20060803_Consolidated_Report_CR_PL_0601.doc

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Consolidated Report

Country: POLAND

Sectors covered by theReport: Regional Development Public Administration

Development Internal Market Agriculture Justice and Home

Affaires Environment and

Transport

Author:ECOTEC Consortium

Date:16 th May 2006

Consolidated Report No. CR/PL/06001


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T ABLE OF C ONTENTS

PREFACE..........................................................................................................................2

GLOSSARY OF ACRONYMS........................................................................................3

SUMMARY........................................................................................................................5

INTRODUCTION ..........................................................................................................20

GENERAL BACKGROUND...............................................................................................20PROGRESS OF IMPLEMENTATION OF THE2005AND2006 A NNUALEVALUATION

PLANS..........................................................................................................................................22DISSENTING VIEWS.......................................................................................................25

RESULTS OF EVALUATION......................................................................................28

PUBLICADMINISTRATIONDEVELOPMENT....................................................................28R EGIONALDEVELOPMENT............................................................................................30I NTERNALMARKET......................................................................................................34JUSTICE ANDHOMEAFFAIRS .......................................................................................36AGRICULTURE..............................................................................................................39TRANSPORT ANDE NVIRONMENT.................................................................................41THEMATICR EPORTS....................................................................................................43

R EPORTS OF THESHORTTERMTECHNICALEXPERTS.................................................47PERFORMANCE RATINGS........................................................................................49

CONCLUSIONS .............................................................................................................52

PUBLICADMINISTRATIONDEVELOPMENT....................................................................52R EGIONALDEVELOPMENT...........................................................................................52I NTERNALMARKET......................................................................................................54JUSTICE ANDHOMEAFFAIRES.....................................................................................54AGRICULTURE...............................................................................................................55TRANSPORT ANDE NVIRONMENT..................................................................................56

RECOMMENDATIONS................................................................................................57

R ECOMMENDATIONS PRESENTED IN PARTICULAR IE REPORTS....................................57

ANNEXES........................................................................................................................64

Consolidated Evaluation Report No.. CR/PL/06001. 16th May 2006 1


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P REFACE

This Consolidated Report covers Phare assistance provided to the Regional Development, PublicAdministration, Internal Market, Justice and Home Affairs, Transport and Environment andAgriculture sectors in Poland and being the subject of the Interim Evaluation process between 1st

November 2005 and 25th April 2006. It also covers Thematic/Ad Hoc evaluations conducted inthe reporting period (including evaluation of twinning projects implemented within theframework of Transition Facility programme). The cut-off date of this report is 25th April 2006.

This Consolidated Report has been prepared by the ECOTEC Consortium1

. The findings are based on the results of the Interim Evaluations conducted during the reporting period andexamining the progress of the programmes towards the objectives stated in the formal programming documents, i.e. Financing Memoranda, Project Fiches, etc. The report is intendedto provide management information on the programmes/ projects for the benefit of the SectoralMonitoring Sub-Committees (SMSC), Joint Monitoring Committee (JMC) and other involved parties.

1 The author of the Report is Mr Tomasz Skierniewski.



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G LOSSARY OF ACRONYMSAcronym DescriptionAEP Annual Evaluation Plan

AGR Agriculture

AMA Agricultural Market Agency

AP Accession Partnership

CAP Common Agricultural Policy

CBC Cross Border Co-operation

CFCU Central Finance and Contracts Unit

EAGGF European Agricultural Guidance and Guarantee FundEDIS Extended Decentralised Implementation System

ENV Environment

ESC Economic and Social Cohesion

EU European Union

FV Final Version

HRD Human Resources Development

HS Highly Satisfactory

HU Highly Unsatisfactory

IE Interim Evaluation

INT Internal Market

IT Information Technology

JE NAC Evaluation Unit of the National Aid Co-ordinator Services(abbreviation of the Polish: Jednostka Ewaluacyjna sub NAC)

JHA Justice and Home Affairs

JMC Joint Monitoring Committee

JS Just Satisfactory

NAC National Aid Co-ordinator

NDP National Development Plan

NPAA National Programme for the Adoption of the Acquis NPPM National Programme for Preparation for Membership of the

European Union

PAD Public Administration Development

PAO Programme Authorising Officer PIFC Public Internal Financial Control



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REG Regional Development

S Satisfactory

SF Structural Funds

SIPF Small Infrastructure Project Fund

SME Small and Medium-sized Enterprise

SMSC Sectoral Monitoring Sub Committee

SPF Small Project Fund

TF Transition Facility

TRA Transport

UKIE Office of the Committee for European Integration(abbreviation of the Polish:Urzd Komitetu Integracji

Europejskiej)

US Unsatisfactory

VLO Voivodship Labour Office



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SUMMARYConsolidated Report: CR/PL/06001

This Consolidated Report summarises results of the interim evaluation conducted andongoing in the period 1st November 2005 25th April 2006. The cut-off date of this reportis 25th April 2006. This consolidated Report covers Phare assistance provided to thefollowing monitoring sectors:

Public Administration Development; Regional Development; Internal Market; Justice and Home Affairs; Agriculture; and Environment and Transport.

This report also covers Thematic/Ad Hoc evaluations conducted in the reporting period(including evaluation of twinning projects implemented within the framework of Transition Facility programme).

The following tables present comparison between stipulations of the 2005 AEP and 2006AEP and their respective implementation.

Table 1. Progress of implementation of the Annual Evaluation Plan for 2005.(as on 25th April 2006)

Sectors/Type of the report

Evaluation progress number of IE reports

Planned in2005 AEP On-going Completed

Transport & Environment 1 0 1Agriculture 2 0 2

Internal Market 2 0 2Public Administration Development 3 0 3Justice and Home Affairs 2 0 3

Regional DevelopmentESC

53

00

53

CBC 2 0 2Summar y sectoral report (PAD) 1 0 1

Thematic/Ad Hoc reports 4 2 2Total for 2005 AEP 20 2 18



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Table 2. Progress of implementation of the Annual Evaluation Plan for 2005.(as on 25th April 2006)

Within the framework of 2005 AEP only two Thematic/ Ad Hoc reports are still ongoing.Of these two, reportTHE/PL/05015, Implementation of twinning projects financed under the Transition Facility programme one following the request of the JE NAC was

commenced with the Kick-off Meeting on 14th

February 2006 and evaluates the twinning projects implemented under the Transition Facility instrument. The process of production of this report progresses in accordance with the agreed timelines. Theremaining Thematic/ Ad Hoc report, THE/PL/05012,Twinning projects as an instrument

preparing for the utilisation of Structural Funds , focused on analysing the twinning as aninstrument for the Institution Building is in the drafting phase as it was delayed by thevery limited rate of responses to the questionnaire research and slow performance of theemployed Short Term Technical Specialist expected to produce the crucial element of thereport.

Except for one Thematic Report there are no major derivations from the plan evaluationestablished by the 2005 AEP. There were some delays noted at various stages of production of particular reports but finally these problems were overcome and with theabove mentioned exception for two Thematic/Ad Hoc report all activities plannedunder 2005 AEP are completed.

Implementation of the 2006 AEP progresses accordingly to the agreed timelines and there

are no derivations from the plan. There are no significant delays in submission of thedraft reports.

Consolidated Evaluation Report No.. CR/PL/06001. 16th May 2006



Planned in2006 AEP

On-going Completed

Transport & Environment 1 0 0Agriculture 1 1 0Internal Market 1 1 0Public Administration Development 2 2 0Justice and Home Affairs 2 1 0


42

11

00

CBC 2 0 0Thematic/Ad Hoc reports 5 3 0

Total for 2006 AEP 16 9 0

6


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This Consolidated Evaluation Report, CR/PL/06001, covers the results of the InterimEvaluations (IE) carried out in the period between 1st November 2005 and 25th April 2006and presents the implementation status of the Interim Evaluation of Phare programme inPoland as on 25th April 2006 (the cut-off date of this Consolidated Report). In thisreporting period, according to the Annual Evaluation Plans for 2005 (2005 AEP) and for 2006 (2006 AEP), the IE process covered selected Phare programmes from the sixsectors:

Public Administration Development (1 IE report IE/PL/PAD/06002)2, Regional Development (3 reports: 2 in sub-sector ESC (IE/PL/REG/05013 and

IE/PL/REG/06001)3 and 1 in CBC IE/PL/CBC/050144), Internal Market (2 reports IE/PL/INT/05017 and IE/PL/INT/06004)5, Justice and Home Affairs (2 reports IE/PL/JHA/05008 and IE/PL/JHA/05018)6,

Agriculture (2 reports IE/PL/AGR/05010 and IE/PL/AGR/05020)7

and Transport and Environment (1 report IE/PL/TRA&ENV/05019)8

The following tables present sectors and projects covered by the IE reports carried outwithin the reporting period under the Annual Evaluation Plan for 2005.

2 On 7th April 2006 draft version of the report was submitted to the JEN AC.3 Report IE/PL/REG/05013 is already accepted as FV (on 23rd March 2006), for the IE/PL/REG/06001report draftversion has been submitted to JE NAC on 10th April 2006.4 Accepted as FV (on 23rd March 2006).5 IE/PL/INT/05017 is already aaccepted as FV (13th February 2006)), the IE/PL/INT/06004e has been submitted to JE NAC as draft version on 31st March 2006 and formally accepted by JE NAC on 13th April 2006 and distributed tostakeholders for comments..6 Both accepted as FVs (IE/PL/JHA/05008 on 16th January 2006 and IE/PL/JHA/05018 on 17th February 2006).7 Both accepted as FVs (IE/PL/AGR/05010 13th January 2006 and IE/PL/AGR/05020 on 11th April 2006).8 On 14th April 2006 the report was formally accepted by JE NAC as FV.



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Table 3. Sectors and projects covered by the IE reports carried out between10 th November 2005 and 25 th April 2006 and produced under the 2005 AEP

R e g

i o n a

l D e v e l o p m e n

t

Economic

and SocialCohesion R e p o r

t I E / P L / 0 5 0 1 3 9

PL0106.07.01 Development Swietokrzyski National Park PL0106.07.03 Tourism development Sandomierz2002/000-580.06.29 Renovation of a post-industrial area2002/000-605.06.08 Tourism development2003/004-379/5/34 Industrial centres Starachowice andOstrowiecPL0106.01.01 Southern Bypass of TorunPL0106.01.02 Completion of road 62 in Wloclawek PL0106.01.05 Industrial park Solec Kujawski2002/000-605.06.01 SME development in Bydgoszcz2002/000-605.06.02 Business incubator Solec Kujawski2003/004-379/5/8 Investment areas Ciechocinek 2003/004-379/5/ 9 Vistula Park Swiecie2002/000-580.06.33 SME Development in Koszalin2002/000-580.06.34 SME Development in Bialogard2002/000-605.06.09 SME Development in Drawskie2003/004-379/5/40 Tourism Development in Bialogard2003/004-379/5/41 Economic development Szczecinek 2002/000-580.06.06 Economic development of Poniatow2002/000-580.06.07 Industrial route in Wroclaw2002/000-580.06.08 Tourism development in Podgorzyn2003/004-379/5/5 SME Development Bielawa2003/004-379/5/6 Environmental protection Karpacz2003/004-379/5/7 S ME Development Glogow2002/000-580.06.11 Investor friendly towns2002/000-580.06.12 SME development in Gorzowski2003/004-379/5/15 Investor friendly towns - phase II2002/000-580.06.18 Tourism development in Opole2002/000-580.06.19 Development of investment in Glogowek 2002/000-605.06.06 Economic development in Kolonowskie2002/000-605.06.07 Tourism and SME Development in Ozimek 2003/004-379/5/23 Development of industry Bierawa

9 Due to a large number of projects originally planned to be covered by this report, the following projects:2002/000-580.06.26 Improved investment attractiveness in Lebork 2002/000-580.06.27 Increased investment attractiveness of Slupsk 2002/000-580.06.28 Tourism development in the Gdansk bay2003/004-379/5/31 Pomeranian technology park 2003/004-379/5/32 Tourism development Vistula Spit2002/000-580.06.14 Economic development of Kety2002/000-580.06.15 Development of Dobczyce industrial park 2002/000-580.06.16 Economic Development of Tarnow2002/000-580.06.17 Economic development of Brzesko2002/000-605.06.05 SME development in Nowy Sacz2003/004-379/5/17 Investment development Niepolomice2003/004-379/5/18 Nowe Dwory Urban Entreprise ZoneOswiecim2003/004-379/5/19 SME Development Ciechanowski and Raciaz2003/004-379/5/20 Economic Development Ostrow and Ostroleka2003/004-379/5/21 SME Development Ostrow and Wyszkow2003/004-379/5/22 SME Development Nasielsk 2003/004-379/5/38 Nowy Tomysl by-pass2003/004-379/5/39 Investment and tourist development Leszczynskiform pomorskie, maopolskie, mazowieckie and wielkopolskie voivodships become the subject of a separate reportrecognized as an addendum to the report IE/PL/REG/05013. This report at the cut-off date of this Consolidated Reportwas at drafting stage, and draft is planned to be submitted to the JE NAC in the first week of May 2006.



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Cross-Border

Cooperation

R e p o r t

I E / P L / C B C / 0 5 0 1 4

2002/000-606 CBC 2002 Poland Germany 2003/005-708 CBC 2003 Poland Germany

Internal Market

R e p o r t : I

E / P L / I N T / 0 5 0 1 7

2003/005-710/01.02 Alleviation of social effects of steelrestructuring2002/000-580.02.03 Improve public procurement rules and practices2003/004-379/01.02 Public procurement mechanisms and practices2003/004-379/01.10 Strengthening the consumer protection policy2002/000-605.02.01 Market surveillance2003/005-710.01.01 Modernization of communicable diseasessurveillance and control system

Justice and HomeAffairs

R e p o r

t I E / P L / J H A / 0 5 0 1 7

2002/000-605.03.05 Improvement of the judicial system2003/005-710.03.08 Improving Justice system2002/000-580.03.01 Twinning for border management and visa policy2002/000-580.03.02 Twinning for asylum administration2002/000-605.03.04 Twinning for the fight against organizedand economic crime2003/005-710.03.01 Twinning for border services2003/005-710.03.05 Twinning Fight against organised crime2003/005-710.03.06 Fight against drugs



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Agriculture

R e p o r

t I E / P L / A G R / 0 5 0 2 0

PL0104.08 IACS and Animal Identification and RegistrationSystem;2002/000-580.04.02 Implementation of milk quota system;2002/000-580.04.03 Preparation of AMA as paying agency;2002/000-580.04.04 Institution Building for the FinancialInstrument for Fisheries Guidance;

2002/000-196.04.01 Integrated information system for seedcertification and marketing;2002/000-605.04.02 Preparation for EAGGF2002/000-605.04.01 National veterinary reference laboratory2003/000-379.04.01 Strengthening Veterinary Administration2003/005-710.04.02 The Reference Laboratory in the NationalVeterinary Research Institute (NVRI) in Puawy2002/000-580.04.01 TSE control in Poland2003/005-710.04.03 TSE control in Poland Part II2003/005-710.04.04 Eradication of rabies in Poland2003/005-710.04.05 Improvement of the LPIS system drawingon the GIS technology2003/005-710.04.01 Phytosanitary and Seed administration2003/005-710.04.06 Implementation of rural developmentmeasures financed from the EAGGF2002/000-580.02.01 Strengthen the food control administration2003/000-379.04.02 Strengthening the food controladministration

Transport andEnvironment

R e p o r

t I E / P L / T R A & E N V / 0 5 0 1 9

2003/004-379.01.09 Improvement of the managing structuresimplementing the Cohesion Fund and ERDF in the transportsector 2003/005-710.05.02 Continuation of implementation of the EUDirective 2000/60/EC (WFD)2002/000-632.07.01 Creation of a Central System of Radiological Monitoring and Radiation Safety of the wierk Nuclear Centre2002/000-632.07.02 Reduction of occupational exposure andradioactive waste arising from the operation of the Mariaresearch reactor through actions taken at the source2003/5812.05.01 Upgrading of the heat exchangers and ion-exchangers at the MARIA research reactor to reduce the possibleradioactive release into the the environment

Table 4. Sectors and projects covered by the IE reports carried out between10 th November 2005 and 25 th April 2006 and produced under the 2006 AEP.

Sector Report Programmes/projects covered

Public AdministrationDevelopment

I E / P L / P A D / 0 6 0 0 2 PL2002/000-580.01.08 Preparation project pipeline for ERDF

PL2003/004-379/01.07 Improving ESFPL2003/004-379/01.08 Implementation of IROP on central andregional levelPL2003/005-710.01.05 Preparing Interreg IIIPL2003/005-710.01.06 ERDF project pipeline preparationPL2003/004-379/01.01 NGOs for sustainable development



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R e g

i o n a

l D e v e l o p m e n

t

Economicand SocialCohesion

I E / P L / R E G / 0 6 0 0 1

2002/000-580.06.01 Sectoral HRD2002/000-580.06.02 SME and Innovation sectoral programme2002/000-580.06.03 TA for ESC (30.03.2006)2002/000-580.06.05 Regional support programme for SMEs2003/004-379/5.1 Sectoral HRD2003/004-379/5.2 SME and Innovation sectoral programme2003/004-379/5.3 Regional HRD2003/004-379/5.4 Regional support programme for SMEs

I n t e r n a l M

a r k e t

I E / P L / I N T / 0 6 0 0 4

2003/005-710/01.02 Alleviation of social effects of steelrestructuring2002/000-580.02.03 Improve public procurement rules and practices2003/004-379/01.02 Public procurement mechanisms and practices2003/004-379/01.10 Strengthening the consumer protection policy

2002/000-605.02.01 Market surveillance2003/005-710.01.01 Modernization of communicable diseasessurveillance and control system2003/005-710/01.02 Alleviation of social effects of steelrestructuring2003/004-379/01.02 Public procurement mechanisms and practices

Justice and HomeAffairs

R e p o r

t I E / P L / J H A / 0 6 0 0 5

PL2003/004-379/03.01 Migration and asylum systeminfrastructure developmentPL2003/005-710.03.06 Fight against drugs - continuationPL2003/005-710.03.07 Fight against crime IVPL2003/005-710.03.08 Support for the justice systemPL2003/004-379/03.02 Eastern border Small InfrastructureProject Fund (SIPF)PL2003/005-710.06.01 Business Related Infrastructure ProjectFund (BRIPF)PL2003/005-710.06.02 Small Project Fund

Agriculture

I E / P L / A G R / 0 6 0 0 8 2003/004-379.04.01 Strengthening veterinary administration

2003/005-710.04.01 Phytosanitary and Seed administration 2003/005-710.02.01 Implementation of Food Safety Strategy



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Sectoral evaluation results

Table 5. Sectoral rating and conclusions as presented in the IE reports producedbetween 10 th November 2005 and 25 th April 2006.

Sector Performancerating

Conclusions

PublicAdministrationDevelopment

Satisfactory

The assistance provided to the Public Administration sector under the2002 and 2003 Phare programmes addresses the broad range of sectoral priorities related to EU accession. To some extent, the design of theassistance was based upon the achievements of the previous Phare programmes, and starts in places where the past programmes havestopped. In this sense it constitutes a well-developed and coherentapproach to sectoral needs. The objectives of the Phare projects are in linewith and support the objectives of the Accession Partnership (AP) and the National Programme for the Adoption of Acquis (NPAA). In general,most projects are being managed properly and in accordance with Phare

rules, but at times implementation structures do not work efficiently andeffectively, and implementation process is often delayed (particularly inthe case of 2003/005-710.01.05, 2003/005-379.01.08, 2003/005-710.01.06). Effectiveness also is reduced by the late commencement of the contracting procedures (2003/004-379/01.07), which meant that not allmeasures were contracted before the expiry of the contracting period. Themajority of the projects are expected to achieve the majority of their objectives, which will have a positive impact on preparing beneficiaryinstitutions to implement and manage structural and cohesion funds.However, in some cases the results of the project are not as useful as theymight be if all activities had started according to the schedule (2003/005-379.01.08, 2003/005-710.01.06). Sustainability of the results achievedshould be in general satisfactory. The importance of supporting andstrengthening NGO sector by 2003/004-379/01.01 project as a partner for Public Administration sector should also be underlined. This projectshould have positive and sustainable effects.



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RegionalDevelopment E

S C

S a t

i s f a c t o r y

The assistance provided to the Regional Development sector under thePhare 2001 ESC, Phare 2002 ESC and Phare 2002 ESC programmesaddresses the sectors main priorities as laid down by the NationalStrategy of Regional Development 2001 2006 (NSRD). The objectivesof projects implemented are also in line with 2001 Accession Partnershipwith Poland (APP) in particular with the Economic and Social Cohesion(ESC) priority. The evaluated Phare 2001 ESC, Phare 2002 ESC andPhare 2003 ESC interventions in the Regional Development Sector investments projects constitute a coherent, well structured answer to theabove mentioned sector priorities and needs. Projects are managed properly and in accordance with Phare rules. Implementation structures with some exceptions (last minute contracting of Phare 2001 projects) -work efficiently and effectively. Most of the evaluated projects areexpected to achieve their objectives and to have positive, expected impacton socio-economical development of the regions. The results infrastructure objects - will be sustainable. Also, the lessons learned andexperience gained will facilitate the successful absorption of StructuralFunds by beneficiary institutions. The assistance provided to the SME and HRD development under the2002 and 2003 programmes addresses the broad range of the sectors main priorities as related to the process of accession and as related to the needsof the target groups. Therefore in general the assistance is highly relevant,although this statement masks considerable difference between HRD andSMEs projects. For the latter, the relevance (in terms of actual demandfrom SMEs) was significantly overestimated. The objectives of the Phare projects under the evaluation are in line with and support the objectives of the National Regional Development Strategy, National Human ResourcesDevelopment Strategy as well as Accession Partnership and the NationalProgramme for the Adoption of Acquis. The Active Labour MarketPolicies (ALMP) measures proves to be effective in supportingunemployed, however, they will have rather very limited impact on thehigher level. The grant schemes proved to be effective way to implementthese measures, as usually they are very close to the beneficiaries and areable to shape the program according to their specific situation. To muchextend the assistance provided under 2002 and 2003 programmes basesupon the achievements of the previous Phare programmes, in particular using methodologies developed (e.g. Individual Action Plans). Regionaland sectoral SME programmes with some modifications practically repeatthe schemes developed under the previous Phare projects. The weak pointof SMEs programs were the consulting grant components. With oneexclusion10 there is very small interest in applying for this kind of support.As a consequence, a significant part of funds initially allocated for consulting grants had to be re-allocated to the investment grants.Unfortunately, not all efforts to re-allocate funds have been successful.For Phare 2003 SME projects, in total 6.1 M of respective allocations

remained unused. Projects are managed properly and in accordance withPhare rules. Implementation structures work efficiently and effectively.The cooperation among the stakeholders including the ministries, IA,RIFs, and grant beneficiaries is in general smooth and productive. Also, inmany case for grant beneficiaries under HRD projects, the implementationof the project is viewed as a useful exercise preparing to theimplementation of other projects financed with ESF funds. Thus, theconclusion is that the overall picture of the intervention is positive withsome lessons worth to be remembered. These are in particular related totwo issues: the role of Non-governmental Organisations (NGOs) andPowiat Labour Officces (PLOs) in the implementation of ALMP measuresand an adequate SMEs needs assessment especially with regard to theconsulting grants.

10 Introduction to quality consulting grants under 2002/000-580.06.05



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C B C

S a t

i s f a c t o r y

The assistance provided to the Cross-Border Co-operation sector under the2002 and 2003 (Poland Germany) programmes addresses the broadrange of the sectors main priorities. All these programmes are, to a largeextent, based upon the achievements of the previous Phare programmesand constitute a well-developed and coherent approach to the sectorsneeds. The objectives of the Phare projects under the evaluation are in

line with and support the objectives of the Accession Partnership and the National Programme for the Adoption of Acquis. Projects are managedwell and in accordance with Phare rules. Implementation structures work efficiently and effectively, although implementation process is sometimedelayed by time-consuming procedures. Most of projects (with exceptionfor 2002/000-606.21) are expected to achieve their objective and are likelyto have positive and expected impact on sector performance.Sustainability of results produced should be relatively high; however,sustainability of some activities is depended on continued efforts andstable policy on both sides of the border.

Internal Market Satisfactory

The assistance provided to the Internal Market sector under the 2002 and2003 projects covered within this interim evaluation report is particularlyrelevant to sector needs (with the exception of 2003/005-710.01.02). The

objectives of the Phare projects under evaluation are in line with andsupport the objectives of the NPPM and AP, and are coherent with therelevant government strategies. Projects are managed relatively well andin accordance with Phare rules. However, for most of Phare 2003 projectsthere is a risk that contracting will not be finished within the contractingexpiry date. At this stage it is not possible to accurately assess the Phare2003 projects in terms of their impact and sustainability, however expected impact is satisfactory. The impact and sustainability of the Phare2002 projects is also satisfactory.

Justice andHome Affairs

HighlySatisfactory

Assistance provided to the Justice and Home Affairs sector under 2001,2002 and 2003 infrastructure projects covered by the interim evaluation process is highly relevant to the sector needs. To a large extent theassistance provided under 2001 and 2002 programmes is based upon theachievements of the previous Phare programmes, and starts in placeswhere the past programmes stopped and constitutes a well developed andcoherent approach to the sectors needs (e.g. PL0103.05, 2002/000-580.03.07, 2002/000-605.03.02). On the other hand, one project deals withnew issues and challenges which have not been covered by previous Phareassistance (2002/000-580.03.04 the Puszcza Biaowieska Euroregion is for the first time implementing an SPF project). The objectives of projectsimplemented are in line with and support the priorities of the AP and NPPM, and are coherent with the relevant government strategies. Three projects (2002/000-580.03.06, 2002/000-605.03.03, 2003/005-710.03.07)are also in compliance with regional development strategy.Implementation structures work efficiently and effectively, although theimplementation process is on occasions delayed by the time-consumingexchange of documents, complicated procedures and complex relation between various parties involved in the implementation process.Implemented projects are expected to achieve their objectives and to have positive, expected impact on the sector. The results mostly pieces of infrastructure - will be sustainable. Also, mostly at the regional and locallevel of beneficiaries, the lessons learned and experience gained preparedthem well for successful absorption of the Structural Funds.The assistance provided to the Justice and Home Affairs sector under the2002 and 2003 Phare Institution Building projects addresses the broadrange of sectoral priorities related to EU accession. To some extent, thedesign of the assistance was based upon the achievements of previousPhare programmes, and starts in places where the past programmes havestopped. In this sense, it constitutes a well developed and coherentapproach to sectoral needs. The objectives of the Phare projects are in line



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with, and support the objectives of, the Accession Partnership and the National Programme for the Adoption of Acquis. All projects are beingmanaged properly and in accordance with Phare rules and implementationstructures work efficiently and effectively in almost all cases. Themajority of evaluated projects have already achieved or are expected toachieve their objectives, which will have a positive impact on preparing beneficiary institutions to work in line with the EU standards andrequirements. Sustainability of the results should be highly satisfactory.Some of the evaluated projects can be identified as good practice in the project implementation process (2002/000-580.03.01, 2003/005-710.03.01, 2003/005-710.03.06).

Agriculture Satisfactory

The assistance provided to the Agriculture sector under Phare 2001 and2002 programmes addresses the sectors main priorities as related to the process of accession. All the evaluated projects are based upon theachievements of the previous Phare programmes, and starts in placeswhere the past programmes stopped and constitutes a well developed andcoherent approach to the sectors needs. The objectives of the Phare projects under the evaluation are in line with and support the objectives of the Accession Partnership and the National Programme for the Adoptionof Acquis. Projects are managed in accordance with Phare rules and - withsome exceptions (PL0104.08 lack of personal continuity in the projectmanagement) - properly. In general implementation structures work efficiently and effectively, although the implementation process has beensignificantly delayed by the time-consuming preparation of twinningcovenant (PL0104.08)11 or long process of modification of the PF and preparation of tender documentation and related exchange of documents(2002/000-196.04.01). In general implementation structures work efficiently and effectively, although the implementation process has beendelayed by late contracting and the need to coordinate with preceding projects, which are delayed, (e.g. 2003/005-710.04.05, 2003/005-710.04.06) Most of the evaluated projects have achieved or are on theway to achieve fully their immediate objectives and are likely to have a positive impact on the sectors performance. For other three projects theachievement of all immediate objectives is seriously threatened, delayedand/or limited in the scope (PL0104.08, 2002/000-196.04.01,PL2002/000-605.04.02). Accordingly, the impact of these projects will belimited. The overall impact of all evaluated projects on the sector performance is therefore expected to be satisfactory. Sustainability of results produced should be satisfactory, however, it is depended oncommitment of the Polish authorities to provide the required financialresources and to limit turnover of highly trained staff. Also, in one case(2003/005-710.04.04) sustainability manifestly depends on thecontinuation of activities and on the factor s which are beyond theinfluence of the Polish veterinary services. Although the overall picture of the evaluated intervention could be assessed as a positive one, it should be

however stressed, that this assessment masks significant differences in the performance of evaluated projects: from ones performing very well andlikely to have a positive impact on the sector, to the ones poorly performing with limited impact expected. Also, the loose of 7.7M under 2002/000-580.04.01 slightly negatively affects this picture.

Transport andEnvironment

Satisfactory The assistance provided to the environment and transport sectors under the2002 and 2003 programmes addresses the broad range of the sectors main priorities. Project No 2003/005-710.05.02 is based upon the achievementsof the previous Phare programmes (especially project No 2002/IB/EN/01)and constitute a well-developed and coherent approach to the sectorsneeds. The objectives of the Phare projects 2003/004-379/01.09 and2003/005-710.05.02 are in line with and support the objectives of theAccession Partnership and the National Programme for the Adoption of

11 In the phase of preparation of the Twinning Covenant the implementation of this project was temporarily suspended by the EC what temporarily frozen all the activities. Obviously, this contributed to the delay.



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Acquis. Nuclear Safety projects properly implement therecommendations contained in the Council report on Nuclear safety inthe context of Enlargement. Projects are managed well (except project2002/632.07.02) and in accordance with Phare rules. Implementationstructures work efficiently and effectively (except project2002/632.07.02), although implementation process is sometimes delayed by time-consuming procedures. All the projects (except for project2002/632.07.02) are expected to achieve their objective and are likely tohave positive and expected impact on the sectors performance.Sustainability of results produced should be satisfactory or justsatisfactory (in the case of project 2002/632.07.02)

Thematic report THE/PL/05015 Implementation of twinning projects financed under theTransition Facility programme 12 was dedicated to the Institution Building projectsimplemented under the Transition Facility instrument and made comparison between thetwo tools: Phare and Transition Facility programme. It also evaluated the process of implementation of the Transition Facility projects. This evaluation concentrated mostly

on Twinning and Twinning Light projects which by the cut-off date of the report (23rdMarch 2006) were the only on-going activities under the Transition Facility scheme.

The THE/PL/05015 report covers the Transition Facility projects implemented under theTF 2004 and TF 2005 editions. The followingTF 2004 projects are covered by thereport: PL04/IB/AG02 (2004/016-829.01.04) EU Multisector training programme -

strengthening Administration responsible for phytosanitary issues PL04/IB/SO01 (2004/016-829.01.04) EU integration multi-sector training programme

- medicinal products for human use PL04/IB/SO03 (2004/016-829.01.06) Preparation of internal procedures andinstruments of the Polish health insurance system for the application of regulationsresulting from the co-ordination of social security systems -VITAPOL

PL04/IB/FI01 (2004/016-829.01.09) Strengthening of the protection of the EUfinancial interests

PL04/IB/EN01 (2004/016-829.02.01) Preparation for implementation of the legislative package REACH

PL04/IB/OT03 (2004/016-829.02.02) Strengthening the protection of intellectual andindustrial property rights

PL04/IB/FI02 (2004/016-829.02.03) Competition protection PL04/IB/OT04; (2004/016-829.02.04) Consumer protection system PL04/IB/FI03 (2004/016-829.02.05) Strengthening the Polish Customs Service PL/04/IB/EC01 (2004/016-829.02.06) Strengthening Conformity Assessment PL04/IB/EN02 (2004/016-829.03.02) Management System on Drinking Water

Monitoring in Chief Sanitary Inspectorate PL04/IB/EN03 (2004/016-829.03.03) Natura 2000; Elaboration of plans for re-

naturalization of natural habitats and habitats of fauna and flora species in Natura 2000sites and elaboration of management plans for certain species in Birds Directive andHabitats Directive

PL04/IB/AG03 (2004/016-829.04.01) Strengthening veterinary administration12 Draft report was submitted to the JE NAC on 14th April 2006.



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PL04/IB/AG04 (2004/016-829.04.02) Strengthening of Institutions Involved in RuralDevelopment Measures post 2006

PL04/IB/AG05 (2004/016-829.04.03) Institutional Building for the Design andImplementation of the Financial Instrument for Fisheries Guidance (2007 2013)

PL04/IB/JH02 (2004/016-829.05.02) Strengthening of the process of implementation

of the anticorruption activities in Poland PL04/IB/JH03 (2004/016-829.05.03) Inter-agency co-operation in the fight againstorganised crime

PL04/IB/AG01TL (Multisector) Institutional and organisation reinforcing of unitsresponsible for ex-post control of expenditures from EAGGF Guarantee section for intervention activities according to CMOs regulations

PL04/IB/JH01TL (2004/016-829.05.01) Support for regional and local communities to prevent drug addiction on the local level

PL2004/IB/JH/04/TL (2004/016-829.05.04) Strengthening the Polish justice system PL04/IB/OT02TL Strengthening the system of professional qualifications

PL2004/IB/TE/01/TL Strengthening URTiP in monitoring and stimulatingdevelopment of postal market PL2004/IB/TR/01/TL (Multisector)Market surveillance on marine equipment and

adjustment of hydrographic activities carried in Poland to IHO S-44

This Thematic Evaluation also coversTF 2005 assistance under the following projects: PL2005/IB/AG/05 Improving the control of food safety in the production of plant

crops PL2005/IB/AG/06 Strengthened food safety control of irradiated foodstuffs PL2005/IB/AG/07 Strengthening of the veterinary administration, phase II

PL2005/IB/EC/01 Support to Small and Medium Enterprises (SMEs) for theimplementation of the New and Global Approach Directives PL2005/IB/EN/01 Evaluation of existing active substances and registration and

surveillance of biocidal products PL2005/IB/EN/02 Capacity building in the field of environment health PL2005/IB/EN/03 Extension of the sanitary supervision system in the area of water

quality. PL2005/IB/FI/01 Improving the quality of operation of Tax Administration units PL2005/IB/FI/02 Strengthening the Polish Customs Service PL2005/IB/JH/01 Enhancing anticorruption activities in Poland

PL2005/IB/JH/02 Strengthening of the protection of the EU financial interests PL2005/IB/SO/01 Strengthening of State supervision and monitoring system of

exposure to electromagnetic fields PL2005/IB/SO/02 Transparency of the National Health System drug reimbursement

decisions PL2005/IB/TR/01 Expanding the administrative capacity to implement EU rail market

regulations PL2005/IB/AG/01/TL (Multi-sector project) Quality management strategy in the area

of plant protection and seeds PL2005/IB/AG/02/TL (Multi-sector project) System of supervision over the

coexistence of genetically modified crops with conventional and organic farming PL2005/IB/AG/03/TL (Multi-sector project) Strengthening of marketing qualitycontrol of fruit and vegetables



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PL2005/IB/AG/04/TL (Multi-sector project) Supervision authorities and certifying bodies work in organic farming

PL2005/IB/TE/01/TL Monitoring and stimulating the development of thetelecommunication market

PL2005/IB/EN/04/TL Strengthening the environment administration through

information technology systems

This Thematic Report focuses on implementation of 2004 and 2005 twinning projectsfinanced under the Transition Facility programme especially on relevance of their objectives to the evolving needs and priorities at both sector and beneficiary level,efficiency of the administrative structures originally designed to implement the Phare programme and now being utilised for the implementation of the Transition Facilityfunded projects.

On the whole, the evaluated projects are highly relevant to Polands current needswithin the sector. Moreover, at the operational level they correspond well with theoperational needs of the main beneficiaries and its mandated bodies. In most of the projects the objectives and the activities have been defined on the basis of research andanalysis conducted in the beneficiary institutions. With reference to the majority of projects being under implementation their relevance is verified through gathering thefeedback from participants and recipients of the twinning activities e.g. trainings,seminars, expert missions.Taking into consideration quite early stage of the TF 2004 twinnings realisation the

efficiencyof the implementation and management system can be assessed as satisfactory.The administrative structures of TF programme implementation work properly. Theinstitutions involved into implementation co-operate well. The experience gained bythese institutions during the realisation of Phare programme is useful for implementationof the TF funded projects. The operational contacts agreed in the previous yearsstrengthen the co-operation. The formal/ official way of ex-changing information anddocuments was limited to a large extend and replaced by working relations based co-operation between institutions involved. However the efficiency of projectimplementation with the Ministry of Finance is limited due to time-consuming and tooofficial (according to the CFCU and the UKIE staff) way of ex-changing of documentation and information. The co-operation between the CFCU and the twinning beneficiaries is satisfactory. The main element which negatively affects theimplementation of the twinning activities is insufficient time devoted by the Polish side(project beneficiaries). Such situation is caused by insufficient number of staff in the beneficiaries institutions. Moreover, the Polish staff is not able to devote to twinning projects activities an appropriate amount of time due to other obligations and duties. Onthe other hand lack of time and insufficient number of staff in most cases arecompensated by great commitment of the Polish side in the twinning. The main financial problem arising at the beginning of the twinning implementation was delayed delivery of TF co-financing. The twinning partners were obliged to use their own budgets to finance



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the initial activities. During the course of evaluation no large problems with Polish co-financing were identified. The local financial resources have been provided and are beingutilised. Only in one project 2004/016-829.03.03 Natura 2000 the beneficiary did notreceive the financing. All the 2004 twinnings for which the covenants have been signedare under implementation. Two covenants will be signed soon. Generally theeffectiveness of the implemented projects is satisfactory. The activities are being runaccording to the schedule and the first mandatory results have been achieved. Themajority of twinnings are expected to achieve the majority of the expected immediateobjectives. The prognosis for impactand sustainabilityis generally rather good evenconsidering the fact that the all evaluated twinnings are at an early stage of implementation where our assessment is based more on prediction than hard evidence.

The Report concludes that the implementation of the twinning projects under theTransition Facility instrument in Poland progresses well and should be rated asSatisfactory.



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INTRODUCTION

General background

The Contract Strengthening the Evaluation Capacities Technical Assistance under 2003/005-710.01.07 (the Contract) entered into force on 21st December 2004. TheContractor (the ECOTEC Consortium) commenced its activities immediately after theContract signature.

The previous Consolidated Evaluation Report, CR/PL/05002, covered the results of theInterim Evaluations (IE) carried out in the period between 1st April 2005 and 10th

November 2005.

This Consolidated Evaluation Report, CR/PL/05002, covers the results of the InterimEvaluations (IE) carried out in the period between 1st November 2005 and 25th April 2006and presents the implementation status of the Interim Evaluation of Phare programme inPoland as on 25th April 2006 (the cut-off date of this Consolidated Report). This reportalso covers Thematic/Ad Hoc evaluations conducted in the reporting period (includingevaluation of twinning projects implemented within the framework of Transition Facility programme). During the reporting period the Contractor carried out activities planned

under the two Annual Evaluation Plans: second part of the 2005 AEP and first part of 2006 AEP.

Annual Evaluation Plan for 2005 covers evaluations commenced before 31st December 2005. The completion of these evaluations (submission and acceptance of the FinalVersions of the evaluation reports) however continues in 2006. The 2005 AEP had been prepared using information provided by UKIE in meetings held in December 2004 andJanuary 2005. It was accepted in February 2005.

The 2006 AEP has been drafted using information provided by UKIE in meetings held inDecember 2005 and the evaluation priorities for 2006 as approved by the project SteeringGroup in its meeting in December 2005. It was submitted to JE NAC on 3rd January 2006and was finally approved on 1 March 2006 following incorporation of comments presented by JE NAC on 10th January 2006.In this period, according to the Annual Evaluation Plans for 2005 (2005 AEP) and for 2006 (2006 AEP), the IE process covered selected Phare programmes from the six sectorsevaluated within the framework of 11 IE reports.

Eight IE reports produced under the 2005 AEP covered the following sectors:



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Regional Development (2 reports: IE/PL/REG/05013 in sub-sector ESC13 andIE/PL/CBC/05014 in CBC14),

Internal Market (IE/PL/INT/05017 report)15, Justice and Home Affairs (2 reports, IE/PL/JHA/05008 and IE/PL/JHA/05018)16,

Agriculture (2 reports IE/PL/AGR/05010 and IE/PL/AGR/05020)17

and Transport and Environment (IE/PL/TRA&ENV/05019 report)18.

The IE reports produced under 2006 AEP covered the following sectors: Public Administration Development (1 IE report)19, Regional Development (1 report in sub-sector ESC20), Internal Market (1 report)21,

The results of all the IE processes carried out in the reporting period are taken intoaccount in this Consolidated Evaluation Report even if the IE process at the cut-off dateof this report was not completed and the Final Version (FV) of the IE report was not yetaccepted.

13 The report, with cut-off date 3rd October 2005, was accepted as FV on 23rd March 2006,.14 The report, with cut-off date on 30th September 2005 was accepted as FV on 23rd March 2006.15 The report with cut-off date 30th October 2005, was accepted as FV on 13th March 2006.16 Both accepted as FVs: IE/PL/JHA/05008 (with cut-off date on 30th June 2005) was accepted on 16th January 2006,and IE/PL/JHA/05018 (with cut-off date 30th November 2005) on 24th February 2006.17 Both accepted as FVs: IE/PL/AGR/05010 (with cut-off date on 15th July 2005) was accepted on 13th January 2006,and IE/PL/AGR/05020 (with cut-off date on 9th December 2005) was formally accepted by JE NAC on 11th April2006.18 Report (with cut-off date 30th December 2005) was formally accepted by the JE NAC as FV on 14th April 2006.19 On 7th April 2006 draft version of the report (with cut-off date 21st March 2006) was submitted to the JE NAC.20 The draft version of the report (with cut-off date 20th February 2006) has been submitted to JE NAC on 10th April2006.21 The report (with cut-off date 31st March 2006) has been submitted to JE NAC as draft version on 31st March 2006and formally accepted by JE NAC on 13th April 2006 and distributed to stakeholders for comments..



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Progress of implementation of the 2005 and 2006 Annual Evaluation

Plans

The 2005 and 2006 Annual Evaluation Plans (2005 AEP and 2006 AEP) summariseevaluation activities conducted in 2005 and 2006.

2005 AEP has been developed by the ECOTEC Consortium in early January 2005following extensive liaison with our counterparts within UKIE. The 2005 AEP wasapproved by the contracts Steering Group and then accepted by the Members of the JointMonitoring Committee. It constitutes the Work Programme for our consortiumthroughout 2005.

According to the 2005 AEP, the Interim Evaluation (IE) process of the Phare programmeconducted in 2005 in Poland should be implemented through the framework of 15standard IE reports, one Summary sectoral IE report, and 4 Thematic/Ad Hoc reports.The 2005 AEP also includes evaluations of Phare programmes originally intended to besubjected to interim evaluation in 2004. Delays to the contracting of the ExternalEvaluation Body meant however that the ECOTEC Consortiums contract did not occur until 21st December 2004, with actual evaluation report writing scheduled to start inFebruary 2005. This document should therefore be viewed as an amalgamation of the2004 and 2005 AEPs, though all activities took place in 2005. It should be stressed outthat at the cut-off date of this Consolidated Report all these activities were on variousstages of implementation.

Table 6. comparison between stipulations of the 2005 AEP and its implementation.



Planned in2005 AEP

On-going Plannedto be

completedCompleted

Transport & Environment 1 0 1 122

Agriculture 2 0 2 223

Internal Market 2 0 2 224

Public Administration Development 3 0 3 325

Justice and Home Affairs 2 0 2 226

22 FV or the report accepted by JE NAC on 13th April 2006.23 For the first report the evaluation process is completed, and the debriefing meeting took place on 7th February 2006.For the second report, the FV of the report was accepted by JEN AC on 11th April 200624 For both reports the evaluation process is completed, and the debriefing meetings took place on 4th October 2005 and1st March 2006.25 Debriefings for all these evaluations were organised on: 6th September 2005 (for two first evaluations) and on 19thDecember 2005



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53

00

53

5327

CBC 2 0 2 228

Summary sectoral report (PAD) 1 0 1 129

Thematic/Ad Hoc reports 4 2 3 230

Total 20 2 19 18

Within the framework of 2005 AEP only two Thematic/ Ad Hoc reports are still ongoing.Of these two, one following the request of the JEN AC was commenced with theKick-off Meeting on 14th February 2006 and evaluates the twinning projects implementedunder the Transition Facility instrument. The process of production of this report progresses in accordance with the agreed timelines and the draft version of the report wassubmitted to the JEN AC on 11th April 2006. The remaining Thematic/ Ad Hoc report,focused on analysing the twinning as an instrument for the Institution Building is in thedrafting phase as it was delayed by the very limited rate of responses to the questionnaireresearch and slow performance of the employed Short Term Technical Specialistexpected to produce the crucial element of the report.

Except for one Thematic Report there are no major derivations from the plan evaluationestablished by the 2005 AEP. There were some delays noted at various stages of production of particular reports but finally these problems were overcome and with theabove mentioned exception for two Thematic/Ad Hoc report all activities plannedunder 2005 AEP are completed.

2006 AEP, basing on evaluation priorities prepared by JEN AC in early December 2005,has been developed by the ECOTEC Consortium at the end of December 2005. It wasapproved by the contracts Steering Group and then accepted by the Members of the JointMonitoring Committee. It constitutes the Work Programme for our consortiumthroughout 2006.

26 Both evaluations are completed with debriefing meetings organised on 25th January 2006 and 24th February 2006.27 All these evaluations are completed w9ith debriefing meetings organised on: 2nd August 2005, 23rd September 2005and 1st March 2006.28 Both evaluations are completed with debriefing meetings organised on: 21st September 2005 and 1st March 2006.29 Completed. FV accepted on 12th October 2005. No debriefing meeting was organised for this report due to itsdifferent character (report summarising three previously prepared reports).30 FV of these reports were formally accepted by JE NAC on 5th July 2005 and 20th March 2006



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Table 7. Comparison between stipulations of the 2006 AEP and its implementation.



Planned in2005 AEP

On-going Completed

Transport & Environment 131 0 0Agriculture 132 133 0Internal Market 134 135 0Public Administration Development 236 237 0Justice and Home Affairs 238 139 0


4240

1141

00

CBC 242 0 0Thematic/Ad Hoc reports 543 344 0

Total 16 9 0

Implementation of the 2006 AEP progresses accordingly to the agreed timelines and thereare no derivations from the plan. There are no delays in submission of the draft reports.

In general it should be stated that implementation of the 2005 AEP is going to becompleted soon with the formal completion of the two on-going Thematic reports. Theimplementation of the 2006 AEP progresses well and without any major delay whichcould create any risk for timely completion of activities foreseen under this AnnualEvaluation Plan.

31 According to 2006 AEP evaluation of this sector should start in June 200632 Kick-off Meeting took place on 6th April 2006 and the IE report is in the drafting phase.33 Planned to be completed by 28th June 200634 Kick-off Meeting took place on 28th February 2006, draft version of the report was submitted to JE NAC on 31stMarch 200635

Planned to be completed by 28th

April 2006. By the cut off date of this report comments on draft version of the reportwere not received from JE NAC.36 For IE/PL/PAD/06002 report the draft version was submitted to the JE NAC on 7th April 2006, for the secondreportIE/PL/PAD/06007, the Kick-off Meeting took place on 6th April 2006 and the report is in drafting phase.37 The IE/PL/PAD/06002 report is planned to be completed by 12th May 2006 and the IE/PL/PAD/06007 report by 28thJune 2006.38 For IE/PL/JHA/06005 report the Kick-off Meeting took place on 28th February 2006 and the report is in the drafting phase (draft due to the JE NAC on 12th May 2006), commencement of the second report (IE/PL/JHA/06010) is plannedon 18th May 2006.39 Planned to be completed by 9th June 2006.40 Draft report for IE/PL/REG/06001 was submitted to JE NAC on 27th March 2006, commencement of the secondreport (IE/PL/REG/06014) is planned in July 2006.41 Delayed draft version submitted to JE NAC on 10th April 2006. Report was originally planned to be completed by20th April 2006.42 Commencement of these reports is planned on 23rd May 2006 and in July 2006.43 Three reports are in the drafting phase, commencement of the remaining two is planned on 23rd May 2006 and in July2006.44 Due to be completed by: 19th May 2006, 30th May 2006 and 7th July 2006



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In January 2006, after the draft Annual Evaluation Plan for 2006 was submitted to JE NAC, the Contractor was informed that JE NAC had produced a new version of thePolish IE Manual. This new Manual introduced some procedural changes (including theintroduction of pre-Kick-off Meetings and a requirement of preparation of specialmethodological notes for the pre-Kick-off Meeting) as well as lengthening the time period envisaged for the provision of documents by institutions involved in theimplementation of evaluated projects to the Evaluators and lengthening the time periodenvisaged for acceptance of the draft version of the report by JE NAC. Both of thesetime periods were extended by 5 working days in total adding an additional 10 workingdays to the timelines planned in the 2006 AEP.

Dissenting views

Immediately after the draft IE reports are accepted by NAC Evaluation Unit, they are

according to the stipulations of the Polish IE Manual, section 2.2.2.3 Preparation of thedraft Interim Evaluation Report) transmitted via e-mail to the relevant ministerialdepartments/units responsible for direct implementation of a given programme as well as participants of the kick-off meeting for their comments.

Remarks on draft reports can be provided by the relevant ministerial departments/unitsresponsible for direct implementation of a given programme as well as participants of thekick-off meeting to External Evaluation Body in written form normally within 10working days from transmission of the draft report. In some cases NAC Evaluation Unitextended the time for presenting remarks to 15 working days.

Comments and corrections referring to the factual situation of the projectsimplementation are always taken into account and incorporated into the draft finalversion of the IE report. When possible and if remarks, comments and correctionsreferring to the opinions and assessments presented by the Evaluators are well explainedand justified these remarks were also incorporated into the revised version of the IEreport. However in the situation when the remarks were not properly justified they werenot incorporated into the main body of the IE report, but they were presented together with the Evaluators explanation why they were not incorporated in a special Annex,Dissenting Views.

In most cases the remarks presented in the Dissenting Views refer to the opinions andformat and style of presentation of information in the IE report. Quite a large group of dissenting views refers to wrong understanding of formal procedures and regulations of the Manual of the Interim Evaluation of Phare and Transition Facility programmes ibn

Poland . Sometimes remarks and comments refer to ratings presented in the report and in



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some very rare cases have the form of a short statement that the rating should bechanged from 0 to +1 that the overall rating should be highly satisfactory.

Analysing comments received during the consultation period for these IE reports which

are constitute the factual basis for this Consolidated Report45, it is visible that the reportswere carefully analysed and utilised. It is clearly confirmed by the detailed and in-depthcomments presented by the stakeholders invited to present their comments, correctionsand remarks on the draft version of the reports. Statistically, in eight completed IE reportsthere were in total 62 dissenting views submitted by 8 commenting parties (comments presented on the same report by the different departments of the same institution werecounted as provided by one partner). Dissenting views were noted only for three IEreports produced within the reporting period: IE/PL/JHA/05008, IE/PL/AGR/05010 andIE/PL/INT/05017. For other reports there were no dissenting views and all comments

presented by stakeholders were agreed and incorporated by the Evaluators. It is worth tostate that the number of dissenting views on particular reports varied between 13(IE/PL/INT/05017) and 35 (on IE/PL/AGR/05010). In the case of the IE/PL/AGR/05010report all these comments were presented by two beneficiary institutions, of which one provided 5 dissenting views. The remaining 30 comments and remarks were produced bytwo departments of the same beneficiary institutions and very often were of exactly thesame nature and referred to the same elements of the report.

The largest number of dissenting views was provided by beneficiaries (48 dissentingviews), then by Implementing Agencies (13 dissenting views) and PAO services (theremaining 1 dissenting view). The huge number of dissenting views provided by beneficiaries reflects the fact that on the IE/PL/AGR/05010 report one beneficiary(Agency for Restructuring and Modernisation of Agriculture) submitted 30 dissentingviews.

When statistically analysing the subject of the dissenting views it should be stated thatthere are three main subjects which are predominantly present in the dissenting views:these are comments presenting different understanding/interpretation of agreed facts (26),comments referring to format and style of presentation (14) and comments questioningIE procedures defined by the Polish IE Manual (13). The number of dissenting viewssubmitted on these three subjects (47) constitutes 76% of all dissenting views submittedduring the reporting period.

Table 8. Dispersion of dissenting views by their subject.

45 The following eight IE reports were completed within the reporting period of this Consolidated Report (between 1st November 2005 and 25th April 2006) : IE/PL/ JHA/05008, IE/PL/AGR/05010, IE/REG/05013, IE/PL/CBC/05014,IE/PL/INT/05017, IE/PL/JHA/05018, IE/PL/TRA&ENV/05019 and IE/PL/AGR/05020.



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Subject of dissenting view Number Percentage

Different understanding/interpretation of agreed facts 20 32Format/style of presentation 14 23IE procedures defined by the Polish IE Manual 13 21Rating 10 16Others 5 8

Total 62 100

Figure 1. Dispersion of dissenting views by their subject

Subjects of the diss enting view s

Differentunderstanding/interpretationof agreed factsFormat/style of presentation

IE procedures defined bythe Polish IE Manual

Rating

Others



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R ESULTS OF E VALUATION

Public Administration DevelopmentSelected programmes from the monitoring sector Public Administration Development arethe subject of one Interim Evaluation (IE) report: IE/PL/PAD/06002 46. IE Report covering the following Phare projects:2002/000-

580.01.08 Preparation of the project pipeline for European Regional Development Fund(ERDF), 2003/004-379/01.07 Improving European Social Fund (ESF) management andimplementation, 2003/004-379/01.08 Implementation of Integrated Regional OperationalProgramme (IROP) on central and regional level, 2003/005-710.01.05 Preparation toimplementation of the Community Initiative INTERREG III in Poland, with specificattention to the Eastern Border, 2003/005-710.01.06 Preparation of the project pipeline for ERDF, 2003/004-379/01.01 NGOs for sustainable development.

The results of the Interim Evaluation of the Phare programmes providing support to thePublic Administration Development sector are summarised in the following Table:

Table 9. Results of evaluations of projects from Public Administration Development sector

(carried out in period between 10th

November 2005 and 25th

April 2006).Relevance On the whole, the evaluated projects are highly relevant to Polands current needs within the

sector. They fit in well with the overall strategic aims and objectives of key strategy documentssuch as the AP and Polish National Programme of the Preparation for Membership in the EuropeanUnion (NPPM). Moreover, at an operational level they correspond well with the operational needsof the Ministry of Regional Development and its mandated bodies. However, relevance is, in thecase of 2002/000-580.01.08, 2003/005-710.01.05 and 2003/005379.01.8, adversely affected by project design weaknesses, e.g. the time lag between project design and implementation hasaffected relevance, with some of needs of beneficiaries changed in meantime. Also the delayedimplementation of 2003/005-710.01.06 caused the need of change the target group of beneficiaries.

Efficiency The efficiency of the evaluated projects can in general be assessed as good. Efficiency washowever at times threatened by serious delays with contracting (2003/005-710.01.05). The beneficiaries have at times delayed the preparation of tender documentation until the last moment,which has resulted in failure to contract Also, the new Polish Public Procurement Law has blockedcontracting procedures for many months and made it impossible to appoint a contractor before thecontracting expiry date (2003/004-379.01.07). However, efficiency was, despite these problems,generally good because of the highly committed staff within beneficiary institutions who weredetermined to overcome any implementation problems. Co-operation between the beneficiaryinstitutions and the twinning partners are very good (2003/004-379.01.07, 2003/005-379.01.08).

Effectiveness The effectiveness of the evaluated projects has generally been high. The majority of projects areexpected to achieve the majority of the immediate objectives. Whilst the effectiveness of the projects as a whole is good, the effectiveness of the administration in maximising the use of Pharefunding has in a number of cases been lower. This has meant that some of project contracts have been funded through Polish national financing as opposed to Phare because of an inability tocomplete Phare tender procedures within the required timeframes (2003/004-379/01.07). In somecase, the projects are unlikely to develop their full potential (2003/005-710.01.05, 2003/005-

46 Draft version of the report (with cut-off date 21st March 2006) submitted to the JE NAC on 7th April 2006 and by thecut-off date of this report no formal approval was received from JE NAC



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379.01.08, 2003/005-710.01.06) due to the fact that their implementation is delayed.Impact The prognosis for impact is generally rather positive. There is an important problem some

evaluated projects are implemented too late to achieve significant impact on supported issues(2003/005-710.01.05, 2003/005-379.01.08). Despite these limitations, the majority of the projectswill have a positive impact on the institutional development of the MRD and its mandated bodies.Increased staff skills and competencies, the development of new procedures and tools are all practical examples of the likely positive impact of some projects (2003/004-379/01.07, 2003/005-379.01.08, partially 2003/005-710.01.05). It should be also underline the importance of supportingand strengthening NGO sector by 2003/004-379/01.01 project as a partner for PublicAdministration sector. Preparation of project pipeline under 2002/000-580.01.08, 2003/005-379.01.08 and 2003/005-710.01.06 will also have beneficial impact on the sector, but limited bytoo late or too early implementation.

Sustainability The sustainability of the results of programmes under evaluation is likely to be good reflecting astrong commitment within the staff of the Ministry of Regional Development and its mandated bodies to permanently embed the positive effects and impact of the projects under evaluation intotheir institutional procedures and culture (2003/004-379/01.07, 2003/005-710.01.05, 2003/005-379.01.08). Also the project addressed at the NGO sector (2003/004-379/01.01) will have positiveand sustainable effects. The results of the project pipelines under 2002/000-580.01.08, 2003/005-379.01.08 and 2003/005-710.01.06 will be also sustainable. However due to poor timing of theimplementation their sustainability is reduced.

The overall ratings of the implementation of the assistance provided to the sector andcovered by the IE processes conducted in the reporting period are presented in thefollowing Table:Table 10. Overall rating of evaluated projects from the PAD sector(as on 25th April 2005)

Criterion

Descriptiverate

Rate explanation

R e l e v a n c e

E f f i c i e n c y

E f f e c t i v e n e s s

I m

p a c t

S u s t a

i n a b

i l i t y

Total for theSector: 1 1 1 1 1 Satisfactory

The assistance is in general relevant to sector needsand is being implemented satisfactorily in accordancewith Phare rules, but sometimes implementationstructures have not worked efficiently and effectively.The implementation process is sometimes delayed.The majority of the projects are expected to achievemost of their objective, which will have a positiveimpact. Sustainability of the results achieved should be satisfactory.



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Regional Development

Evaluation of the selected programmes from the monitoring sector Regional

Development was conducted within the framework of activities addressing two main sub-sectors: Economic and Social Cohesion (ESC) and Cross-Border Cooperation (CBC).The results of the evaluation in these two sub-sectors are presented separately.

Economic and Social Cohesion

Evaluation of the selected programmes from the sub-sector Regional Development wasconducted within the framework of two IE Report

IE/PL/REG/05013 47 conducted under 2005 AEP covers Phare 2001 ESC, Phare2002 ESC and Phare 2003 ESC assistance to the regional development sector

investment projects in the following voivodships: Dolnolskie, Kujawsko-Pomorskie, Lubuskie, Opolskie and Zachodniopomorskie. IE/PL/REG/06001 48 conducted under 2006 AEP covers Phare assistance under

the following programmes/projects: 2002/000-580.06.01 Sectoral HRD,2002/000-580.06.02 SME and Innovation sectoral programme, 2002/000-580.06.03 TA for ESC (30.03.2006), 2002/000-580.06.05 Regional support programme for SMEs, 2003/004-379/5.1 Sectoral HRD, 2003/004-379/5.2 SMEand Innovation sectoral programme, 2003/004-379/5.3 Regional HRD, 2003/004-379/5.4 Regional support programme for SMEs.

The results of the Interim Evaluation of the Phare programmes providing support to theRegional Development sector are summarised in the following Table:

Table 11. Results of evaluations of projects from Regional Development ESC sector(carried out in period between 10th November 2005 and 25th April 2006).

Relevance All evaluated infrastructure projects properly address sectors needs and respond to both tonational strategies towards the sector and accession related priorities, and their relevance isvery high. Projects design is based on NPAA and AP priorities and is in line with thegovernmental strategy. Beneficiaries identify project objectives as their own and therefore the project ownership feeling is in general high. In particular projects meet regional needs relatedto the undeveloped road network and environmental infrastructure what is undoubtedly one of the most urgent problems related to the economic and social cohesion for almost all regions andespecially for rural areas.The HRD projects target the groups which are in particularly difficult situation on the labour market and therefore they are highly relevant. The assistance is built to much extent on themethodology and approach developed on the achievement of the previous editions of the PhareHRD projects (e.g. the measure 1 of 2002/000-580-06.01 and of 2003/004-379/05.01 continuesPL01.06.09.01-01-02). Due to the overestimated demand for the consulting services, the

47 The IE process is completed. Report with cut-off date 3rd October 2005 was formally accepted by JE NAC on 23rd

March 2006.48 Draft report (with cut-off date 20th February 2006) was submitted to JE NAC on 10th April 2006, formally approvedand distributed to the stakeholders for comments.



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structure of the assistance under particular projects SME projects does not fit very well to realSMEs needs, as the interest of potential beneficiaries in consulting grants was significantlylimited, and the interest in investment grants significantly exceeded the projects scope. Thusthe overall relevance of the assistance may be described as satisfactory.

Effectiveness The effectiveness of the evaluated infrastructure projects is in general satisfactory and theassumed operational aims are being successfully achieved, benefits being delivered to final beneficiaries. As the particular projects being completed, produced results will be supportingthe achievement of the assumed immediate objectives. However the effective implementationof Phare 2001 ESC projects have been seriously threatened by financial liquidity problemsThe effectiveness of the evaluated SME and HRD oriented projects is generally high, althoughdifferentiated. Services delivered to unemployed are very highly assessed and was effective ininfluencing beneficiaries employability. The objectives of SME projects related to theconsulting grants will be achieved only in a very limited scope, as overall, due to the very lowdemand, most of the outputs expected for the consulting grant schemes were not produced as planned (except the consulting grants under the Introduction to quality scheme. On the other hand, the investment grants schemes proved to be a highly effective tools in improving theoverall market position of beneficiary SMEs and in supporting the implementation of newtechnologies

Efficiency In principle, evaluated infrastructure projects are implemented efficiently, and with minor exclusions there is no problem with the beneficiary identification with project objectives andgoals. All the parties and structures involved in the implementation of evaluated projects work and cooperate well. Projects implementation runs smoothly and will produce expected outputs.In the case of ESC projects, the efficiency of the projects implementation was negativelyaffected by the number of factors. The poor quality of tender documentation submitted by the beneficiaries affected mostly the implementation of projects within Phare 2001 ESC programme causing severe delays which resulted in extensions of disbursement periods andlast minute contracting. As a consequence, also the implementation of the projects is delayedwhen compared to the initial schedule. With respect to the timeliness of the contractingsituation improved under Phare 2002 ESC and especially under Phare 2003 ESC. However Phare 2002 was affected by the changes of the implementation system and related changes of the format of demanded documentation. The efficiency of implementation of all projects wasaffected by complicated and requiring extensive human resources (esp. beneficiaries)monitoring system. Numerous re-allocation of Phare funds resulting from savings which occur as a result of the contracting process enabled efficient use of the available funds, adding thus tothe overall efficiency of project implementationAll the SME and HRD oriented projects are implemented smoothly, efficiently and flexibly.The monitoring system works effectively. The TA support received by the IA and beneficiarieswas adequate. The overall efficiency of projects implementation was increased by flexiblemanagement, by numerous re-allocations which enabled efficient, following real demand, useof funds. However, in the case of two 2003 SMEs projects, not all Phare funds had beencontracted (in total 6.1 M remained unused) what negatively affects the overall efficiency.

Impact Implemented infrastructure projects are expected to achieve their immediate objectives, which

are properly formulated and support achievement of wider objectives of the assistance providedand will have positive and expected impact on the sector.

Both HRD and SME projects have (for the projects which are completed) or will have some positive impact, but on a micro-level (individual and local), may be regional in some cases.HRD projects have or will have a positive impact on individuals related to their position on thelabour market, whereas SMEs projects have or will have the impact on the SMEs standing

Sustainability The evaluated projects are expected to produce sustainable results, although overallsustainability is reduced by not sufficient use of Phare experience for the preparation of SFimplementation system. Also, sustainability esp. in HRD sub-sector depends on macro-economical conditions and on the inflow of funds to finance initiatives of labour marketinstitutions which were initiated under evaluated projects. In the case of ESC programmes ,. theevaluated projects are expected to produce sustainable results. The overall sustainability of the

projects results is increased by the fact of using be beneficiaries the lessons learned andexperience gained during projects implementation for SF absorption.



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One may expect that in general effects of investments in SMEs supported under the grantschemes should be sustainable provided the national economy will keep growing. To someextend this also applies to the effects of some consulting grant schemes (where achieved, likee.g. Introduction of Quality under 2002/000-580.06.02). The sustainability of the effects of HRD projects which in general are related to the employability of individuals depends on manysocio-economical factors and cannot be neither assessed nor reasonably predicted at this stage.The effects of the investments in business supporting infrastructure supported by regional projects (2002/000-580.06.05 and 2003/004-379.05.04) are likely to be sustainable, providedthe appropriate funds will be provided for the maintenance

The overall ratings of the implementation of the assistance provided to the sector andcovered by the IE processes conducted in the reporting period are presented in thefollowing Table:

Table 12. Overall rating of evaluated projects from the REG/ESC sector(as on 25th April 2005)

Criterion

Descriptiverate

Rate explanation

R e l e v a n c e

E f f i c i e n c y

E f f e c t i v e n e s s

I m p a c t

S u s t a i n a b

i l i t y

Total for thesector

+2 +1 +1 +1 +1 Satisfactory

Assistance provided under the infrastructure investment projects is highly relevant to the sector needs. Althoughin general the implementation runs smoothly, it ismarked with serious problems with timeliness, esp. inthe contracting phase and permanent problems with the

financial liquidity. The effective use of savings adds tothe overall efficiency of the intervention. Projects areeither meeting or are expected to meet their immediateobjectives, however this is likely to be delayed in somecases. Projects effects when produced are likely to besustainable. Provided the performance of the nationaleconomy will be good, one might justifiably expect that projects will have reasonable impact on regional andlocal socio-economical situations, but this could bedefinitely confirmed only some time after the projectsare completed.

The assistance supporting development of SMEs andHRD sub-sector, is highly relevant to the sector of theregional development. It meets the real, existing needs intwo key sub sectors: HRD an SME. The projects aremanaged efficiently and flexibly what is of crucialimportance for the efficient use of funds and adjusting projects to the changing circumstances. With theexception of the consulting grant schemes, all theexpected effects are likely to be achieved supporting theachievement of the immediate objectives. The beneficiaries level and local impacts may be reasonable,although it is too early stage to make the definiteassessment. Some of the effects are likely to besustainable.



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Cross-Border CooperationEvaluation of the selected programmes from the sub-sector Cross-Border Co-operationwas conducted within the framework of one IE Report:

IE/PL/CBC/05014 49 conducted under 2005 AEP covers:2002/000-606 CBC 2002Poland Germany and 2003/005-708 CBC 2003 Poland Germany.

The results of the Interim Evaluation of the Phare programmes providing support to thesector are summarised in the following Table:

Table 13. Results of evaluations of projects from Regional Development CBC sector

(carried out in period between 10th November 2005 and 25th April 2006).

Relevance All evaluated projects properly address sectors needs and respond to accession related priorities, andtheir relevance is very high. Wider and immediate objectives, as identified through the process of bi- andmulti-lateral international consultations, are addressing fields of crucial importance for the border areasdevelopment Project design indirectly reflects NPAA and AP priorities and is in line with thegovernmental strategy. Beneficiaries identify project objectives as their own and therefore the projectownership feeling is particularly strong.

Effectiveness For Polish German CBC projects, most of the evaluated projects within Phare 2002 were implementedeffectively and are completed or at the final stage of implementation. For eight of them the disbursement periods were extended by 3.0 11.5 months. Phare 2003 projects are implemented properly and most of them are contracted. Notwithstanding some mentioned above problems, the effectiveness of the evaluated projects in general is satisfactory and implementation structures work well and Phare procedures are properly used.

Efficiency For Polish German CBC programmes, with exception for 2002/000-606.21 TA, the projects shouldachieve their immediate objectives.

Impact Implemented projects are expected to achieve their immediate objectives, which are properly formulatedand support achievement of wider objectives of the assistance provided and will have positive andexpected impact on the sector.

Sustainability All the evaluated projects are expected to produce sustainable results and particularly sustainability of theinfrastructure projects should be very high. However sustainability of projects addressing people-to- people and business-to-business re

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