Business case and intervention summary: Emergency Humanitarian
Response
Title: UK Humanitarian Support to the Balkans in the aftermath of the
recent severe flooding (204799)
Intervention summary
What support will the UK provide?
A contribution of £780,000 for immediate UK humanitarian support to people affected by flooding in
Bosnia & Herzegovina (BiH) and Serbia:
 to assist BiH national government in the immediate search and rescue phase and meet the
basic needs of affected people through the deployment of a UK fire service water rescue team;
 to provide the Serbian and BiH national authorities with co-ordination and logistical support as
appropriate, including the provision of accurate public health information and messaging;
 for the provision of water treatment products, and sanitation and disease prevention activities
for up to 140,000 people in BiH through World Vision.
Why is UK support required?
On 13 May, extremely heavy rainfall caused torrential floods across the Balkans. The most affected
regions were the watershed of the Sava river, which forms the border between Bosnia and Croatia and
flows into Serbia, draining into the Danube in Belgrade. The deadliest impact occurred on 15 May,
when water levels in several right-bank tributaries of the Sava (including the Bosna and Vrbas)
suddenly and uncontrollably rose at unprecedented rates, flooding towns along the river valleys.
Throughout the affected region, floods caused substantial damage to buildings, railway lines and
roads. A number of main, local and village roads are impassable and access to a number of
communities is severely disrupted. Water management systems are affected and there is limited
access to drinking water in the affected areas. Landslides and mudslides are hindering relief activities.
The official death toll in Serbia is 22 and 24 confirmed deaths in BiH. The official number of evacuees
currently stands at 31,873 people in Serbia and approximately 35,000 in BiH.
BiH and Serbia declared a State of Emergency on 15th May 2014 and requested international
assistance.
What are the expected results?
Bosnia
Deployment of a UK fire service water rescue team of 33 people with four rescue boats to northern BiH
to work under the coordination of the Local Emergency Management Agency to:
 assist the government to survey and assess flooded areas;
 rescue and lead stranded people to safety;
 provide transportation and technical support and expertise to local engineers repairing electrical
supply between power stations and villages;


deliver food, water and medical supplies to affected households and rescue stranded livestock;
transport national personnel assisting with the disaster by boat to inaccessible areas.
Three UK civil engineering experts will also be deployed to BiH to conduct an assessment of damage
and longer term needs as part of an EU/UN/World Bank assessment team.
The UK will support World Vision to assist up to 140,000 flood affected people through the provision of
repaired water pumps, distribution of water treatment products, and sanitation and disease prevention
activities. Support will target the most vulnerable people and marginalised groups, including the Roma
communities and women-headed households.
Serbia
The UK will provide articulated lorries, pick-ups, and high capacity forklifts to assist with the logistical
movements and distribution of relief items across the affected regions, following a request from the
Serbian Red Cross. Two-way radios will also be provided to the Serbian Sector for Emergency
Management, to improve communication and relief coordination activities.
Bosnia and Serbia
Simple post-flooding public health messages, designed by Public Health England (and recently used in
Somerset) will be shared with civil society partners in Serbia and World Vision in BiH. The messages
will be translated, adapted for the local context, and disseminated to inform affected people in Serbia
and BiH and advise people on how to safely return to their homes.
Strategic case
A. Context and need for DFID intervention
On 13 May, extremely heavy rainfall caused torrential floods across the Balkans. The most affected
regions were the watershed of the Sava river, which forms the border between Bosnia and Croatia
and flows into Serbia, draining into the Danube in Belgrade. The deadliest impact occurred on 15
May, when water levels in several right-bank tributaries of the Sava suddenly and uncontrollably rose
at an unprecedented rate, flooding towns along river valleys. The Bosna river in central Bosnia
completely flooded the cities of Doboj, Maglaj, Zavidovići and Šamac, while the Kolubara, near
Belgrade, did the same to Obrenovac. Subsequently, the Sava itself rose to record-high levels,
threatening the cities of Slavonski Brod, Šabac and Sremska Mitrovica and numerous villages, but
the damage was relatively contained as the population, helped by army and volunteers, strengthened
flood defences. Nonetheless, embankments gave way in several places.
Bosnia: Forty-six municipalities have been affected by the floods. The total population of these
municipalities comprises approximately one million people or 25% of the country’s population
(although not all within the municipalities have been affected). 40,000 people were estimated to have
been displaced by the floods. Landslides and debris present an ongoing threat in the areas hit by
floods. Around 2,600 landslides have been reported.
The Federation of Bosnia and Herzegovina (FBiH), Republika Srpska (RS), and Brcko District all
declared a state of emergency on 16 May. There have been 24 confirmed deaths in BiH. The official
number of evacuees currently stands at 35,000 in BiH.
Serbia: Heavy rainfall has triggered flooding in southern and western Serbia. Heavy rainfall began on
13 May, and reports suggest that the region had three months’ worth of rain in three days.
Emergency management, fire-fighters and flood response teams have been deployed to the field and
engaged in rescuing and helping the affected population; dam strengthening and water pumping is
ongoing. Members of Police, Gendarmerie, Serbian Army and the Red Cross were also involved in
rescue operations. The floods have caused substantial damage to buildings, railway lines and roads.
A number of main, local and village roads are impassable and access to a number of communities is
severely disrupted.
Water management systems are affected and there is limited access to drinking water in the affected
areas, many landslides and mudslides have occurred. Railway traffic between Belgrade and Nis and
between Belgrade – Bar is completely suspended. 100,000 households are without electricity.
Major flooding has been reported in the Sava and Morava River basins and adjacent side rivers such
as Kolubara River. The exact flood extent still needs to be determined. Water levels are slowly falling
in the upstream region of the Serbian stretch of the Sava (near Sabac/Sremska Mitrovica), but the
water level in the downstream portion of the Sava River is rising.
The official death toll in Serbia is 22 and the official number of evacuees currently stands 31,873
people.
The Government of Bosnia and Herzegovina (GoBH) requested international assistance through the
European Union Civil Protection Mechanism.
An EU expert deployment team (assessment and coordination) was requested by Serbia. This is an
area where the UK has expertise and Cabinet Contingencies Secretariat (CCS) has circulated the
request to the UK’s cadre of trained personnel. If it were decided that UK should deploy such experts
under the EU mechanism, then DFID would be expected to pay.
Both Bosnia and Serbia are ODA eligible.
B. Impact and outcome expected
The impact of the UK’s humanitarian response to the crisis caused by the flash floods in Serbia and
BiH is to reduce suffering and maintain the dignity of those affected by the crisis, and build resilience.
The priority outcomes are to:
(a) assist national government in the immediate search and rescue phase and meet the basic
needs of affected people through the restoration of power lines and infrastructure by
deployment of a UK fire service water rescue team;
(b) provide the Serbian and BiH national authorities with co-ordination and logistical support as
appropriate, including the provision of accurate public health information and messaging and
communication equipment;
(c) Assist the logistical capability of Serbian Red Cross with transport and warehousing
equipment to unblock the bottleneck and speed up the supply chains, storage and distribution
of relief items. Provision of equipment to the Serbian Red Cross will enable it to respond
much faster to future disasters;
(d) provision of water treatment products, and sanitation and disease prevention activities for up
to 140,000 people in BiH through World Vision.
Appraisal case
A. What are the feasible options that address the need set out in the Strategic case?
BiH: Given the nature of the emergency, the limited number of potential partners and the immediate
issues faced in the water, health and sanitation sector and the complex political structure in BiH, the
options of intervening bilaterally or through an alternative response mechanism were not considered
feasible. The only other option considered in this section is therefore the ‘do nothing’ response.
Serbia: Given the nature of the emergency, the limited number of potential partners and the
immediate issues faced by Serbia following this natural disaster, the options of intervening bilaterally
or through an alternative response mechanism were not considered feasible. The only other option
considered in this section is therefore the ‘do nothing’ response.
B. Strength of the evidence base
Option
1 – Do nothing
2 – Deploy UK Search and Rescue,
support the World Vision programme in
BiH and provide logistical support for the
Serbian Red Cross.
Evidence rating
Low
Medium
BiH: Evidence on the impact of rapid onset humanitarian responses is difficult to attain. However, the
evidence of World Vision previous responses to humanitarian emergencies demonstrates that it has
been able to effectively support government’s efforts to meet affected population’s immediate needs
and to deliver continued support for efforts to deliver on-going humanitarian and recovery assistance.
There is no evidence that the ‘do nothing’ response in either country would meet the population’s
immediate needs or address the humanitarian emergency in the same way, and therefore the
evidence base for this is rated as low.
Serbia: Evidence on the impact of rapid onset humanitarian responses is difficult to attain.
Likely impact on climate change and environment
Categorise as A, high potential risk / opportunity; B, medium / manageable potential risk /
opportunity; C, low / no risk / opportunity; or D, core contribution to a multilateral organisation.
Option
1
2
Climate change and environment risks Climate
change
and
environment
and impacts, Category (A, B, C, D)
opportunities, Category (A, B, C, D)
C
C
C
B
Both options are deemed to have little or no opportunity or risk for having a negative impact on
climate change and the environment. Option 2 – Deploy UK Search and Rescue, support the World
Vision programme in BiH and provide logistical support for the Serbian Red Cross.– compliments the
ongoing support for the monitoring of water quality, to reduce the potential impact of water borne
diseases, so offers some support to help reduce the environmental impact of the event.
C. Costs and benefits
A detailed cost benefit analysis of the proposed programme was not undertaken. Given the projects
focus on meeting the immediate needs of affected populations and addressing immediate shelter,
hygiene, clean water and basic sanitation needs and reducing the possible impact of water borne
diseases, benefits are considered to significantly outweigh the costs.
D. Value for money assessment for the intervention
World Vision (BiH): Given the rapid onset nature of this humanitarian emergency, supporting this
programme is seen as the most appropriate option as it will give a timely and effective response.
World Vision is an NGO with a long-established presence and good coverage in BiH. It maintains a
strong relationship with the Bosnian National Disaster Management Office and works closely with
other NGOs. Officials have assessed a draft World Vision project proposal and are content with
actions proposed.
Judged against the three key components of the humanitarian value for money triangle: cost,
quality/appropriateness and speed/timeliness the programme of support for World Vision is
considered to deliver a high quality and rapid response underpinned by sound financial processes.
As such the programme is assessed as offering good value for money.
UK Search and Rescue (BiH): Value for money is taken into account through our relationship with
UK fire and rescue services – many costs (salaries included) are borne by UK fire and rescue
services themselves, DFID provides subsistence for the number of days deployed and funding for
logistical support.
Serbian Red Cross: The ability to source, inspect, contract and quickly move equipment is one
advantage DFID can provide partners. In this case the speedy provision of new, quality, equipment to
augment the logistics capacity of the SRC was a significant advantage to the organisation.
Specifications were agreed with SRC and sourced accordingly to ensure that equipment was fit for
purpose.
Commercial case
Direct procurement
A. Procurement and commercial requirements for intervention
World Vision (BiH): Direct procurement is not part of the response and therefore information for this
section is not required.
UK Search and Rescue (BiH): The need to deploy a UK Search and Rescue team as quickly as
possible was paramount. In this context, the scope for the intervention to use competition to drive
commercial advantage for DFID is limited.
Serbian Red Cross: Vehicle and mechanical handling equipment has been procured directly from
suppliers and commercial haulage arranged for the goods into country. Radio equipment was
provided from the DFID stockpile and not replaced (obsolete equipment for DFID’s deployment
module).
B. How does the intervention use competition to drive commercial advantage for DFID?
World Vision (BiH): Direct procurement not used; not applicable for this intervention.
UK Search and Rescue (BiH): DFID can draw on its contract with Air Charter to procure aircraft.
Serbian Red Cross: As equipment is not generic but specific to the needs, the scoping of the correct
specification led to numerous quotes being received from suppliers. To meet the correct needs at a
reasonable price, goods were sourced from the UK, Holland and Germany. Savings were achieved
where possible.
C. How do we expect the market place will respond?
World Vision (BiH): Direct procurement not used; not applicable for this intervention.
UK Search and Rescue (BiH): This intervention will not have a significant impact on the
marketplace.
Serbian Red Cross: This intervention will not have a significant impact on the marketplace.
D. What are the key cost elements that affect overall price? How is value added and how will
we measure and improve this?
Not applicable.
E. What is the intended procurement process to support contract award?
World Vision (BiH): Direct procurement not used; not applicable for this intervention.
UK Search and Rescue (BiH): For deploying a search and rescue team the key cost driver is the
difficulty of finding an appropriate flight (commercial or charter) at very short notice. There are
usually very limited options and high demand for these services.
Serbian Red Cross: An emergency procurement waiver has been provided by DFID’s Procurement
and Commercial Department (PCD) for this procurement. Given the specialised nature of the
equipment required, it was sourced from a number of different suppliers from across Europe.
Accordingly multiple quotes for equipment were received to evidence value for money on
procurement. All equipment provided was new, however to ensure equipment was correct all was
inspected prior to shipment.
F. How will contract and supplier performance be managed?
World Vision (BiH): Direct procurement not used; not applicable for this intervention.
UK Search and Rescue (BiH): Direct procurement not used; not applicable for this intervention.
Serbian Red Cross: One-off gift in kind.
Indirect procurement
A. Why is the proposed funding mechanism/form of arrangement the right one for this
intervention, with this development partner?
World Vision (BiH): Funds will be dispersed to World Vision following signature of a standard
Accountable Grant letter; following earlier precedent and standard practice with World Vision.
UK Search and Rescue (BiH): Through established EU mechanism.
Serbian Red Cross: Through the consignment directly of specific items.
B. Value for money through procurement
World Vision (BiH): World Vision has undertaken a rapid competitive tendering process for all
equipment and supplies purchased using the humanitarian grant. Where possible procurement has
been from the local market to help improve the speed of the response.
UK Search and Rescue (BiH): Value for money is taken into account through our relationship with
UK fire and rescue services – many costs (salaries included) are borne by UK fire and rescue
services themselves, DFID provides subsistence for the number of days deployed and funding for
logistical support.
Serbian Red Cross: All procurement was undertaken directly by DFID.
Financial case
A. What are the costs, how are they profiled and how will you ensure accurate forecasting?
World Vision (BiH): The grant to World Vision will be made as a single payment. The broad sectors
of response agreed with World Vision are as follows.
Expected Result
access to safe water
UK £
101,850
access to basic sanitation facilities
85,750
Flood-affected families displaced in collective centres
have access to minimum wash facilities according to
agreed sector standards
23,940
Direct Costs (personnel, transport and logistics)
19,105
Monitoring and Evaluation
Non Project Attributable Costs (7%)
TOTAL
3,000
16,355
250,000
UK Search and Rescue (BiH): Transport and Accommodation costs covered only. In line with
previous deployments of the UK Search and rescue team.
Serbian Red Cross:
 2 Volvo Globetrotter Trucks
 2 Schmitz 40ft Tri Axle Trailers
 2 Volkswagen Amorak Pickups
 2 CAT 2.5Tonne LPG Forklift Trucks
£255,000 for Trucks & Forklifts, £23,000 for Inspection of all items prior to purchase and Delivery of
all items to Customs Warehouse in Serbia; Red Cross covered import and customs duties/taxes.
B. Funding the proposal
World Vision (BiH); UK Search and Rescue (BiH); Serbian Red Cross:
Funding will be provided from the Conflict, Humanitarian and Security (CHASE) Department’s
Humanitarian response budget.
C. Payment of funds
World Vision (BiH): Funds were paid as a single payment following signature of the Accountable
Grant.
UK Search and Rescue (BiH): Funds will be paid on production of a detailed statement of
expenditure and submission of relevant invoices.
Serbian Red Cross: Consignment of goods only; no payment of funds involved (see above).
D. Assessment of financial risk and fraud
World Vision (BiH): The risk is considered low. World Vision has been a long term partner for DFID
and has successfully delivered projects and emergency assistance programmes, including in the
Solomon Islands.
World Vision is a well-established international NGO with rigorous rules and regulations governing its
financial procedures. It has been accepted as a pre-qualified partner on DFID’s Rapid Response
Facility (RRF) funding mechanism. This means that it has had its financial systems and processes
successfully assessed by DFID, and has been approved as a pre-qualified partner eligible to receive
DFID funding in the event of a humanitarian emergency.
World Vision has a well-established presence in BiH, and has robust tracking systems in place at all
stages of the supply chain from procurement to transportation to distribution.
World Vision also adheres to the following codes and initiatives: International NGO Accountability
Charter, the Red Cross Code of Conduct, the Sphere Project (Humanitarian Charter and Minimum
Standards), the Humanitarian Accountability Partnership Principles of Accountability, and the Active
Learning Network for Accountability and Performance in Humanitarian Action (ALNAP) and People in
Aid.
On the basis of the above, it is therefore assessed the risk of financial risk and fraud is low.
UK Search and Rescue (BiH): Through EU Established mechanism.
Serbian Red Cross: DFID direct procurement and consignment of items to the Serbian Red Cross
with Donor Certification agreement.
E. How will expenditure be monitored, reported, and accounted for?
World Vision (BiH): An interim progress report will be provided to DFID to highlight the activities
developed and achievements obtained during the first six weeks of the response.
A final narrative and financial report detailing the extent of the response and its impact will be
prepared by World Vision and submitted to DFID within one months of the end of the project. Any
unspent funds must also be returned to DFID within 1 month of the end of the project.
World Vision will submit their annual audited accounts to DFID for the years in which the project took
place.
UK Search and Rescue (BiH): Through EU established mechanism.
Serbian Red Cross: DFID direct procurement and consignment of items to the Serbian Red Cross
with Donor Certification agreement.
Management case
A. Management arrangements for implementing the intervention
World Vision (BiH): In the UK, DFID’s management of the project will be through the Humanitarian
Response Group, CHASE. CHASE will remain in close contact with the World Vision team. CHASE
will coordinate with the British High Commission on policy and communications issues.
UK Search and Rescue (BiH): Through EU Established mechanism. Daily reporting to the UK
Embassy in Sarajevo.
Serbian Red Cross: Serbian Red Cross to provide reports as agreed for this response and DFID to
monitor use and effectiveness of consigned items during future responses.
B. Risks of intervention and how these will be managed
World Vision (BiH): The risks are considered low. World Vision is best-placed to achieve the
expected outcome due to its long history working in BiH and developing comprehensive logistical
networks and strong partnerships with the Government of BiH and with other NGOs. The assistance
being provided through this emergency humanitarian response will be designed in conjunction with the
BiH National Disaster Management Office (national, entity, canton and municipal levels).
UK Search and Rescue (BiH): Risk are considered low, the team is trained, experienced, well
equipped and best placed to respond to Search and Rescue missions.
Serbian Red Cross: The Red Cross of Serbia has enough capacities to respond to the emergency
needs, and the mobilization of IFRC disaster response tools are not foreseen at the moment. However,
possibilities of joint work of the National Society`s own disaster response team (NDRT) together with
some members from neighbouring countries will be explored during the later phases of the operation to
support activities such as water drainage and household dehumidification.
Coordination among the Red Cross and Red Crescent Movement partners is ensured through regular
information exchange with IFRC and ICRC.
215 professional RC staff are currently engaged in the response operation, and 3,311 volunteers have
been mobilized and spent 34,640 volunteering hours for the purpose of the operation. Blankets, rubber
boots, ready-to-eat meals, drinking water, blankets, mattresses, cots, rubber boots, hygiene items have
already been distributed in affected municipalities.
The Red Cross of Serbia has a great experience in mobilizing volunteers in disasters, assisting people
in need, implementing relief distributions, organizing basic disaster response and first aid trainings for
volunteers. Each Red Cross branch has a disaster response team with the wide range of activities
including water rescue teams that are able to assist in emergency evacuations. The National Society is
maintaining a solid disaster response stock which enables its DM department to intervene during the
first hours of any disaster. Red Cross of Serbia branch secretaries are members of the local
emergency headquarters and are involved in the coordination and decision making processes. The
Red Cross of Serbia also has a mobile deployable technical team which is able to assist people during
and after floods with water pumping and wall dehumidification.
C. Conditions that apply (for financial aid only)
N/A
D. How will progress and results be monitored, measured and evaluated?
World Vision (BiH): An interim progress report will be provided to DFID to highlight the activities
developed and achievements obtained during the first six weeks of the response. A final narrative and
financial report detailing the extent of the response and its impact will be prepared by World Vision and
submitted to DFID within one month of the end of the project.
World Vision will undertake an end-point report to not only monitor the delivery of relief items, but also
to assess the overall effectiveness and impact of the response. This will include participatory
community evaluation methodologies as well as a wider stakeholder engagement. The report will be
shared with the donor and wider partners. Participatory methods will be used during the final report to
ascertain the usefulness and appropriateness of NFIs provided under this response. This will feed into
future procurement for World Vision pre-positioned supplies and supplies procured during future
responses.
DFID will look at lessons learned following the evaluation of this intervention and feed results into future
emergency operations.
UK Search and Rescue (BiH): In line with previous deployments, DFID officials will meet and with the
Search and Rescue Team to debrief and evaluate the deployment, identify lessons and requirements
of equipment and training as part of the ongoing DFID support for the UK Search and Rescue
capability.
Serbian Red Cross: We will evaluate the speed and ability of the Serbian Red Cross to handle
distribution of aid from outside the country as well as donated items from inside Serbia in future
humanitarian disaster responses.
E. Logframe
Quest number of logframe for this intervention: Logframe on World Vision funding only.