Abstract From the perspective of Kosovo, this article contributes to a growing literature

focusing on the substance of donor-driven democracy promotion. Drawing on extensive

empirical research between 2010 and 2012, the research provides greater insights into

which donors are providing what sort of assistance; how the content and focus of aid are

decided and formulated; and the behaviour of the European Union (EU) and other large

donors compared with small bilaterals and private foundations. By including the category

of ‘governance-oriented’ assistance to classify donor initiatives, a more nuanced mapping

of priorities and strategies is offered, which distinguishes between those measures designed

to engage civil society (developmental), those focusing on institutions and elite level

change (political), and interventions specifically designed to promote closer interaction

between government and nongovernmental actors. The conclusion reached is that,

although overall levels of aid to Kosovo have remained relatively stable since 2008, donor

behaviour is in flux, with evidence of an emergent distinction between what larger donors

offer and the provision of smaller bilaterals and private foundations. This, it is argued, has

serious implications for the capacity of the EU to continue providing extensive aid across a

wide range of issues and policy areas as part of its pre-accession assistance.