I NSTRUMENT FOR P RE - ACCESSION ASSISTANCE (IPA II)
2014-2020
DRAFT ACTION DOCUMENT
IPA II BENEFICIARY
Support to Civil Society in
awareness rising, advocacy
and recovery assistance to
flood affected areas
The Action will support the civil society efforts in
awareness rising for flood prevention, as well as
implementation of the short and mid-term efforts for
recovery of flood-affected areas through support for
the priorities in the area of environment,
employment, education, health, social inclusion and
any other sector excluding the reconstruction of
housing and public infrastructure.
1. Rationale
PROBLEM AND STAKEHOLDER ANALYSIS
Bosnia and Herzegovina was hit by the heaviest rainfalls in May 2014 resulting in some of the worst
floods on record. More than 50 people has been killed and tens of thousands people have been
displaced and very high material damage occurred. The estimation is that at least 1 million persons
have been affected in one way by the May floods.
Water retention by soil and slopes was surpassed. These effects were aggravated by pre-existing
environmental degradation associated with environmental degradation factors such as deforestation,
intrusion in river beds and construction in hazardous risk exposed areas.
The whole of the watershed leading to the river Sava was overwhelmed and peaked, generating flash
floods and carrying debris downstream creating a path of destruction and desolation. The
accumulated downstream flow of water, mud and debris caused widespread floods in the plain. As the
river Sava peaked, drainage from the plain was made impossible causing the retention of water in
lowlands for an extended period. Rainfall also caused more than 4,000 landslides in Bosnia and
Herzegovina, prompting a landmine warning as 120,000 unexploded mines remain and could be
unearthed by flood waters.
A large number of municipalities immediately declared a state of emergency, with others following at a
later stage. It is estimated that a total of 81 local governments suffered damages, losses, as well as
social or environmental impacts of a varying degree. Around 90,000 persons were temporarily
displaced from their homes and more than 40,000 took extended refuge in public or private shelters or
moved in temporarily with relatives or friends.
In sum, the total economic impact of the disaster (destruction or severe damage to property,
infrastructure and goods as well the effects of destruction on livelihoods, incomes and production,
among other factors) is estimated to have reached 3.98 Billion BAM. Most of it impacted the private
sector; families, small, medium and large businesses, and agricultural producers, including an
undefined number of vulnerable sectors of the population.
The floods are estimated to have caused the equivalent of nearly 15 percent of GDP in damages (9.3
percent of GDP) and losses (5.6 percent) in 2014 in Bosnia and Herzegovina. This amounts to around
2.49 Billion BAM of damages and 1.49 Billion BAM of losses. The hardest hit economic sectors were
agriculture, transport and productive activities. As a result, the economy of Bosnia and Herzegovina is
expected to contract by 0.7 percent in 2014. The floods are expected to put further strain on public
finances, raising the fiscal deficit from a baseline of 2 percent of GDP to 4.5 percent in 2014. A
significant public sector financing gap of 1.7 percent of GDP has opened up, despite identified
additional (to pre-floods needs) financing from domestic and international sources. The trade deficit is
likely to come under pressure, widening to 34 percent of GDP in 2014 while the current account deficit
is projected to increase from the baseline 7.8 to 9.7 percent of GDP in 2014.
The damages are not uniform in character along different sectors and affected municipalities due to
their different origin, i.e. landslides, floods or erosion, and intensity of the event.
The Recovery Needs Assessment, conducted by domestic authorities with assistance provided by the
European Union, the United Nations and the World Bank, found that floods affected nearly one million
residents of Bosnia and Herzegovina.
The Delegation of the European Union to Bosnia and Herzegovina launched in August 2014 the EU
Floods Recovery Programme which is aligned with the Recovery Needs Assessment. The Programme
is worth Euro 43.52 million, out of which EU finances EUR 42.24 million EUR, to help flood affected
communities in Bosnia and Herzegovina. This ongoing Programme will contribute to flood recovery as
immediate measure and it is implemented by the United Nations Development Programme in Bosnia
and Herzegovina (UNDP), UNICEF and IOM, until October 2015. This assistance is focused on
reconstruction of about 4,000 dwellings for approximately 14,000 people, restoration of critical local
services and community infrastructure (including schools, health and social welfare centres, water and
sanitation facilities, small community roads and bridges) in 50 localities, as well as providing support in
retaining and creating up to 2,000 jobs in flood-affected areas. Selection of beneficiaries is based on
the findings of the Recovery Needs Assessment and a public calls that are being announced, with a
particular focus on the most vulnerable, such as the elderly, families with children and persons with
disabilities, among others.
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However the EU Floods Recovery Programme does not cover issues such as rising awareness,
advocacy and recovery assistance to flood affected areas.
Furthermore, the complex political system in the country reflects in many different approaches to
management of rivers, lumbering, spatial planning and dealing with illegal contractions, landslides
recovery and prevention, etc. In addition, almost no level of government has proper early warning
system or strategies/plans on flood prevention. Lack of proper management of rivers, lumbering,
construction activities, environment impact assessments, etc. contributed to devastating floods in May
2014.
Therefore, the civic engagement as well as public awareness rising are needed in order to contribute
to prevention of new floods.
The second part of EU assistance from IPA II, amounting to 43 million EUR, will help BiH improve to
its resilience to natural disasters, helping local NGOs with social development recovery assistance,
and other necessary measures.
This EU assistance will focus on the issues which are not covered through the EU Floods Recovery
Programme, including rising public awareness on prevention of floods, local authorities’ accountability
on prevention of floods and accountable management of water beds, assistance to recovery of
jeopardised small independent businesses, smaller interventions in environment, employment,
education, health sectors, etc.
This assistance proposes 2 million EUR from IPA 2014 with aim to support the civil society efforts in
awareness rising for flood prevention, as well as implementation of the short and mid-term efforts for
recovery of flood-affected areas through support for the priorities in the area of environment,
employment, education, health, social inclusion and any other sector excluding the reconstruction of
housing and public infrastructure. The main purpose of this intervention is to contract grass roots local
and international civil society organisations operating in BiH to implement of this assistance.
This Action is supposed to provide good visibility of the European Union in the most flood-affected
areas in Bosnia and Herzegovina, but also to ensure proper civic engagement in advocacy for future
prevention of floods (for instance, issue of inappropriate maintenance of systems for water drainage
channels or environment management, etc). In addition, this intervention is also expected to “seed”
the civil society-government-citizens partnership in order to have the local communities working in
integrative manner in the flood recovery process.
In order to ensure proper coverage of the most flood-affected areas in BiH it is proposed to divide
these areas into 9 geographical lots containing, in total, 41 municipalities as elaborated below:
Indicative allocation of funds by lot/geographical distribution:
Lot 1: Doboj region: (Doboj-Jug, Doboj-Istok, Usora, Modriča)
Lot 2: Bijeljina region: (Lopare, Šekovići, Sapna, Teočak)
Lot 3: B. Šamac/Domaljevac region: (Vukosavlje)
Lot 4: Tuzla region: (Lukavac, Srebrenik, Petrovo, Gračanica, Kalesija)
Lot 5: Zenica region: (Žepče, Maglaj, Zavidovići)
Lot 6: Prijedor region: (Banja Luka, Čelinac, Sanski Most, Oštra Luka)
Lot 7: Derventa region: (Laktaši, Srbac, Bosanski/Novi Grad)
Lot 8: Brčko region (Orašje, Donji Žabar,Odžak)
Lot 9: Kladanj region (Olovo, Živinice, Bratunac, Milići).
Foreseen minimum and maximum thresholds for these grants are between 100,000 and 200,000 EUR
with implementation period between 6 and 12 months. If the allocation indicated for a specific lot
cannot be used due to insufficient quality or number of proposals received, the remaining funds will be
reallocated to another lot.
In order to enable faster contracting procedure there will be a request for derogation sent for reduction
of period for application for open procedures from 90 down to 45 days. The evaluation can be finalised
by the end of the year, and contracting can be done in 2015 as soon as the Framework Agreement for
IPA 2 will be signed and ratified.
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OTHER FINANCIAL ASSISTANCE
In addition to the EU Floods Recovery Programme, 810,475,743 EUR have been pledged at the
Donors’ Conference in Brussels in July 2014 for Bosnia and Herzegovina. Out of this amount
670,700,000 EUR will be implemented in the form of loans and 139,775,743 EUR in the form of
grants.
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2. INTERVENTION LOGIC
LOGICAL FRAMEWORK MATRIX
OVERALL OBJECTIVE
Support to civil society organisations in recovery of flood-affected
local communities in Bosnia and Herzegovina.
SPECIFIC OBJECTIVE; To contribute to the implementation of the
short and mid-term efforts for recovery of flood-affected areas
through support for the priorities in the area of environment,
employment, education, health, social inclusion and any other
sector excluding the reconstruction of housing and public
infrastructure.
RESULTS


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CSOs raise public awareness on a need for liable
management of water beds, drainage systems, lumbering,
as well as on risks of irresponsible spatial planning which
may affect drainage of rain falls through public awareness
and advocacy activities.
CSOs assist targeted municipalities to develop flood
prevention and monitoring plans as well as early warning
systems.

CSOs assist affected small independent businesses to
recover in flood affected areas.

CSOs assist the flood affected families in economic
recovery.

CSOs assist in environmental recovery in flood affected
areas.
OBJECTIVELY VERIFIABLE INDICATORS (*)
SOURCES OF VERIFICATION
Quality assessment of CS intervention
in social-economic recovery in BiH in
the flood affected areas.
Reports, meetings, visits,
monitoring missions
OBJECTIVELY VERIFIABLE
INDICATORS (*): Number of
interventions by CSOs in achieving
short and medium objectives for
assistance to recovery of flood affected
areas.
SOURCES OF
VERIFICATION
OBJECTIVELY VERIFIABLE
INDICATORS (*)
 Number of CSOs interventions
in advocacy and awareness
rising for flood prevention.
 Number of flood prevention
actions including early warning
systems.
 Number of assisted institutions
in the area of education.
 Number of CSOs interventions
provided to economic recovery
of floods affected families.
 Number of CSOs interventions
to recovery of flood-affected
small independent businesses.
 Number of CSOs interventions
SOURCES OF
VERIFICATION
Reports, meetings, visits,
monitoring missions
ASSUMPTIONS
CSOs keen to assist in
recovery of floods affected
areas.
Local authorities
responsive to initiatives for
future flood prevention.
Reports, meetings, visits,
monitoring missions
ASSUMPTIONS
Affected municipalities will
be very much interested
not only in ensuring
assistance for socioeconomic recovery but
also assistance in
prevention of future floods
and development of early
warning systems.


in environmental interventions.
Number of interventions in the
area of social inclusion.
ACTIVITIES
MEANS
OVERALL COST
Activities to achieve the identified results:
Grant scheme with 10-14 contracts
EUR 2 million
-
-
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CSOs provide assistance in education, health, social
inclusion in flood affected areas.
CSOs in BiH identifying the needs for flood affected
municipalities in terms of awareness rising and advocacy
for future flood prevention as well as for recovery
assistance in the targeted municipalities in socio economic
areas (economic recovery, cultural recovery, prevention of
diseases caused by floods, environmental interventions).
Selection of grant beneficiaries through a Call for
proposals.
Implementation of awarded actions for flood recovery in
the targeted municipalities.
Provision of grants to third parties (where applicable)
Monitoring, evaluation of the activities and, if necessary,
advisory activities performed by the EUD.
ASSUMPTIONS
The whole amount will be
utilised. Certain cofinancing can be expected
from CSOs but not
possible to forecast.
ADDITIONAL DESCRIPTION
The complex political system of the country reflects in many different approaches to
management of rivers, lumbering, spatial planning and dealing with illegal contractions,
landslides recovery and prevention, etc. In addition, almost no level of government has
proper early warning system or strategies/plans on flood prevention. Lack of proper
management of rivers, lumbering, construction activities, environment impact assessments,
etc. contributed to devastating floods in May 2014. Therefore, civic engagement as well as
public awareness rising are needed in order to contribute to prevention of new floods.
In addition, the main focus of this intervention is to ensure appropriate visibility of the EU
assistance to flood affected areas, but equally important, rise public debates and advocacy
activities for prevention of similar floods in the future. For example, in some municipalities
floods occur almost on annual basis due to the fact that local authorities are dealing mainly
with the consequences of the floods not the causes. In addition, this intervention is also
supposed to seed more regular civil society-local governments-public cooperation in order
to ensure better management of local resources which will reduce the risk of floods in the
future.
This intervention is accompanied with small assistance, where necessary, in the areas of
environment, education, employment, social inclusion. The whole Action will be closely
coordinated with the EU Floods Recovery Programme in order to avoid overlapping but also
to ensure synergy and maximisation of the impact of the EU assistance to flood affected
areas.
Re-granting will be possibly used. The duration of the intervention will be up to 12 months.
5. CROSS-CUTTING ISSUES
ENVIRONMENT AND CLIMATE CHANGE (AND IF RELEVANT DISASTER RESILIENCE)
Given its nature, the design of the Action does not include a specific environmental dimension.
However, environmental consideration will be integrated into the Action since the whole
purpose of the Action is to increase public awareness and conduct public debates on
prevention of floods in the future (which cause mainly socio-economic problems) accompanied
with minor assistance to flood affected locations in areas of environment, employment,
education, social inclusion, etc. Therefore, all these activities will have an impact on
environment (more accountable lumbering, planting of new trees, maintenance of drainage
channels and river beds, etc).
It is envisaged that continued activities and development in this area towards influencing the
municipal governments to deal with the country's very real environmental problems would be
covered by the project.
Local authorities have an important role to play in environmental protection and civil society
groups have been active in co-operating at local level in order to bring about improved
practices. It is anticipated that this project would encourage and "systematize" this
development.
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ENGAGEMENT WITH CIVIL SOCIETY (AND IF RELEVANT OTHER NON-STATE STAKEHOLDERS)
The Action envisaged the engagement of civil society organisation in implementation of the
Action objectives. In addition, engagement of entities’ association of cities and
municipalities is also foreseen in order to ensure share of best practices, exchange of
practices, views, opinions, etc.
EQUAL OPPORTUNITIES AND GENDER MAINSTREAMING
Great challenges remain in Bosnia and Herzegovina to achieve gender equality and to allow
equal opportunities for all.
In the Terms of Reference it will be requested that successful candidate use gender-sensitive
methodologies, closely monitor gender equality and minorities' rights and make sure that
they are addressed properly.
MINORITIES AND VULNERABLE GROUPS
As regards international human rights instruments, Bosnia and Herzegovina has ratified all
major UN and international human rights conventions. The principles of the European
Convention on Human Rights are entrenched in the Constitution of Bosnia and Herzegovina,
which also guarantees the supremacy of this Convention over national legislation. However,
the Constitution fails to guarantee full access to fundamental human rights to so-called "nonconstituent peoples" in BiH. The judgment of the European Court of Human Rights in the
Sejdic and Finci case has yet to be addressed, which relates to some major constitutional
amendments. The Action will seek to mainstream addressing this issue as a key obstacle in
the BiH EU integration process.
In addition to constitutionally inherent political discrimination, Roma minority remains to live
in extremely vulnerable conditions regarding health, employment and education. The very
slow progress in this area will be also addressed by the Action.
6. SUSTAINABILITY
In order to achieve sustainability beyond the implementation period, the design of the
assistance takes account of the following:
 Financial assistance will be delivered in appropriate funding instrument in order to
respond to different needs in flood affected areas. This will be done in a flexible,
transparent, cost-effective and results focused manner;
 It will be requested that each grant application achieves flood prevention document
plan which is expected to become an official document of each targeted local
community (municipality).
The focus of the assistance is on the analysis of what led to the extreme floods in May 2014,
how to prevent them in the future including production of flood prevention plans. All these will
be accompanied with the assistance in the areas of education, health, employment, social
inclusion etc.
Development of strategic documents for the flood affected municipalities is expected to be
achieved through joint efforts of local governments and civil society.
The Action will seek to have its outcomes enacted in relevant local legislation wherever
possible with ensured financial resources and implementation mechanisms.
7. COMMUNICATION AND VISIBILITY
Communication and visibility will be given high importance during the implementation of the
Action. The Action will develop communication messages and tools adapted to these
different audiences. They will be detailed in the Communication and Visibility Plan to be
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drafted at the beginning of the Action. All necessary measures will be taken to publicise the
fact that the Action has received funding from the EU.
The Action will put particular emphasis on the dissemination of best-practices and exchange
of information in order to increase the impact of results and bring a multiplier effect to other
parts of the country.
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