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1 FINAL REPORT Project output no. 6 Evaluation of CIP EQUAL Transnational Cooperation Principle Client: Ministry of Labour and Social Affairs (Ministerstvo práce a sociálních věcí) Na Poříčním právu 1/376, Praha 2 Contractor: Navreme Boheme, s.r.o. U Smaltovny Praha 7 Version: 6 (final) In Prague, 19th December, 2008 This evaluation is financed from the EQUAL Community Initiative Programme, from CIP EQUAL Evaluation Project No. 9/2005, Reg. No. CZ / /00.

2 CONTENT 0. INTRODUCTION Foreword Authors of the Report List of abbreviations Selected quotations from the evaluation visits and interviews Czech Republic Abroad EXECUTIVE SUMMARY SELECTED OBSERVATIONS SELECTED FINDINGS SELECTED RECOMMENDATIONS BACKGROUND AND THE NATIONAL STRATEGY EU and ESF aid to the Czech Republic in the period EU and ESF aid to the Czech Republic in the period CIP EQUAL CZ in the period Legal framework Supporting infrastructure Governmental policy EQUAL strategic areas and transnational cooperation Human resources development Employment strategy Innovation strategy What has EQUAL brought EVALUATION OBJECTIVES AND METHODS Evaluation objectives and strategy of their fulfilment European and transnational aspect of the evaluation Selection criteria of the countries Target groups of the evaluation Evaluation methodology Analysis of documents Questionnaires Evaluation visits Evaluation of processes Focus groups Continual (ongoing) evaluation Case studies Structured interviews SWOT...25 Navreme Boheme, s.r.o. 2

3 4. Observations according to the given evaluation tools Analysis of documents Questionnaire survey Evaluation visits, interviews and case studies Focus groups and evaluation of processes Findings according to the selected topics Preparation of the transnational cooperation Transnational cooperation administration and management Transnational cooperation implementation: activities, outputs Sustainability, mainstreaming and wider partnership networks Monitoring and evaluation Management of the CIP EQUAL and other HRD programmes funded from the ESF Description of the course of evaluation according to individual evaluation outputs Topic 1: Part of the study focused on the support in the preparation the first call of Priority axis Transnational Cooperation OP LZZ Topic 2: Part of the study focused on the assessment of Czech DP s work Topic 3: Part of the study focused on the assessment of the work of DP supported in other EU Member States Topic 4: Analysis of the specific aspects and the added value of the ESF projects based on the support of transnational cooperation Topic 5: Analysis of interesting approaches and specific areas of HRD in other EU countries Topic 6: Part of the study focused on the synthesis of the findings from previous parts of the study (part 1) Topic 6: Part of the study focused on the synthesis of the findings from previous parts of the study (part 2) Recommendations for the individual stakeholders Recommendations for the entities submitting and implementing projects Transnational cooperation preparation Transnational cooperation administration and management Activities, added value Sustainability, mainstreaming and wider partnership networks Monitoring and evaluation Recommendations for MA and NSS Role within the framework of the programme and relations to other actors Formulation of expected outputs and results of the transnational cooperation Preparation of the partnership agreements Transnational cooperation administration and management Sustainability, mainstreaming and wider partnership networks Monitoring and evaluation Conclusion to the recommendations for the managing authority Recommendations for the mainstreaming partners...52 Navreme Boheme, s.r.o. 3

4 8. Annexes (volume 2) Terms of Reference (original document in Czech language) Evaluation Topics Questionnaire Survey List of visited and interviewed contacts Evaluation Visits Scenario Template for Evaluation Visits and Interviews List of Case Studies Template for Case Studies Structured list of Information Sources Contact Data Settlement of Comments Navreme Boheme, s.r.o. 4

5 0. INTRODUCTION 0.1 Foreword The evaluation project Evaluation of CIP EQUAL Transnational Cooperation Principle commissioned by the Ministry of Labour and Social Affairs of the Czech Republic (MoLSA) took place in the period from April to October 2008 in the territory of the Czech Republic and ten European Union (EU) countries, to be specific, in Austria, in Germany, in Poland, in Slovakia, in the Netherlands, in the United Kingdom, in Portugal, in Spain, in Italy and in France. The individual evaluation steps, i.e. analysis of documents, questionnaire survey, evaluation visits and interviews, case studies, focus groups, SWOT and process analysis took place in accordance with the stipulated time schedule. The evaluation output was in total six reports (including this Final Report), which, in accordance with the stipulated time schedule and the contract, answered the individual evaluation tasks and questions. This Final Report summarises the observations done by means of the mentioned evaluation tools (Chapter 4) and the findings based on their analysis with regard to the evaluation questions (Chapter 5) and brings recommendations directed at the individual recipients of the outputs of this evaluation and the target groups (Chapter 7). In this report, the evaluation methodology is introduced in details, including description of the particular tools (Chapter 3.4), namely on the basis of an analysis of global and partial evaluation objectives, thus the objectives covering wider evaluation context and its particular steps (Chapters ). As we have structured the Final Report differently from the original tender documentation in the sense that we have used the above-mentioned combination of three views (observations according to the methods, findings according to the topics, recommendations according to the target groups), we mention an outline of the results of the evaluation according to the original points of the assignment by the contracting authority in Chapter 6. A highly valuable annex to this report is a summary of all the contacts and documents the twelvemember international team has gathered and used for the evaluation of the transnational cooperation (TC) principle of the Community Initiative Programme EQUAL (CIP EQUAL). We mention this annex above all because we presume further utilisation of these contacts and documents by the contracting authority s representatives and also by the other evaluators. The Community Initiative EQUAL differed from the main forms of the aid from the European Social Fund (ESF) in the past periods, among others, by the transnational cooperation principle. During the programming period, within the framework of the ESF programmes, also the chosen principles of the Community Initiative EQUAL are supported in cross-sectional way for the very first time. To be specific, besides the partnership and innovativeness principles, the transnational cooperation principle is concerned; the experience from CIP EQUAL is transposed into the Human Resources and Employment Operational Programme (OP LZZ), in which the transnational cooperation is included in the form of priority axes, to be specific, these are Priority axis 5a Transnational Cooperation (Convergence) and Priority axis 5b Transnational Cooperation (Regional Competitiveness and Employment). It is assumed that fulfilment of the transnational cooperation principle will enable to achieve still better results of the individual projects than those that would be able to be achieved without its application. Thus the sense of the evaluation of the transnational cooperation principle CIP EQUAL was, among others, to contribute to the improved quality of the results of the programming period. Navreme Boheme, s.r.o. 5

6 0.2 Authors of the Report Bernd Baumgartl, Austria, Germany Eduardo Figueira, Portugal, Spain Jan Kroupa, Czech Republic Marco Lorenzoni, Italy, Belgium, France Václav Misterka, Czech Republic Adrianus Jan Peekstok, the Netherlands, Great Britain Jiří Pstružina, Czech Republic Linda Skolková, Czech Republic Maria Spindler, Austria Aleksander Surdej, Poland Jakub Štogr, Czech Republic Josef Štogr, Czech Republic, Slovakia Petra Štogrová Jedličková (head of the evaluation team), Czech Republic 0.3 List of abbreviations CBA CIP EQUAL DPA ERDF ESF EES EU SPD MoLSA TC NSS NTF OP LZZ OP RLZ OP VK OPPA DP MA JROP TCA IB Cost-Benefit Analysis Community Initiative Programme EQUAL Development Partnership Agreement European Regional Development Fund European Social Fund European Employment Strategy European Union Single Programming Document Ministry of Labour and Social Affairs of the Czech Republic Transnational cooperation National Support Structure National Training Fund Human Resources and Employment Operational Programme Human Resources Development Operational Programme Operational Programme Education for Competitiveness Operational Programme Prague Adaptability Development Partnership Managing Authority Joint Regional Operational Programme Transnational Cooperation Agreement Intermediate Body In the text, a breakdown of the abbreviation is always mentioned at the first occurrence, an abbreviation follows in parentheses. This is used further in the text; in exceptional cases also the full expression is used for the purposes to increase understandability and fluency of the text. In the Czech version of the report, the abbreviations created from the Czech expressions are preferred; in case the Czech abbreviation has not been established, an abbreviation created from the original English expression is used. An outline of other abbreviations that were used within this evaluation project framework is mentioned in Chapter 3. Navreme Boheme, s.r.o. 6

7 0.4 Selected quotations from the evaluation visits and interviews Czech Republic The transnational cooperation was the most effective part of EQUAL at all. 1 It was an absolutely unique opportunity to compare culture company, working culture, negotiation, discussions, and bearing, in the wider sense of the word as far as to the pub. Selection of partners takes a lot of time, therefore it would be good to select from several partners that had been singled out, but there was neither time nor space to do so. At the beginning we did not suspect at all, what the transnational cooperation was in general, what was it good for, what we could expect from it and what was expected from us. The Czechs have realized they can learn something and that the matters are not secret, that everybody need not mind his own business and be afraid that someone would find out his tricks or steal him something. One has realized here we are not completely impossible idiots: for example, we had improved the Belgian project so that they gazed on it and will use our tools further. The project s administration was incredibly demanding, it cannot be compared to other European projects at all: innovation, gender mainstreaming, horizontal topics I am persuaded that none of the implementing entities has understood the content of these terms so far and that even the people from the MoLSA would not be able to define them precisely. And we were forced to pretend all the time we understand them and we work with them actively and to make up whole paragraphs about it into interim reports. I am sceptical that an obligatory partnership could bring concrete joint results I cannot imagine this from our experience. But sharing experience, practice, approaches and tools, including transnational meetings are wonderful. I would leave out conferences for the next time they are boring and mainly they are then just tourism for the most of the participants and I would focus on study visits for small groups. It was the best thing of the whole EQUAL to se how people work somewhere else Abroad The transnational cooperation helped us to go back over some of our traditional services; for instance, the experience made by our Spanish partner gave us the idea to look critically to gender stereotypes on kids care where only women are traditionally considered suitable to this activity. We re-focused our services, which are now provided both to men and women. We wish we had linked up (more closely) our transnational cooperation activities with the public policies promoted at the local level. This would have allowed us to achieve some tangible results from the TC component. Transfer of tools among partners is a critical issue, as several partners feel this practice as a loosing of ownership over the tools. Dialogue with the Management Authority was very intense and burdensome on administrative issues, while the Authority was very much less interested in the TC content of the project.. TC had a tremendous and beneficial effect of opening up the minds of national partners. It helped them in putting their specific local experience in context, by showing how under different national and local environments some trustable partners achieved their goals by the use of different approaches. 1 This citation and the following mentioned citations come out from the coordinators of the transnational cooperation (as the case may be of the whole project) of the individual partnership organisations in the Czech Republic. Navreme Boheme, s.r.o. 7

8 Linguistic barriers shall not be underestimated, and specific instruments have to be budgeted for in order to let partners communicate effectively. Partners should devote to TC a comparable amount of resources.. The provision for specific project management skills, with capacities in the area of conflict management and resolution, was a key element of our partnership, which proved being essential in order to solve critical situations. Being our first experience, we learned that in terms of TC we must be much more demanding since the planning phase, while being very much narrow in scope. We must build our project around very specific and job-related objectives. A lesson we learned is the following: avoid any aspect touching upon legislation and national specific contexts. Techniques, tools and technologies can be compared and exchanged, institutions cannot. We very much valued direct contacts among individuals. Direct interrelations, even those of an informal / social nature are essential for the achievement of common objectives. It is plenty of organizations, even solid and very well performing ones, which consider TC as an obligatory dimension of their national DPs, and do not take it seriously. This has to be understood during negotiation, and it is not an easy task. Partnerships have to invest hard to get real results from TC, it is not an easy job. One can do TC formally but not substantially, nobody will ever blame an organization for this So, many DPs in reality committed very little during their TC partnerships. If there is one single recommendation to be addressed to Management Authorities this is: Be committed to TC! Be involved yourselves in TC projects, touch with hands the benefits of international cooperation in order to convince implementing organizations of the real benefits of this instrument! We were not supported by our Management Authority in assessing our achievements under the TC component; this would have considerably enhanced our capacity to monitor our progresses and to redress our plans. The scarce attention to TC of several MAs is deplorable. MAs shall understand the incredibly high potential of this instrument in order to value it, and to explain clearly to implementing organizations what the real benefits can be of its use. Ah, you want to talk about this e-pain. 2 It was said repeatedly that TC was a value in itself. Even if it was not specified and measured in details, the cooperation took place at several levels, between the actors in different countries and often has resulted in on-going cooperation. 3 Awareness existed about the fact that the positive significance of TC had not been visualised and communicated sufficiently, the entities had not followed the mere information exchange and vague mutual learning. The possibility of the Austrian participating organisations to share the experience and to support origination of new ideas in international context was of the same importance in TC. 2 Austrian Ministry official reacting to a request for an interview QUAL in German means pain, suffering, torture 3 This citation and the following two citations come from Austrian evaluation reports concerning the CIP EQUAL implementation. Navreme Boheme, s.r.o. 8

9 1. EXECUTIVE SUMMARY The transnational cooperation was an obligatory part of the Community Initiative Programme EQUAL and a number of the participating organisations would not have included it in their projects on their own. However, the evaluation has proved that the participating bodies in absolute majority have gradually begun to perceive it as a component part of the programme and often, in spite of the initial disbelief and low expectations, they evaluate it as a very valuable and unexpectedly rewarding part. In a wide scale of particular results and outputs it is possible to find a common denominator: it is widening of the views, or in general the experience, widening of the context of thinking, perception, attitudes, behaviour, solutions etc. The most significant factors influencing efficiency and success of the transnational cooperation seem to be, according to the evaluation, compliance, as the case may be sharing the project objectives among partners, selection of a partner and partially the innovation rate of a particular project. Above all, thanks to this fact the preparatory and the initial stages of the project, which consequently have the principal impact on the whole implementation, seem to be as essential for the success of the transnational partnership. In this respect, also the cooperation with the managing authority and the quality of its support is mentioned as the key factors, too. In the course of the whole evaluation it also showed up that the Community Initiative Programme EQUAL had impacted in a specific context in the Czech Republic and it had interfered with it quite significantly. Without the framework understanding of this context it is neither possible to interpret the results nor to understand the findings. The following aspects of more general framework of the programme effects have shown up as the most substantial: Wider experience from implementation of similar programmes was missing on all parts managing and support structures, recipients (organisations; partnerships), clients; the programme brings not only new methods of work, but it also sets a different climate as a whole thanks to the volume of means that are disposed of. Above all, the suite of the europrofessionals - people, who have an idea, in a better case even direct experience in work within the EU context, who have the necessary personality and knowledge qualifications, who have adequate language knowledge, etc. - is only coming into existence. This is valid more noticeably on the part of the managing structure. Non-profit organisations in the Czech Republic are still unstable altogether as regards the sources of financing insomuch that the overwhelming majority of them practice the crisis management permanently instead of the strategic management. Reserves, own free sources that would not be spent in the operation and, above all prospect of any more stable financing with a more long-term perspective are missing completely. The situation is different in the implementation agencies that came into existence without their own mission for the purpose of implementation of the European projects and do not follow wider objectives or topics these do not need to feed from the projects the operation of the insufficiently financed non-profit organisations and the administrative demands do not burden them excessively account of them has been taken since the beginning (it means the funds for a coordinator s and administrator s salary are really used in this way and it is not necessary to pay from them normal employees of the organisation, who shall then administer the project somehow aside in addition to their normal duties). A tradition of formally negotiated partnerships that are not agreed on the basis of personal relations but on the basis of explicitly formulated objectives, clearly divided roles, rules stipulated in advance and open communication are missing. This relates both to transnational and national partnerships. The comparison among the Czech Republic and the other EU countries included in the evaluation is interesting, above all because it has not been possible to trace any considerable difference in the respondents reactions to the same questions and themes; however, it is possible to trace the differences in comparable extent of cases, namely the substantial ones. The individual partial differences may be followed best in the results of the questionnaire investigation; however, it may be stated in general that the differences resulting from maturity and immaturity are concerned namely both in good and bad meaning. Maturity and self-confidence of the senior EU Member States Navreme Boheme, s.r.o. 9

10 bring, on the one hand, well-established procedures, beaten tracks, proved methods, rich experience with partnership, well-established work culture that is not based on personal relations, open communication with partners, namely including authorities and institutions, etc. However, it may bring at the same time certain routinism, lack of interest in the gist of the matter and endeavour to maintain the status quo, excessively established character and commonplace conterminous to becoming stale. Compared to that, the immaturity of the newer Member States carries round immaturity and instability of the environment, which almost is not ready to absorb the aid of similar extent, clientelism or servility towards authorities and at the same time unprofessionality of officials, unproven procedures, incomparable conditions, lack of data, unreflected own tradition, etc. on the one hand, but on the other hand it may be a source of unexpected innovation, unusual interest in the matter and resolve to do something for it, great drive, willingness to learn and absorb new things, endeavour to show oneself in front of the others, innovative approaches and the like. The transnational cooperation creates a new dimension of the programme contributions; it exceeds the individual level of learning and search for innovations where not only an individual learns but the whole organisation and when the innovations are not searched for in a geographically limited area. In addition to that, the European dimension has brought the projects the knowledge that the problems are not, as a rule, limited to particular institutions or geographical territories, that they are common under certain conditions and mainly that they are jointly understood and solved at the European level. Through this practical level, the cognition of the appurtenance to the EU and understanding of the essence of the European convergence occur then. All of it the better an the worse clashed in various extent and various proportions within the framework of the transnational cooperation within the framework of the evaluated projects, and it is possible to state with certainty that it was very inspiring and that the international partnership within the CIP EQUAL framework was appreciated as high in the Czech Republic as in the other participating European countries. The following points summarise the most important observations, findings and recommendations, a more detailed and complete outline and reasoning are offered then by Chapters SELECTED OBSERVATIONS In the first phases of preparation of the transnational partnership some organisations were little orientated, they did not get the necessary information in time, they did not make use of the whole time of the preparatory phase for good selection of partners, negotiating of the framework objectives and formulating of the basic theses of the development partnership (DP) and consequently of detailed obligations formulated in the Transnational Cooperation Agreement (TCA). At the beginning some organisations even did not pay the necessary attention to this matter, the transnational cooperation was an obligatory component part of the project and thus for a part of the projects only a necessary supplement of the project itself, implemented with the partners within the framework of the national state. Some implementing entities acknowledged this openly; it was obvious from the context at some others. Some implementing entities chose the solution, according to which the guarantor of the transnational cooperation was one of the national partners, as a rule specialised in such activity. Only a smaller part of the organisations had already experience with a similar partnership with a foreign body. The managing authority and the support structure did not provide sufficiently efficient assistance at that time. In the first stage of the project implementation acquaintance with the partners took place mostly and a realistic picture about the course of the project was thus created. However, in this stage neither evaluations nor partners reflections, comparisons with the expectations and the like proceeded as a rule. Only later the differences in approaches, which were not fortuitous but were related to character and local culture of the given region, were reflected. The evaluation within the framework of the projects was limited to self-evaluation and questionnaires distributed at work meetings. Only a small part of DPs let an evaluation of the transnational cooperation drawn up (independently or within the framework of a larger whole, Navreme Boheme, s.r.o. 10

11 e.g. of the project or TCA). Reflection of these tools and the ability to use them for management and implementation of the transnational cooperation in the project were negligible. Great part of the transnational partnership was implemented in blocks, the apex of which was always a joint meeting of a working group or only of an organisational team. Considerable part of the work in these blocks was carried out through exchange of documents in process. It was easy to classify the projects according to the groups participating in the international meetings from managerial, research and creative groups (creating particular products, tools) to the projects focused of the middle staff, and in some cases also the target groups. The way of work and other related characteristics of the transnational cooperation differed thus a lot. Mutual compatibility of the individual national programmes was not a subject-matter of criticism; problems appeared from time to time due to unequal language knowledge. Within the framework of the normal duties of the grant recipients, regular monitoring took place, which was used, however, above all as a formal tool for the individual financing stages and the content value and utilisation of which are minimal. Sometimes even considerable modifications discussed with the managing authority did not occur in the monitoring reports. The project s closure is a highly administratively demanding operation, which is, de facto, a separate phase requiring considerable drive as a rule after factual termination of the transnational cooperation. Sometimes a problem is caused by the fact that not all partners close their projects at the same time and thus at the close of the project weakening of the transnational activities of those partners occurs, who have already finished their projects. The conditions for the project s closure and detailed instructions were not, as a rule, handed over to the organisations sufficiently in advance. The dissemination and mainstreaming stages shall be ensured within the framework of the final project activities, but due to all circumstances these activities sometimes fail to be completed till the project s conclusion. After the project s termination the organisations often do not have funds to maintain the employees, who were the specialists for implementation of the activities started within the framework of the EQUAL project; these often leave the organisation as of the date of the project s closure. As regards sustainability of the transnational cooperation, the organisations as a rule do not have own capacities and background that would enable to maintain and develop the created products and contacts. As regards joint use of outputs from the projects, at the close of the project a part of the organisations turns to the managing authority with a request for political support in dissemination, e.g. at the meetings at the EU level. A part of the organisations turns to the managing authority after the project s termination and they search for the funds to continue in distribution of the programme s products, education of the target groups, product innovations and the like. The information and communication background of the programme management and implementation was, within the framework of the Czech Republic, criticised by all the participating parties: the monitoring system was perceived rather as repression than as assistance, the databases of projects and partners were not updated regularly and an outline of the created products was missing completely. But at the same time both parties were learning during the programme implementation and they were improving these tools together. 1.2 SELECTED FINDINGS Preparation of the transnational partnership required from the part of methodological and information support of the managing authority above all information on partners and instructions, how to proceed at conclusion and a modification of partnership agreements. While the information support for the project preparation was sufficient, reliable records of modifications in the projects and the information on their outputs were missing completely in the databases kept at the central level. Navreme Boheme, s.r.o. 11

12 In the countries that were included in the evaluation, various measures were recommended and somewhere also implemented on how to facilitate the process of creating transnational partnerships. For example, creation of a special measure or a project at the programme management level (not at the project level) was concerned. Or it was a recommendation of minimum extent of the partnership, which countries to focus on when searching for partners (further to the national strategies), which activities shall be strengthened (it is generally recommended to limit generic activities that miss the particular content); somewhere this principle was transposed into formation of a particular physical institution, the mission of which is to support transnational partnership in the projects in the given programme. Even in cases where the approach to the transnational partnership was more or less formal and remained limited to several partial tools (for example to working groups), this approach has changed within the framework of the implementation thanks to the dynamics it was bringing. At the same time it has shown up that a whole number of types of partnerships exists associated with the partners expectations. Where these expectations had not been clarified mutually well, the cooperation remained more or less formal, for the substantial modifications were not then attainable realistically within the framework of the project already in progress (mutual agreement and then the approval process by more national managing authorities). Various types of expected cooperation may be identified according to the basic theses and expectations formulated at the preparation of the Development Partnership Agreement (DPA), further according to the chosen tools of the transnational cooperation and also according to the way how the local partners are engaged in the transnational cooperation. Within the framework of the evaluation it has proved that the role of DPA was often underestimated, sometimes even the precise TCA was prepared right away (DPA used completely same formulations in the passages on partnership). Role of the partners specialised in management of the transnational cooperation has shown up as disputable. In some cases this cooperation proceeded without any problems, sometimes the problems have occurred but almost always this type of cooperation tended towards personal unions a particular person ensuring the transnational cooperation was often employed with both bodies both with the grant recipient and with the partner ensuring the transnational cooperation. Czech organisations acceded, as a rule, during the search for partners to the groups that had already been forming and in the first stage of the project implementation they behaved, with some exceptions, relatively passively. A reflection of the type we have had a lucky hand in selection of the partners often appears. Thus it may be assumed that if they were in different situation (selection of the partners was not too lucky), they rather did not talk about problematic aspects of the transnational cooperation at all. The transnational cooperation becomes complicated due to the language barrier, namely in several aspects. There are states distinguishing with common knowledge of English (northern countries but also Germany), others where the language knowledge complies approximately to the status in the Czech Republic, in some countries the knowledge of English is very low or these countries prefer their national language for communication within the framework of the transnational cooperation (the countries of the south). Interpreting is a significant brake for the transnational cooperation within the programmes of this type; however, it is necessary to differentiate, which participating groups are concerned. The Czech participant ensured, as a rule, that his representatives and his national partners representatives were communicative for common contact and for research and development of products. As regards the target group of the middle staff participating in special cognitive and training events, then interpreting is a common phenomenon. Using of monitoring and evaluation of the transnational cooperation seems as very general - it is bound to quantified outputs (number of meetings, participation, realization of the planned events, etc.), namely in the international aspect not specifically in the Czech environment. Thus they serve mainly for the identification whether the programme proceeds according to the planned structure. But it does not provide almost any other data that would be evaluated systematically. Navreme Boheme, s.r.o. 12

13 As of the date of the project termination the facts often cumulate creating discontinuities and complications. This is related to the overall concept of the project financing where it is obvious that it is also a substantial source covering also the costs for the activity of the organisation as such. After the project termination (if a new one does not start fluently) the organisation solves then staffing and other subsistence problems. Admittedly, the organisation undertakes to sustainability of the outputs, but it is often at the limit of credibility; this fact depends, to considerable extent, on whether the organisation gains further projects. At the close of the project thus the organisation solves above all the way of survival till obtaining another source. This weakens its ability to deal actively with the processes related to mainstreaming. Another problem is that at the close of the project the organisation gets into the stage of lobbying both at the level of national and EU political elites, but after the project termination it does not have any initial platform if it does has not created it during the project by formation of some independent structure or network. However, even in such case, financing of this activity is a big problem as a rule. A question appears what role the managing authority should play in takeover and further utilisation of the outputs from the projects. It appears that the need of a central national or European database of outputs from the projects would solve not only the assistance when searching for suitable partners (on the basis of common or similar products) and a strong need to mainstream the outputs from the projects at a higher level than the project one and outside the framework of the project itself, but it would also be possible to eliminate creation of the same products and duplication of granting public funds. 1.3 SELECTED RECOMMENDATIONS It is not necessary to extend the period for preparation of the transnational partnership but it is necessary to use it effectively from the beginning. Use of the DPA formulations seems as substantial in order to formulate in general the basic theses of the objectives and forms of the cooperation being prepared. Contrary to the definitive TCA, which defines the partners duties and their share in implementation of the joint parts of the projects precisely, the sense of DPA consists in searching for and subsequent declaration on the accord on the objectives and forms of work. In case of good DPA preparation, a number of problems resulting from mutual unacquaintance and different expectations may thus be prevented. Thus it should be referred to DPA in cases when problematic project stages or mutual disagreements of the partners are solved. Since the beginning it should be also clear among the transnational partners what forms of cooperation are essential and how the national partners will be engaged in the transnational cooperation, namely also in case when their share in the given activities is ensured by financing through the grant recipient. Selection of the national partner, who takes over the role of the guarantor for the transnational cooperation, should always be reasoned very well. A number of recommendations for the stage of selection of partners results from the project implementation. Accession to a partnership, which is managed as a whole by one strong partner (and moreover already continues in Actions 2 and 3), may be beneficial where the given organisation is not orientated and searches for a helping hand in the transnational cooperation. However, other types of organisations look rather for creative partners for team work, in which the contributions of all the engaged bodies will be valorised. Such partnerships are then managed in the rotary way as a rule. Within the framework of the project preparation and selection of partners it is thus suitable to formulate one s expectations regarding the cooperation very precisely and to adjust to it the character of cooperation, types of partners and also the countries and regions the partners operate in. It is suitable to find out already in the first selection stage whether and to what extent the potential partners dispose of the language knowledge and when and for which group interpreting will be ensured by some of the parties. With regard to the clearly defined role of monitoring it is suitable to create, within the framework of the partnership, an own system of feedbacks and assessments corresponding to Navreme Boheme, s.r.o. 13

14 the partnership type and the project s orientation, as the case may be combined with an external evaluation. From the part of the managing authority a possibility should exist, after the introductory (getacquainted) stage of the transnational cooperation and its assessment, to carry out modifications in the project in standard way as a natural reaction to the constellation created that could not have been the subject matter of the plan and contractual provisions before the beginning of the project. Different rules of eligibility of costs were not perceived as a principal obstacle of implementation of the transnational partnership activities, rather a different financial background of the implementing organisations is concerned. Inasmuch as the transnational cooperation is, in an ideal case, an integral part of the project, it seems as suitable to search for possibilities of lump-sum financing of some types of costs related to the transnational cooperation. The rules set at the beginning of the programme, as the case may be within the framework of a particular call should not change; if modifications are necessary, they should be only in favour of smoother project implementation of higher quality and on the basis of consensus of all the participating parties. One of the aspects of sustainability is also the issue of maintaining and development of the know-how developed by the organisations, the bearers of which are particular employees. If the project termination means loss of these people, it is partially also a loss of the created know-how. The activities aiming at further development of the created know-how should thus take account also particular people, who are its bearers: the organisations should be able to secure against the loss of the know-how and the managing authority should be able to include them in consequential programmes (lobbying at national and European level, seminars, dissemination, mainstreaming). Most of the findings are bound structurally to the ESF programmes character, in some cases only to the setting of the EQUAL programme rules. It may be said in general that the final stage of the project should be highly accentuated already during its approval process. Sufficiently mastered solution of the final stage including ensuring of further work with the products, education and dissemination should be an integral and significant part of the projects. Monitoring and evaluation must comply with the global objectives and help to improve the quality of management and implementation of the projects and of the programme as a whole. For this reason also the sense of these activities must be obvious to all participants. It is necessary to help the project implementing entities to be able to use these tools in suitable way for their own quality management and the project cycle management. It is necessary for both parties to be able to use monitoring and evaluation strategically. Navreme Boheme, s.r.o. 14

15 2. BACKGROUND AND THE NATIONAL STRATEGY Evaluation of the CIP EQUAL transnational cooperation principle was conducted within the framework of the whole programme, its objectives and context of national and European policies. The mentioned wider framework is outlined in this chapter; the following chapter explains then how the evaluation was interconnected with this wider context in particular. The Community Initiative EQUAL is one of the four Community initiatives, which were co-financed from the structural funds in the programming period. The Community Initiative EQUAL co-financed from the ESF is one of the tools to achieve the objectives of the European Employment Strategy (EES). The Community Initiative EQUAL is implemented in the whole territory of all Member States and differs from the main forms of aid from the ESF (operational programmes for Objective 1 and programme documents for Objective 3) due to inclusion of innovativeness and transnational cooperation. CIP EQUAL supports the transnational cooperation in development and promotion of new tools of fight against all forms of discriminations and inequalities in the labour market in the whole EU territory. The objective of the Initiative is thus to develop and promote the tools to support the members of disadvantaged groups (long-term unemployed, low-qualified, school graduates, older citizens, disabled persons, ethnical minorities, women, asylum seekers and the like), who encounter discrimination or unequal treatment either directly at work or when searching for it. One of the thematic areas of the Community Initiative EQUAL is focused on the issues of social inclusion and career opportunities of the asylum seekers. 2.1 EU and ESF aid to the Czech Republic in the period In the EU programming period two rounds of calls to submit CIP EQUAL grant applications took place in the EU-15 Member Countries. The Czech Republic, as one of two candidate countries, took part also in the first round announced in 2001 in the Phare Programme. Since the accession of the Czech Republic to the EU, the ESF it has been a tool of direct EU aid to the Czech Republic in the area of human resources development, labour and employability; the aid was implemented by means of the operational programmes of the programming period and by means of CIP EQUAL. Drawing of the ESF funds in the Czech Republic and in the Capital City of Prague was enabled by the following operational programmes: Human Resources Development Operational Programme (OP RLZ), managing authority (MA) MoLSA; Joint Programme Document for Objective 3 for Prague (JPD3), MA MoLSA and three Intermediate Bodies (IB). Further the ESF, together with the European Regional Development Fund (ERDF), co-financed the Joint Regional Operational Programme (JROP) in the amount of EUR million, i.e. ca 11.5 % of the total ESF allocation for the period, i.e. EUR 409,713,575. The Czech Republic participated in the second round of the CIP EQUAL calls, financed by the ESF, on the basis of the Community Initiative Programme EQUAL CZ (CIP EQUAL CZ) after the accession of the Czech Republic to the EU in May 2004, together with partners from other Member Countries. The Community Initiative Programme EQUAL CZ, the MA of which became MoLSA and which was financed of 73 % from the ESF and of 27 % from the state budget of the Czech Republic, was approved by the European Commission in June 2004, namely for the period; its implementation took place from June 2004 till the end of August 2008; MoLSA is responsible for the CIP EQUAL CZ management. Navreme Boheme, s.r.o. 15

16 2.2 EU and ESF aid to the Czech Republic in the period The ESF functions in the Czech Republic also in the following programming period , in which the financial means from the ESF were divided in three operational programmes with their own managing authorities: Human Resources and Employment Operational Programme (OP LZZ), MoLSA is its MA; Operational Programme Education for Competitiveness (OP VK), the Ministry of Education, Youth and Sport is its MA; Operational Programme Prague Adaptability (OPPA), the Capital City of Prague Prague City Hall, EU Funds Department is its MA. 2.3 CIP EQUAL CZ in the period The CIP EQUAL CZ Programme defined the terms and conditions for providing aid from the ESF for the shortened programming period , with the implementation till August The objective of the CIP EQUAL CZ Programme was development, testing and implementing of new means for fight against all forms of discriminations and inequalities in the labour market. The CIP EQUAL CZ target groups were: citizens with low qualification or without qualification; disabled persons; national minorities; graduates and young people; citizens over 50 years; women after maternity leave; asylum seekers and others. The CIP EQUAL CZ budget was EUR 43,973,880, i.e. ca CZK 1.4 billion (as it was already mentioned above, of 73 % the ESF funds and of 27 % the funds of the state budget of the Czech Republic were concerned). The CIP EQUAL Programme had three implementation stages both in the Czech Republic and in the partner countries these were Actions 1, 2 and 3. The foreign partners were both from the existing and new member countries. Besides their national regulations and rules of the programmes, the common regulations of the EU for the ESF and CIP EQUAL were valid for them Legal framework Condition for participation in the CIP EQUAL CZ Programme was, accordingly with the other Member Countries, creation of national development partnerships on the basis of DPA and of the partnership for transnational cooperation on the basis of TCA. According to the conditions of participation according to Chapter 2.1 of the Instructions for Applicants, an applicant could be a legal person with a registered office in the Czech Republic representing DPA; the conditions mentioned in the Instructions for Applicants related to the partners, too. The projects had to have a non-profit character. The project implementation was divided into three actions Action 1 with the period of duration from one to five months, Actions 2 and 3 with simultaneous course in duration of months. The Instructions for Applicants specified eligibility of expenses and other terms and conditions for the project budget. The grant amount for the individual applicants was not specified; however, the condition was that it had to correspond to the costs of the project activities. Navreme Boheme, s.r.o. 16

17 2.3.2 Supporting infrastructure Within the framework of a CIP EQUAL CZ separate priority, technical assistance was provided to the managing authority and the development partnerships. Support to the development partnerships for the whole period of their work programme implementation belongs to the basic activities of the technical assistance. Another task of the technical assistance is monitoring of the individual DPs, namely including administration of the monitoring systems. Further the technical assistance ensured effective communication with the managing authority by means of timely providing of the information on the implementation of the individual projects and of the whole programme to the managing authority. During DP formation, creation of a project and of a budget and during preparation of a grant application the future applicants had a possibility to take part in regional seminars and a possibility to consult with the National Training Fund (NTF). They had also at their disposal the Instructions for Applicants, the Manual, list of frequently asked questions with answers and other information on the Internet sites. Later the National Support Structure (NSS) was charged with the technical assistance tasks to the managing authority including the support to the development partnerships. The company PricewaterhouseCoopers carried out the function of the National Support Structure for CIP EQUAL CZ. The technical assistance is further used to support monitoring, audits and evaluation of the activities carried out both in the Czech Republic as well as at the Europe-wide level and for preparation of studies, seminars, information events, collection, processing and dissemination of the obtained experience and results Governmental policy The framework strategic document for the area of support from the EU Structural Funds is the National Development Plan of the Czech Republic for the years The main strategic documents of the Czech Republic for the area of human resources development, employment and social affairs are in particular: National Action Plan of Social Inclusion of the Czech Republic; National Action Plan of Employment ; National Innovation Strategy of the Czech Republic; National Plan of Support and Integration of Disabled Citizens for the Period The strategic documents of the Government of the Czech Republic were incorporated in the CIP EQUAL CZ Programme and in the program documents of the operational programmes. In CIP EQUAL CZ it was by means of the following priorities: Priority 1 Improvement of employability; Priority 2 Development of entrepreneurship; Priority 3 Support of adaptability; Priority 4 Equal opportunities of men and women; Priority 5 Assistance to the asylum seekers in access to the labour market; Priority 6 - Technical assistance. Navreme Boheme, s.r.o. 17

18 2.4 EQUAL strategic areas and transnational cooperation The starting point of the transnational cooperation was the announcement of common thematic areas for all EU states. Each thematic area had specific target groups and conditions for formation of development partnerships. The CIP EQUAL thematic areas come out from the original four pillars of the EES. The following thematic priorities are concerned: Improvement of employability; Development of entrepreneurship; Support of adaptability; Equal opportunities of men and women. The theme of support of the asylum seekers, which is within the CIP EQUAL framework designated as a thematic priority, was announced separately in the EU Human resources development The previous Community Initiatives ADAPT and EMPLOYMENT, focused on human resources development, took place in the programming period. For CIP EQUAL in the programming period it is characteristic that the human resources development became a crosswise theme and a result of programme and project activities. All-around development of abilities occurs with all persons engaged in the CIP EQUAL projects, thus the project management, partnership members and also their clients; however also NTS, NSS and MA are developed Employment strategy The European Employment Strategy endeavours for cooperation in the area of employment, contributes to better results and efficiency of the active employment policy, to improvement of the situation in the area of unemployment and social inclusion through fulfilment of the CIP EQUAL principles. Improvement of employability (a component part of the 1 st pillar of EES): improvement of access and return to the labour market for those who have difficulty in being integrated; combating racism and xenophobia in access to the labour market. Development of entrepreneurship (a component part of the 2 nd pillar of EES): assistance in setting up businesses by means of providing necessary tools for identification and exploitation of new opportunities for creating employment in towns and rural areas; strengthening of the third sector by means of social economy and community services, improvement of their quality. Support of adaptability (a component part of the 3 rd pillar of EES): support of lifelong learning and employing persons endangered by discrimination and inequalities in access to the labour market; support of the adaptability of employers, firms and employees to economic and social changes and the use of new information technologies and other technical means. Equal opportunities for men and women (a component part of the 4 th pillar of EES): harmonising of family and professional life, as well as the re-integration of men and women into the labour market, development of flexible and efficient forms of work organisation and support services; reducing differences in job opportunities for men and women in the labour market. Separate theme: assistance to the asylum seekers in their inclusion in the labour market Innovation strategy The innovation strategy has enabled to realize development of new means of fight against all forms of discriminations and inequalities in the labour market. Navreme Boheme, s.r.o. 18

19 2.4.4 What has EQUAL brought CIP EQUAL was implemented in the whole EU territory, namely both in the developed and undeveloped areas; also in the Czech Republic CIP EQUAL was implemented in the whole territory. The transnational cooperation has showed up as possible and beneficial. Implementation of the principles of transnational cooperation, transnational and national partnership, stress on innovativeness, on development of new tools and know-how transfer well-tried practice both in transnational and national measure bring a significant contribution to social development and, in particular then to human resources development. In the period it will be possible to apply in the Czech Republic advices from the CIP EQUAL implementation in all forms of transnational cooperation based on the partnership principles, in operational programmes and in other Community initiatives. 3. EVALUATION OBJECTIVES AND METHODS CIP EQUAL is an independent form of aid from the structural funds that supports development and promotion of new approaches to solving of inequalities and discrimination at work and access to employment. Its sense is to supplement other programmes contributing to achieving the objectives of EES and to serve as an innovative laboratory for development and promotion of new tools, while those that will prove useful will be supported further within the framework of the main forms of aid from the ESF during the following programming period. CIP EQUAL differed from the main forms of aid from the ESF in the past periods among others by the principle of transnational cooperation. Thus in the course of the programming period also selected CIP EQUAL principles will be supported within the framework of the ESF programmes on cross-sectoral basis for the very first time. To be specific, the principles of innovativeness and transnational cooperation are concerned besides the partnership principle. It was decided on cross-sectoral support of these principles together with the EU Member States and the European Commission representatives on the basis of the experience with the CIP EQUAL implementation in individual EU Member States, therefore among others the documents, on which this decision was based, were used for preparation of the evaluation strategy. To be specific, this experience is transposed in OP LZZ, in which the transnational cooperation is included in the form of priority axes; Priority axis 5a Transnational Cooperation (Convergence) and Priority axis 5b Transnational Cooperation (Regional Competitiveness and Employment) are concerned. The global objective of these two priority axes is intensification of transnational cooperation in the area of human resources development and employment, the specific objective is then 1) to increase effectiveness of strategies and policies in the area of human resources and employment and 2) development of partnerships, pacts and initiatives in the area of human resources and employment. The transnational cooperation is appreciated above all for its potential: to verify, strengthen or improve the quality of the drafts of policies and strategies in elimination of inequalities in the labour market; to increase knowledge, insight and professional background when searching for and rectification of causes of discrimination and inequalities in the labour market; to obtain, share, transfer and disseminate knowledge, experience, contacts and good practice; to build a sound basis for transnational comparison; to create networks of actors, who assist to solve the given issues, including synergic effects connected with it; to build the capacities of the participating organisations and bodies at regional and national level; to increase the impact of the implemented projects and increase the effectiveness of the ESF implementation at local, regional and national level; to increase efficiency and quality of project management and implementation; Navreme Boheme, s.r.o. 19

20 to improve the quality of the outputs from projects; to increase effectiveness of the expended funds by means of utilisation of the solutions already invented abroad thanks to inclusion of experience, credit and professional knowledge of foreign partners. Within the framework of OP LZZ, it is possible to fulfil the transnational cooperation principle either at the level of separate projects directly based on the transnational cooperation but also horizontally, thus the transnational cooperation principle should apply in each of the OP LZZ financed projects if it increases its effectiveness and quality. It is assumed that fulfilment of the transnational cooperation principle will enable to achieve still better results of individual projects than those that would be able to be achieved without its application. All these starting points and all these assumptions were included in the strategy of evaluation of the CIP EQUAL transnational cooperation principle. The evaluation ranges within the framework defined in this way and follows up with the outputs of the previous evaluations and Final Reports (respective framework documents, reports and studies are mentioned in the list of the sources used). With regard to the requirement of follow-up and comparability of the CIP EQUAL evaluations, the standard methodology of evaluation was used Navreme Boheme, s.r.o., uses for other evaluations commissioned by the European Commission and that is recommended to the CIP EQUAL evaluators. 3.1 Evaluation objectives and strategy of their fulfilment The partial evaluation of the transnational cooperation principle is related to the general objectives of the CIP EQUAL evaluation stipulated by the European Commission. We have numbered the general objectives of the CIP EQUAL evaluation for we use the numbers of the objectives afterwards for reference in the following text: 1. To support due course of the CIP EQUAL implementation and management; 2. To assess suitability of the chosen strategies, future possibility and available impacts of CIP EQUAL; 3. To identify and assess the added value of CIP EQUAL to the existing tools and policies in the labour market; 4. To contribute to identification, verification and promoting of suitable practises in implementation of the policy of inclusion and fight against discrimination and inequalities in the labour market; 5. To assess, to which extent CIP EQUAL succeeded in inclusion of its results into national policies and actions and into the ESF mainstreaming programmes; 6. To facilitate process of learning among all national bodies concerned; 7. To contribute to creation of expert capacities; 8. To enable utilisation of the acquired knowledge in the following programming period; 9. To facilitate comparability of the CIP EQUAL evaluation results at the level of the whole EU; 10. To ensure information sources for ex-post evaluation at the EU level that will be carried out by the European Commission. We have identified the following specific objectives for the evaluation of the CIP EQUAL transnational cooperation principle, which we understand as a partial one in this respect: 11. To analyse the practice of the existing transnational partnerships within the framework of DP CIP EQUAL; 12. To identify strengths and weaknesses, potential and risks of the transnational cooperation; 13. To analyse the wider context of implementation of the transnational cooperation, to identify conditions, under which it arises and develops optimally; 14. To gather examples of good practice and recommendations; Navreme Boheme, s.r.o. 20

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