k   o f   t h e   c o o p e r a t i o n   c o u n c i l   w i l l   f o c u s   o n   s i x 
p r i o r i t y   a r e a s.   on e   o f   t h e m   i s   ju s t i c e   a n d   ho m e   a f f a i r s.   a l m o s t 
t wo  de cade s  af ter  the  co l l ap se  of   t h e  for m e r   s ec ur it y   an d  st abil-
it y struc ture in s outh-easter n  europe, this new institution, based 
in s arajevo, aspires to become the first regional forum of its k ind 
through a regionally owned and led framework that also suppor ts 
euro p ean  integrat ion .

M A N AG E M E N T   A P P R O AC H E S   A N D   D O N O R   
CO O R D I N AT I O N

50.  

 t h i s   s e c t i o n   p re s e n t s   t h e   re s u l t s   o f   t h e   a u d i t   o n   t wo   h o r i z o n t a l 
issu es,  cover in g bo th  t yp es  o f proje c ts : t he  compar is on be t we en 
t h e   t w o   m a n a g e m e n t   a p p r o a c h e s   u s e d   b y   t h e   c o m m i s s i o n   a n d 
dono r co o rd ination.

N O   S I G N I F I C A N T   D I F F E R E N C E   B E T W E E N   M A N A G E M E N T 
A P P R O AC H E S

51.  

 i n   t h e   we s te r n   ba l k a n s   t h e   co m m i s s i o n   u s e d   t wo   b a s i c   m a n a g e -
m e n t   a p p r o a c h e s   ( s e e   A n n e x   V ) ,   t h r o u g h   t h e   e u r o p e a n   ag e n c y 
for reconstruc tion (ear) or through  commission delegations. the 
cour t  anal yse d the au dit res ult s obt ain ed  on  proj e c ts  i n orde r  to 
deter mine if th ere was evidence  th at  on e man a ge ment  approac h 
wa s  mo re ef fec tive t han the oth e r.   

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52.  

53.  

54.  

 o u t   o f   t h e   3 0   j u s t i c e   a n d   ho m e   a f f a i r s   p r o j e c t s   a u d i t e d   i n   t h e 
r e c i p i e n t   c o u n t r i e s ,   1 8   w e r e   m a n a g e d   b y   t h e   d e l e g a t i o n ,   a n d 
12  by the ear (see  A nnex I). while the overall per for mance of the 
p ro j e c t s   a u d i t e d   w a s   m i xe d,   t h e re   w a s   n o   s i g n i f i c a n t   d i f fe re n c e 
i n   t h e   d e g r e e   o f   s u c c e s s   a c h i e v e d   i n   p r o j e c t s   m a n a g e d   b y   t h e 
d e l e g a t i o n s   c o m p a r e d   w i t h   t h o s e   m a n a g e d   b y   t h e   e a r.   on e   o f 
th e st reng ths  o f a devol ved d eleg ation is the  clos e lin k b et ween 
p o l i c y   d i a l o g u e   a n d   t h e   a n n u a l   p r o g r a m m i n g   p r o c e s s .   o n   t h e 
o t h e r   h a n d,   t h e   e a r' s   h e a d q u a r te r s   co nt r i b u te d   to   t h e   d i a l o g u e 
wi th  addit io na l exper t is e for th e  re gi on  as  a  who le.

B E N E F I C I A R Y - L E D   D O N O R   CO O R D I N AT I O N   N OT   
E N H A N C E D

 the  co mm issio n has comm it ted its elf  to playi n g a n  ac ti ve  ro le  in 
fo s t e r i n g   d o n o r   co o rd i n a t i o n   i n   t h e   we s te r n   ba l k a n s.   d o n o r   co -
o rd i n at i o n   i s   o n e   o f   t h e   p r i n c i p l e s   o f   t h e   2 0 0 5   pa r i s   d e c l a rat i o n 
o n   a i d   e f fe c t i ve n e s s   a n d   t h e   e u   co d e   o f   co n d u c t   o n   d i v i s i o n   o f 
labour.  the commission subscribes to these principles. the cour t 
found t hat  it  was  diff ic u l t for th e commiss ion  to put donor  coor-
dinatio n into prac tice o n t he groun d.

 just ice  and   ho m e  aff airs cons titute  a s ec tor whe re t he re  i s com-
mon  d o no r  inte rest.  the   co mm ission,   the  inte r nation al  fin anc i al 
i n s t i t u t i o n s ,   t h e   m e m b e r   s t a t e s   a n d   t h e   n o n - e u   d o n o r s   a r e   a l l 
a c t i ve   i n   t h e   we s te r n   ba l k a n s   (A n n e x   V I) .   th e   p r i n c i p l e   t h a t   t h e 
r e c i p i e n t   c o u n t r y   s h o u l d   l e a d   t h e   d o n o r   c o o r d i n a t i o n   p r o c e s s 
c o u l d   n o t   b e   a p p l i e d,   b e c a u s e   t h e   re c i p i e n t   c o u n t r i e s '   c a p a c i t y 
to op erate was s til l weak .  m o re ove r, t he bene fic iar ies did no t re -
ce i ve   s u f f i c i e nt   s u p p o r t   to   e n h a n ce   t h e i r   c a p a c i t y   to   l e a d   d o n o r 
coordination. even when the beneficiar y had a clear vision of how 
to   i m p l e m e nt   t h e i r   p re fe r re d   s o l u t i o n ,   t h e y   we re   f a ce d   w i t h   u n -
coo rdinated  do n or ac tivities (B ox  1 4) .

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55.  

 t h e   l a c k   o f   d o n o r   c o o r d i n a t i o n   w a s   n o t   l i m i t e d   t o   i n v e s t m e n t 
p r o j e c t s   o n l y.   i n   i n s t i t u t i o n - b u i l d i n g   c a s e s   t h e   b e n e f i c i a r y   w a s 
confused by recommendations given by different eu operators. an 
over load of advice with mixed messages was most obvious in the 
for mer Yugoslav r epublic of m acedonia. i n 2004–05 five separate 
e u  e n t i t i e s   ( t h e   e c  d e l e g a t i o n ,   e a r,   e u  s p e c i a l   r e p r e s e n t a t i v e , 
eupol-p roxima and eu monitoring mission) were active in the area 
of police development. additionally, the organization for  security 
and  co - op eratio n in  eu rop e,  i nte r national cr imin al i nvestig ative 
tr a i n i n g   a s s i s t a n c e   pro g r a m m e   ( a   p o l i c e   p ro j e c t   f u n d e d   b y   t h e 
usa) and a number of eu  member state bilateral programmes were 
ope rat in g sim ul tan eou sl y. the  problem was  e spec ially dama gi n g 
wh ere  advice was  of a co nt radic tor y  n at ure.

B O X  1 4

EX A M P L E   O F   U N CO O R D I N AT E D   M U LT I-D O N O R   I N V E S T M E N T   AC T I V I T Y 

one aid harmonisation principle deals with aid alignment and untied aid.  however, because of 
uncoordinated multi-donor activities, where each donor gave cars, lorries and vans originating 
from their country, the police of the former Yugoslav republic of macedonia uses over 40 types 
of vehicle. this makes it impossible to run the fleet cost-effectively. the police aims to use only 
12 types of vehicle in the future.   

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conclusions and  
recommendations

33

56.  

57.  

 th e   i n ce n t i ve   o f   e u  m e m b e r s h i p   h a s   c o n t r i b u t e d   t o   m a k i n g   t h e 
e u  t h e   b i g g e s t   a n d   m o s t   i n f l u e n t i a l   s t a k e h o l d e r   i n   t h e   we s t e r n 
balk ans. unlike the previous accession programmes, the commis-
s i o n   h a s   p r i o r i t i s e d   t h e   ju s t i c e   a n d   ho m e   a f f a i r s   s e c t o r   a n d   a t -
t e m p t e d   t o   t a c k l e   t h e s e   i m p o r t a n t   s t r u c t u r a l   r e fo r m s   e a r l i e r   i n 
t h e   e n l a rg e m e n t   p ro ce s s.  th e   j u s t i ce   a n d   h o m e   af f a i r s   p ro j e c t s 
m a n a g e d   b y   t h e   c o m m i s s i o n   t a k e   p l a c e   i n   a   d i f f i c u l t   p o l i t i c a l 
a n d   o r g a n i s a t i o n a l   e n v i r o n m e n t .   a g a i n s t   t h i s   b a c k g r o u n d   t h e 
co m m i s s i o n' s   m a n a g e m e nt   h a s   b e e n   l a rg e l y   e f fe c t i ve.   howe ve r, 
t h e   c o u r t ' s   a u d i t   i d e n t i f i e d   s o m e   s h o r t c o m i n g s   i n   c o m m i s s i o n 
man ag eme nt  wh ich , if ad dress ed,  coul d have re s ulted i n an  even 
higher rate of projec t success, par ticularly in terms of the sustain-
abil it y  of t heir res ul t s.

 t h e   co u r t   c o n c l u d e s   t h a t   n e e d s   a n a l y s e s   we re   s o m e t i m e s   i n a d-
equate and that there was a lack of donor coordination. although 
not all investment projec ts achieved fully satisfac tor y results, and 
t h e   s u s t a i n a b i l i t y   i s   a t   r i s k ,   t h e   i nve s t m e n t   a s s i s t a n c e   f i n a n c e d 
by   t h e   co m m i s s i o n   h a s   m a d e   a   re l e va nt   a n d   u s e f u l   co nt r i b u t i o n 
to the national infrastruc ture and institutions. on the other hand 
t h e   co u r t   fo u n d   t h at   t h e   re s u l t s   o f   i n s t i t u t i o n - b u i l d i n g   p ro j e c t s 
were only par tially satisfactor y and unlikely to be sustainable. this 
was due to continued political weak ness and lack of commitment 
(ownership) by the beneficiaries, as most reform initiatives do not 
come fro m wit hin the region but from  th e  european commiss ion 
or  o the r ex ter n al  s takehol ders. 

TA B L E  1

M A I N   CO N C LU S I O N S   O N   I N V E S T M E N T   A N D   I N S T I T U T I O N-B U I L D I N G  
P R O J E C T S

Audit question

Type of assistance

Investment

Institution-building

Needs

Project outputs

Results

Relevance

Assessment

Achieved

Sustainability

S

S

PS

S

S

S

S / PS

PS

S / PS

US

Rating: S = Satisfactory, PS = Partly Satisfactory and US = Unsatisfactory;
S / PS means that the rating falls between Satisfactory and Partly Satisfactory.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

 
 
34

58.  

 while the overall per formance of the projec ts audited was mixed, 
w i t h   r e g a r d   t o   t h e   m a n a g e m e n t   a p p r o a c h e s ,   t h e r e   w a s   n o   s i g-
nifica nt   diffe rence  in  t he  degree  of   s ucce ss   ach ie ved  i n  proj ec t s 
m a n a g e d   b y   t h e   d e l e g a t i o n s   c o m p a re d   w i t h   t h o s e   m a n a g e d   b y 
th e e u rop ea n a g enc y fo r r econ st ruc tion.

RE C O M M E N D AT I O N   1

the commission's rationale for working in the justice and home 
af fairs sec tor in the western balk ans is clear but projec t result s 
wo u l d b e eve n b e t te r i f :

(a )  when designing justice and  home  affairs projec ts, the com-
m i s s i o n   g ave   a p p ro p r i ate   we i g ht   to   p ro j e c t   o b j e c t i ve s   a n d 
e n s u r e d   t h a t   p r o j e c t   a c t i v i t y - b a s e d   i m p a c t   i n d i c a t o r s   a r e 
se t;

(b)  i nve s t m e nt   p ro j e c t s   we re   m atc h e d   m o re   c l o s e l y   w i t h   i n s t i-

t ut ion -bu ilding p ro jec t s;

(c)   a l l   d o n o r s   a c t i ve   i n   t h e   a re a ,   i n c l u d i n g   t h e   co m m i s s i o n   a s 
t he m ain do nor,  coo rdinated be t ter  w it h e ac h  ot he r,  fo r  ex-
amp l e  one  do no r  coul d  fun d  or   co -f un d   a  proj ec t  d es ign e d 
by  ano t he r do no r ;

(d)  the procurement process for equipment was reconsidered by 
t he  do no r  com munit y.  wh erever  possible,   joint   invest me nt 
pools managed by the recipient countries should be consid -
ered, although tight monitoring of the procurement process 
by  th e b eneficiar y o rg anisatio ns  will  st ill  be  n eces sar y.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

 
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RE C O M M E N D AT I O N   2

t h e sus t ainab ili t y  o f p roj e c t s wo ul d  im p rove i f : 

(a)  b e n e f i c i a r y   i nvo l ve m e n t   we re   i n c re a s e d,   e. g.   i n   t h e   p u b l i c 

p roc u rement p roces s;

(b)  no  p ro jec t s were  l au nc hed  with out  a mai nten an ce  plan ;

(c)   the commission monitored more closely the distribution and 
e va l u ate d   t h e   u s e   o f   e u- f u n d e d   e q u i p m e nt   a n d   i n f ra s t r u c -
t ure  and to ok  cor rec tive ac t ion  wh en  n e ces s ar y ;

(d)  t he co mmis sio n us ed impac t indic ator s  to m e asure re s ults ;

(e)   the deliver y of technical assistance was adequately comple -
me nted by  ac tive enco uragement  for  in st it ut ion al  c han g e.

RE C O M M E N D AT I O N   3

t h e   r e g i o n a l   a s p e c t   w o u l d   b e   e n h a n c e d   i f   i n f r a s t r u c t u r e 
 inte r ve nti o ns  in  th e  inte gr ate d  b o rd e r  mana g e m e nt  area  we re 
 d esign e d an d imp l e m e nte d in a w ay that wo ul d fos te r re gi o nal 
cooperation. for example, joint border crossing points,  f inanced 
f ro m th e re gi o nal all o c ati o n , sh o ul d b e gi ve n p r i o r i t y.

this rep o r t  was ado p ted by  the cour t of auditor s in luxembourg 
at it s m eet ing  o f 15 an d 16 ju ly  2 0 0 9 .

Fo r  th e  Co u r t  o f  Au d ito r s

ví to r  m anu e l da s il v a c al d e ir a 
Presi d e nt

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

36

A N N E X  I

C A R D S   J U S T I C E   A N D   H O M E   A F FA I R S   P R O J E C T S   AU D I T E D   A N D   
A N   A S S E S S M E N T   O F  T H E I R   E F F E C T I V E N E S S

PROJECT DESCRIPTION

CARDS 
Annual 
programme

AMOUNT 
IN EURO
(contracts)

PROJECT COMPLETION

MANAGED BY

Partly satisfactory (PS),  

Yes/Partial/No

S, PS, US, N/A

Satisfactory (S),  

Unsatisfactory (US)

NEED

RESULTS

OUTPUT 

COMPLETED

RELEVANCE

ASSESSMENT

ACHIEVED

SUSTAINABILITY

Investment

Albania

Albania

Albania

Albania

Office equipment for police stations

Construction of Fushe Kruja prison

Appeal courts in Korça and Vlora

Border control and green border management

Bosnia and Herzegovina

Supervision and construction of Kamensko BCP 

Bosnia and Herzegovina

Construction of Gorica BCP

Bosnia and Herzegovina

Supervision and rehabilitation of premises for the BiH Judiciary

Bosnia and Herzegovina

Equipment for police forces

Bosnia and Herzegovina

Supervision and construction of the border police HQ of BiH

Bosnia and Herzegovina

Provision of IT telecommunication system

The former Yugoslav Republic of 
Macedonia

The former Yugoslav Republic of 
Macedonia

Montenegro

Montenegro

Serbia

Serbia

Serbia

Provision of vehicles for border police 

Construction of reception centre for asylum seekers

Construction of border crossing points D. Brijeg and S. Polje

IT and special equipment for the border police

Construction and supervision of border crossing Batrovci

Renovation and maintenance of the main courtroom in Belgrade

Supplies to border police

2001

2001

2003

2003

2001

2002

2002

2003

2003

2003

2003

2002

2001

2003

2002–03

2003

2003

419 093

2 874 708

1 636 375

2 127 106

3 349 597

2 971 834

2 310 367

1 576 604

2 589 621

2 597 772

2 799 813

1 419 580

3 685 662

1 683 038

5 134 209

1 196 963

2 782 209

Subtotal

41 154 551

September 2005

 March 2007

May 2006

February 2006

October 2005

Never started

December 2004

July 2005

July 2008

December 2006

June 2005

November 2006

July 2005

March 2005

August 2006

May 2005

May 2005

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

EAR

EAR

EAR

EAR

EAR

EAR

EAR

US

S

S

S

S

S

S

S

S

S

PS

PS

PS

S

S

S

PS

US

US

US

PS

PS

PS

S

S

S

S

S

S

S

S

S

S

US

Partial

Yes

Yes

Yes

Yes

No

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Partial

Partial

Satisfactory/ 

Unsatisfactory/ 

N/A

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

N/A

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Unsatisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

N/A

US

PS

S

PS

PS

PS

PS

PS

PS

S

S

S

S

S

S

S

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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PROJECT DESCRIPTION

PROJECT COMPLETION

MANAGED BY

CARDS 

Annual 

AMOUNT 

IN EURO

programme

(contracts)

NEED

RELEVANCE

ASSESSMENT

OUTPUT 
COMPLETED

RESULTS

ACHIEVED

SUSTAINABILITY

Satisfactory (S),  
Partly satisfactory (PS),  
Unsatisfactory (US)

Yes/Partial/No

S, PS, US, N/A

Satisfactory/ 
Unsatisfactory/ 
N/A

Office equipment for police stations

Construction of Fushe Kruja prison

Appeal courts in Korça and Vlora

Border control and green border management

Bosnia and Herzegovina

Supervision and construction of Kamensko BCP 

Bosnia and Herzegovina

Construction of Gorica BCP

Bosnia and Herzegovina

Supervision and rehabilitation of premises for the BiH Judiciary

Bosnia and Herzegovina

Equipment for police forces

Bosnia and Herzegovina

Supervision and construction of the border police HQ of BiH

Bosnia and Herzegovina

Provision of IT telecommunication system

The former Yugoslav Republic of 

Provision of vehicles for border police 

The former Yugoslav Republic of 

Construction of reception centre for asylum seekers

Investment

Albania

Albania

Albania

Albania

Macedonia

Macedonia

Montenegro

Montenegro

Serbia

Serbia

Serbia

2001

2001

2003

2003

2001

2002

2002

2003

2003

2003

2003

2002

2001

2003

2003

2003

419 093

2 874 708

1 636 375

2 127 106

3 349 597

2 971 834

2 310 367

1 576 604

2 589 621

2 597 772

2 799 813

1 419 580

3 685 662

1 683 038

5 134 209

1 196 963

2 782 209

Construction of border crossing points D. Brijeg and S. Polje

IT and special equipment for the border police

Construction and supervision of border crossing Batrovci

2002–03

Renovation and maintenance of the main courtroom in Belgrade

Supplies to border police

Subtotal

41 154 551

September 2005

 March 2007

May 2006

February 2006

October 2005

Never started

December 2004

July 2005

July 2008

December 2006

June 2005

November 2006

July 2005

March 2005

August 2006

May 2005

May 2005

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

EAR

EAR

EAR

EAR

EAR

EAR

EAR

US

S

S

S

S

S

S

S

PS

S

S

PS

PS

S

S

PS

S

US

US

S

US

S

S

PS

S

PS

S

PS

S

S

S

S

S

US

Yes

Partial

Yes

Yes

Yes

No

Yes

Yes

Yes

Yes

Yes

Yes

Partial

Yes

Partial

Yes

Yes

US

PS

S

PS

PS

N/A

S

S

PS

S

PS

S

PS

S

PS

S

S

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

N/A

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Unsatisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

Satisfactory

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

38

PROJECT DESCRIPTION

CARDS 
Annual  
programme

AMOUNT 
IN EURO
(contracts)

PROJECT COMPLETION

MANAGED BY

Partly satisfactory (PS),  

Yes/Partial/No

S, PS, US, N/A

Satisfactory (S),  

Unsatisfactory (US)

NEED

RESULTS

OUTPUT 

COMPLETED

RELEVANCE

ASSESSMENT

ACHIEVED

SUSTAINABILITY

Institution building

Albania

Albania

Albania

Albania

National strategy of migration

Albanian mine action programme

Pre-screening of asylum seekers and migrants

PAMECA II – police mission

Bosnia and Herzegovina

Support to the prosecutor's office in BiH

Bosnia and Herzegovina

Support to Human Rights Commission

Bosnia and Herzegovina

Support of the high judicial and prosecutorial council 

Bosnia and Herzegovina

Support to the war crimes registry in BiH

The former Yugoslav Republic of 
Macedonia

The former Yugoslav Republic of 
Macedonia

Serbia

Serbia

Regional 

Regional 

Regional 

Training institute for judiciary

Support to the national police reform strategy

Judicial training centre

Capacity building of Ministry of Justice

Establishment of EU-compatible framework in asylum, migration and visa 
matters

Establishment of an independent, reliable and functioning judiciary  
and enhancing the judicial cooperation

Investment and Institution building

Serbia

IT support to the court administration, case management

Audit criteria for relevance: The project objectives were in line with JHA priotities for the country.
Audit criteria for needs assessment: The projects were justified and alternative approaches had been considered.
Audit criteria for outputs: The completed activities had delivered the outputs as planned.
Audit criteria for results achieved: The EU-funded assistance was used effectively.
Audit criteria for sustainability: The results of the projects were financially and operationalily sustainable. 
N/A: Not applicable.

2001

2002

2003

2004–05

2002

2003

2004

2004

2001

2001

2004

2004

2002

1 000 000

2 000 000

2 000 000

6 314 404

916 668

645 705

3 120 986

3 500 000

1 188 405

1 457 533

2 499 175

1 491 029

2 922 700

2003

5 499 579

Subtotal

36 556 168

2004

TOTAL

3 232 093

80 942 812

Support to and coordination of IBM strategies in the western Balkans 

2002–03

1 999 984

March 2007

DG ELARG HQ

January 2005

May 2006

February 2006

December 2007

May 2005

March 2005

January 2006

January 2008

October 2005

September 2005

October 2007

September 2007

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

EAR

EAR

EAR

EAR

December 2005

DG ELARG HQ

April 2007

DG ELARG HQ

November 2005

EAR

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

PS

PS

S

S

S

S

S

S

S

S

S

S

S

PS

PS

US

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Partial

Partial

Satisfactory/ 

Unsatisfactory/ 

N/A

Unsatisfactory

Satisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Satisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Satisfactory

US

S

PS

PS

PS

S

S

S

S

PS

US

PS

PS

PS

PS

PS

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

39

PROJECT DESCRIPTION

PROJECT COMPLETION

MANAGED BY

CARDS 

Annual  

AMOUNT 

IN EURO

programme

(contracts)

NEED

RELEVANCE

ASSESSMENT

OUTPUT 
COMPLETED

RESULTS

ACHIEVED

SUSTAINABILITY

Satisfactory (S),  
Partly satisfactory (PS),  
Unsatisfactory (US)

Yes/Partial/No

S, PS, US, N/A

Satisfactory/ 
Unsatisfactory/ 
N/A

January 2005

May 2006

February 2006

December 2007

May 2005

March 2005

January 2006

January 2008

October 2005

September 2005

October 2007

September 2007

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

Delegation

EAR

EAR

EAR

EAR

December 2005

DG ELARG HQ

Support to and coordination of IBM strategies in the western Balkans 

2002–03

1 999 984

March 2007

DG ELARG HQ

April 2007

DG ELARG HQ

Investment and Institution building

Serbia

IT support to the court administration, case management

November 2005

EAR

Institution building

Albania

Albania

Albania

Albania

National strategy of migration

Albanian mine action programme

Pre-screening of asylum seekers and migrants

PAMECA II – police mission

2004–05

Bosnia and Herzegovina

Support to the prosecutor's office in BiH

Bosnia and Herzegovina

Support to Human Rights Commission

Bosnia and Herzegovina

Support of the high judicial and prosecutorial council 

Bosnia and Herzegovina

Support to the war crimes registry in BiH

The former Yugoslav Republic of 

Training institute for judiciary

The former Yugoslav Republic of 

Support to the national police reform strategy

Judicial training centre

Capacity building of Ministry of Justice

Establishment of EU-compatible framework in asylum, migration and visa 

matters

Establishment of an independent, reliable and functioning judiciary  

and enhancing the judicial cooperation

Macedonia

Macedonia

Serbia

Serbia

Regional 

Regional 

Regional 

2001

2002

2003

2002

2003

2004

2004

2001

2001

2004

2004

2002

1 000 000

2 000 000

2 000 000

6 314 404

916 668

645 705

3 120 986

3 500 000

1 188 405

1 457 533

2 499 175

1 491 029

2 922 700

2003

5 499 579

Subtotal

36 556 168

2004

TOTAL

3 232 093

80 942 812

Audit criteria for relevance: The project objectives were in line with JHA priotities for the country.

Audit criteria for needs assessment: The projects were justified and alternative approaches had been considered.

Audit criteria for outputs: The completed activities had delivered the outputs as planned.

Audit criteria for results achieved: The EU-funded assistance was used effectively.

Audit criteria for sustainability: The results of the projects were financially and operationalily sustainable. 

N/A: Not applicable.

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

S

PS

PS

S

S

S

S

PS

PS

S

S

S

US

S

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Partial

Partial

Yes

Yes

Yes

Yes

US

S

PS

PS

PS

S

S

S

S

PS

US

PS

PS

PS

PS

PS

Unsatisfactory

Satisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Satisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Unsatisfactory

Satisfactory

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

40

A N N E X  I I

1. 

AU D I T   M E T H O D O LO G Y   A N D   S A M P L E

 the au dit  wo r k incl u ded a re view of  st rate g y  and  pla nni ng d oc u-
m e nt s,   e. g.   co u nt r y   s t rate g y   p a p e r s,   m u l t i a n n u a l   i n d i c at i ve   p ro -
gramm es a nd eu rop ea n pa r t n er sh ip documents,  as  we ll as  m on i-
t o r i n g   a n d   e v a l u a t i o n   re p o r t s.   a  s a m p l e   o f   3 0   p ro j e c t s   ove r   t h e 
2001 –05  annu al   p ro grammes   was   au dite d  i n   t he   followin g  co un-
tries of the western balk ans:  albania, bosnia and herzegovina, the 
for me r Yu go sl av  r ep u bl ic  o f m acedon ia, m onten egro an d s er bia. 
t h e   p r o j e c t s   w e r e   m a n a g e d   e i t h e r   b y   t h e   e u r o p e a n   a g e n c y   f o r 
r e c o n s t r u c t i o n   o r   b y   t h e   e u r o p e a n   c o m m i s s i o n ' s   d e l e g a t i o n s 1. 
three additional regional-level projec ts were audited which were 
man ag ed by dG enl argement (dG  e l ar G)  in br uss els.

1  the ear closed down at the end 

of 2008. it had operational centres 

in the former Yugoslav republic of 

macedonia, montenegro and serbia. 

the ec delegations are implementing 

programmes in albania and bosnia 

and herzegovina. the ear also had 

an operational centre in kosovo and 

there is a delegation in croatia but 

these were not audited. 

2. 

 altog et her cont ra c t s of aroun d 8 1  mi lli on  e uro,  cover in g  1 7  % of 
the cards 2001–06  jha commitments, were audited.  the projec ts 
w e r e   s e l e c t e d   i n   t h e   l i g h t   o f   t h e   fo l l o w i n g   c r i t e r i a :   ( i )  f i n a n c i a l 
impor tance, (ii) coverage of all sub -sec tors of jha and (iii) cover -
age of all t ypes of contrac ts, i.e. grant, ser vice, supply and works. 
i n order to allow meaningful obser vations on outputs, results and 
the sustainabilit y of the projec ts, 29 of 30 national projec ts were 
visited o n t he  s po t.   

TA B L E  1:  EL I G I B L E   N U M B E R   O F   P R O J E C T S   P E R   CO U N T RY   I N   AP R I L  2007

Country

Albania

Bosnia and Herzegovina

The former Yugoslav Republic of Macedonia

Regional programme

Serbia and Montenegro

Number of projects

Amount in million euro

21

30

12

6

14

83

33

40 %

Total

Audited

Coverage

38

48

15

15

21

137

81

59 %

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

 
 
41

3. 

 the  aud it  fo c us ed  on  p rojec ts  t hat   were   m at ure   but  n ot   too   ol d, 
t h u s   l i m i t i n g   t h e   a u d i t   to   t h o s e   p ro j e c t s   t h at   s t a r te d   n o t   e a r l i e r 
than   48  m ont hs  ag o  and  no t  later   t h an   1 8   month s   ag o  wh e n  t h e 
a u d i t   s t a r t e d .  wi t h   t h e s e   c r i t e r i a   t h e   c o n t r a c t e d   a m o u n t   i n   t h e 
a u d i t e d   c o u n t r i e s   w a s   1 3 7   m i l l i o n   e u ro,   a n d   t h e   a u d i t   c ove r a g e 
w a s   5 9   %   o f   t h e   c o n t r a c t e d   a m o u n t .   exc e p t   i n   o n e   c a s e   (G o r i c a 
border crossing point projec t in bosnia and herzegovina) that was 
never star ted, other projects were completed ones. there was thus 
sufficient mater ial to identify and analyse the main effec tiveness 
pro bl e ms.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

 
42

A N N E X  I I I

TOTA L   G R A N T   A S S I S TA N C E   D U R I N G   2 00 6 – 08 ,   
4 240  M I L L I O N   E U R O   BY   S O U R C E

Others
24 %

EU Member States                                  

20 %

European 
Commission  
56 %

S o urce: european commission/world bank joint office for south eastern europe. 

A N N E X  I V

L E V E L   O F   P E R C E I V E D   CO R R U P T I O N   —  T H E  W E S T E R N   B A L K A N S   

2008

2007

2006

2005

2004

Ranking

CPI  
score

Ranking

CPI  
score

Ranking

Ranking

CPI  
score

Ranking

CPI  
score

Albania

Bosnia and 
Herzegovina

The former 
Yugoslav 
Republic of 
Macedonia

Montenegro

Serbia

85

92

72

85

85

3,4

3,2

3,6

3,4

3,4

105

84

84

84

79

2,9

3,3

3,3

3,3

3,4

CPI  
score

2,6

2,9

111

93

126

88

105

2,7

103

N/A

97

90

3,0

2,4

2,9

2,7

2,8

108

82

97

97

2,5

3,1

2,7

2,7

The Corruption Perception Index (CPI) is calculated for 180 countries, with the ranking of 1 for the country that is perceived as the least corrupt 
and 180 for the country that is perceived as the most corrupt country. 
The CPI score ranges from 0 to 10 and expresses the level of perceived corruption, i.e. the lower the score the higher the level of perceived 
corruption. 

S o urce: transparency international (http://www.transparency.org).

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

43

A N N E X   V

T H E   CO M M I S S I O N ' S   M A N AG E M E N T   S T R U C T U R E   
I N  T H E  W E S T E R N   B A L K A N S   

c ard s  is  mainl y  imp l emented  th rough   t wo  out  of   a  total   of   four 
different man agement str uc ture s  (s e e D ia g ra m  1) :   

1  the devolution process started 

in bosnia and herzegovina in 1998. 

(a )  t h e   e c  d e l e g a t i o n s   i n   a l b a n i a ,   b o s n i a   a n d   he r z e g o v i n a   a n d 
croatia manage the projects, from identification and formulation 
to tender ing, contrac ting, implementation and evaluation 1. 

(b)   the european agenc y for reconstruc tion (ear) 2, an independ-
ent   ag enc y  of  t he  eu,   manag es  th e  programm e  in   s er bia  and 
m o n t e n e g ro,   i n c l u d i n g   k o s ovo,   a n d   t h e   fo r m e r  Yu g o s l av   r e -
public of m acedonia. i t was created as a response to the need 
t o   a c t   q u i c k l y   a n d   e f f i c i e n t l y   w h e n   a d d r e s s i n g   t h e   u r g e n t 
p o st- co nfl ic t needs o f the po pulat io n in  kosovo in th e imme -
diate af ter mat h o f the 1 99 9 c r is is.

(c)  dG  enlargement (and earlier  europea id) manages the regional 

pro grammes  dire c t ly fro m the  h ead quar ter s.

(d)  i m p l e m e nt i n g   ag e n c i e s   o f   t h e   b e n e f i c i a r y   co u nt r i e s   m a n a g e 
t h e   l o c a l   c o m m u n i t y   d e v e l o p m e n t   p r o g r a m m e s   i n   a l b a n i a 
a n d   a   p a r t   o f   t h e   c a r d s  2 0 0 2   p ro gra m m e   i n   cro at i a   i n   a   d e -
cent ral ised  way. 

this was done in order to improve 

the speed of ec external aid, while 

ensuring robust financial procedures.

2  the ear was established in 

february 2000; its predecessor, the 

task force for kosovo, had already 

started operation in 1999. in 2001, 

the agency's mandate was extended 

to serbia and montenegro and in 

2002 to the former Yugoslav republic 

of macedonia.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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D I AG R A M  1:  C A R D S   M A N AG E M E N T   S T R U C T U R E

CARDS Management Committee

European Agency for Reconstruction

Commission HQ

Governing Board

Delegations

HQ (Thessaloniki)

Albania

BiH

Croatia

The former
Yugoslav
Republic of
Macedonia

Serbia

Montenegro

Kosovo

Decentralised Implementation

Albanian
Development
Fund

Central Finance 
and Contracting
Unit

special report no 12/2009 — the effectiveness of the commission's projects in the area of justice and home affairs for the western balkans

special report no 12/2009 — the effectiveness of the commission's projects in the area of justice and home affairs for the western balkans

45

A N N E X   V I

TOTA L   G R A N T S   A N D   LO A N S   D U R I N G  2 0 0 6 – 0 8,   
10 488  M I L L I O N   E U R O   BY   S O U R C E

USA
8 %

World Bank
14 %

Others
14 %

European
Commission 
22 %

EBRD
20 %

EIB
22 %

S o urce: european commission/world bank joint office for south eastern europe.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

EXECUTIVE SUMMARY

I.
t h e   j u s t i c e   a n d   h o m e   a f f a i r s   ( j h a )   a r e a 
h a s   c o n t i n u e d   t o   b e   a   p r i o r i t y   a r e a   i n 
t h e   p r o g r a m m i n g   o f   t h e   i n s t r u m e n t   f o r 
p r e - a c c e s s i o n   a s s i s t a n c e   (i pa ) .   t h e   t o -
t a l   a m o u n t   a l l o c a t e d   t o   p r o j e c t s   i n   t h i s 
a r e a  w a s   5 8 . 6  m i l l i o n   e u r o   i n   2 0 0 7   a n d 
7 5.5  million euro in  20 0 8. 

III. 
( a)  the commission has always given high 
pr iorit y to providing suppor t to coun-
t r i e s   f o r   m e e t i n g   t h e   r e q u i r e m e n t s 
u n d e r   t h e   po l i t i c a l   cr i te r i a ,   i n c l u d i n g 
justice and home affairs, as witnessed 
in  th e e ar lie r ph are an d trans ition fa-
c i l i t y   a n d   c a r d s   p r o g r a m m e s .   j h a 
c o n t i n u e s   to   b e   a   p r i o r i t y   a re a   u n d e r 
ipa.

( b)  sustainability of projec ts is essentially 
dependent on the commitments of the 
beneficiar y countries and resources al-
l o c a te d   to   a   p ro j e c t   a f te r   i t s   c o m p l e -
t i o n .   t h e   c o m m i s s i o n   i s   a d d r e s s i n g 
t h i s   i s s u e   t h ro u g h   p ro j e c t   c o n d i t i o n-
alities and co -financing by the benefi-
c iar ies.

( c)   needs were generally identified in the 
f r a m e w o r k   o f   t h e   p r o g r e s s   r e p o r t s , 
w h i c h   i n c l u d e   a n   a s s e s s m e n t   o f   t h e 
state of play in the area of jha in can-
d i d ate   co u nt r i e s   a n d   p o te nt i a l   c a n d i-
date count r ies.

( e)  th e   co m m i s s i o n   co n c u r s   t h at   i n s t i t u-
t i o n - b u i l d i n g   i s   m o s t   e f f e c t i v e   w h e n 
s u p p o r te d   by   s t ro n g   p o l i t i c a l   w i l l   fo r 
refor m.

( f )  t h e  europe an  age nc y   for  r econ str uc -
tion  h as been  an  e ff icient to ol fo r  th e 
area  it  was  designed  for,   t hanks   to  it s 
speed   in   deliver y   whic h  was   ess e nt ial 
in  the  reconstr uc tion phas e.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

( b)  i n order to enhance sustainabilit y and 
own ers hip  of  projec t s  under   ipa  2 0 07 
a n d   2 0 0 8   p ro gra m m e s,   p ro j e c t   f i c h e s 
i n c l u d e   s p e c i f i c   c o n d i t i o n a l i t y   o n   i n -
frast ruc ture maintenan ce.

( c)   t h e   c o m m i s s i o n   e m b a r k e d   o n   a   r e -
g i o n a l   f i n a n c i a l   a s s i s t a n c e   p ro j e c t   t o 
improve monitoring in the jha area of 
per for mance of author ities and finan-
c ial assista nce in  m arch 2 0 09 .

( d)  financial assistance is complementar y 
to the political process of stabilisation 
an d  association.  progress  repor ts  and 
t h e   e u r o p e a n   p a r t n e r s h i p s   i n c l u d e 
s p e c i f i c   r e c o m m e n d a t i o n s   a s   t o   t h e 
re q u i re d   i n s t i t u t i o n a l   c h a n g e s.   s o m e 
projec ts also direc tly suppor t refor ms 
in the area of jha.  for example, in the 
programming of ipa 2009, discussions 
a re   b e i n g   h e l d   w i t h   t h e   b e n e f i c i a r i e s 
in order to deliver better programmes 
re s p o n d i n g   to   b e n e f i c i a r i e s '   n e e d s   i n 
the area of jha, from a regional  eu in-
tegration perspective and linked to the 
s t r a t e g y   p a p e r,   c o u n t r y   r e p o r t s ,   a n d 
access ion /e uropean p ar t ner sh ips.

IV. 
(b)   t h e   c o m m i s s i o n   g e n e r a l l y   c o m b i n e s 
e q u i p m e n t   a n d   i n f r a s t r u c t u re   i nve s t-
m e n t   w i t h   i n s t i t u t i o n -   a n d   c a p a c i t y -
b u i l d i n g.  th e   p rov i s i o n   o f   e q u i p m e nt 
a n d   i n f r a s t r u c t u r e   i s   c o m b i n e d   w i t h 
suppor t for training and organisation-
al refo r ms.

(c)  u n d e r   i pa ,   t h e   c o m m i s s i o n   h a s   p u t 
greater emphasis on aid effec tiveness, 
and is committed to ensuring efficient 
d o n o r   c o o r d i n a t i o n   o n   t h e   g r o u n d . 
th is has  res ul te d in var io us  donor  co -
o r d i n a t i o n   c o n fe r e n c e s   o r g a n i s e d   b y 
the commission since 2007, as well as 
concre te in it iat ives  on th e ground  fo r 
coordination at sec tor level, including 
th e  p rep arat io n  o f  joint  p ro je c t s  wi th 
ot h er do no rs.

(d)  as the financial regulation allows the 
commission to implement ex ternal ac-
t i o n s   to g e t h e r   w i t h   o t h e r   a c to r s,   t h i s 
type of action will be considered when 
deeme d ap pl ic ab l e.

V. 
(a )  b e n e f i c i a r i e s   a re   n ow   i nvo l ve d   i n   t h e 
p r o c u r e m e n t   p r o c e s s   f r o m   p r o j e c t 
p re p a ra t i o n   to   t h e   e v a l u a t i o n   o f   b i d s 
( w h e r e   a   r e p r e s e n t a t i v e   o f   t h e   b e n-
e f i c i a r y   i s   a l w a y s   p re s e n t   a s   a   vo t i n g 
m e m b e r ) .   m o re   g e n e ra l l y,   to   e n h a n ce 
o w n e r s h i p   b y   b e n e f i c i a r i e s ,   r e g i o n a l 
c o o rd i n a t i o n   m e e t i n g s   a re   o rg a n i s e d 
r e g u l a r l y   w i t h   e c   h e a d q u a r t e r s ,   e c 
d e l e g a t i o n s   a n d   b e n e f i c i a r i e s ,   a n d 
f r o m   a n   e a r l y   s t a g e   b e n e f i c i a r i e s   a r e 
consulted on the multiannual planning 
d o c u m e n t   a n d   t h e   o u t l i n e   p r o j e c t 
fiches.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

INTRODUCTION

OBSERVATIONS

2. 
af ter  c ar d s ,   t he   j h a   area   has  contin ued 
to   b e   a   p r i o r i t y   a re a   i n   t h e   p ro gra m m i n g 
of i pa.   

t h e   g u i d e l i n e s   f o r   t h e   a n n u a l   a c t i o n 
p r o g r a m m e s   i n d i c a t e   t h a t   t h e   a m o u n t s 
t o   b e   e a r m a r k e d   u n d e r   t h e   po l i t i c a l   c r i -
t e r i a ,   i n c l u d i n g   j h a  p r o j e c t s   w i t h i n   t h e 
i pa  c o m p o n e n t   f o r   t e c h n i c a l   a s s i s t a n c e 
a n d   i n s t i t u t i o n - b u i l d i n g ,   s h o u l d   r e a c h 
b e t we e n   3 0   %   a n d   3 5   %   o f   t h e   to t a l.  th e 
tota l amo u nt  a ll ocated to p rojec ts  i n  th is 
a r e a   w a s   5 8 . 6   m i l l i o n   e u r o   i n   2 0 0 7   a n d 
75.5 m il lion  e uro in 2008.

3.
(a )  the commission's risk assessment con-
f i r m s   t h e   c o u r t ' s   f i n d i n g s .   h o w e v e r, 
risks related to sustainability and own-
ers hip  o f p ro je c t s u nder  ipa 2 00 7  and 
2 0 0 8   p r o g r a m m e s   a r e   n o w   m i t i g a t e d 
b y   c o n d i t i o n a l i t i e s   a n d   m e a s u r e s   i n-
cluded in the projec ts, such as projec t 
co -f inanc ing. 

(c)  th e   co m m i s s i o n   a p p l i e s   p r i n c i p l e s   o f 
sound and efficient financial manage -
m e n t ,   a n d   a s s e s s e s   t h e   l e v e l   o f   r i s k s 
a s s o c i a t e d   w i t h   i n d i v i d u a l   p r o j e c t s . 
c o n t r a c t s   w i l l   n o t   b e   s i g n e d ,   o r   m a y 
b e   s u s p e n d e d ,   i f   t h e r e   i s   n o   r e a s o n-
able assurance that the conditions for 
pro jec t  impl em ent ation w il l b e  met.

1 3. 
in implementing annual projects the com-
m i s s i o n   h a d   t o   t a k e   i n t o   a c c o u n t   c h a n g-
ing circumstances while remaining within 
t h e   b o u n d a r i e s   o f   t h e   b r o a d e r   s t r a t e g i c 
objec t ive s.    

Box 1 — Examples of strategic and 
non-strategic investments projects
Case 2: Project not following annual 
programme
t h e   n e e d   f o r   b u i l d i n g   c a p a c i t i e s   i n   t h e 
f i e l d   o f   a s y l u m   h a s   b e e n   i d e n t i f i e d   a t   a 
polic y level. the commission's regular re -
p o r t   o f   2 0 0 2   c a l l e d   u p o n   t h e   c o u n t r y   t o 
‘i m p r o v e   c a p a c i t y   t o   p r o c e s s   a s y l u m   a p -
p l i c a t i o n s’,   w h e r e a s   t h e   f i r s t   a s s e s s m e n t 
m i s s i o n   i n   t h e   j h a   a r e a ,   c a r r i e d   o u t   i n 
ju n e   2 0 0 2 ,   re c o m m e n d e d   t h a t  ‘a d e q u a te 
r e c e p t i o n   f a c i l i t i e s   f o r   a s y l u m   s e e k e r s 
sh ould  be establish ed ’.

1 4.
w h e n   p r o j e c t s   a r e   f u n d e d ,   t h e   s t r a t e g i c 
framewor k is always  t aken  into account. 

the commission has consistently encour -
aged the m inistries of justice and  i nterior 
to d eve lop th eir se lec tion  pro ce dure. 

Box 3 — Examples of inefficient and 
ineffective distribution and use of 
EU-funded equipment
m o t o r b i k e s   p r o v i d e d   b y   c a r d s  w e r e   a l-
l o c a t e d   t o   t h e   b o r d e r   p o l i c e   s t a t i o n s   t o 
p a t r o l   t h e   g r e e n   b o r d e r.  t h e   m i n i s t r y   o f 
i nter ior under took to provide the protec -
t i ve   g e a r.   a   t e n d e r   w a s   l a u n c h e d   a n d   a n 
offer  ch osen  in  ear ly 2 00 9.   

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

49

replY of the 
commission

th e   b i h   i n d i re c t  ta x at i o n   ad m i n i s t rat i o n 
( i ta )   i s   p l a n n i n g   t o   c o n s t r u c t   a n   i n l a n d 
c u s t o m s   t e r m i n a l   i n   m o s t a r   ( w i t h i n   t h e 
i ta  r e g i o n a l   c e n t r e   m o s t a r )   t h a t   w o u l d 
be  own ed  by   the  ita . th e  ita   would  th en 
be in a position to collec t 100 % revenues 
re l ate d   to   u s a g e   o f   t h e   c u s to m s   te r m i n a l 
f a c i l i t y.   c o n s t r u c t i o n   o f   i n l a n d   c u s t o m s 
ter min als  is  also  stipulated   in  th e   bih  i n-
tegrated border management strategy (re -
v i s e d   ve r s i o n   a d o p t e d   i n   ju l y   2 0 0 8 ) .   t h e 
ita  envis ages  con struc tion  of  four  in l and 
c u s to m s   te r m i n a l s   i n   b i h ,   w i t h i n   fo u r   i ta 
r e g i o n a l   c e n t r e s ,   n a m e l y   m o s t a r,   s a r a-
j evo,  ban j a l uk a an d tuzla.   

1 9. 
th e   d e c i s i o n   fo r   o r   a g a i n s t   a   j o i n t   b c p   i s 
s u b j e c t   t o   a   n u m b e r   o f   f a c t o r s ,   c o s t   b e -
i n g   o n l y   o n e   o f   t h e m .   i n   a d d i t i o n ,   t h e r e 
a re   s o m e   ex a m p l e s   o f   j o i nt   b o rd e r   c ro s s-
ings between western balk an countries (or 
them and their neighbours) suppor ted by 
eu funds.  a joint border crossing can cer -
t a i n l y   e n h a n ce   co o p e ra t i o n   b e t we e n   t h e 
t w o   c o u n t r i e s   c o n c e r n e d ,   b u t   t h e r e   a r e 
a l s o   o t h e r   w a y s   o f   b i l a t e r a l   c o o p e r a t i o n 
at  th e border.

t h e   c o m m i s s i o n   i s   c u r r e n t l y   e x a m i n i n g 
w h e t h e r   t h e   s c h e n g e n   a c q u i s  o n   j o i n t 
b c ps   b e t w e e n   w e s t e r n   b a l k a n   c o u n t r i e s 
a n d   t h e i r   n e i g h b o u r s   w i l l   a p p l y   i n   t h e 
c a s e   o f   a n   a s y l u m   r e q u e s t   b e i n g   l o d g e d 
b y   a n   a s y l u m   s e e k e r   o n   t h e   t e r r i t o r y   o f 
t h e   t h i r d   c o u n t r y   ( b u t   p h y s i c a l l y   a t   t h e 
joint bcp). the eu perspec tive on western 
balk an countries requires that such  eu in-
t e r n a l   re f l e c t i o n s   a re   t a k e n   i n t o   a c c o u n t 
whe n m ak in g polic y recommen dati on s in 
relat ion  to t hose countr ies. 

the eq uip ment  p u rchase was in it i ally  t h e 
r e s p o n s i b i l i t y   o f   t h e   m i n i s t r y   o f   l a b o u r 
a n d   s o c i a l   p o l i c y.   t h e   c o m m i s s i o n   a n d 
u n h c r   j o i n t l y   r a i s e d   t h i s   i s s u e   w i t h   t h e 
gover nm ent. s o me of  t he  equip ment was 
insta ll ed  in   t he  cent re  by   ap r il   20 08 ,  an d 
th e res t  at  t he end  of  s umm er 2 0 0 8 . 

t h e   c o m m i s s i o n   h a s   s i n c e   e n h a n c e d   i t s 
overall super vision through site visits op-
erated by ec delegation staff and periodic 
repor ting on the utilisation of assets, and 
b y   i n t e r a c t i n g   c l o s e l y   w i t h   t h e   a l b a n i a n 
state p o lice. 

Box 5 — Example of a  
non-implemented border  
crossing point project
ba s e d   o n   f i r m   c o m m i t m e n t   by   t h e   co u n-
cil of m inisters of bosnia and herzegovina 
a n d   G r u d e   m u n i c i p a l i t y   t h at   t h e   l a n d   ex -
p ro p r i at i o n   p ro ce s s   wo u l d   b e   co m p l e te d 
by   t h e   e n d   o f   s e p te m b e r   2 0 0 4 ,   t h e   co m-
mission signed the 2.9 million euro wor ks 
c o n t r a c t   f o r   c o n s t r u c t i o n   o f   t h e   G o r i c a 
b o r d e r   c r o s s i n g   p o i n t   i n   o c t o b e r   2 0 0 4 . 
such a situation was not uncommon given 
the legal uncer tainties due to the transfer 
o f   c o m p e t e n c i e s   r e l a t e d   t o   c u s t o m s   a n d 
b o r d e r   m a t t e r s   f r o m   t h e   en t i t i e s   t o   t h e 
s t a t e   o f   bih.   i n   a d d i t i o n ,   t h e   G o r i c a   b c p 
was nominated for construction as the pri-
or it y  b o rder  c ro ss in g  by   the  fed eral  m in-
istr y of transpor t of bih. i n this par ticular 
c a s e ,   t h e   c o m m i s s i o n   f a c e d   u n e x p e c t e d 
re s i s t a n c e   w h i c h   c o u l d   n o t   b e   o ve r r u l e d 
b y   t h e   s t a t e   a g a i n s t   t h e   e x p r o p r i a t i o n 
from  th e  l oc al  au thor it ies   bec au s e   of   t he 
va luatio n o f t he l and.

f o r   s u s t a i n a b i l i t y   a n d   o w n e r s h i p   o f 
projec ts under the ipa 2007 and 2008 pro -
grammes, projec t fiches include measures 
to avoid difficulties with construction per-
mit s a nd l and ow ner ship.

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2 4.
i n   t h e   m e a n t i m e ,   t h e   s i t u a t i o n   h a s   i m-
p rove d :   fo r   s u s t a i n a b i l i t y   a n d   ow n e r s h i p 
of  projec t s  un der   ipa  20 0 7  and  2 008   pro -
g r a m m e s,   p ro j e c t   f i c h e s   i n c l u d e   s p e c i f i c 
c o n d i t i o n a l i t y   o n   i n f r a s t r u c t u r e   m a i n t e -
n ance. 

2 5.
the commission is aware that better mon-
itoring of the assets could have a positive 
effec t on the impac t and sustainabilit y of 
th e investm ent  proj ec ts.   

Box 8 — Example of infrastructure 
project with lack of impact
operations at the  bcp are at present regu-
lated by th e in str uc tion  is sue d by th e ita 
director. according to the relevant bih au-
t h o r i t i e s   t h i s   i n s t r u c t i o n   d o e s   n o t   re p re -
sent  a  valid  docume nt   for   offic ial  rec ate -
g o r i s a t i o n   ( d o w n g r a d i n g )   o f   t h e   b o r d e r 
c rossin g  point  sin ce,   in   orde r  to  be  va li d, 
s u c h   a   d e c i s i o n   m u s t   b e   a d o p t e d   b y   t h e 
r e l e v a n t   b i h   i n s t i t u t i o n s   a n d   p u b l i s h e d 
in   th e  off icial  g aze tte,  wh ic h  wa s   n ot   t he 
case in this instance. i n their opinion, this 
i n s t r u c t i o n   l e t t e r   i s s u e d   b y   t h e   d i r e c t o r 
of th e ita could not  be  seen as an off ici al 
d e c i s i o n   f o r   r e c a t e g o r i s a t i o n ,   a l t h o u g h 
the regime at the border crossing point is 
gover ned  by th at par tic ular  in st r uc t ion .

2 6.
beneficiaries are now involved in the pro -
c u r e m e n t   p r o c e s s   f r o m   p r o j e c t   p r e p a r a-
t i o n   t o   t h e   e v a l u a t i o n   o f   b i d s   ( w h e r e   a 
representative of the beneficiar y is always 
present  as a  voting  member) .   

Box 6 — Example of an investment 
enforcing the rule of law
C o n s t r u c t i o n   o f   t h e   C o u r t   o f   A p p e a l   i n 
Vlora,  A lba n ia
si n c e   t h e   t i m e   o f   t h e   a u d i t ,   t h e   s u p p l y 
o f   e n e r g y   t h r o u g h o u t   t h e   c o u n t r y   h a s 
gre a t l y   i m p rove d   a n d,   co n s e q u e n t l y,   t h e 
frequenc y of elec tricit y cuts on the power 
n e t w o r k   h a s   b e e n   d r a m a t i c a l l y   r e d u c e d . 
i n   p a ra l l e l   to   t h i s,   a s   o f   t h e   b e gi n n i n g   o f 
2009, the ministr y of justice has increased 
the  op eratio nal   and  mainte nance   bud g et 
for th e ent ire j us tice infras tru c t ure.

i n this respec t, it is wor th noting that the 
b u d g e t   a d m i n i s t r a t i o n   a n d   m a n a g e m e n t 
in  judi cial  ins titu tions  is   s teadil y   be com-
ing more transparent and more standard-
ised. 

23 . 
a l b a n i a   h a s   c o n c l u d e d   a   c o m m u n i t y   r e -
a d m i s s i o n   a g r e e m e n t ,   w h i c h   e n t e r e d 
into force o n 1  m ay 2006,  and b osn ia an d 
h e r z e g o v i n a ,   m o n t e n e g r o ,   s e r b i a   a n d 
th e for mer Yug os lav r ep u b lic  o f m acedo -
n i a   h ave   a l l   co n c l u d e d   s u c h   a gre e m e n t s, 
w h i c h   e n t e r e d   i n t o   f o r c e   o n   1   ja n u a r y 
2008. each of these agreements stipulates 
that the implementation of the agreement 
is to be  mo nito red by a j oint rea dm is s ion 
committee with representatives from both 
the commission and the national authori-
t i e s .   t h e   j o i n t   c o m m i t t e e s   h a v e   r e g u l a r 
meetings in which also representatives of 
t h e   m e m b e r   s t a t e s   p a r t i c i p a t e .   t h e   c o r -
rec t implementation of these agreements 
is  a   co ndit ion  for   l if tin g  the  eu  v isa  obli-
gation. the assessments made in this con-
tex t  have  co nfir med  that   t he  agre e me nts 
are implemented correc tly and in a timely 
mann er.

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( b)  i n the other western balk an countries, 
new laws on data protection have been 
adopted in  th e me antime 1. i n  some of 
t h e   c o u n t r i e s   f u r t h e r   l e g i s l a t i v e   a n d 
a d m i n i s t r a t i v e   m e a s u r e s   a r e   s t i l l   r e -
quired to establish sufficient personal 
dat a protec t ion. 

( c)   written instructions on access controls 
a re   t h e   re s p o n s i b i l i t y   o f   n a t i o n a l   a u-
t h o r i t i e s .   t h e   c o m m i s s i o n   a l s o   s u p -
p o r t s   t h e   i m p l e m e n t a t i o n   o f   a c c e s s 
control procedures, through technical 
assis tance  or  t win n ing.

3 4. 
th e   re fo r m   s t rate gi e s   o n   j h a  to p i c s   co n-
tain  per for mance in dicators. polic y n otes 
have been developed, which ser ve to give 
guidan ce on program min g  an d on  th e re -
sults to be ac hieved with  fin an ci al ass i st-
a n c e .   p e e r   r e v i e w s   b y   e x p e r t s   f r o m   t h e 
m e m b e r   s t a t e s   a s s e s s   t h e   o v e r a l l   s i t u a-
tion   an d  offer  re commen dations   on   wh at 
should be achieved with future assistance. 
i n  addition , ann ual progres s rep or ts  con-
tain an assessment of the degree to which 
v a l u e s   o f   f r e e d o m ,   s e c u r i t y   a n d   j u s t i c e 
( e. g.   r u l e   o f   l a w,   re s p e c t   o f   f u n d a m e n t a l 
r ights) are respec ted in each wester n bal-
k an  countr y.

1  new laws on data protection have been adopted in 2007 

(croatia) and in 2008 (albania, serbia, montenegro and the 

former Yugoslav republic of macedonia).

a f t e r - s a l e s   s e r v i c e s   a r e   n o t   q u a n t i f i a b l e 
a t   t h e   t i m e   o f   t e n d e r i n g ,   a n d   g e n e r a l l y 
e xc e e d   t h e   p e r i o d   o f   i m p l e m e n t a t i o n   o f 
t h e   c o m m i s s i o n   p r o g r a m m e s .   u s u a l l y, 
t h e   p r o v i s i o n   o f   a f t e r - s a l e s   s e r v i c e s   i s   a 
r e q u i r e m e n t   u n d e r   e c  s u p p l i e s   t e n d e r s , 
b u t   t h e   c o n t r a c t   f o r   s u c h   s e r v i c e s   m u s t 
b e   n e g o t i a t e d   b y   t h e   b e n e f i c i a r y   a n d   i s 
not financed by  the e c. 

Investments not matched with necessar y 
institu tio nal ca pac i ties

27.
t h e   c o m m i s s i o n   g e n e r a l l y   c o m b i n e s 
equipment and infrastruc ture investment 
w i t h   i n s t i t u t i o n -   a n d   c a p a c i t y - b u i l d i n g . 
when it comes to border management the 
provision of equipment and infrastruc ture 
i s   c o m b i n e d   w i t h   s u p p o r t   f o r   t r a i n i n g 
o f   t h e   b o r d e r   p o l i c e   a n d   o r g a n i s a t i o n a l 
r e f o r m s .   t h e   o v e r a l l   o b j e c t i v e s   f o r   e a c h 
countr y are based on an integrated border 
mana g eme nt  strategy. 

28.
t h e   p r o j e c t   i s   a   s t e p   i n   a   m o r e   l o n g -
t e r m   s t r a t e g y.   i t   s u p p l i e s   h a v e   r e s u l t e d 
i n   a   s i g n i f i c a n t   i m p ro ve m e n t   o f   wo r k i n g 
m e t h o d s   a n d   i m m e d i a t e   t r a n s fe r   o f   d a t a 
b e t w e e n   t h e   l i n k e d   p o l i c e   s t a t i o n s   a n d 
t h e   ce nt ra l   i t  u n i t   o f   t h e   m i n i s t r y,   a l l ow -
i n g   f u r t h e r   p ro ce s s i n g   to   re l e va nt   p o l i ce 
d e p a r t m e n t s.  t h i s   w a s   t h e   i n t e n d e d   a n d 
i m m e d i a t e   o b j e c t i v e   o f   t h e   p r o j e c t .   fu r -
th er  ex tens io n  o f  the  n et wor k  is   pla nn ed 
in seve ral p hases.

(a)  cu r re n t l y   i n   m o n t e n e g ro,   s e ve n   b c ps 
(cover ing  8 5  %  o f  t he  traffic)  are   now 
connec ted to the central database and 
t h e   i n t e r p o l   d a t a b a s e.   on e   a d d i t i o n-
a l   b c p  w a s   t o   b e   c o n n e c t e d   b y   ju n e 
2009 . m o ntene gro h as in t he ongoin g 
v i s a   l i b e r a l i s a t i o n   d i a l o g u e   d e c l a r e d 
th at  al l bo rde r cro ssing  p o ints  wi ll be 
conne c ted  to   th e   cent ra l   d at abase  by 
t h e   e n d   o f   2 0 0 9   a n d   t h a t   t h i s   w i l l   b e 
fina nced w ith natio nal  fu nds.

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3 8. 
although the commission encourages the 
d i f f e r e n t   s e r v i c e s   t o   c o o p e r a t e ,   i n t e r n a l 
te n s i o n s   a n d   f ra gm e nte d,   u n co o rd i n ate d 
p o l i c y m a k i n g   b e t we e n   t h e   s t ate   a n d   t h e 
entities in  bosnia and herzegovina consti-
t u te   t h e   m a i n   o b s t a c l e   to   s m o o t h   o p e ra-
t i o n   o f   i n s t i t u t i o n s   a n d   t o   c r e a t i n g   b e t -
t e r   f u n c t i o n i n g   a n d   m o r e   e f f i c i e n t   s t a t e 
s t r u c t u r e s .   t h e   l a c k   o f   p o l i t i c a l   c o n s e n-
s u s   o n   t h e   m a i n   d i re c t i o n   o f   t h e   co u n t r y 
i n e v i t a b l y   a l s o   a f fe c t s   t h e   r e s u l t s   o f   t h e 
fin ancial assista nce.

Box 11 — Examples of judicial 
training centres (JTCs)
initially, the m inistr y of justice did not in-
vite any of t he proj ec t's inter nat ion al ex-
p e r t s   to   p a r t i c i p ate   i n   t h e   d ra f t i n g   p ro c -
ess for the law governing the academy for 
t h e   tr a i n i n g   o f   ju d g e s   a n d   p r o s e c u t o r s . 
a s   a   r e s u l t   o f   p r e s s u r e   f r o m   t h e   d o n o r 
c o m m u n i t y,   t h e   e x p e r t s   w e r e   e v e n t u a l l y 
c o n s u l t e d   a n d   s o m e   o f   t h e i r   r e c o m m e n-
d a t i o n s   h a v e   b e e n   i n c l u d e d   i n   t h e   f i n a l 
l e g a l   t e x t .   n e v e r t h e l e s s   t h e   c u r r e n t   l a w 
s t i l l   h a s   s h o r t c o m i n g s   w h i c h   n e e d   t o   b e 
addre ssed. th e m in istr y  of just ice h as in-
cluded the preparation of amendments on 
th e 2 00 9 legislative  age nda.

cu r re nt l y   t h e   a c a d e my   i s   f u l l y   f u n c t i o n a l 
fo r   b o t h   i n i t i a l   a n d   c o n t i n u o u s   t r a i n i n g. 
a s   r e g a r d s   i n i t i a l   t r a i n i n g,   t h e   f i r s t   g e n -
e r a t i o n   o f   s t u d e n t s   g r a d u a t e d   f r o m   t h e 
academy in februar y 2009 and the second 
generation is now undergoing training. as 
for  th e  contin uous  train in g,   th e  ac ade my 
h a s   c o n s t a n t l y   w i d e n e d   t h e   s c o p e   o f   i t s 
a c t i v i t i e s   a n d   t h e   c a t e g o r i e s   o f   s p e c i a l 
train ing  provid ed.

Box 9 — Unstable staffing situation 
in public administration in Albania 
and the former Yugoslav Republic of 
Macedonia
understaffing and turnover of staff follow -
i n g   e l e c t i o n s   i s   a   s o u rc e   o f   c o n c e r n .  t h e 
commission has made a point of stressing 
regularly to the national and local author-
i t i e s   t h e   i m p o r t a n ce   o f   m a i nt a i n i n g   s t a f f 
as a guarantee of increasing effec tiveness 
of t he p u bl ic admin is tration.

s o m e   i m p r o v e m e n t s   s i n c e   t h e   a u d i t   c a n 
b e   re p o r t e d   i n   t h e   m i g r a t i o n   a re a   w h e re 
t h e   d i r e c t o r a t e   fo r   m i g r a t i o n   po l i c i e s   a t 
th e alb anian m inist r y o f lab o ur h as been 
s t r e n g t h e n e d   a n d   a d d i t i o n a l   s t a f f   h a v e 
been h ire d. 

ch a n g e s   w e r e   m a d e   b y   t h e   m i n i s t r y   a c -
c o r d i n g   t o   t h e   l e g i s l a t i o n   i n   f o r c e   a n d 
based  mainl y  o n  s o - cal l ed  u nsati s fac to r y 
p e r f o r m a n c e .   t h i s   c r e a t e d   a   t e m p o r a r y 
s l owd ow n   o f   t h e   re fo r m   p ro ce s s   a n d   wa s 
b ro u g h t   u p   by   t h e   co m m i s s i o n .  th e   n e w 
s t a f f   d e p l o y e d   t o o k   s o m e   t i m e   t o   s e t t l e 
i n   b u t   p e r f o r m a n c e   i n d i c a t o r s   f o r   t h e 
h o l d e r s   o f   a l l   t h e   p o s i t i o n s   i n   q u e s t i o n 
a re   co m p a r a t i ve l y   b e t te r   n ow   t h a n   t h re e 
years ag o.

Box 10 — Examples of enhanced 
operational capacity
the communit y assistance may have con-
t r i b u t e d   t o   p ro v i d i n g   t h e   i n f r a s t r u c t u r a l 
and organisational capacity and sk ills nec -
essar y to plan and execute an operation of 
th is  im p or t ance,  b ut   was  neithe r   a   direc t 
nor an  indirec t  f ac to r in its  executio n.

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Box 12 — Examples of ‘learning- 
by-doing’ projects in Bosnia and 
Herzegovina
Case 2: Incomplete hand-over of 
responsibilities to the beneficiary —  
War Crimes Chamber
in terms of staff hand- over, the war crimes 
p ro j e c t   e n t a i l e d   a   f i ve - ye a r   i m p l e m e n t a-
t i o n   p e r i o d ,   i . e .   f r o m   2 0 0 5   t o   2 0 0 9   i n-
c l u s i v e .   s i n c e   t h e   a u d i t ,   t h e   p r o s p e c t   o f 
e n d i n g   t h e   m a n d ate s   o f   a l l   i n te r n at i o n a l 
j u d g e s   a n d   p r o s e c u t o r s   h a s   b e e n   r e c o n-
sidere d,  espe cially  in light of th e re mai n-
i n g   b a c k l o g   a n d   1 5 %   b u d g e t a r y   r e d u c -
t i o n s   f o r   t h e   c o u r t   f o r   2 0 0 9 .   h e n c e ,   f o r 
political, technical and budgetar y reasons 
t h e   co u r t   ( a n d   t h e   p ro s e c u to r ' s   o f f i ce )   i s 
in favour of their continuation beyond the 
or iginal d ecembe r 20 09  cut- off point. 

4 6.
th e  commiss ion  now  takes  the   de gree  to 
which values of freedom, security and jus-
t i c e,   s u c h   a s   t h e   r u l e   o f   l a w   a n d   r e s p e c t 
fo r   f u n d a m e n t a l   r i g h t s ,   a r e   r e s p e c t e d   i n 
k e y   t h i r d   c o u n t r i e s   ( i n c l u d i n g   t h e   c o u n-
tries that have been subjec t to this audit) 
a s   a n   i m p o r t a nt   i m p a c t   i n d i c ato r   re l ate d 
t o   o n e   o f   t h e   g e n e r a l   o b j e c t i v e s   o f   t h e 
j us tice, freedom an d s ec ur it y  area . 

4 7.
th e   h i s to r y   o f   i m p l e m e nt at i o n   o f   s e ve ra l 
i n s t i t u t i o n - b u i l d i n g   p r o j e c t s   s h o w s   t h a t 
the commission has repeatedly and stead-
ily attempted to exer t a positive influence 
in order to foster the sustainabilit y of the 
projec ts.

t h e   d e c i s i o n   t o   a b a n d o n   a   p r e v i o u s l y 
a g r e e d   tr a i n i n g   o f   tr a i n e r s   s t r a t e g y   t o 
i m p r o v e   t e a c h i n g   t e c h n i q u e s   w a s   t a k e n 
by t he  lo cal  au thor ities.

d u r i n g   t h e   p r o j e c t   i m p l e m e n t a t i o n ,   t h e 
commission was faced with changing pr i-
o r i t i e s   d u e   t o   d i f f e r e n t   m i n i s t e r s   o f   j u s-
tice, presidents of the supreme cour t and 
direc tors of the judicial training  centre  — 
h av i n g   d i f fe r i n g   v i e ws   o n   t h e   ro l e   o f   t h e 
jtc.

41. 
a s   t h e   p ro j e c t s   l a u n c h e d   u n d e r   t h e   p r o -
g r a m m e   w e r e   t h e   f i r s t   c a r d s   r e g i o n a l 
p ro j e c t s   i n   t h e   a re a   o f   j h a,   e x p e r t s   f ro m 
the  eu  m em be r  st ate s  p er fo r m ed  jha  as-
s e s s m e n t   m i s s i o n s   i n   t h e   r e g i o n   i n   m a y -
ju n e   2 0 0 2   a n d   i d e n t i f i e d   s e v e r a l   i m p o r -
t a n t   c o m m o n   n e e d s   t h a t   t h e   p r o j e c t s 
launche d there af ter aimed to cover.

43. 
c o n c i s e   s u m m a r i e s   o f   p r o g r e s s   t o w a r d s 
a c h i e v i n g   t h e   s p e c i f i c   o b j e c t i ve s   w i l l   b e 
p r e p a r e d   f o r   f u t u r e   p r o j e c t s .   t h e   c o m-
m i s s i o n   w i s h e s   t o   u n d e r l i n e   t h a t   a l l   t h e 
o u t p u t s   a s   s e t   i n   t h e   p ro j e c t   d e s c r i p t i o n 
were d el ive re d.

44.
t h e   c o m m i s s i o n   h a s   l e a r n e d   f r o m   t h e s e 
past  expe r iences  and   n ow   ac t s  accordi n g 
to   a   fo r m a l i s e d   a p p ro a c h   w h i c h   s e e s   t h e 
b e n e f i c i a r y   i n   t h e   d r i v i n g   s e a t   o f   t h e   a s -
sistance process, tak ing full responsibility 
for the anticipated objectives, methodolo -
gies an d resu lt s.

f u r t h e r   e n h a n c e m e n t   o f   t h e   p r o j e c t s ' 
owner ship  by  th e b enef ic iar ies i s  a  pr io r-
it y un der ipa.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

5 3.
d onor coordination is already considered 
a priority within cards as a donor coordi-
nation meeting was held in brussels at the 
e n d   o f   2 0 0 5   w h e re   b e s t   p ra c t i ce s   c a r r i e d 
out in  albania  were prese nted an d differ-
ent coordination  aspe c t s discusse d.

under  ipa, the will to ensure efficient do -
nor coordination on the ground has devel-
o p e d   i n t o   a   t o p   p r i o r i t y :   f u r t h e r   c o n f e r -
en ces on aid effec tiven ess in t he  wes ter n 
b a l k a n s   a n d   tu r k e y   w e r e   o r g a n i s e d   i n 
b r u s s e l s   i n   o c t o b e r   2 0 0 8   a n d   i n   t i r a n a 
i n   a p r i l   2 0 0 9 .   a   f o l l o w - u p   c o n f e r e n c e   i s 
sc he dule d for o c tobe r 2 00 9.

5 4.
t h e   c o m m i s s i o n   s t r i v e s   c o n t i n u o u s l y   t o 
i m p rove   d o n o r   co o rd i n a t i o n .   a n   i n te r n a l 
n e t wo r k   w a s   re e s t a b l i s h e d   i n   e a r l y   2 0 0 8 
for improving polic y and programming co-
ordination in the jha area.  r egular meet-
ings involving also the ec  delegations are 
h eld  with in  th is  ne t wor k .  th emat ic  notes 
have been developed in this contex t with 
p o l i c y   a n d   p r o g r a m m i n g   r e c o m m e n d a-
t i o n s   o n   j u d i c i a r y   r e f o r m   a n d   t h e   f i g h t 
aga inst  cor ruption  and organise d  c r im e.

48.
i n   o r d e r   t o   e n h a n c e   o w n e r s h i p   b y   b e n-
eficiaries, regional coordination meetings 
are organised regularly with ec  headquar -
t e r s ,   e c  d e l e g a t i o n s   a n d   b e n e f i c i a r i e s . 
m oreover,  from an  ear l y st ag e b en e fi cia r-
ies are consulted on the multiannual plan-
n i n g   d o c u m e n t   a n d   t h e   o u t l i n e   p r o j e c t 
fich es.

a s   r e g a r d s   j h a   r e g i o n a l   p r o g r a m m i n g 
under ipa 2009, discussions are held with 
the beneficiaries in order to deliver better 
progra mmes resp o nding to  b ene f ic i ar i es ' 
needs, from a regional eu integration per -
spec tive and linked to the strategy paper, 
countr y  rep or ts, and acces sio n/europe an 
par tne rship s.

49. 
t h e   r e g i o n a l   c o o p e r a t i o n   c o u n c i l   t o o k 
o v e r   i n   t h e   f i r s t   h a l f   o f   2 0 0 8   t h e   r o l e   o f 
t h e   fo r m e r   s t a b i l i t y   pa c t   a s   f a c i l i t a t o r   o f 
r e g i o n a l   d o n o r   c o o p e r a t i o n   i n   t h e   j h a 
area and is organising conferences to this 
end.

w i t h i n   t h a t   c o n t e x t ,   d o n o r   c o o p e r a t i o n 
m e e t i n g s   a re   a l s o   o rg a n i s e d   by   t h e   i n d i-
v i d u a l   i n i t i a t i v e s   s u c h   a s   t h e   m i g r a t i o n , 
a s y l u m ,   r e f u g e e s   r e g i o n a l   i n i t i a t i v e 
(marri) and the regional anti- corruption 
i nitiative  (r ai).

52.
th e   eu ro p e a n   ag e n c y   fo r   r e co n s t r u c t i o n 
h a s   s u c c e s s f u l l y   f u l f i l l e d   i t s   m a n d a t e   o f 
p o s t - c r i s i s   r e c o n s t r u c t i o n   a n d   s t a b i l i s a-
t i o n .  t h e   co m m i s s i o n   c o n s i d e r s   t h a t   t h e 
a g e n c y   h a s   b e e n   a n   e f f i c i e nt   to o l   fo r   t h e 
a r e a   i t   w a s   d e s i g n e d   f o r,   t h a n k s   t o   i t s 
s p e e d   i n   d e l i ve r y   w h i c h   w a s   e s s e n t i a l   i n 
th e reco nst ru c tio n p has e.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

Box 14 — Example of uncoordinated 
multi-donor investment activity
since 2002 all donors have both provided 
l o c a l   a u t h o r i t i e s   w i t h   v e h i c l e s   a n d   l e f t 
t h e m   a s   a   d o n a t i o n   a t   t h e   e n d   o f   t h e i r 
p ro j e c t s.  th e   u n co o rd i n ate d   a p p ro a c h   i n 
te r m s   o f   l o c a l   a u t h o r i t i e s '   l a c k   o f   s t r a te -
gi c   p l a n n i n g   fo r   b u d g e t   a n d   i nte r n at i o n -
a l   o r g a n i s a t i o n s '   r e s p o n s e   t o   t h e   l a c k   o f 
v e h i c l e s   c r e a t e d ,   i n   a   c o u p l e   o f   y e a r s ,   a 
non-homogeneous fleet with rising main-
t e n a n c e   c o s t s.  t h e   p r o b l e m   w a s   s p o t t e d 
b y   t h e   m i n i s t r y   o f   t h e   i n t e r i o r.   l a s t   y e a r 
the m inistr y of the interior star ted a coor-
d i n ate d   re v i s i o n   o f   i t s   f l e e t   by   te n d e r i n g 
for a nd t hen b uy ing s ome 50 veh ic le s.  all 
t h e   v e h i c l e s   c o m e   f r o m   a   s i n g l e   l e a d i n g 
e u   c a r m a k e r   a n d   i t   i s   e x p e c t e d   t h a t   t h i s 
will impac t positively on the maintenance 
expen dit ure.

55. 
t h e   p r o b l e m   o f   c o n f l i c t i n g   a d v i c e ,   c o n-
f i n e d   t o   c e r t a i n   i s s u e s   a n d   r e s t r i c t e d   t o 
a   s p e c i f i c   p e r i o d ,   w a s   m e a nw h i l e   s o l v e d 
as  the   o t her  pl ayers  l ef t  the  fiel d,   and   n o 
l o n g e r   p e r s i s t s   a s   t h e   c o m m i s s i o n   h a s 
promoted  the   p ro gres sive  h ar mon i sat ion 
of a dvi ce.

55

replY of the 
commission

CONCLUSIONS AND 
RECOMMENDATIONS

5 6. 
t h e   j h a  a r e a   h a s   c o n t i n u e d   t o   b e   a   p r i-
o r i t y   a re a   i n   t h e   p ro g r a m m i n g   o f   t h e   i n-
s t r u m e n t s   f o r   p r e - a c c e s s i o n   a s s i s t a n c e 
a n d   m e a s u r e s   h a v e   m e a n w h i l e   b e e n   i n-
t r o d u c e d   t o   e n s u r e   t h e   s u s t a i n a b i l i t y   o f 
projec t  results.

5 7. 
i n   e n d e a v o u r i n g   t o   c o o r d i n a t e   d o n o r s , 
t h e   c o m m i s s i o n   m a i n t a i n s   r e g u l a r   c o n-
t a c t s   f o r   p o l i c y   a n d   f i n a n c i a l   a s s i s t a n c e 
co o rd i n at i o n   w i t h   t h e   co u n c i l   o f   eu ro p e, 
the venice commission, un  h igh commis-
s i o n e r   fo r   r e f u g e e s,   i n t e r n a t i o n a l   o f f i c e 
of m igration, international criminal tribu-
nal for the former Yugoslavia and bilateral 
d o n o r s .   m e e t i n g s   a r e   h e l d   r e g u l a r l y   b e -
tween the ec delegations and the member 
s t a t e s '   e m b a s s i e s   f o r   c o o r d i n a t i n g   t h e i r 
bilateral  f in anc ial  assist ance  with   th at   of 
t h e   c o m m u n i t y.   t h e   c o m m i s s i o n   o r g a n -
i s e d   c o n fe r e n c e s   i n   a u t u m n   2 0 0 8   a n d   i n 
a p r i l   2 0 0 9   w i t h   t h e   m a i n   d o n o r s ,   a i m e d 
at improving donor coordination method-
o l o g i e s.  t h e   n e x t   c o n fe r e n c e,   w h i c h   w i l l 
m a i n l y   fo c u s   o n   t h e   p r a c t i c a l   a s p e c t s   o f 
coordination on the ground, is scheduled 
for o c tobe r 2 00 9. 

t h e   r e g i o n a l   c o o p e r a t i o n   c o u n c i l   t o o k 
over dur ing  th e fir st h alf of 2 0 08  t he  rol e 
o f   t h e   fo r m e r   s t a b i l i t y   pa c t   a s   f a c i l i t a to r 
of  regional  donor   cooperation   in  th e   jha 
area and is organising conferences to this 
end. donor cooperation meetings are also 
organ ised t hroug h regional init iat ive s.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

Recommendation 1

Recommendation 2

(a )  the commission now sets impac t indi-
c a t o r s   w h i c h   a re   p a r t   o f   t h e   a c t i v i t y -
based management c ycle. they include 
th e  de gre e  to  w hic h  val ues  relate d  to 
fre edo m, s ecur it y  and ju st ice are  n ow 
r e s p e c t e d   i n   k e y   t h i r d   c o u n t r i e s ,   i n -
c l u d i n g   t h e   c o u n t r i e s   i n   w h i c h   t h e 
aud it   h as   be en  condu c ted;   th e  value s 
include the rule of law and respec t for 
funda mental  r ights.

(b)  t h e   c o m m i s s i o n   g e n e r a l l y   c o m b i n e s 
e q u i p m e n t   a n d   i n f r a s t r u c t u re   i nve s t-
m e n t   w i t h   i n s t i t u t i o n -   a n d   c a p a c i t y -
b u i l d i n g.  th e   p rov i s i o n   o f   e q u i p m e nt 
a n d   i n f r a s t r u c t u r e   i s   c o m b i n e d   w i t h 
suppor t for training and organisation-
al refo r ms.

(c)  practical aspects of donor coordination 
a re   n o w   b e i n g   e x a m i n e d ;   c o n c e r n i n g 
t h i s   p a r t i c u l a r   p o s s i b i l i t y,   i n i t i a t i v e s 
h a v e   b e e n   t a k e n   b y   t h e   c o m m i s s i o n 
i n   t h e   c o n t e x t   o f   a  ‘p r o j e c t s   f a i r ’  o r -
ganise d in the  s p r ing  o f 2009. 

(d)  as the financial regulation allows the 
commission to implement ex ternal ac-
t i o n s   to g e t h e r   w i t h   o t h e r   a c to r s,   t h i s 
type of action will be considered when 
deeme d ap pl ic ab l e.

( a)  b e n e f i c i a r i e s   a re   n ow   i nvo l ve d   i n   t h e 
p r o c u r e m e n t   p r o c e s s   f r o m   p r o j e c t 
p re p a ra t i o n   to   t h e   e v a l u a t i o n   o f   b i d s 
( w h e r e   a   r e p r e s e n t a t i v e   o f   t h e   b e n-
e f i c i a r y   i s   a l w a y s   p re s e n t   a s   a   vo t i n g 
m e m b e r ) .   m o re   g e n e ra l l y,   to   e n h a n ce 
o w n e r s h i p   b y   b e n e f i c i a r i e s ,   r e g i o n a l 
c o o rd i n a t i o n   m e e t i n g s   a re   o rg a n i s e d 
r e g u l a r l y   w i t h   e c   h e a d q u a r t e r s ,   e c 
d e l e g a t i o n s   a n d   b e n e f i c i a r i e s ,   a n d 
f r o m   a n   e a r l y   s t a g e   b e n e f i c i a r i e s   a r e 
consulted on the multiannual planning 
d o c u m e n t   a n d   t h e   o u t l i n e   p r o j e c t 
fic he s.

( b)  fo r   s u s t a i n a b i l i t y   a n d   o w n e r s h i p   o f 
projec ts under ipa 2007 and 2008 pro -
g r a m m e s,   p ro j e c t   f i c h e s   i n c l u d e   s p e -
c i f i c   c o n d i t i o n a l i t y   o n   i n f r a s t r u c t u r e 
maintenan ce.

( c)   t h e   co m m i s s i o n   i s   a w a re   o f   t h e   s i t u-
at ion  an d in m arc h 2 0 09  embar ke d on 
a regional financial assistance projec t 
to improve monitoring in the jha area 
o f   p e r fo r m a n c e   o f   a u t h o r i t i e s   a n d   f i-
n ancial assist ance.

( d)  the commission now sets impac t indi-
c a t o r s   w h i c h   a re   p a r t   o f   t h e   a c t i v i t y -
based management c ycle. they include 
th e  degree  to  wh ich   values  re lated   to 
free dom , secur it y and j ustice are n ow 
r e s p e c t e d   i n   k e y   t h i r d   c o u n t r i e s ,   i n -
c l u d i n g   t h e   c o u n t r i e s   i n   w h i c h   t h e 
audit  has  been  conduc ted;   th e  value s 
include the rule of law and respec t for 
fun damental r ights.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

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replY of the 
commission

Recommendation 3

t h e   co m m i s s i o n   a g r e e s   t h a t   a   j o i n t   b o r-
d e r   c ro s s i n g   p o i nt   c a n   ce r t a i n l y   e n h a n ce 
c o o p e r a t i o n   b e t w e e n   t h e   t w o   c o u n t r i e s 
con ce r ne d,  but  th ere  are   also  o th e r   ways 
of bilateral cooperat ion  at th e  bord er.

prac tical issues linked to the applicabilit y 
o f   t h e   s c h e n g e n   a c q u i s  o n   j o i n t   b c ps   i n 
c a s e   o f   a s y l u m   r e q u e s t s   a r e   t o   b e   t a k e n 
i nto   a cco u nt   w h e n   m a k i n g   p o l i c y   re co m-
m e n d a t i o n s   i n   r e l a t i o n   t o   t h o s e   c o u n -
tr ies. 

(e)  financial assistance is complementar y 
to the political process of stabilisation 
and   as so ciatio n.   pro gres s  re por ts  and 
t h e   e u r o p e a n   p a r t n e r s h i p s   i n c l u d e 
s p e c i f i c   r e c o m m e n d a t i o n s   a s   t o   t h e 
re q u i re d   i n s t i t u t i o n a l   c h a n g e s.   s o m e 
projec ts also direc tly suppor t refor ms 
in the area of jha.  for example, in the 
programming of ipa 2009, discussions 
a re   b e i n g   h e l d   w i t h   t h e   b e n e f i c i a r i e s 
in order to deliver better programmes 
re s p o n d i n g   to   b e n e f i c i a r i e s '   n e e d s   i n 
the area of jha, from a regional  eu in-
tegration perspective and linked to the 
s t r a t e g y   p a p e r,   c o u n t r y   r e p o r t s ,   a n d 
acces sio n/e uro p ean  p ar t nersh ips.

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

special r eport no 12/2009 —  the effectiveness of the commission's projects in the area of justice and home a ffairs for the western balkans

european court of auditors

Special Report No 12/2009 

The effectiveness of the Commission's projects in the area of Justice and Home  

Affairs for the western Balkans

luxembourg: publications office of the european union

2009 — 57 pp. — 21 × 29.7 cm

isbn 978-92-9207-454-8 

doi:10.2865/80334

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IN THIS REPORT, THE EUROPEAN COURT OF AUDITORS ANALYSES THE 

EFFECTIVENESS OF THE EUROPEAN COMMISSION’S PROJECTS IN THE 

AREA OF JUSTICE AND HOME AFFAIRS FOR THE WESTERN BALKANS. 

THE REPORT COVERS BOTH INVESTMENT AND INSTITUTION-BUILDING 

PROJEC TS  IN THE  FOUR  JUSTICE  AND  HOME  AFFAIRS  SUB  AREAS: 

ASYLUM  AND  MIGRATION,  INTEGRATED  BORDER  MANAGEMENT, 

JUDICIARY AND POLICE. 

AG A I N S T   T H E   B AC KG R O U N D   O F   A   D I F F I C U LT   P O L I T I C A L   A N D 

ORGANISATIONAL ENVIRONMENT, THE COMMISSION’S MANAGEMENT 

OF  JUSTICE  AND  HOME  AFFAIRS  PR OJEC TS  HAS  BEEN  LAR GELY 

EFFEC TIVE.  HOWE VER, THE  COUR T  IDENTIFIED  SHOR TCOMINGS, 

PARTICULARLY IN TERMS OF OWNERSHIP AND SUSTAINABILIT Y OF 

RESULTS. THE REPORT CONTAINS RECOMMENDATIONS WHICH COULD 

HELP THE COMMISSION TO PROVIDE MORE EFFICIENT AND EFFECTIVE 

ASSISTANCE.

EUROPEAN COURT OF AUDITORS

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EUROPEAN 
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THE EFFECTIVENESS OF THE 
COMMISSION’S PROJECTS IN THE 
AREA OF JUSTICE AND HOME AFFAIRS 
FOR THE WESTERN BALKANS

EN