Terms of Reference (ToR) – End-Term Evaluation

Programme Title: AGE+ Building Age-Friendly Communities through Intergenerational Action in Serbia and Kosovo
Countries: Serbia, Kosovo

Project/Programme Number: 1980-01/2023
Lead Partner Organisation: Volkshilfe Solidarität (VHSOL)
Programm duration: 01.01.2023 – 31.12.2025
Total value of the project: 1.200.000 EUR

1. Context and Background

The ADA Framework Programme “AGE+” is executed by the Austrian NGO Volkshilfe Solidarität (lead partner) and three local implementation partners (Serbia: Novosadski humanitarni centar (NSHC) and TARA International Consulting (TARAIC), Kosovo: Syri i Vizionit (SiV)), and is funded by the Austrian Development Agency (ADA) and Volkshilfe Solidarität.

Social, political and economic context and background information

The AGE+ program addresses the challenges of aging populations in six municipalities in Serbia (1. Šabac and 2. Sombor = responsible under TARAIC, 3. Novi Sad and 4. Surdulica = responsible under NSHC) and Kosovo (5. Peja and 6. Istog = responsible under SiV). It aims to foster age-friendly and inclusive communities while addressing gender-specific needs, particularly of older women.

Serbia:

Serbia, like many other European countries, is experiencing a global shift toward an aging population. By 2050, the proportion of individuals over 65 years old is projected to rise from 20% in 2021 to 25%. By 2041, every fourth person in Serbia will be over 65. This demographic shift is driven by a combination of extended lifespans, declining birth rates, and, in some cases, emigration, leading to a rapidly aging society.

According to 2011 census data from the Statistical Office of the Republic of Serbia, more than 93% of Serbian municipalities are considered demographically old. On average, elderly men make up 42.87% of this population, while elderly women constitute 57.13%, indicating that women are particularly vulnerable to the challenges of aging. These statistics underscore the urgent need for a societal framework capable of addressing the specific risks and needs of an aging population, particularly elderly women, who are more likely to face old age in an environment unprepared to support them.

One key issue is inadequate social protection and long-term care for elderly people, especially those with disabilities. Informal caregivers lack guidance, and services are fragmented across welfare, healthcare, and pension systems, essentially leaving Serbia without a cohesive long-term care system. Additionally, community-level services are insufficient, leading to isolation and loneliness, particularly among elderly women living alone.

Social inclusion is another major challenge. Elderly individuals, particularly women and those with disabilities, face neglect by institutions, low civic participation, and exclusion from digital services. The shift to online government processes exacerbates this digital divide. Abuse of the elderly, including physical, psychological, financial, and verbal forms, further complicates the situation.

A gender and needs analysis revealed most elderly are ethnically Serbian and Orthodox, with high property ownership among women. While Serbia’s gender equality laws mandate balanced representation in local assemblies, older people, women, and individuals with disabilities remain underrepresented in decision-making processes. Despite legal advancements, practical equality remains elusive for these vulnerable groups.

Kosovo:

Kosovo, compared to European countries, still has a younger average population, changing family structures and huge emigration of young people are a growing factor and will affect the demographic development negatively with all its known consequences. The official forecast is that by 2031 13% of the population will be over the age of 65 years and rapidly growing in subsequent years, even up to 22,3% by 2050.

Currently, living conditions for many elderly individuals are difficult due to inadequate social services and healthcare. Only about 800 individuals are licensed by the ministry to provide social services, and there are just 20 licensed non-governmental organizations offering various forms of social and family support. These organizations are understaffed, underfunded, and heavily reliant on donations, while government and municipal funding for elderly care is insufficient to meet the needs of the growing elderly population. The lack of adequate day centers and elderly homes, many of which fail to include disability accommodations, further exacerbates the problem.

Care for the elderly is still largely performed by family members, with women bearing the brunt of this responsibility. Family caregivers often lack the proper equipment and knowledge to care for immobile elderly individuals, those with disabilities, or those with conditions like dementia. Abuse and violence against elderly individuals are rising but are typically categorized as domestic violence if reported, with little action taken.

A gender and needs analysis in two target municipalities revealed that 70.27% of the population originates from Kosovo, while 29.73% come from neighboring countries, including 14.86% from Albania. Most elderly respondents (83.78%) identified as ethnically Albanian and adhered to Islam. Property ownership was high, with 85.14% of respondents owning property, including 85% of women. The analysis also found that the 60/40 gender distribution rule for municipal assemblies is largely respected in these municipalities, though challenges remain in practical representation.

Programme Summary

The AGE+ program and its activities counteract the current structure of Serbian and Kosovar societies, which tend to marginalize older people and inadequately address their specific, gendered needs (“ageism”). As a result, AGE+ aims to drive systemic and sustainable changes at the local political and community levels. Through strategic planning, targeted capacity building, cross-sector collaboration, and the involvement of older women and men in all aspects of the program—both at the community and political levels—the target communities will achieve the following:

• Strengthen existing initiatives and services for older people at the political level, with attention to the specific needs of older women and men.
• Develop new age-friendly and gender-sensitive initiatives/services at the community level.
• Ensure the transfer of capacities and knowledge to sustainably address the gender-specific needs of an aging society, including exchanges with other communities.

All program activities incorporate consideration of gender perspectives and gender-specific needs.

Key AGE+ activities include the establishment of four Serbian and three Kosovarian local community centers for age-, gender-, and intergenerationally focused activities in each target community. Each center hosts an individual pilot project. The transformation into age-friendly communities with intergenerational solidarity and gender sensitivity is marked by preparing target communities for entrance to the Global Network of Age-Friendly Cities and Communities. Additionally, Senior Citizen Councils (SCCs, referred to as AGE+ Councils) as well as working groups were established as key partners for creating age-friendly communities. The majority of members are over 60 years old as well as a minimum share of 50% female members. The council and working groups are supported by professionals (from the social, health, and administrative sectors), ensuring that the needs of older women and men are represented at the local political level. The objectives of AGE+ activities include: fostering recognition of the diverse older population, promoting the inclusion of older people, appreciating their contributions to society, respecting wants and needs of older women and men, and responding sustainably and sensitively to age- and gender-specific needs and preferences. In doing so, the program contributes to the overall mental and physical well-being of older people in Serbia and Kosovo!

AGE+ Objectives

The programme’s overall intended impact is that elderly people are able to age mentally and physically healthier, to become active citizens, to feel a better sense of belonging and to foster social connectedness within their community/municipality.

The intended outcome is that the well-being and social inclusion of elderly in Serbia and Kosovo has improved through the policy development and implementation of age-friendly communities with intergenerational solidarity, in which elderly (from all back-grounds, with and without disabilities) and specifically elderly women feel more empowered and confident in inducing a positive response to age-related needs and preferences. (Support to SDG 1,3,5,10,16, GAP III 3, 4, 6).

This is supported by four planned outputs:

1. Strengthened participation of elderly persons in dialogue with their governments at local level, voicing needs and involved in decision making on services to elderly.
   (Support to SDG 16 and GAP III 4)
2. Increased capacity of governments, private sector and other service providers to deliver services for elderly based on recommendations of the senior citizens (Support to SDG 1,3,5,10,16 and GAP III 3,4,6)
3. Increased provision of complementary services as support the elderly people on community level with pilot actions that enhance cross-sector learning and sharing of social innovations that include intergenerational and gender-responsive/transformative actions (Support to SDG 1,3,5,10,16 and GAP III 3,4,6)
4. Increased advocacy, visibility and awareness for policy changes that recognize needs-based rights of elderly people, commitment to oppose ageism, the necessity of age-friendly communities, intergenerational solidarity and equal participation and inclusion of men and women. (Supporting SDG 5,10 and GAP III 3, 4)

Target groups, direct and indirect beneficiaries

6 municipalities (4 in Serbia, 2 in Kosovo) intended to reach: 1.117 direct and 220 indirect beneficiaries consisting of: 18 community members, 23 employees in public institutions, 22 NGO staff members, and 24 older adults representing the elderly population in the AGE+ Council. 90 professionals and caregivers are intended to be trained to deliver professional training sessions. 13 volunteers from training centers and schools are intended to participate in intergenerational activities and services, allowing them to further develop their skills. 13 university volunteers are intended to be involved in pilot projects and supported in their academic work. 800 older adults are intended to receive support through participation in pilot activities and other assistance programs. 140 young people are intended to take part in pilot activities, fostering intergenerational empathy. 6 representatives of ministries or governmental institutions are intended to engage in advocacy actions and help disseminate project progress and outcomes. 2 members from selected chambers and 30 entrepreneurs are intended to promote the senior-friendly label.

2. Purpose and Objectives of the evaluation

According to the Austrian Development Cooperation (ADC) Evaluation Policy1 and Evaluation Guidelines2 in general, the AGE+ project partners decided to evaluate the framework programme with a clear purpose in mind. Volkshilfe and the local project partners are planning to apfor a second three years ADA-framework programme from 01.01.2026-31.12.2028 that will build on the results, challenges and learnings of AGE+. Therefore, the evaluation will happen and end before the end of the three-year programme as the deadline for the application of a Phase II framework programme will be end of September 2025.

Purpose of the evaluation

The purpose of the evaluation is to provide evidence-based learning for better strategic policy and decision-making, programming, implementation, and monitoring of our engagement in social inclusion, gender equality and fighting ageism. The evaluation will be formative and improvement oriented. Thus, the evaluation will serve first and foremost as a learning function that informs Volkshilfe Solidaritaet and the local project partners of progress to date and key points to build on for a possible Phase II.

Objectives of the Evaluation

1. To assess

• the intervention’s relevance with a focus on the needs of the beneficiaries
• the extent to which the envisaged results at outcome and impact level have been achieved
• how gender and inclusion approaches have been applied, how this is reflected in results achievement and what facilitating and hindering factors can be identified in this context; as well as

2. To develop evidence-based conclusions and recommendations that will help future programming and implmentation, in particular a possible Phase II of the programme

Users of the Evaluation

Primary users will be the management and project staff of Volkshilfe Solidarität and the local implementing partners and local stakeholders of the programme as well as the Austrian Development Agency (donor). The results of the evaluation will inform the primary users about the effectiveness of activities and investments as well as enable them to derive learnings for their future work in this context and for new interventions. The reflection of results might additionally strengthen the ownership and engagement of the involved local stakeholders and encourage all actors to further disseminate the AGE+ programme model in their countries and beyond.

3. Scope

The evaluation will cover the AGE+ framework programme during the implementation from project start (01.01.2023) until the end of data collection for this evaluation (estimated end of September 2025). The geographical scope of the evaluation includes all six target municipalities, of which four are in Serbia and two are in Kosovo. The evaluation will also look at possible value added through the programme’s set up as a multi-country initiative. Furthermore, the focus will be on effectiveness (outcome), (immediate) impact and relevance. The extent to which cross-cutting themes (see footnote 4) – in particular gender equality, social inclusion, including the principle to leave no one behind, and the human rights based approach to development – have been considered and are reflected in these results and relevant to the prospects must be reflected in this assessment. The ADA guidelines for Programme and Project Evaluations (see footnote 2) as well as the OECD DAC standards and guidance3 are the framework for and must be followed in the conduct of this evaluation.

4. Evaluation Questions

Relevance

1. To what extent has the programme tackled key development issues in healthy aging, active aging and fighting ageism?
2. To what extend has the choice of the AGE+ interventions responded to the needs of the older generation while drawing conclusions which refer to the different contexts and capacities/shortages of each municipality?
3. How are the rights, needs and voices of the target population, with particular emphasis on women (gender equality) as well as vulnerable groups (social inclusion/Leave no one behind), reflected in partnerships, planning, design and implementation? And how can this be adjusted to enhance effectiveness?

Effectiveness

4. To what extend have the interventions met it’s planned outcomes? Can unintended outcomes (positive and negative) be identified? What have been the facilitating and/or hindering factors to reach the outcomes and how can these be overcome/built upon?
5. To what extend have the interventions affected the social inclusion of older women, promoted their participation in decision-making processes and enabled them to equally exercise their rights?

Immediate Impact

6. How did the programme impact the policies and strategies for care-, social- and health-services for older people?
7. How did the programme impact the accessibility, well-being, attitudes, professionality, quality of service provision for the older generation on local level?
8. How have the lives and attitudes of the beneficiaries changed due to the AGE+ programme?

5. Design and Approach

The evaluation is expected to employ a participative, inclusive, gender-sensitive and human-rights-based approach. The evaluation team will base the study on data collection on existing programme information as well as field visits. Based on best practices for review methodology, the external evaluation team is required to propose an approach for conducting this evaluation which will be finalized after the receipt of the inception report including the feedback of Volkshilfe and ADA. The suggested design and approach will allow for adequate answers to the evaluation questions and will reflect:

• Choice of appropriate data collection tools that could include key informant interviews, focus group discussions and field visits. At least one field trip to each of the implementing partners (two in Serbia, one in Kosovo) will be taking place upon approval of the inception report, and one online meeting with the VHSOL program manager must be foreseen in this evaluation. All data collected must be disaggregated by sex, disability and age where possible.

• In any case, the chosen method should include qualitative methods. The data collection and analysis methods suggested are sufficiently rigorous to allow for a complete, fair and unbiased assessment. Data triangulation and quality control (in order to enhance reliability of findings) need to be discussed in the inception report.

• It outlines how the evaluation design, approach and methods incorporates the human rights-based approach, ADC’s cross-cutting issues, as well as the basic principles and quality standards applying to ADA’s programme and project design.4 The evaluation will also follow ADC’s and OECD/DAC norms and standards as well as ethical guidelines for evaluations (see footnote 2, 3 and 5).

The evaluation exercise will comprise (to be further specified, see pt. 6):

• Desk research: review of programme documents, relevant statistical data and understanding the programme’s design and contextual framework, etc.
• Data collection in the field: four municipalities in Serbia (Novi Sad, Surdulica, Sombor and Sabac) and two municipalities in Kosovo (Peja and Istog).
• Interviews (Focus Group Discussions, Key Information Interviews) with approximately 100 persons in Serbian target municipalities and approximately 65 persons in targeted municipalities in Kosovo:

• Direct beneficiaries: older women and men benefiting from the Intergenerational Community Centers and it’s offered activities
• Relevant collaboration partners: NGO’s as well as governmental and private institutions working in the care-, health- and social-servies, kindergardens, universities, Association of pensioners.
• Relevant decision-makers: mayor, city council, national institutions.
• Programme team: local project partners (NSHC, SiV, TARA) and Volkshilfe Solidaritaet

• Presentation of findings, ideas and recommendations (inception report, draft reports, final report, meeting)

The following set of information sources on AGE+ will be made available to the evaluator/s:
• AGE+ program documents (and amendments)
• Available yearly progress reports of AGE+ (2023, 2024 and half-year report 2025)
• Monitoring reports of AGE+
• Further documents (Local Gender Action Plans, activity lists, professional training material, AGE ID, etc.) produced through AGE+
• List of key stakeholders and beneficiaries

In the offer, the evaluation team should detail and justify which evaluation approach and mix of data collection and analysis methods they deem appropriate and feasible to answer the evaluation questions.

As the evaluation team will be working with vulnerable and marginalized communities, the principle of do no harm will thus be at the centre of every stage of the evaluation and guite data collection, data analysis and communication.

Methodological rigor will be weighted significantly in the assessment of proposals. Bidders are therefore invited to question and modify the methodology presented in these ToR or propose an approach that is deemed more appropriate.

The evaluation needs to follow the standards as outlined in the ADA’s Guidelines for Program and Project Evaluations.

6. Workplan

A total of 70 working days is currently estimated for this assignment, starting beginning of July 2025 and conclude by End of December 2025.