european court of auditors - the effectiveness of the commission’s projects in the area of justice...

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the eectiveness o the commission'sprojects in the areao justice and homeaairs or

the western balkans

s r n 12 2009

( a 248(4), g, ec)

european court o auditors



european court o auditors

12, a d G

1615 lxg

luXembourG

t. +352 439845410

x +352 439846410

e: @..

i: ://...

s r n 12 2009

a g e u i.

i g (://.).

cgg .

lxg: p o e u, 2009

isbn 9789292074548

:10.2865/80334

© e c, 2009

r g.

Printed in Luxembourg



3

contents

Paragraph

ABBREVIATIONS

I– V EXECUTIVE SUMMARY

1– 5 INTRODUCTION

6–10 AUDIT SCOPE AND APPROACH

11–55 OBSERVATIONS

11–28 EU INVESTMENT SUPPORT MOSTLY SUCCESSFUL BUT SUSTAINABILITY AT RISK

12–15 real need or investm ents due to eu standards and dilapidated inrast ructure

16–19 miXed results or a major cateGorY o investm ent projec ts: border manaGemen t

and securitY

20–23 aliGnmen t o eu and national prioritie s a necess arY pre-condi tion or success

24–26 impact and sustainabilit Y o investm ent projec ts at risk

27–28 investm ents not matched with necess arY instituti onal capacities

29–49 SIGNIFICANT INSTITUTION-BUILDING NEEDS BUT ONLY LIMITED CHANGE

RESULTING FROM EU SPENDING

30–35 chanGe manaGemen t and instituti on-buil dinG limited and poorlY measure d

36–39 sustainabilitY o institution-buildinG compromised because o chanGes

in keY sta and corruption

40–45 trainin G — more outputs than results

46–49 local owners hip a keY success actor improvi nG the rule o law

50–55 MANAGEMENT APPROACHES AND DONOR COORDINATION

51–52 no siGniicant dierence between manaGement approaches

53–55 benei ciarY-led donor coordination not enhanced

56–58 CONCLUSIONS AND RECOMMEN DATIONS

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

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5

s r n 12/2009 t c' j h a b

BiH: b hzg

BiHCC: c c bh

BCP: b g

CARDS: cy a r, d s

DG ELARG: dG eg

EAR : e agy r

EBRD: e b r d

EC : e c

EIB: e i b

EU : e u

EUPOLProxima: e u p m Yg r

m

HQ : hq

HRC: h rg c

IBM: ig g

JHA: j h a

PAMECA : p a m e cy a

SAp : s a

SR : s r e c a

UNSCR : u n sy c r

WCC : w c c

abbreviations



6

s r n 12/2009 t c' j h a b

I . t e u' g

b

y, y g y . t

b y y

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g . t

j h a

(jha) g eu.

t eu

g eu gg

x

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c 500

j h a

b . t

c ' g

b e u

g ,

.

I I . t c ' x

:

() j h a

y

,

()

x

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eXecutive

summarYI I I . t c '

g

j h a

: y g , g

g, y .

t c 1:

( )

g , c

j h a

g ;

( ) g g

g

, c ' g

j h a

g y , g

c

g , y

y ;

( ) y

q

;

1 t y g Graph 1.

S U M M AR Y O F F I ND I NG S O N AU D I T E D P R O J E C T SG R A P H 1

0 %

20 %

40 %

60 %

80 %

100 %

Needs:

relevance

Needs:

assessment

Results:

achieved

Results:

sustainable

Needs:

relevance

Needs:

assessment

Results:

achieved

Results:

sustainable

Investments Institution-building

Unsatisfactory

Partiallysatisfactory

Satisfactory



77

s r n 12/2009 t c' j h a b

( ) g

y y

y ,

y

c

;

( )

g

y y y y

. t

() y

,

g

e c

x ;

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e agy r .

IV.o ,

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c

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t :

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a , c y

g

( x

g

g y g ) ;

eXecutive

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c ,

(

x

g y

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y

y . w ,

g y

.

V.p y

:

( ) y

;

( )

;

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y

e u q

;

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qy y

g

g.



8

s r n 12/2009 t c' j h a b

2 cards y

‘cy a

r, d

s’

200006.

3 t 10 %

cards g. m

cards g g

y g,

g g

b

.

4 cg

g 2007, bg

r g

j h

af . t eu

m s

g g.

introduction

1. e g e u ' g y ,

y , . t g g

b , g

g e u y y

.

2. t j h a ( j h a )

b g .

t jha

e u b

g : y g ,

g g, y . t

j h a c

g b (cards 2)

470 2001 2006 3.

3. p g , g

g :

() j h a g

c g y

g .

( ) t y

c ' g

, j

h a .

( ) t c y g

g ' ' g y ,

g

g. t g , y g

.

() b x , j

h a , ,

g 4.



9

s r n 12/2009 t c' j h a b

4. t c ' g :

() , g

y ;

() g

eu q ;

() g ,

y , ;

( ) g g , g g , g

;

() , ;

( ) g , . g .

y g , g g

.

5. t c y j h a

y g q

g g . i

y . ig

5 g 6 g

, . g . g y

g.

5 t

y

g f

y

‘x

gg

’. r

c' s r n 6/2007

f

x y

(oj c 312, 21.12.2007,

. 3).

6 l 1998

, g

g

m s.



10

s r n 12/2009 t c' j h a b

6. t e r o n u n i o n l w r n b l kn o n r i i n l y

rog i i rogr n ro in. t ro

o cor ' i w o ivn o eron

c o i i o n ' ( e c ' ) r o i n r o j i n h o

ai r or wrn blkn. t i work inl l

o 33 j i n ho ai r ro , i . . 30 n ionl n r

rgionl , ovr 2001–05 nnl rogr 7. bo y o -

i n , i . . i n v n n i n i i o n - i l i n g , w r q l l y

r r n i n l . t l i o i r o w i

rl n cor ' ining i g ivn in Annex I . di l o

i oology n l r givn in Annex I I .

7. t x

:

() j h a y

8,

( ) x

9.

8. t c g

b : g .

i g c ' d g a

, b h z g c

, g,

. i g ,

e agy r (ear) g

g Yg r m , k

( unscr 1244/99) , mg s

2008. t c x y

g

g j h a 10 .

7 a cards

g, g,

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cy ,

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9 t x

y g

eu ( x

q,

g) fy

y

y .

10 t

q e p.

r e

p 22 a 2008

g g

g

e u g g

y 2006, iii

c.

audit scope and approach



11

s r n 12/2009 t c' j h a b

9. t e c y g

b . m g g

g eu g ( Annex III ) . i x ,

x y g

.

10. t g ,

g

g . t z

g

.

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

S o u r ce : e c.



12

s r n 12/2009 t c' j h a b

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

11. t

. i

g g

y g eu ,

y, :

,

g y .

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 T O E U S T A N D A R D SA N D D I L A P I D A T E D I N F R A S T R U C T U R E

12. b y g g 11 ,

b g

eu g

y g. t q

:

11 t g x

Yg

5 000

g

y .

observations

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

B O X 1

Case 1: Project ollowing strategic objectives

a' y . p

y . a a y 3 049 ,

g y 1 510 . t 102 %. t,

k 312 y

y.

Case 2: Project not ollowing annual programme

i Yg r m, y

g 2 g g g, g

. t . i, y

.



13

s r n 12/2009 t c' j h a b

( ) e u y 12

. x, eu q

. t g

y y y y

13 . i ,

g g

.

() dili j i n ho ai r inrrr . t r-

rn inrrr in wrn blkn i oor n in-

q. for xl, wn xrnl vlor 14 vii 38 or

i ling in alni in 2004–05, y ol no l ly i-

ingi g ro nn or r o l i or

roor n wr nl in orr ior .

13. t 70 % j h

a y y

g 15 , . . y

y eu. t g

, y y ,

g ( Box 1 ) .

14. t gg

q y g

. p g g g

y y

g .

o 17 , y

gy y g

( Bo x 2 ) .

12 x, b

hzg

10 y 2009.

13 x, s y

g

2007.

14 ‘m

’ y

y x

jy 2004 a 2005.

15 t c' s r

n 5/2007 c'

g cards

g (oj c 285, 27.11.2007,

. 1) g

g y g. t

q

gg g

.

E X AM P L E O F HI G H LY S AT I S F AC T O R Y NE E D S ANAL Y S I SB O X 2

t c a kç v a

‘m ’ y. t y y

a. t

.



14

s r n 12/2009 t c' j h a b

15. w g g y y

, , c

eu q ( Bo x 3 ) .

MIXED RESULTS FOR A MAJOR CATEGORY OF INVESTMENT

P R O J E C T S : B O R D E R M A N A G E M E N T A N D S E C U R I T Y

16. t eu b t j 2003

y

y u .

t c y

g g , j

h a g (37 %) . t

g y .

t c g g g

, g

g . t g y

y g

g g g g

16 . a g y q

, 17 . t

s , x ( Bo x 4 ) .

16 t g

g gy

a n 2006,

b hzg jy 2005,

Yg r

m o 2005,

mg y 2006

s jy 2006.

17 i eu

acquis communautaire, sg

cy

,

‘z’

g. n,

q y

f .

E X 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 DU S E O F E U - F U N D E D E Q U I P M E N T

B O X 3

i Yg r m eu y

2005 y 18 g

y g g. s q

g 2007. t g y q

s 2008 g g q 2009.

t g y y y y y

g y q.

c a x g

g g g

.



15

s r n 12/2009 t c' j h a b

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 TS T R E N G T H E N S B O R D E R C O N T R O L S W H I L E P A S S E N G E R WA I T I N GT I M E S A R E R E D U C E D

B O X 4

i s q b g

(Photo 1). t , g

g . t g

30 . pg g g 12

20 .

t g q g

g , g . t ‘x’ 100 y

g g g

y.

Th e E U i n an c ed Bat r ovc i b or d er c r os s i n g p oi n t

on t h e Bel g r ad ezag r eb m ot or w ay h as l ed t o s i g n i i c an t

r ed u c t i on s i n p as s en g er w ai t i n g t i m es .

P H O T O 1

S o u r ce : e c a.



16

s r n 12/2009 t c' j h a b

17. m y : y ,

, g . t c'

x . i s , a ,

y

y

. a Yg r

m G a

i y ( P h o t o s 2

3 ) . t g g

Y g r m

y 2 0 0 5 , ,

2008.

18. alog ovrl l ir rin rr oi iv o wk-

n wr ini i in i r rl no only o lk o

oli il wil l n lgl n in riin onri ( r-

gr 36 o 39) lo o rin i i wkn in co-

iion' ngn (Box 5) .

E X 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 TP R O J E C T

B O X 5

t G g (bcp) b hzg y m (bh) s (c). t c y

bcp b . t c g

3 g x .

b ,

x d 200618.

t q ‘ ’ b g y g

y 70 % (g xy

20 y). t g .

18 a c , q 550 000 g

gg .



17

s r n 12/2009 t c' j h a b

19. t Y g 5 0 0 0

g . t

y

g (bcp ). h , c

bcp g

g . t

g .

A l l p r oj ec t s exc ep t on e w er e au d i t ed on t h e s p ot . Her e

an E U i n an c ed ou r w h eel d r i ve veh i c l e i s b ei n g c h ec k ed

b y C ou r t s t a i n G evg el i j a on t h e b or d er o t h e or m er

Yugoslav Republic o Macedonia acing Greece.

P H O T O 2

A r es u l t o t h e s t r en g t h en ed s ea b or d er c on t r ol i n A l b an i a:

a c on i s c at ed s p eed b oat u s ed b y or g an i s ed c r i m e t o s m u g g l e

p eop l e i n t o E U .

P H O T O 3

S o u r ce : e c a.

S o u r ce : e c a.



18

s r n 12/2009 t c' j h a b

E X 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 A WB O X 6

Construction o the Court o Appeal in Vlora, Albania

t c 770 000 c a v, a.

t . i g g

g g y (2007)

g . a , c a . t

y g ‘y ’ g.

h, , y g

g y g y x

y . , . t g

.

A L I G N 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 SA N E C E S S A R Y P R E - C O N D I T I O N F O R S U C C E S S

20. r j h a ,

g , g x

g. h , g

g j h a , y

y b 19 .

21. e g c

b , eu g .

t c y ,

y g g

. a x e u

‘ ’ c v ,

y ( Bo x 6 ) .

22. t g y

. t

g y . i s

eu xy 5 %

s j h a g y

2003 2007 ( Bo x 7 ) .

19 i Yg r

m, y g

g

y g

. t

. b 63 %

g y

2008

. a

.



19

s r n 12/2009 t c' j h a b

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 C O M M I T M E N TB O X 7

Renovation o the biggest court building in Serbia

g s p m Z d m 2003,

g . h, s

y g g .

t eu g bg d c ,

x, . s g j 2006,

35 2006 40 g 2007 g g

. s s g

g y.

Th e n ew an d m or e s ec u r e C ou r t o A p p eal b u i l d i n g i n Vl or a

A l b an i a w as i n an c ed b y t h e E u r op ean U n i on . Th e w or k s w er e

c om p l et ed i n 2 0 0 6 .

P H O T O 4

S o u r ce : ec dg t.



20

s r n 12/2009 t c' j h a b

E X 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 A C K O F I M P A C TB O X 8

t coiion inv ovr 3 illion ro o gr or r roing oin (bcp) in k

b hzg ‘ gy’ bcp, .. y g

y. h, eu , g

g k bcp. b , y

g (.g. ) g . t g

s c

b hzg. t c g.

23. w e u g ,

. x g s

a a g (s a a ) c g

b 20 .

b y

g . x , a

g

a' y g g. e

c gy g

a gg g '

g g g, g

.

IMPACT AND SUSTAINABILIT Y OF INVESTMENT PROJECTSAT RI SK

24. sx 16

g y . a g

q

,

y . a

y

g g eu g.

20 t b

e u g

g

saa. t g

b eu

z gy

gy y

y ,

g g

z

y

g y

y. t g y

g b

y eu y

e u.



21

s r n 12/2009 t c' j h a b

25. t d g y

g q

. t, y

y c ( Box 8 ) .

26. ag

,

y . i a d g

g

g q 21 . t

y g

yy g

y y g

g .

I N V E S T M E N T S N O T M A T C H E D W I T H N E C E S S A R YI N S T I T U T I O N A L C A P A C I T I E S

27. i y g

eu q . h ,

g . x, g

g : g

g gy .

28. o x

y it . e

q

y ,

' y qy x

:

( )

g . x ,

mg y 26 g

;

21 t dg'

t

gg y.



22

s r n 12/2009 t c' j h a b

() g ' y

q g q y

y ,

xg. a , y

y g cy

a c q u i s . i b h z g ,

2 0 0 6

g cy q ;

() it

. a y

y; g g

y .

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 SB U T O N L Y L I M I T E D C H A N G E R E S U L T I N G F R O M E US P E N D I N G

29. t

g

. y

x : y y

, g g ,

.

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 GL I M I T E D A N D P O O R L Y M E A S U R E D

30. a j h a y

g ,

x , y yy y gy

g.

31. t c '

. t y

g g

y g .



23

s r n 12/2009 t c' j h a b

32. g

, y c :

() y g, .g. g

;

() g g x;

() y .

33. t , . . y

, g g

g y g, g

. x, a g

g g , b hzg

c c g g

g s m s

g g .

34. t c y g

. i y

c g ,

y b , g

g

. h, c

.

35. t c y

g y g . i 2002

c g y

, . t

b g y ,

g g y .

h, c y y g

y

y 22 .

22 t

y

y

. t x

g

c y.



24

s r n 12/2009 t c' j h a b

S U S T A I N A B IL I T Y O F I N S T I T U T I O N - B U I L D I N GC O M P R O M I S E D B E C A U S E O F C H A N G E S I N K E Y S T A F F A N DC O R R U P T I O N

36. oy 15 g

y y . a g

g

y . t g

g y y g y

( Bo x 9 ) .

37. t x

. t

(Box 10 ) . d g , g ,

. . g y y g ,

. t y g e u

.

U N S T A B L E S TA F F I N G S I T U AT I O N I N P U B L I C A D M I N I S T R A T I O N I NA L B A N I A A N D T H E F O R M E R Y U 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

B O X 9

i a, g jha g. t

g, x g , y g

y g. iy y 2005 a,

20 g y g g .

i Yg r m, 30 y g

. tyg g

2006, .. 93 %.



25

s r n 12/2009 t c' j h a b

38. t q

g g y . x

g q g

y b

,

23 .

39. t g y j h a

y g g . t g

, g

g g. o

eu g x y

ty i. Annex IV g (

g ) g y y 2004.

23 i g

b hzg 13 f

x, y

10

b d.

E X A M P L E S O F E N H A N C E D O P E R A T I O N A L C A P AC I T YB O X 1 0

i Yg r m ‘m s’ n 2007

, x y . i , , q 650 , , g y. i

y ‘g g’

. t . ag

y c, g

y g.

i jy 2008, m s 17 192 y'

. ag g, g' g y g z

y.

i a eu g ' y

1997. a 2011.



26

s r n 12/2009 t c' j h a b

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 L T S

40. a y g g

g g ( B o x 1 1 ) .

t c y . x,

g 24 , g 10 ,

g. t g ( ,

) y ,

( Bo x 11 ) .

41. G g b

g

, g y g. b

c' , .g.

g g y, g

y eu

.

24 b , g

g

b. t

c' g g

g

b . t

eu g

q

g . s

10 % cards g

g

g g

y

j h af .

E X A M P L E S O F J U D I C I A L T R A I N I N G C E N T R E S ( J T C s )B O X 1 1

t c g y. t jtc , .. y g g e , g

gqy g g g, , .

i Yg r m, eu x '

g . t y y x

jtc , y y

e . , g 24

15 , g g.

i s, g g g . ,

‘g ’ g g , .. g

g . i y y ‘ex cathedra’ g .



27

s r n 12/2009 t c' j h a b

42. i y g g

g g g

. t c

y . t c

g y g

g y

. h, c

y g g g

, g g g

eu .

43. t c y y g

g ' ,

y 25 . t

y y

, .g. g

. t g , .g.

g g

. a

y y .

44. a , c ' g

y , y

g. t g

a (pameca ii) .

‘ s g c c ’ g 6 0 g

g . w g

y y

. t y y , ‘s

ex pg’ g

34 . ag c

g ,

g g g .

25 t c

x

.



28

s r n 12/2009 t c' j h a b

45. l g y g g y

g . h g

g

x ( Box 12) . tg m

s g g

card s g

g.

E X A M P L E S O F ‘ L E A R N I N G - B Y - D O I N G ’ P R O J E C T S I N B O S N I A A N DH E R z E G O V I N A

B O X 1 2

Case 1: Complete hand-over o responsibilities to the benefciary — Human Rights Commission

i 2004 c g g c c b

hzg (bhcc) y bhcc, h rg

c (hrc), g 9 000 g 26. dg

y h r g c (hrc) 3 000 . t hrc

g , 2005 hrc y.

dg e c h rg

y . t 9 10 y

y c c. i j 2007 g . ag

y, g g

b hzg.

Case 2: Incomplete hand-over o responsibilities to the benefciary — War Crimes Chamber

t w c c (wcc) bh g

g g i

c t Yg' gy 27. t

b hzg . a

x x y. t

x , , c' x

y. t gg y g.

26 t y g b hzg: qy , y g, g

g (‘s ’).

27 r un sy c r 1503.



29

s r n 12/2009 t c' j h a b

L O C A L O W N E R S H I P A K E Y S U C C E S S F A C T O R I NI M P R O V I N G T H E R U L E O F L A W

46. o g

b .

t e

. c g

b y y

e. d g ,

b ( Bo x 13 ) .

47. i y g , c x

. t

y c . i ‘

y ’. s c ' j h a

q g

y g . t y y

c' g ,

g, .

R U L E O F L A W C O N C E P T I N W E S T E R N B A L K A N S W E A KB O X 1 3

t ‘ ’ g g . tz g y y y g. w

‘ y’, g

g g28:

mg: 69 %;

s: 81 %;

t Yg r m: 85 %.

i gy y

qy y .

28 s rr r y alin mngi-piii: ‘donring blkn rilri — t igo oil il o o rn

ero’, 2005..



30

s r n 12/2009 t c' j h a b

48. howvr, coiion lrn lon o rvio x-

r i n . co r w i co i i o n ' r l i r r - i o n

r o g r ( p r ) , i o r n r r l r o r i n j i n

ho ai r r now kl rl ir in nlrgn ro .

49. u

g e c x

g 29 . t g '

g . t g

rg c c ,

y 2008, s y p s e

e . t c c x

y . o j h a . a

y

y se e, ,

s, g

g gy

e g .

M A N A G E M E N T A P P R O A C H E S A N D D O N O RC O O R D I NAT I O N

50. t z

, g y :

g y c

.

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 A C H E S

51. i b c g

( Annex V ) , g e a g y

r (ear) g c dg. t

c y

g

.

29 r d, m

‘rg

b,’ euiss c p

n 104, jy 2007.



31

s r n 12/2009 t c' j h a b

52. o 3 0 j h a

, 1 8 g y d g ,

12 y ear ( Annex I ) . w

x, g

g g y

d g g y e a r . o

g dg

y g g g . o

, ear' q g

x g .

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

53. t c yg

g b . d

2005 p d

a e eu c c d

l. t c . t c

c

g.

54. j h a

. t c ,

, m s e u

b ( Annex VI ) . t

y

, ' y

. m ,

y

. e y

, y

(Bo x 14 ) .



32

s r n 12/2009 t c' j h a b

E X A MP L E O F U N C O O R D IN A T E D MU LT I- D O N O R IN V E S T ME N T A C T IVIT Y

B O X 1 4

o g . h,

, g , gg

y, Yg r m 40 y

. t y. t y

12 y .

55. t

y . i g y

y g y eu . a

x g

Yg r m . i 200405

e u ( e c d g , e a r , e u ,

eupolpx eu g )

. ay, ogz s y

c e, i c i g

t g a pg ( y

usa) eu m s g

g y . t y gg

y .



33

s r n 12/2009 t c' j h a b

conclusions andrecommendations

56. t eu g

e u g g

b . u g, c

j h a

g . t j h a

g y c

g . a g g

c ' g gy . h ,

c ' g c

g , ,

g , y

y .

57. t c y

q . ag

y y ,

y ,

y c

. o

c g

y y y y . t

() y ,

g e c

x .

M A I N C O N C L U 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 GP R O J E C T S

T A B L E 1

Audit question Needs Project outputs Results

Type o assistance Relevance Assessment Achieved Sustainability

Investment S PS S S / PS S / PS

Institution-building S S S PS US

Rating: S = Satisactory, PS = Partly Satisactory and US = Unsatisactory;

S / PS means that the rating alls between Satisactory and Partly Satisactory.



34

s r n 12/2009 t c' j h a b

t c' g j h

a b

:

() gg j h a , c

g g

y

;

() y

g ;

() , g c

, , x

g

y ;

() q y

y . w ,

g y

, g g g

y y g y .

58. w x,

g g , g

g

g y d g g y

e agy r .

R E C O M M E N D A T I O N 1



35

s r n 12/2009 t c' j h a b

t y :

( ) y , .g.

;

() ;

() c y

eu q

y ;

() c ;

() y qy

y g g.

t r g i o n l w o l n n i i n r r r

inrvn ion in ingr orr ngn r wr

ign n iln in wy wol or rgionl

oorion. for xl, oin orr roing oin, inn

ro rgionl l lo ion, ol givn rior i y .

t y c a lxg

g 15 16 jy 2009.

Fo r t h e C o u r t o A u d i t o r s

ví m s c

P r e s i d e n t





36

s r n 12/2009 t c' j h a b

C A R D S 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 A U D I T E D A N DA 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

A N N E X I

PROJECT DESCRIPTION

CARDS

Annual

programme

AMOUNT

IN EURO

(contracts)

Investment

Albania Oce equipment or police stations 2001 419 093

Albania Construction o Fushe Kruja prison 2001 2 874 708

Albania Appeal courts in Korça and Vlora 2003 1 636 375

Albania Border control and green border management 2003 2 127 106

Bosnia and Herzegovina Supervision and construction o Kamensko BCP 2001 3 349 597

Bosnia and Herzegovina Construction o Gorica BCP 2002 2 971 834

Bosnia and Herzegovina Supervision and rehabilitation o premises or the BiH Judiciary 2002 2 310 367

Bosnia and Herzegovina Equipment or police orces 2003 1 576 604

Bosnia and Herzegovina Supervision and construction o the border police HQ o BiH 2003 2 589 621

Bosnia and Herzegovina Provision o IT telecommunication system 2003 2 597 772

The ormer Yugoslav Republic o

MacedoniaProvision o vehicles or border police 2003 2 799 813


MacedoniaConstruction o reception centre or asylum seekers 2002 1 419 580

Montenegro Construction o border crossing points D. Brijeg and S. Polje 2001 3 685 662

Montenegro IT and special equipment or the border police 2003 1 683 038

Serbia Construction and supervision o border crossing Batrovci 2002–03 5 134 209

Serbia Renovation and maintenance o the main courtroom in Belgrade 2003 1 196 963

Serbia Supplies to border police 2003 2 782 209

Subtotal 41 154 551



37

s r n 12/2009 t c' j h a b

NEED OUTPUT

COMPLETED

RESULTS

RELEVANCE ASSESSMENT ACHIEVED SUSTAINABILITY

PROJECT COMPLETION MANAGED BY

Satisfactory (S),

Partly satisfactory (PS),

Unsatisfactory (US)

Yes/Partial/No S, PS, US, N/A

Satisfactory/

Unsatisfactory/

N/A

September 2005 Delegation US US Yes US Unsatisactory

March 2007 Delegation S US Partial PS Unsatisactory

May 2006 Delegation S S Yes S Unsatisactory

February 2006 Delegation S US Yes PS Unsatisactory

October 2005 Delegation S S Yes PS Unsatisactory

Never started Delegation S S No N/A N/A

December 2004 Delegation S PS Yes S Satisactory

July 2005 Delegation S S Yes S Satisactory

July 2008 Delegation PS PS Yes PS Satisactory

December 2006 Delegation S S Yes S Satisactory

June 2005 EAR S PS Yes PS Unsatisactory

November 2006 EAR PS S Yes S Satisactory

July 2005 EAR PS S Partial PS Satisactory

March 2005 EAR S S Yes S Satisactory

August 2006 EAR S S Partial PS Satisactory

May 2005 EAR PS S Yes S Satisactory

May 2005 EAR S US Yes S Satisactory



38

s r n 12/2009 t c' j h a b

PROJECT DESCRIPTION

CARDS

Annual

programme

AMOUNT

IN EURO

(contracts)

Institution building

Albania National strategy o migration 2001 1 000 000

Albania Albanian mine action programme 2002 2 000 000

Albania Pre-screening o asylum seekers and migrants 2003 2 000 000

Albania PAMECA II – police mission 2004–05 6 314 404

Bosnia and Herzegovina Support to the prosecutor's oce in BiH 2002 916 668

Bosnia and Herzegovina Support to Human Rights Commission 2003 645 705

Bosnia and Herzegovina Support o the high judicial and prosecutorial council 2004 3 120 986

Bosnia and Herzegovina Support to the war crimes registry in BiH 2004 3 500 000


MacedoniaTraining institute or judiciary 2001 1 188 405


Macedonia Support to the national police reorm strategy 2001 1 457 533

Serbia Judicial training centre 2004 2 499 175

Serbia Capacity building o Ministry o Justice 2004 1 491 029

RegionalEstablishment o EU-compatible ramework in asylum, migration and visa

matters2002 2 922 700

Regional Support to and coordination o IBM strategies in the western Balkans 2002–03 1 999 984

RegionalEstablishment o an independent, reliable and unctioning judiciary

and enhancing the judicial cooperation2003 5 499 579

Subtotal 36 556 168

Investment and Institution buildingSerbia IT support to the court administration, case management 2004 3 232 093

TOTAL 80 942 812

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

Audit criteria or needs assessment: The projects were justied and alternative approaches had been considered.

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

Audit criteria or results achieved: The EU-unded assistance was used efectively.

Audit criteria or sustainability: The results o the projects were nancially and operationalily sustainable.

N/A: Not applicable.



39

s r n 12/2009 t c' j h a b

NEED OUTPUT

COMPLETED

RESULTS

RELEVANCE ASSESSMENT ACHIEVED SUSTAINABILITY

PROJECT COMPLETION MANAGED BY

Satisfactory (S),

Partly satisfactory (PS),

Unsatisfactory (US)

Yes/Partial/No S, PS, US, N/A

Satisfactory/

Unsatisfactory/

N/A

January 2005 Delegation S S Yes US Unsatisactory

May 2006 Delegation S S Yes S Satisactory

February 2006 Delegation S S Yes PS Unsatisactory

December 2007 Delegation S PS Yes PS Unsatisactory

May 2005 Delegation S PS Yes PS Unsatisactory

March 2005 Delegation S S Yes S Satisactory

January 2006 Delegation S S Yes S Unsatisactory

January 2008 Delegation S S Yes S Unsatisactory

October 2005 EAR S S Yes S Unsatisactory

September 2005 EAR S PS Yes PS Unsatisactory

October 2007 EAR S PS Partial US Unsatisactory

September 2007 EAR S S Partial PS Unsatisactory

December 2005 DG ELARG HQ S S Yes PS Unsatisactory

March 2007 DG ELARG HQ S S Yes PS Unsatisactory

April 2007 DG ELARG HQ S US Yes PS Unsatisactory

November 2005 EAR S S Yes PS Satisactory



42

s r n 12/2009 t c' j h a b

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

2008 2007 2006 2005 2004

Ranking CPI

score

Ranking CPI

score

Ranking CPI

score

Ranking CPI

score

Ranking CPI

score

Albania 85 3,4 105 2,9 111 2,6 126 2,4 108 2,5

Bosnia and

Herzegovina92 3,2 84 3,3 93 2,9 88 2,9 82 3,1

The former

Yugoslav

Republic of

Macedonia

72 3,6 84 3,3 105 2,7 103 2,7 97 2,7

Montenegro 85 3,4 84 3,3 N/A 97 2,8 97 2,7

Serbia 85 3,4 79 3,4 90 3,0

The Corruption Perception Index (CPI) is calculated or 180 countries, with the ranking o 1 or the country that i s perceived as the least corrupt

and 180 or the country that is perceived as the most corrupt country.

The CPI score ranges rom 0 to 10 and expresses the level o perceived corruption, i.e. the lower the score the higher the level o perceived

corruption.

S o u r ce : ty i (://.y.g).

T O TA L G R A N T A S S I S TA N C E D U R I N G 2 0 0 6 – 0 8 ,4 2 4 0 M I L L I O N E U R O B Y S O U R C E

A N N E X I I I

European

Commission

56 %

EU Member States

20 %

Others

24 %

S o u r c : e c/w b j o s e e.



43

s r n 12/2009 t c' j h a b

cards y g

g ( D i ag r am 1 ) :

( ) t e c d l g i o n i n a l n i , b o n i n h r z g o v i n n

croi ng ro, ro iniiion n orlion

o nring, onring, ilnion n vlion 1.

() t e agy r (ear)2,

gy eu, g g s

mg, g k, Yg r

m . i

q y y g g

k

1999 .

() dG eg ( ea) g rg

pg y q .

() ig ag y g

l c y d p g a

cards 2002 g c

y.

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

A N N E X V

1 t

b hzg 1998.

t

ec x ,

g .

2 t ear

y 2000; ,

t k, y

1999. i 2001,

gy' x

s mg

2002 Yg r

m.



44

s r n 12/2009 t c' j h a b

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

Kosovo

CARDS Management Committee

MontenegroSerbia

HQ (Thessaloniki)

Governing Board

European Agency for Reconstruction Commission HQ

Delegations

Albania BiH Croatia

Decentralised Implementation

Albanian

Development

Fund

Central Finance

and Contracting

Unit

The former

Yugoslav

Republic of

Macedonia



45

s r n 12/2009 t c' j h a b

T O T AL G R ANT S AND L O ANS D U R I NG 2006– 08,1 0 4 8 8 M I L L I O N E U R O B Y S O U R C E

A N N E X V I

European

Commission

22 %

EIB

22 %

EBRD

20 %

World Bank

14 %

USA

8 %

Others

14 %

S o u r ce : e c/w b j o s e e.



46

s r n 12/2009 t c' j h a b

replY o the

commissionEXECUTIVE SUMMARY

I . t j h a ( j h a )

y

g g i

p a ( i p a ) . t

5 8 . 6 2 0 0 7

75.5 2008.

I I I .() t c y g g

y g

g q

p c , g

j h a ,

p t

y c a r d s g . j h a

y

ipa.

() s y y

y

. t c g

g

g y

.

() n g y

p g r ,

y jha

.

() t c

g

y g

.

( ) t e agy r

g ,

y

.



47

s r n 12/2009 t c' j h a b

() i y

ipa 2007

2008 g,

y

.

( ) t c

g

g jha

m 2009.

() y

. pg

e p

q g . s

y

jha. x,

gg ipa 2009,

g

g

g '

jha, g eu

g

g y , y ,

a /e p .

IV.( ) t c g y

q

y

g. t q

g g

.

( ) u i p a , c

g ,

g

g .

t

g y

c 2007,

g

, g

.

() a rg

c x

g ,

y

.

V.() b

(

y y g

) . m g y ,

y , g

g g

g y e c h q , e c

d g , y g

m pg

d

.

replY o the

commission



48

s r n 12/2009 t c' j h a b

OBSERVATIONS

13.i g c

g

g g

g

.

Box 1 Examples o strategic andnonstrategic investments projectsCase 2: Project not ollowing annual

programme t g

y

y . t c ' g

2 0 0 2 y

‘ y y

’ ,

j h a ,

j 2002, ‘q

y

’.

14.w , g

y .

t c y

g m j i

.

Box 3 Examples o ineicient andineective distribution and use o EUunded equipmentm y c a r d s

g . t m y

i

g . a

y 2009.

INTRODUCTION

2.a cards, jha

y gg

ipa.

t g

g

p c

, g j h a

i pa

g ,

30 % 35 % . t

5 8 . 6 2 0 0 7

75.5 2008.

3.() t c'

c ' g . h ,

y

ipa 2007

2 0 0 8 g g

y

,

g.

() t c

g

,

.

c g , y

,

.

replY o the

commission



49

s r n 12/2009 t c' j h a b

t bh i tx a

( i t a ) g

m (

i t a r g c m )

y ita. t ita

100 %

g

y . c

bh i

g b mg sgy (

j y 2 0 0 8 ) . t

ita g

bh, ita

r g c , y m , s

, b l tz.

19. t g bcp

,

g y . i ,

x

g b (

g) y

eu . a g

y

,

y

.

t c y x g

s g a c q u i s

b c p b

g y

y q g g

y y y

y ( y y

bcp). t eu

b q eu

g y

.

t q y

y m y l

s p y . t c

u nh c r y

g . s q

y a 2008,

2008.

t c

g

y ec dg

g ,

y g y a

.

Box 5 Example o anonimplemented bordercrossing point projectb y c

m b hzg

G m y x

y s 2004, c

g 2 .9

G

g o 2 0 0 4 .

s g

g

e

s b h . i , G b c p

y g y m

y t bh. i

, c x

y g x

.

y

ipa 2007 2008

g,

.

replY o the

commission



50

s r n 12/2009 t c' j h a b

24.i ,

: y

ipa 2007 2008

g ,

y

.

25. t c

g

y

.

Box 8 Example o inrastructureproject with lack o impacto bcp g

y y ita

. ag bh

g ( g g )

g , ,

y

b h

gz,

. i ,

y

ita

g , g

g g

g y .

26.b

( y y

g ) .

Box 6 Example o an investmentenorcing the rule o lawC 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 nV l o r a, A l b an i as , y

g y g y

g y , qy ,

qy y

y .

i , gg

2009, my j

g

.

i , g

g g

y

g

.

23.a c y

g ,

1 my 2006, b

h z g , m g , s

Yg r m

g ,

1 j y

2008. e g

g

y

c

. t g

g

m s . t

g

g eu g. t

x g

y y

.

replY o the

commission



51

s r n 12/2009 t c' j h a b

() i b ,

1. i

g

q

.

() w

y

. t c

, g

g.

34. t g jha

. p y

, g

g gg

. p y x

m s

.

i , g

g

, y

( . g . ,

g) b

y .

1 n 2007

(c) 2008 (a, s, mg

Yg r m).

a q

g , g y

x

c g . u y ,

q e c ,

g y y

y ec.

Investments not matched with necessary i n s ti tu ti o n al c ap ac i ti e s

27. t c g y

q

y g .

w g

q

g

g

. t

y g

g gy.

28. t g

g y . i t

g g

it y ,

g g

. t

.

x

.

() c y mg, bcp

( g 85 % )

i . o

b c p y j

2009. mg gg

g

g

y

2 0 0 9

.

replY o the

commission



52

s r n 12/2009 t c' j h a b

38 .ag c g

,

g,

yg s

e b hzg

g

g

. t

y

y

.

Box 11 Examples o judicialtraining centres JTCsi y, my j

y ' x

g

gg ay

t g j g p .

a

y , x y

g x . n

g

. t my j

2009 g g.

c y y y

g .

a g g , g

g

y y 2009

g gg g. a g, y

y

g

g .

Box 9 Unstable staing situationin public administration in Albaniaand the ormer Yugoslav Republic o Macedoniaug

g . t

c g

gy

g

g g

.

s

g

d m g p

a my l

g

.

c g y m y

g g

y y

. t y

g y c . t

y

q

y

y g.

Box 10 Examples o enhancedoperational capacity t cy y

g

g y

y x ,

x .

replY o the

commission



53

s r n 12/2009 t c' j h a b

Box 12 Examples o ‘learningbydoing’ projects in Bosnia andHeregovinaCase 2: Incomplete hand-over o responsibilities to the beneiciary —War Crimes Chamber i ,

y

, . . 2 0 0 5 2 0 0 9

. s ,

g

g

, y g

g g 1 5 % g y

c 2 0 0 9 . h ,

, gy

c ( ' )

y

g d 2009 .

46. t c g

, y

,

g ,

y ( g

)

g

, y .

47. t y

g

c y

y x

y

.

t y

g t g t g y

g q

y .

d g ,

c gg

, s c

g

g g

jtc.

41.a

g c a r d s g

jha, x

eu m s jha

g m y

j 2 0 0 2

.

43.c g

g

. t c

.

44. t c

x g

y g

, g y

, g .

'

y

y i pa.

replY o the

commission



54

s r n 12/2009 t c' j h a b

53.d y

y cards

g b

2005

a

.

u ipa,

g

y :

b t y g

b o 2 0 0 8 t

a 2 0 0 9 . a

o 2009.

54. t c y

. a

y 2 0 0 8

g y gg

jha . rg

g g ec dg

. t

x

y g g

y g

g g .

48.i y

, g g

g gy ec hq

, e c d g .

m, y g

m p

g d

.

a g j h a g g g

ipa 2009,

g g '

, g eu g

gy ,

y , a /e

p .

49. t r g c c

2 0 0 8

s y p

g j h a

gg

.

w x ,

g g y

m g ,

a y , r g r g i

(marri) rg ac

i (rai) .

52. t e agy r

y

. t c

gy

g ,

y

.

replY o the

commission



55

s r n 12/2009 t c' j h a b

CONCLUSIONS ANDRECOMMENDATIONS

56. t j h a

y g g i

p a a

y

.

57.i g ,

c g

y

c e,

v c, un hg c

r g , i o

mg, i c t

Yg

. m g g y

ec dg m

s ' g

c y . t c g

2 0 0 8

a 2 0 0 9 ,

g

g . t x ,

y

g,

o 2009.

t r g c c

g 2008

s y p

g jha

gg . d g

g g g .

Box 14 Example o uncoordinatedmultidonor investment activitys 2002

. t

'

g g g

g '

, y ,

g g

. t

y m y i . l y

my i

y g

yg 50 . a

g g

e u x

y

x.

55 . t g ,

,

y ,

g c

g

.

replY o the

commission



56

s r n 12/2009 t c' j h a b

Recommendation 2

() b

(

y y g

) . m g y ,

y , g

g g

g y e c h q , e c

d g ,

y g

m pg

d

.

( ) y

ipa 2007 2008

g ,

y

.

( ) t c

m 2009

g

g jha

.

() t c

y

g y. ty

g

, y

y ,

g

;

g .

Recommendation 1

() t c

y

g y. ty

g

, y

y ,

g

;

g .

( ) t c g y

q

y

g. t q

g g

.

() p

g x ; g

y ,

y c

x ‘ ’

g g 2009.

() a rg

c x

g ,

y

.

replY o the

commission



57

s r n 12/2009 t c' j h a b

Recommendation 3

t c g

g y

, y

.

p y

s g a c q u i s b c p

y q

g y

.

() y

. pg

e p

q g . s

y

jha. x,

gg ipa 2009,

g

g

g '

jha, g eu

g

g y , y ,

a /e p .

replY o the

commission



e c a

Special Report No 12/2009

The efectiveness o the Commission's projects in the area o Justice and Home

Afairs or the western Balkans

lxg: p o e u

2009 57 . 21 × 29.7

isbn 9789292074548

:10.2865/80334



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Q J A B 0 9 0 1 2 E N C

EUROPEAN COURT OF AUDITORS

IN THIS REPORT, THE EUROPEAN COUR T OF AUDITORS ANA LYSES THE

EFFECTIVENESS OF THE EUROPEAN COMMISSION’S PROJECTS IN THE

AREA OF JUSTICE AND HOM E AFFAIRS FOR THE WESTERN BALKAN S.

THE REPORT COVERS BOTH INVESTMENT AND INSTITUTIONBU ILDING

PROJECTS IN THE FOUR JUSTICE AND HOME AFFAIRS SUB AREAS:

ASYLUM AND MIG RATION, INTEGRATED BORDER MANAGEMENT,

JUDICIARY AND POLICE.

AGAINST THE BACKGROUND OF A D IFFICULT P OLITICAL AND

ORGANISATIONAL ENVIRONMENT, THE COMMISSION’S MANAGEMENT

OF JUSTICE AND HOME AFFAIRS PROJECTS HAS BEEN LARGELY

EFFECTIVE. HOWEVER, THE COURT IDENTIFIED SHORTCOMINGS,

PARTICULARLY IN TERMS OF OWNERSHIP AND SUSTAINABILITY OF

RESULTS. THE REPOR T CONTAINS RECOMMENDATIONS WHICH COULD

HELP THE COMMISSION TO PROVIDE MORE EFFICIENT AND EFF ECTIVE

ASSISTANCE.

european court of auditors - the effectiveness of the commission’s projects in the area of justice...

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