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From ENPI to ENIMoving cooperation forward at the EU's external borders

INTERACT ENPI is a project funded by the European Union Issue: April 2013

INTERACT ENPI Issue: April 2013page 02

Contents / Editorial

EditorialWelcome to the first issue of the INTERACT ENPI newsletter! In these pages you will find the objectives and results of some of the on-going projects, as well as discussions of current concerns and priorities regarding the programmes overall. The aim? To increase the visibility of ENPI CBC results and to enhance information-sharing among the entire ENPI CBC community.

As always happens when a new programming period is about to start, everyone is looking to confront the challenges of the future, while not forgetting the issues of the present. And 2013 is a key year when it comes to drawing lessons from current programmes that may impact the elaboration of the regulatory framework of future programmes.

But how do ENPI CBC programmes currently stand? In this newsletter, we provide an overview on the situation of the thirteen on-going ENPI CBC programmes. Via the opinion of key stakeholders, we explore the implementation of these programmes as perceived in Member States and Partner Countries. The impression emerging from our last confer-

ence in Jordan was of positive steps taken in 2012, which have enabled a clearer general picture, as well as a better understanding of the thematic areas on which local and regional stakeholders have focussed cooperation initiatives.

One of the thematic areas specific to ENPI CBC, which has shown particular implementation difficulties, is objective 3 “Ensuring sufficient and secure borders”. Can this aim only be met through investment projects or are other forms of soft cooperation also valid? In this newsletter we explore the different approaches taken by programmes. Taking into account the financial impact of Large Scale Projects (LSPs) on the overall ENPI CBC performance, we also draw preliminary lessons from the implementation of LSPs that should be taken into account in the future programming period.

And, looking to the future, what will the next financing period bring? Well, new programmes will of course appear and, potentially, new countries may join the ENPI CBC com-munity. But, above and beyond, substantial changes will be brought to the management of programmes. Better alignment with other CBC instruments remains a priority, but identifying a common set of responsibilities capable of resonating with such a large, diverse group of countries remains the core chal-lenge in elaborating the new ENI CBC regulatory framework.

Last but not least, what role will INTERACT ENPI have? Well, our role is likely to change on an on-going basis as new priorities are identified, but rest assured that we will continue our commitment to providing a wide range of services to all programmes. We aim for continuity, but also change, with a stronger focus on communication and capitalisation, and we look forward to helping in the set up of new programmes and to providing extensive support to Partner Countries.

This is the first in a series of three newsletters we will bring out this year. We welcome any feedback from readers on any content.

Please address comments to [email protected]

The INTERACT ENPI Team

DisclaimerUnless where otherwise stated, the contents of this publication are the sole responsibility of the INTERACT ENPI project and can in no way be taken to reflect the views of the European Union.

ContactINTERACT Point Turku ENPIELY Centre – Box 236Ratapihankatu 3620101 Turku – [email protected]

PublisherINTERACT ENPI project Editorial Team- INTERACT ENPI project- Bridget Hourican Graphic designbee media + technology gmbh

ContentsEditorial ................................................... page 2

ENPI CBC programmes – State of play ................ page 3

ENPI CBC projects – “Ensuring efficient and secure borders” .......................................... page 5

Objective 3 beyond Large Scale Projects ............ page 6

Programming 2014-2020 ................................ page 7

INTERACT ENPI news .................................... page 8

INTERACT ENPI Issue: April 2013 page 03

Programmes

From launch to implementation: a Q&A on the current state of play of ENPI CBC programmes.

What was the response to the calls for proposals?

Since the programmes were approved in 2008, forty-one calls for proposals have been launched, of which only one is still on- going. These calls have generated almost 7000 applications, and collectively applicants requested seven times more than the total funding available! Both the high number of applica-tions and the amount of funds requested can be attributed, in part, to the broad definition of priorities and measures.

Which objectives generated most, and least, applications?

Objective 4 ‘People to People’ received by far the most appli-cations (twenty times more than the available funds) - prob-ably because it is geared towards soft projects with smaller grants, which facilitates a wider participation of organizations in the calls. Objectives 1 and 2 (economic and social devel-opment, and common challenges) also proved popular (appli-cations for seven times more than the available funds), while Objective 3, “Efficient and secure borders” remains by far the least addressed: border management is still more likely dealt with by national actors than regional ones, and the majority of border management projects are selected through direct award procedure.

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How successful has the contracting and implementation process been?

Seventy percent of the selected projects have now been con-tracted, and are under implementation. But only sixteen proj-ects have been closed and only 15 percent of available funds have been paid out in pre-financing. However since 2011 the programmes have greatly speeded up the awarding and con-tracting of funds (although these figures will change when the on-going selection process in four programmes is finished).

Which themes were contracted most successfully?

The themes resulting in the highest number of contracted projects are: promoting harmonised development of tourism; business and SMEs development; good governance and plan-ning; transport, logistics and communication solutions; environmental protection; sustainable use of natural resources; emergency preparedness; institutional and community cooperation exchanges (sport, social issues, health, culture, research & education).

What about the LSPs?

Currently fifty-three large-scale projects (LSPs) have been identified across nine programmes. They cover various themes including border crossing point infrastructure, energy, trans-port, and environment. Of these LSPs, twenty-two have been contracted and are under implementation. Efforts are being made to contract the remaining projects before the end of this year and this would allow a suitable period for imple-mentation. The large sums, the wide-scale activities, and the high requisite level of project management capacity, mean that LSPs carry by far the highest risk of any projects in the programmes.

ENPI CBC programmes – State of play

The reference data in this article is taken from December 2012 and was provided by the mid-term evaluation team with the approval of the European Commission


Programmes

What difficulties have the programmes encountered?

The relatively small levels of spending by the programmes thus far - 15% for projects and 29% for technical assistance – are indicative of the difficulties encountered since the official launch of the programmes. These difficulties include: the late start of the programmes, the long duration of the selection and contracting processes (both for projects selected through calls for proposals and those receiving direct awards) and the lengthy procedures involved in expenditure verification and payment authorization.

And the solutions?

For this programming period, especially during this last year for contracting, steps can still be taken to improve the performance of the programmes in spending EU funds. For the future, the experience has, of and in itself, suggested solutions to some problems: for instance in the future the calls for proposals could have a thematic focus, which would reduce the number of inappropriate applications and so lessen the administrative burden on the JMAs/JTSs. The LSPs could also be identified and developed at an earlier stage to lessen the risk of losing funds.

Testimonial: Black Sea Basin

Iulia Hertzog, currently head of the JMA, has worked with the BSB programme since 2006, when the cross-border cooperation was first launched: “Working for the Black Sea Basin programme during this last seven years has been challenging but rewarding in terms of experi-ence, especially for the relations

we, the officials of the countries around this basin, have built among ourselves. Like any other family, we’ve had our ups and downs, but we have constantly found creative solutions to our common problems and we’ve been able to progress and learn from each other. For the future pro-gramming period, we aim to further improve the capacity to present successful, results-oriented projects, especial-ly by organizations from Partner Countries, and we look forward to seeing beneficiaries from Turkey acting as lead partners, now that the IPA funds will be pooled together with the ENI funds”.

The Med-Sea Basin CBC Programme is an important mile-stone in Euro-Mediterranean relations. It has helped enhance cooperation and mutual understanding between both shores of the Mediterranean. It is a programme pre-mised on significant principles, namely: co-ownership, mutual benefit, common interest and joint management. In addition, it is one of a kind in acknowledging Arabic as a working language, besides English and French.

The programme followed a bottom-up approach when it came to identifying, formulating and agreeing the priorities of the eligible Egyptian governorates (territories) at the national level. This contributed to enhancing the Egyptian government's efforts in fostering local administration and decentralization.

Moreover, the participation of Egyptian partners in different calls for proposals and in formulating project proposals has contributed considerably to enhancing the competencies of local partners in project management, particularly with regard to better understanding of EU rules and regulations. Not forgetting of course the positive contribution to socio- economic development.

Egypt intends to build on the experience of implementing the current programme in order to benefit optimally from the new Med-Sea Basin Programme 2014-2020. Egypt is keen to participate in the current drafting process to ensure that the new programme reflects the priorities of the Egyptian eligible governorates and of the Southern partners, when it comes to responding to the pressing needs of society and citizens in a new changing reality.

CBC in Egypt: testimonial from Ambassador Nihad Abdel Latif, Ministry of Foreign Affairs of Egypt

Egypt joined the Mediterranean Sea Basin ENPI CBC Programme in 2009. Over 900 institutions have participated in the three calls launched by the programme. 28 institutions participate in 21 approved projects and have received grants for over 9 Mio€. Egypt is particularly active in projects dealing with solar energy, local economic development, agro-food industry, sustainable tourism, cultural heritage, waste recycling and water management.

European Council President Van Rompuy, Ambassador Abdel Latif (3rd right) , EU Ambassador To Egypt James Moran and Heads oF Business Federations after announcing the start of 5 new ENPI MSB CBC projects


The bilateral Polish-Belarusian border – from local crossing to international border

Before project implementation, the border at Połowce (Poland)-Pieszczatka (Belarus) was a small local crossing with a capacity for only 500 passenger cars in both directions. The crossing was not open 24/7 and clearance was in tem-porary containers; security was poor and there were queues, delays, as well as the risk of accidents and collisions.

Two large scale ENPI CBC projects have been approved, one for each side of the border. Both projects seek to upgrade border access roads and to construct buildings intended for vehicle clearance, checkpoint, shelter, and other specific purposes. The projects also envisage soft activities such as establishing a Steering Group and holding meetings to coordinate actions.

On the Polish side, “Infrastructural development of the Połowce–Pieszczatka road border crossing Stage III” was the first ENPI CBC large scale project to be approved and contracted, with a grant of EUR 4.8 million. Implementa-tion began in July 2011. Ultimately, twelve buildings will be constructed, including a guards’ pavilion and an inspection centre. The new crossing will have a daily capacity of 2000

passenger cars, 50 buses and 200 trucks. On the Belarusian side, the project "Construction and instrumentation of the road border checkpoint ‘Peschatka'- stage II” is the largest of all ENPI projects with a grant of EUR 10.9 million. Implementation began in February 2013. Twenty-three build-ings will be constructed, including a building for sanitary, phytosanitary and veterinary control. This crossing will have a daily capacity of 1130 cars, 50 trucks and 20 buses.

Projects

“Good fences make good neighbours” as the Robert Frost poem goes, and certainly when it comes to the EU’s external borders, ‘good fences’, which help lessen delays, speed up custom clearances, and reduce crime for all the bordering countries, are crucial for neighbourly relations. This prioritizing of border control is reflected in current EU strategy. Member States can avail of national and regional programmes for strengthening border controls, and six years ago the ENPI CBC Strategy Paper 2007-2013 included as its Objective 3, “Ensuring efficient and secure borders”. This opened the way for financing large-scale investment projects aimed at border security and modernization within the framework of ENPI CBC.

At first sight, border control may not seem an obvious area for cooperation, which is what CBC aims at. But, in practice, all countries recognize that efficient, well-run borders help lessen difficulties, improve trade, and regulate inter-state relations. In fact, border control has proved one of the areas where countries are willing to cooperate, and a substantial share of funding has been devoted to projects in this field. Such projects deliver general benefits, but the actual direct impact on the regions where these projects are implemented has not always been duly demonstrated.

Learnings from the current implementation of Large Scale Projects (LSPs)

Most CBC programmes have now identified, selected, and contracted their LSPs, and many of these projects are cur-rently being implemented. However the process was not without delays and difficulties: the majority of LSPs were not identified till a later stage – after the adoption of the Joint Operational Programmes – and many of these LSPs, once identified, were not ready for implementation.

Additional delays occurred around filling out the application forms and supplying the documentation required for such large-scale investment. Beneficiaries frequently proved inexperienced at completing forms, in particular the man-datory annexes. Putting together the documentation proved

time-consuming and expensive, and frequently public bodies had insufficient funds to cover technical requirements and feasibility studies, so had to wait until state money became available. None of this was helped by what seemed to be the constant rotation, within the various administrations, of personnel responsible for LSPs.

In preparation for the new round of programming 2014-2020, it’s important that those LSPs to be included directly in JOPs are identified as early as possible. For the next period, programmes will be requested to stress the cross-border dimension and the actual benefits for the border regions of the intervention. In general, big infrastructure projects will be subject to financial limitations and to new rules aimed at addressing the problems faced in the current period.

Ensuring efficient and secure borders

Construction of the buildings on Połowce-Peschatka border crossing (Polish side), February 2013. Source JTS Poland-Belarus-Ukraine ENPI CBC Programme


Objective 3 beyond Large Scale ProjectsObjective 3 does not exclusively mean Large Scale Projects approved through direct award. Several programmes have addressed this objective with softer operations selected through calls for proposals. We present a couple of examples from the Southeast Finland-Russia and the Mediterranean Sea Basin ENPI CBC programmes.

Projects

Upgrading the Imatra-Svetogorsk crossing point on the Finnish–Russian border

The border between Russia and Finland was crossed 12 million times in 2012. This is a new record which sets new challenges: both countries acknowledge the importance of developing border crossing infrastructure and improving functionality, for the benefit of trade and individuals alike.

An important transit connection between Russia and Finland is the Imatra (FI) – Svetogorsk (RU) border crossing point (BCP), where two projects supported by the South-East Finland– Russia ENPI CBC programme are currently being implemented. Both projects were selected through calls for proposals and are supported under the priority “Common challenges – border crossing”. The projects are aimed at upgrading Imatra- Svetogorsk to the status of an international BCP.

The first project ‘Two-way railway traffic via Imatra- Svetogorsk border-crossing point’ looks at what would be involved in opening a two-way railway line for cargo traffic. The project started in February 2012, with a grant of EUR 277,000. The increase in rail services will help reduce the risks (environmental and accident-related) that come with road traffic. The project will also contribute to upgrad-

ing border crossing control equipment in railway stations, and will create a joint networking model for companies and authorities involved in solving border crossing problems.

The other project, ‘Imatra-Svetogorsk Railway Border Crossing Development’ is a study looking at modifications in railway cargo patterns between South Finland and Russia. It started in March 2012 with a grant of EUR 659,000. Experts will give estimates for import-export and transit cargo, as well as their recommendations for developing border crossing points and railway stations. In addition, equipment for carrying out inspections on trains will be purchased for the Russian side.

Custom MED

Increasing and improving trade across the Mediterranean area has been identified as a top priority under the European Neighbourhood Policy. This means simplifying and speeding up customs clearances in key Mediterranean ports. Put simply: if the ports aren’t improved, then trade will go elsewhere.

The pilot project, CUSTOM MED, supported under the ENPI CBC MED programme, has a financial envelope of € 1.163.186, and is coordinated by the University of Genoa in Italy. The project aims to improve the circulation of goods between the Middle East and the European Union in four ports: Aqaba, Beirut, Piraeus and Alicante. These four port authorities intend to develop common customs procedures and to increase ICT usage. This will help reduce the time of import-clearing processes, and will ultimately boost competitiveness in all the ports.

CUSTOM MED is a good example of a project which uses trans-national cooperation to improve customs and increase the mobility of goods, to the benefit of all partners. Big infra-structure projects are not the only answer to objective 3, and in fact CUSTOM MED is very much in line with ENI CBC’s new strategy, which now defines objective 3 more broadly as: « promotion of better conditions and modalities for ensuring the mobility of persons, goods and capital ».


Future

What’s new for CBC at the EU’s external borders?

As with other programmes in the field of external cooperation, new CBC programmes should have a thematic focus. The pro-grammes will identify key sectors, based on clear strategies, and will limit intervention to what is essential and complements other initiatives, and to areas where actions have a clear cross-border added value. In addition, programmes will now focus geograph-ically and may extend to include adjoining regions as well as major social, economic or cultural centres, if there is a clear benefit for the core eligible areas. As already announced, the new instrument gives more responsibility for management and implementation to all participating countries. But what will this involve in concrete terms?

The legal framework now favours harmonising, as far as possi-ble, the management of ENI CBC with that of ETC and IPA CBC. Each programme will have a Managing Authority, designated by the hosting Member State, who will take responsibility for the programme vis-à-vis the Commission. Crucially, this Managing Authority will rely on assistance from all participating coun-tries to fulfil its tasks. Of course, the Commission is conscious of the challenge this poses, especially for countries who are not EU Member States. Fields such as control and audit should allow for the possibility of different levels of involvement, reflecting countries’ different capabilities. The most important thing is that countries assist the Managing Authority to the best of their ability.

What stage are countries at now with new programmes?

Despite on-going uncertainty over the timing of the regulatory framework, countries are already starting to prepare future programmes, drawing on their experience from the current programming period. New Joint Programming Committees (JPCs) are currently being established, north to south, members are appointed and preliminary meetings organised to discuss the new geography and planning. JPCs of three programmes are already set up, and others will be established before the summer. To date, three Managing Authorities have been officially appointed.

New countries in the loop

The good news is that certain countries would like to join the CBC family! The representative from the Ministry of Foreign Affairs in Algeria attended the INTERACT ENPI annual confer-ence of last October in Amman and was also present in Rome for the second programming meeting of the Mediterranean sea basin programme. Azerbaijan – whose Ministry of Economic Development also attended Amman - is likewise showing a great interest in the Black Sea basin programme.

Programming 2014-2020The new ENI draft regulation laying down the provisions for the future of cross-border cooperation was adopted by the College of Commissioners on 7 December 2011. After several months of negotiations within the Trilogue (Council, EP, EC), its final text is almost complete. Title III, concerning CBC, does not differ much from the original proposal, but the general programming framework for external cooperation will be largely influenced by the final outcome of the tripartite discussions. With regard to finalising and adopting the key ENI CBC regulatory documents - i.e. the Programming Document and the Implementing Rules - the European Parliament will see its role increased. Programmes are encouraged to continue working in parallel while integrating the new context in their planning.

Joining the CBC community

By Mohamed Lamine Habchi, Desk Officer for Euromed Affairs within the Algerian Ministry of Foreign Affairs

Algeria has decided to join the programming phase of the CBC Mediterranean Basin 2014-2020 as an active observer. We are glad that the ‘principle of variable geometry’ - which allows for cooperation between a limited number of countries sharing a common interest in a given field of activity – is being applied. And we are heartened that the local au-thorities are unquestionably key players in the conception and implementation of the development plans. The CBC programme is, by the richness of its themes, likely to provide a response to partner countries’ needs and priorities. Those of Algeria are fully covered.

The challenge for a new CBC programme

By Silja Sorgus, Estonian Ministry of Interior, Adviser at the European Territorial Cooperation Bureau

Our experience in cross-border cooperation and our need for new bilateral projects are the starting points of the Estonia- Russia CBC programme. We’re delighted that the programme will be implemented fully in shared management mode, a true progress in cooperation beyond the EU’s external borders. Our main challenge is to build up a joint programme and ensure effective management and control systems in both countries. Another challenge is to ensure more focused priorities and a results-oriented approach, which takes into account the needs of the border areas. We look forward to seeing the relevant regulations adopted and to start-ing preparations for the Financing Agreement between the Russian Federation and the European Commission.


INTERACT ENPI news

Current programmes in full swing!

The programmes face major challenges, particularly when it comes to project management. Experience of working on the programmes has motivated INTERACT ENPI to shift its approach from providing individual support to encouraging net-working. Two network meetings (Communication managers and Audit and Finance network) were held in early 2013. Network meetings are important as forums for discussing specific themes, and as platforms for programme staff to meet and establish direct, independent contact with each other.

How to capitalise on programme experiences?

Capitalising on experience is one of INTERACT ENPI’s priorities for 2013. INTERACT ENPI written guidance will analyse what has worked well and what hasn’t, and this will inform the new 2014-2020 programmes. A study of the challenges related to the identification, selection and approval of Large Scale Projects has already been launched, and a second study is underway to provide guidance for the elaboration of indicators for the next programming period, through the identification of gaps and areas for improvement in the current indicators’ system.

Better Communication

With ever more projects running, it’s becoming increasingly important to disseminate the results of current programmes. Enhancing communication activities is a priority. Key experiences relating to the current period will be compiled in a Communication Guide 2014+, which will also include relevant experiences from ETC and IPA CBC programmes.

The goal this year, is for a stronger commitment and coordina-tion role for the 2013 European Cooperation Day, including promoting on-going ENPI CBC projects. Based on last year’s success, events will be organised on and around 21 September 2013 to promote cooperation through the entire EU territory, as well as between the EU and its neighbouring countries. INTERACT ENPI will act as the link between the INTERACT II programme and the ENPI CBC community.

INTERACT ENPI works for the future

For the future programming period, INTERACT ENPI will develop the ENI CBC 2014-2020 Programming Guide in close collaboration with DG DEVCO and EEAS. The Guide is a single support document, encompassing all the elements required for the drafting of Operational Programmes. Most importantly, INTERACT ENPI will continue to support Partner Countries. The real challenge is to address these coun-tries’ new responsibilities, arising from the decision to apply ‘shared management’ to ENI CBC programmes. The briefings held in Belarus, Georgia, the Republic of Moldova, Tunisia and Ukraine in 2012 showed that these additional responsibilities represent an important move forward for Partner Countries, and that there is a further need to explore how this should be best approached. With the elaboration of future Implementing Rules already well advanced, a second round of briefings will start in the second half of May 2013.

Bridging services for current and future programmesINTERACT ENPI continues its on-going support to current ENPI CBC programmes, while preparing for the new period.

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