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The European Union's CARDS Regional Programme

CBIB - Cross-Border Institution Building

CARDS Regional Service Contract 2006/120966

Inception Report

30th SEPTEMBER 2006

This project is funded by

the European Union

A project implemented by

BDPA in association with EWC / MDF /

CEU

The TA team provided by the contractor BDPA has prepared this report. The findings, conclusions and interpretations expressed in this document are those of the authors alone and should in no way be taken to reflect the policies or opinions of the European Commission. BDPA, Quartier des Chênes, 3 rue Gustave Eiffel, 78286 Guyancourt, France © European Commission 2006

BDPA would be happy to answer any queries raised in connection with this report or to provide further information if necessary

CBIB – Cross-Border Institution Building Inception Report CARDS Regional Contract 2006/120966 30/09/2006

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PROJECT IDENTIFICATION

Project Title: Cross-Border Institution Building

Project Number: 2006/120966

Countries/regions: Albania; Bosnia and Herzegovina; Croatia; the former Yugoslav Republic of Macedonia; Serbia (including Kosovo under the UNSCR 1244); and Montenegro

The Beneficiaries: Albania Ministry of European Integrations

Represented by: Donika Kastrioti str. Tirane Tel: + 355 4 228 358 Fax: + 355 4 256 267

Bosnia and Herzegovina Directorate for European Integration (DEI) Represented by: Kenan Tahmiscic, Head of Department Sector for Coordination of EU Aid Fra Andjela Zvizdovica 1/18 71000 Sarajevo Tel: + 387 33 264 330 Fax: + 387 33 296 473

Croatia Ministry of the Sea, Tourism, Transport and Development Directorate for Integrated Regional Development Represented by: Franka Vojnovic, Head of Department Vlaska 108 10000 Zagreb Tel: + 385 1 4695 817 Fax: + 385 1 4695 819

the former Yugoslav Republic of Macedonia

Secretariat for European Affairs Represented by: Gabriela Konevska – Trajkovska, Deputy Prime Minister Bul. Ilindenska bb 1000 Skopje Tel: + 389 2 3239 165 Fax: + 389 2 3113 710

Serbia Ministry of International Economic Relations Represented by: Gordana Lazarevic, Assistant Minister Vlajkoviceva 10 11000 Belgrade Tel: + 381 11 3346 067 Fax: + 381 11 3244 908

Montenegro Ministry of International Economic Relations and European Integration Represented by: Dragan Djuric, Assistant Minister Stanka Dragojevica 2 81000 Podgorica Tel: + 381 81 246 264 Fax: + 381 81 225 591

Kosovo under UNSCR 1244

UNMIK Office of European Integration Represented by: Michaela Friberg – Storey, Director Central Government Building South Wing/Office S 314 Pristina, Kosovo Tel/fax: + 381 38 504 604

The Commission The Commission of the European Communities (“European Commission”).

Contractor Consortium: (BDPA) (EAST-WEST consulting) (MDF) BDPA Quartier des Chênes, 3 rue Gustave Eiffel 78286 Guyancourt, France

Name of the contact person Mr. Remy Bloch

Project Steering Committee For members of the project steering committee, please refer to Appendix D


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PROJECT DATA

Financing Agreement Date of signature

22 May 2006

Project start date 16 June 2006

Project completion 22 November 2007

Implementation period

18 months

Total Budget 1,800,000 Euro

Inception Period 16 June 2006 to 30 September 2006

Work Plan 01 October 2006 to 22 November 2007

First Interim report 22 December 2006

Second Interim Report

22 May 2007

Final report 22 October 2007 (draft) Inception Report (IR) and Work Plan (WP)

Date: 30 September 2006

Period covered: From 22 May 2006 to 22 November 2007

Author: Natasa Gospodjinacki – Team Leader, CBIB – Cross-Border Institution Building and the project Team


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Table of contents

Project Synopsis ...................................................................................................... 7

Glossary of acronyms.............................................................................................. 8

1. Introduction.................................................................................................... 10

2. Analysis of the Project .................................................................................. 11 2.1 Previous assistance ..................................................................................................11 2.2 Related Regional programmes..................................................................................15 2.3 Relevant Project Context ..........................................................................................22 2.4 Overall key issues .....................................................................................................24

3. Objectives and Expected Results ................................................................ 26 3.1 Overall objectives......................................................................................................26 3.2 Specific Objectives....................................................................................................26 3.3 Expected outputs/results ...........................................................................................27 3.4 Counterpart, Target Groups and Beneficiaries..........................................................29 3.5 Assumptions and Risks.............................................................................................29

4. Project Approach and Overall Planning ...................................................... 30 4.1 Summary of project approach ...................................................................................30 4.2 Relation/Coordination with Other Projects ................................................................35 4.3 Inputs ........................................................................................................................36

5. Project organisation and inputs................................................................... 37 5.1 Office.........................................................................................................................37 5.2 Long term experts .....................................................................................................38 5.3 Short term experts.....................................................................................................39 5.4 Incidental Expenditures.............................................................................................39

6. Coordination .................................................................................................. 40 6.1 Institutional Structure ................................................................................................40 6.2 Management Structure..............................................................................................41 6.3 Steering Committee ..................................................................................................41 6.4 Reporting...................................................................................................................41

6.4.1 Submission and approval of reports ................................................................................ 42 7. Work Plan ....................................................................................................... 43

7.1 Inception Phase ........................................................................................................43 7.2 Implementation Phase ..............................................................................................47

7.2.1 Result 1: Programme Management Established............................................................. 48 7.2.2 Result 2: Programme Content Developed....................................................................... 54


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7.2.3 Result 3: Regional Cooperation Increased...................................................................... 56 7.2.4 Result 4: Project Pipeline Prepared................................................................................. 63

8. Conclusion ..................................................................................................... 70

9. Next Reporting Period................................................................................... 73

APPENDIXES .......................................................................................................... 75 Appendix A - Terms of Reference.......................................................................................76 Appendix B - Logical Framework ........................................................................................77 Appendix C - CBIB Offices Contact details and organizational chart..................................78 Appendix D - CBIB SC Members List .................................................................................79 Appendix E - Needs Assessment Analysis Report .............................................................80 Appendix F - Needs Assessment Analysis Questionnaires ................................................81 Appendix G - CBIB Approach –chart ..................................................................................82 Appendix H - Country Approach .........................................................................................83 Appendix I - CBIB Activities Time Table .............................................................................84 Appendix J - CBIB Incidental Budget Table ........................................................................85 Appendix K - CBIB Action Plan Inception Phase ................................................................86 Appendix L - CBIB Manual of Internal and Financial Procedures .......................................87 Appendix M - Meetings held during the Inception Phase....................................................88


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Project Synopsis

Project Title

EU Publication Reference

Project No.

Beneficiaries

Cross-Border Institution Building

EuropeAid/120265/D/SV/LB

CARDS Regional Contract 2006/120966

Albania; Bosnia and Herzegovina; Croatia; the former Yugoslav Republic of Macedonia; Serbia (including Kosovo under the UNSCR 1244); and Montenegro

Objectives

The Contract includes 7 objectives: the project has grouped them in two main objectives:

Strengthen Institutional Capacity for IPA CBC i. assist the eligible partners in the eligible areas in their involvement in the initial

programming relating to the IPA CBC; ii. assist the beneficiaries in the Preparation of Joint Programme Documents; iii. assist the beneficiaries in setting up an efficient operation of Joint Cooperation

Structures (Joint Cooperation Committee, Joint Steering Committee; Joint Technical Secretariat);

iv. extend the project development capacities of all eligible partner organisations in the eligible areas through the focusing on technical assistance;

Enhance Project Preparation Capacity v. build upon experience gained under previous funding instruments (CARDS,

Interreg, Phare CBC and Tacis CBC) of cross-border cooperation to improve capacity in project preparation and project implementation;

vi. build up pipeline of suitable projects for support under the IPA CBC post 2006 vii. assist the eligible partners in the eligible areas to increase cooperation on

practical problems in the border regions.

Planned Outputs

1. Programme Management Capacities Built

2. Programme Content Developed

3. Regional Cooperation Increased

4. Project Pipeline Prepared

Project activities

Build Capacities in Programme Management:

1. Carry out Needs Assessment Analysis 2. Provide Institutional support to NA 3. Provide Institutional support for the internal border programme management 4. Establish Joint Management Structures 5. Prepare Operational Guidelines 6. Deliver Training on programme management of JMS Staff “Internal borders"

Develop Programme Content: 7. Prepare Joint Programming Documents

Increase Regional Cooperation: 8. Build Cross-border project awareness on national and regional level 9. Prepare and distribute publications 10. Launch large scale mailing to promote programme 11. Prepare and make the Database operational 12. Design and make the Web site operational 13. Establish the Regional Forum

Prepare Project Pipeline: 14. Deliver Training in Project Preparation and Project Cycle Management (internal

& external borders) 15. Provide hands-on support for preparation of project proposals provided

Project start date 22 May 2006

Project end date 22 November 2007


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Glossary of acronyms

AL Albania AP Action Plan BG Bulgaria BIH Bosnia and Herzegovina CA Contracting Authority CADSES Central European Adriatic Danubian South Eastern Space CARDS EU Community Assistance (Programme) for Reconstruction, Development and Stabilisation CBC Cross-border Cooperation CBIB Cross-border Institution Building CD Directorate for the Coordination of EU Assistance CFCU Central Finance and Contracting Unit at the Ministry of Finance CfP Call for Proposals CODEF Central Office for Development Strategy and Co-ordination of EU Funds CRO Croatia CSO Civil Society organisation DCBITC Department for Cross-Border, Interregional and Transnational Cooperation DEI Directorate for European Integration of Bosnia and Herzegovina DFID Department for International Development (UK Government) EAR European Agency for Reconstruction EC European Commission ECHO European Community Humanitarian Aid Office ERDF European Regional Development Fund EU European Union GfA Guidelines for Applicants GR Greece GTZ Deutsche Gessellschaft fur Technische Zusammenarbeit HQ Headquarters HU Hungary IPA Instrument for Pre-Accession Assistance IR Inception Report ISPA Instrument for Structural Policies for Pre-Accession ISTE International Short Term Expert ITA Italy JCC Joint Cooperation Committee JMC Joint Monitoring Committee JMS Joint Management Structure JPD Joint Programming Document JSC Joint Steering Committee JTS Joint Technical Secretariat KS Kosovo as defined under UNSCR Resolution 1244 LLTE Local Long Term Expert LSTE Local Short Term Expert MA Managing Authority MEI Ministry of European Integration of Albania MFAEI Ministry of Foreign Affairs and European Integration of Croatia MIER Ministry of International Economic Relations of Republic of Serbia MIEREI Ministry of International Economic Relations and European Integration of Montenegro MIP Multi-Annual Indicative Programme MIPD Multi-Annual Indicative Planning Document MIS Management Information System MN Montenegro MSTTD Ministry of Sea, Tourism, Transport and Development of Croatia m/d man days NA National Authority NAA Needs Assessment Analysis NAC National Aid Coordinator NCP National Contact Point NGO Non-Governmental Organisation NIC National ISPA Coordinator NIPAC National IPA Coordinator NP Neighbourhood Programme NSRD National Strategy for Regional Development NUTS Nomenclature of Units for Territorial Statistics O&M Organization and Methodology OP Operational Programme OSCE Organization for Security and Cooperation in Europe OVI Objectively Verifiable Indicator PCM Project Cycle Management Phare Pologne, Hungrie Assistance a la Reconstruction Economique


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PP Project Partner PRAG Practical Guide for contract procedures financed from the General Budget of the European Union in the context of

external actions PSC Project Selection Criteria RO Romania SAA Stabilisation and Association Agreements SAP Stabilisation and Association Process SAPARD Special Accession Programme for Agriculture and Rural Development SC Steering Committee SCF Strategic Coherence Framework SEA Secretariat of European Affairs of the former Yugoslav Republic of Macedonia SPF Small project fund SRB Serbia S&M Serbia and Montenegro SF Structural Funds SLO Slovenia STE Short Term Expert SWOT Strengths, Weaknesses, Opportunities, Threats TA Technical Assistance TACIS Technical Aid to the Commonwealth of Independent States TL Team Leader TM Task Manager ToR Terms of Reference UNDP United Nation Development Programme UNSCR United Nations Security Council resolution URC Unit for Regional Coordination WP Work Plan ZELS Association of units of local-self government of the former Yugoslav Republic of Macedonia


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1. Introduction This Inception Report (IR) relates to the formulation of a detailed Work Plan (WP) which will focus on capacity building activities with the purpose of strengthening the readiness of the national authorities and potential beneficiaries (local government units and local CSOs) to respectively undertake and manage cross border cooperation programmes and to prepare and implement cross-border projects mainly in view of the future 2007 – 2013 cross border programme under the IPA.

It aims to describe the activities which have been carried out during the inception period, individuals which have been involved to date in those activities, findings that have been made and plans laid for the remaining 15 months of the project duration. The work plan, methodology, time frame, and reporting were agreed upon through the exchange of a series of communication between the project team, the Team Leader, the Contractor, the European Commission and Project Partners.

Two Interim Reports will be submitted at the end of months 7 and 12 of the project and the Final Report will be submitted at the end of the project. This will provide a detailed summary of activities implemented, problems encountered and solutions adopted, a description of results achieved and further recommendations. The Final Report will also include a detailed chart of resource utilization set against activities and results and as Appendixes all outputs produced by the project.

The inception phase was essentially focused on getting acquainted with the project context and actual situation on the field. Main focus of the Cross-Border Institution Building (CBIB) Team in the inception phase (16 June– 30 September 2006) was to closer understand the positioning of the project in reflection to the current situation of CARDS Regional CBC Programmes in the Western Balkans, analyse the capacities and potentials on the ground, get acquainted with the counterparts and further develop Organisation and Methodology (O&M) in line with the Terms of Reference (ToR).

Herewith, we are presenting the Inception Report, including the Work Plan and the Needs Assessment Analysis (NAA) Report. The Inception Report is assessing the issues to be addressed and will explain the priorities set for the Work Plan. It further includes the logical framework of intervention of CBIB. The WP describes in detail all planned activities and provides an indication of expected results. The IR and its Appendixes describe a set of verifiable progress indicators as well as an analysis of constraints that may hamper the implementation of activities; it further includes recommendations and options to address such constraints.

This report, including its Appendixes, will be submitted by CBIB project to the Programme Manager in the EC in Brussels and to the Steering Committee.


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2. Analysis of the Project Socio-economic situation of the Western Balkans

After a decade of conflicts, it seems that the political situation in the Western Balkans is becoming more settled, thanks in large measure to the intervention of the international community and the endeavours of the European Union and its international allies. All the countries in the region have democratic institutions, which although still fragile, are nevertheless working. Furthermore, a real political dialogue has been established between the States in the area, making it easier to find solutions to unsolved problems.

Economically, the Balkans is facing a difficult transitional period. Changing to a market economy is all the more difficult as successive wars have made the States’ economic systems fragile.

The prospect of integration in the EU constitutes a driving force motivating economic development and regional cooperation, as this obliges the candidate countries to undertake extensive and wide-reaching reforms in order to qualify for EU membership. The EU and its Member States intervene strongly to reinforce stability, encourage regional cooperation and contribute to the respect of democratic principles, human rights and the rule of law.

Thus, one of the key priorities of the EU is the promotion of stability and peace in the region. This interest is not only based on humanitarian grounds but also as a reaction to the regions’ conflicts, which have undermined security and prosperity across the continent of Europe.

For this reason, in May 1999, the EU decided to set up a Stabilisation and Association Process (SAP) which is a strategic framework governing relations with the countries of the Western Balkans. The SAP is a long term commitment to the region that seeks to promote stability while also facilitating closer association with the EU.

At the Feira European Council meeting in June 2000 the European Council confirmed “that its objective remains the fullest possible integration of the countries of the region into the political and economic mainstream of Europe through the Stabilisation and Association process. All the countries concerned are potential candidates for EU membership. The European Council encourages the States of the region to increase their regional cooperation”.

2.1 Previous assistance

As stated before, it is clear that the EU has to integrate the countries of the Western Balkans if a prosperous and stable European continent is to be fully assured. This is both with those countries that border the region externally (such as Hungary, Bulgaria, Romania, Greece, Slovenia and Italy) but also between the countries of the region.

As part of the stabilisation process, experience from other related assistance has been utilised to reach current CBC programmes. Those experiences start with Interreg programme.

Interreg

Originally launched in 1990, the Interreg initiative has seen its scope of action and its budget gradually expand. The current Interreg III (from 2000-2006), financed under the European Regional Development Fund (ERDF), is designed to strengthen economic and social cohesion throughout the EU and promote more European regional planning.


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Interreg III is implemented under three strands (A, B and C). The project under review in this proposal is more concerned with strand B which promotes territorial integration within large groups of European regions or other neighbouring countries such as the Baltic Sea region programme.

CADSES

CADSES (Central European Adriatic Danubian South Eastern Space), an Interreg IIIB programme, is a transnational area supported by the EU for achieving greater territorial and economic integration and promoting more balanced and harmonious development of the European space. Working in four priority areas (social and economic development, transport, culture and heritage and environment), CADSES involves 18 countries, out of which 9 Member States.

Phare, Tacis CBC and CARDS CBC between "Stabilisation and Access Process" (SAP) Countries

Cross-border cooperation programmes began in 1994 in the Phare countries. Their objective was to promote cooperation between countries in border regions of Central and Eastern Europe and adjacent regions of the Community and other applicant countries of central and Eastern Europe. Tacis CBC began in 1996 with an aim to promote cooperation between local and regional authorities in north-west Russia, western Belarus, Ukraine and Moldova. CBC projects, such as the Tacis CBC Small Project Facility (CBC SPF) have proven to be highly successful and have made a real impact on the lives of those living in the border regions of eligible countries.

CBC programmes are being extended to cover the countries of the Western Balkans. Funds from the Phare 2005 budget line are already available for Croatia; additionally, there is a budget for an SAP Countries CBC programmes. The Stabilisation and Association Process (SAP) is supported through a programme of financial assistance, CARDS (Community Assistance for Reconstruction, Development and Stabilisation) adopted in 2000. ECHO/Obnova were replaced by CARDS which was in Croatia in turn replaced by Phare from 2005 onwards.

By 2000 the EC had provided over Euro 5 billion in aid to the region. In the first half of the 1990s, the Commission focused on emergency support through the ECHO and Obnova programmes to assist the implementation of the Dayton/Paris and Erdut agreements and to restore basic stability to the region.

Under the CARDS programme during the period 2000-2006 the EU has focused its assistance to the region through support for the reforms necessary to implement the obligations of the Stabilisation and Accession Agreement (SAA). Euro 4.65 billion has been agreed for this period to be spent on some priority areas such as essential reconstruction and institution building. Priority sectors for assistance are:

1. Democratic Stabilisation: support to civil society development, network to network and initiatives for the development of rules of law, good governance, public accountability and freedom of opinion; return of refugees and displaced persons and media reform;

2. Administrative Capacity Building: reform of state institutions and taxation and customs;

3. Economic and Social Development: economic reform and development, social cohesion and development, sustainable local development and trade;

4. Environment and Natural Resources;


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5. Justice and Home Affairs: the administration of justice, policing, asylum and migration and integrated border management.

The strategy of the CARDS assistance is reflected in the approved Regional Strategy Paper for 2002-2006 and its 3-year Multi-Annual Indicative Programme (MIP) for 2002-2004, as well as in the 2005-2006 MIP approved at the end of 2004.

The Regional Programme and the National Programmes

Chapter 6.5 of the MIP specifies that “Border Region Cooperation programmes will be financed” to achieve “Greater levels of economic growth and social development within border regions” and “Greater levels of cross-border cooperation”.

Cooperation between regions and local entities is one of the cornerstones of European integration. The European Council encourages the States of the region to increase their regional cooperation. The Zagreb Summit in 2000 confirmed the agreement of the five countries concerned. The Declaration stated in particular that "rapprochement with the European Union will go hand in hand with this process of developing regional cooperation."

As the regional indicative programme points out, “The need for stronger institutions is not only a major Stabilisation and Association Process (SAP) challenge facing the region but is also one where the CARDS national and regional programmes continue to make a significant difference.” Furthermore, it stresses the need for civil service reform, assisting the reform programmes underway in each country including development of professional administrative procedures in conformity with EU standards.

The decentralisation process is at an early stage in most of the countries. In Croatia, the first stage of decentralisation (DIS accreditation) was completed in early 2006. It brings with it new responsibilities and a reorientation of focus on the state level to other regions and local entities at home or in the vicinity. Local entities in the region still need to fully develop the structures to deal with decentralised responsibilities. Further capacity building activities need to be launched in order to guarantee the development of stable and sustainable institutions.

For the purpose of this project, all regions/municipalities of the beneficiary countries will be considered border regions. EU Member States and Candidate Countries’ regions will be invited to participate if their participation adds value to the cooperation.

Border Region Cooperation will be developed through:

1. NPs at the external borders of the Western Balkan countries with either Member States or Candidate Countries

2. SAP Countries Cross-border Cooperation (CBC) activities for borders internal to the Western Balkan region.

The NPs and the SAP Countries CBC Programmes directly reflect the policy objectives of the Commission’s Communications on Wider Europe and on “Paving the Way” to a Neighbourhood Instrument. The Commission proposes that a two-step approach should be adopted. An initial phase from 2004-2006 has focused on significantly improving coordination between the various financing instruments concerned within the existing legislative and financial framework. In the second phase, for the period after 2006, the Commission intends to propose a new legal instrument addressing the common challenges identified in the Wider Europe Communication. Projects under the umbrella of NPs in the beneficiary countries will be funded by CARDS programme resources and therefore need to follow CARDS regulations (Council Regulation (EC) No 2666/2000 of 5 December 2000).


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Based on these policy orientations the CARDS Border Region Cooperation Programmes aim in this initial phase, at addressing, inter-alia, issues arising from proximity such as economic development of the border areas, environment and communicable diseases, illegal immigration, trafficking and people-to-people contacts.

Approximately Euro 50 million from CARDS Regional has been allocated to Border Region Cooperation Programmes for the 2004-2006 period (CBIB project - Euro 1.8 million, the 2004 NPs - Euro 15 million and the 2005-2006 NPs and SAP Countries CBC Programmes Euro 33-36 million).

Instrument for Pre-Accession Assistance (IPA)

Draft Council Framework Regulation COM(2004)n.627 of 27/09/2004 foresees, for the new financial perspective 2007-2013, an Instrument for Pre-Accession Assistance (IPA) which addresses:

Current candidate countries: Turkey, Croatia and the former Yugoslav Republic of Macedonia;

Potential candidate countries: Albania, Serbia (including Kosovo under the UNSCR 1244), Montenegro and Bosnia and Herzegovina.

As a single integrated Instrument for Pre-Accession, IPA replaces the various former instruments like Phare, ISPA, SAPARD, the Turkey Pre-Accession Instruments and CARDS. It is designed to support those countries in their efforts to strengthen democratic institutions and the rule of law; reform public administration; carry out economic reforms; respect human as well as minority rights; promote gender equality; support the development of civil society; advance regional cooperation; and contribute to sustainable development and poverty reduction in these countries.

IPA consists of 5 key components:

(I) Support to Institution Building and Transition

(II) Cross-border Cooperation

(III) Regional Development

(IV) Human Resources Development

(V) Rural Development

IPA Components II and V are intended to prepare Candidate Countries for the future management of EU Structural Funds (Components II-IV) and Rural Development Funds (Component V). Accordingly, these components will be implemented by means of Multi-Annual, Structural Funds-like Operational Programmes (OPs). The OPs themselves are intended to implement the priorities in a national strategic planning document, the Strategic Coherence Framework (SCF) which Candidate Countries are expected to prepare for the whole programming period 2007-2013. It should be noted here that unlike Components III and V, IPA Component II (cross-border cooperation) will also be available to the potential Candidate Countries, such as Bosnia and Herzegovina, Montenegro and Serbia.


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According to the latest EC information1 IPA CBC will further improve the harmonisation of the different funding instruments in use by the Member States and the Candidate Countries. The new CBC programmes will involve shared financial management of IPA and Structural Funds (Objective 3) and will have matched levels of funding joint project preparation, selection, contracting and implementation procedures. In this sense, the introduction of IPA CBC represents the next stage in the EC NP initiative and whilst there is still no unified legal background for both sides of EU external borders (as it was foreseen in the NPs Communication) it will advance the process of developing unified procedures on both sides of these borders.

Lessons learned

Each funding instrument has its own specific regulations. These border cooperation programmes involve (for the geographical area covered):

• the joint programming of measures;

• the adoption of a single application process;

• a single call for proposals on both sides of the border;

• the joint selection process for projects.

Programmes are all based on Phare CBC and Interreg practice. NPs will move towards the programming approach practiced in relation to the Structural Funds. Since the existing regulations for Interreg, Phare and CARDS will continue until the end of 2006, the NPs will still rely on different (but coordinated) funding instruments, and as a result, procedures regarding contracting and making payments will remain as before (per Interreg, Phare and CARDS regulations).

Experience with border region cooperation so far indicates that a solid preparatory phase is the most important prior to the launching of specific activities. In order for border region cooperation to be effective, it is crucial that there is good understanding of the rules and procedures, adequate capacity and functioning management bodies.

The CBIB project will pave the way for such a preparatory phase, as well as enhance capacity of the beneficiaries to participate in NPs.

2.2 Related Regional programmes

This project has identified relevant activities of implementing cross-border cooperation, both from Interreg and Phare. Although the situation varies from country to country, all of the Western Balkan states are involved in at least one border region cooperation programme. For the purpose of this document, we have identified External Borders as borders between EU Member States with candidate and potential candidate countries. Internal borders are the ones between the countries of the Western Balkans region.

Albania

Since 1998 reforms have been more productive and have led to the country negotiating a SAA with the EU following the Commission’s recommendation for opening the negotiations for an EU/Albania SAA in 2001. Albania is eligible for number of NPs currently under 1 As presented by representatives of DG REGIO in the ‘INTERACT’ seminar held in Rome on 9-10/3/06 on the ‘Future of CBC cooperation between Member States and Candidate Countries in the 2007-2013 perspective’


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preparation, namely: the first Neighbourhood Call for Proposals including CARDS, TACIS and Phare Countries; the New Adriatic NP and bilateral programmes with Greece and Italy.

In terms of the concept of the borders, under the new NPs for Albania, the external borders of Albania are Italy and Greece, while the internal borders include those with Montenegro, Serbia (including Kosovo under the UNSCR 1244) and the former Yugoslav Republic of Macedonia.

At the time of the Inception Report, Albania was included in the following NPs: Greece/ Albania, Italy-Adriatic (the successor to the Community Initiative Programme “Interreg IIIA – Tansfrontaliero Adriatico” which covers Italian regions bordering on the Adriatic, as well as the Western Balkans); the CADSES NP for which the first call closed on 7 November 2005. A total of Euro 1.6 million was available under CARDS Regional funding not to be split by countries. About 5 projects with Albanian participation, amounting approximately to Euro 1 million have been selected.

Within the framework of the SAP Countries CBC programmes, Albania benefits from two programmes: Albania/ the former Yugoslav Republic of Macedonia; Albania/ Serbia and Montenegro (including Kosovo under the UNSCR 1244). The preparation of the Joint Programme Document with the former Yugoslav Republic of Macedonia is becoming top priority for the Ministry of European Integration. The CBIB project office in Tirana in cooperation with the CBIB Skopje office is coordinating the activities for the preparation of the above mentioned documents.

Furthermore, the Multi-Annual Indicative Planning Document (MIPD) 2007 – 2009 is being prepared by the Albanian authorities. The MIPD aims at ensuring the necessary coordination and coherence between the different components of IPA. The MIPD encompasses the two IPA components which apply to Albania: the Cross-Border Cooperation Component and the Transition Assistance and Institution Building Component.

Bosnia and Herzegovina

In March 2000, the Commission developed a Road Map with 18 basic steps (political, economic, democracy and human rights, and the rule of law) whose completion would help the country function as a State, and would indicate the country’s willingness to reform. In October 2005, the Commission recommended the opening of negotiations for the signing of a SAA.

Under the NPs, Bosnia and Herzegovina is eligible for Italy-Adriatic and CADSES Programmes. So far, Bosnia and Herzegovina has no SAP Countries CBC activities planned. However, it is expected that the country will develop CBC activities with Croatia, Serbia and Montenegro. A capacity/institutional building project to be funded by the CARDS National 2006 is currently being considered by the Bosnian authorities.

In terms of the concept of the borders, the only external border of Bosnia and Herzegovina is Italy, while the internal borders include those with Montenegro, Serbia and Croatia.

Bosnia and Herzegovina has begun preparations for new IPA NP Italy-Adriatic, 2007-2013. The drafting of the OP is being led and coordinated by the Programme’s Managing Authority and its JTS located in L’Aquila in Italy. Bosnia and Herzegovina provides staff to work within the JTS. Authorities of Bosnia and Herzegovina will establish a management structure for the new Italy-Adriatic NP within the “Directorate for European Integration”.


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At present, no equivalent preparations have been undertaken on the IPA CBC OPs on 3 internal borders i.e. those with Croatia, Montenegro and Serbia. One of the principal reasons for this is the lack, to date, of designated Managing Authorities and JTSs to drive the process.

Croatia

Following the suspension of the opening of accession negotiations in early 2005, the Commission formally opened negotiations on 3 October 2005 with Croatia. Croatia has actively participated in the preparation of two NP: (i) Adriatic cooperation between Italy and the CARDS countries; (ii) the tri-lateral cooperation with Slovenia and Hungary. The programmes define development priorities and eligibility criteria for projects on the EU external borders. Croatia is represented in the managing structures of the programmes. Implementation of the first NPs with Slovenia, Hungary and Italy has already started. The following programmes support Croatian participation in cross-border cooperation with neighbouring countries:

Adriatic new NP Interreg-CARDS/Phare: Euro 1.8 million available under Regional CARDS 2004 (for all 4 CARDS Eastern Adriatic Countries) and an additional Euro 6 million from Phare CBC 2005 and 2006 (only for Croatia);

NP Slovenia/Hungary/Croatia: Euro 2 million from CARDS 2004 and additional

Euro 6 million from Phare CBC 2005 and 2006 for the 10 bordering Croatian Counties;

NP CADSES: Euro 1.6 million from Regional CARDS 2004 for all CARDS

countries eligible to Interreg IIIB CADSES Programme. A project under CARDS 2001 NP for Croatia addressed issues of “Strategy development and capacity building for border region cooperation”. The project focussed mainly on Croatia’s cooperation with Slovenia, Hungary and Italy. However, there was also an assessment of cooperation potential along Croatia’s borders with Serbia, Montenegro and Bosnia and Herzegovina. Within the framework of the 2000-2006 Interreg Initiative Croatia received Euro 1 million under the CARDS 2003 project ‘Local Border Regions’ Development’ to support the participation of Croatian partners in projects related to border region cooperation with Slovenia, Hungary, and Italy. Currently, 7 grant projects are supported through this grant scheme and a total of 9 projects are expected to be funded by the end of the Call for Proposals. A CARDS 2004 project “Border Region Cooperation" envisages Euro 1 million pilot grant scheme for cross-border projects on Croatian borders of neighbouring CARDS countries (i.e. with Bosnia and Herzegovina, Serbia and Montenegro). The TA part of this project provides support for Institution and capacity building for CBC in Croatia for all its borders, whether with Member States or Potential Candidate countries. Cooperation along the borders with Bosnia and Herzegovina, Serbia and Montenegro, however, still lacks a strategic multi-annual programming basis. At the time of drafting this report, no equivalent preparations have been undertaken on the IPA OPs borders with neighbouring CARDS countries, pending the publication of IPA Implementing Rules.


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The former Yugoslav Republic of Macedonia

After the crisis in 2001, which almost ended in civil war, stability has returned to the country. In October 2005, the former Yugoslav Republic of Macedonia was granted candidate country status, but no date was given for the opening of negotiations. However, this new status of candidate country should give to the former Yugoslav Republic of Macedonia a leading role in the preparation and implementation of the CBC programmes at internal borders. The external borders of the former Yugoslav Republic of Macedonia are with Greece and Bulgaria and the internal borders are with Albania and Serbia (including Kosovo under the UNSCR 1244). External Borders

The NPs at external borders are guided by the Phare-CARDS Joint Programming Document 2004-2006 for Bulgaria/ the former Yugoslav Republic of Macedonia and by the Interreg-CARDS Joint Programming Document for Greece/ the former Yugoslav Republic of Macedonia. Regarding Bulgaria, two joint calls for proposals under CARDS Regional Programme 2004 were launched recently. The first one, for Joint Small Projects, was launched in 2006, the deadline being 23 May 2006. The evaluation was finalized in September 2006. The second one, for Nature Protection, Valorisation of Cultural heritage and Cooperation among Public Institutions at the Regional/Local Level, was launched on July 2006 the deadline being 21 September 2006. The joint calls for proposals under CARDS Regional Programme 2005, Joint Small Projects and Sustainable Economic Development should be launched in October/November 2006. The JTS for the Bulgarian-the former Yugoslav Republic of Macedonia NP is established in Kjustendil, Bulgaria. Regarding Greece, the joint call for proposals under CARDS Regional Programmes 2004/2005 was delayed and should be launched in September/October 2006. The elements of this joint call for proposals are to be determined very soon (last meeting between the representative of Greece and the former Yugoslav Republic of Macedonia was held on 30 August 2006). The JTS will be in Thessaloniki, Greece, and is on the way to be established. Internal borders

Within the framework of the CARDS Regional Programmes, SAP Countries CBC Programmes, the former Yugoslav Republic of Macedonia benefits from two programmes: the former Yugoslav Republic of Macedonia/ Albania and the former Yugoslav Republic of Macedonia/ Serbia and Montenegro (including Kosovo under the UNSCR 1244). The government, as well as the beneficiaries, expresses the same interest to enter as soon as possible in the operational phase of defining the Joint Programming Documents (JPDs).

The CBIB project office in Skopje, in cooperation with the CBIB offices in Belgrade and Tirana, will play an active role in the preparation of the initial meetings and in the different phases of the preparation of the programmes.

Transnational cooperation

The former Yugoslav Republic of Macedonia started to be involved in CADSES in 2004 and received the full membership status in 2005. Two projects with Macedonian participation have been selected and a third one is still on a reserve list. CBIB project will not be strongly


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involved in the implementation of these projects but it will be useful to link and coordinate the CADSES realisations with the dynamic of CARDS Regional CBC Programmes. IPA CBC

The Multi-Annual Indicative Planning Document 2007-2009 is under preparation. The key priorities identified for IPA CBC between the former Yugoslav Republic of Macedonia and neighbouring countries include: promoting sustainable economic and social development in border regions, environmental protection, cultural and eco-tourism promotion, ensuring efficient and secure borders, promoting local “people to people” actions. The Macedonian administration began, jointly with the Bulgarian administration, to prepare IPA CBC programme on the former Yugoslav Republic of Macedonia-Bulgarian border. Serbia

The EU began negotiations on an SAA with Serbia and Montenegro on 10 October 2005. Since Montenegro separation, Serbia remained as a sole successor of Serbia and Montenegro in all international institutions. The SAA negotiations for Serbia are stopped over, but EC continues relations with the authorities on ongoing programmes and tasks. The talks on the resolution of status of Kosovo, which is currently under UN administration, are ongoing.

Border region cooperation is being increasingly developed in Serbia which is presently involved in five NPs with EU member states and future member states at various stages of preparation: (1) Hungary/ Romania/ Serbia 2004-2006; (2) Italy/ Adriatic, the Adriatic Transfrontier Interreg III Operating Programme (regardless of the fact that Serbia, following the separation of Montenegro, has no longer access to the sea-side, there are strong indicators that certain Serbian institutions will remain included in the programme); (3) a bilateral NP with Romania; (4) a bilateral NP with Bulgaria; (5) transnational CADSES NP, where 4th Call for proposals has been launched. Cross-border Cooperation Programmes will be developed with Croatia and Bosnia and Herzegovina in the near future.

Ministry for International Economic Relations (MIER) is monitoring the implementation of the CBC projects. At present, the modification of existing Management Information System (MIS) for development assistance is ongoing in order to be able to meet terms and conditions for reporting under the EU financial rules (ISDACON system). In that respect, first phase of preparation of MIS is finished and the test version is available. The MIER web site www.evropa.sr.gov.yu was published in 2005 with all the data on programmes including on-line partner search forum created for exchange of project ideas and creation of partnerships.

Technical Assistance support to the Programme Coordination and Management Unit within MIER is currently underway aiming at ensuring timely implementation of cross-border programmes in line with the relevant implementation procedures of participating donor agencies. However, formal organisation and implementation of cross-border cooperation on all administrative levels still seem to need strengthening. In this respect, the CBIB project has been foreseen to develop joint structures and programmes and identify priorities for cooperation between CARDS countries.

Having in mind all activities undertaken so far, and with a view to start the current programme, there is a need to continue strengthening capacity at all levels and thus enable sound participation in cross-border cooperation programmes.

The varying degree of participation in border region is accompanied by a varying degree in capacity and resources to prepare for and participate in Neighbourhood and SAP Countries CBC activities. Therefore, the CBIB project shall take these variations into consideration and


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seek to build upon successful experiences and proven mechanisms, replicating or adapting successful models when and wherever appropriate. The project should also draw on the experiences of CARDS Regional, TACIS CBC, Phare CBC and Interreg Programmes.

In terms of the concept of the borders, under the new neighbourhood framework the external borders of Serbia are Hungary, Romania and Bulgaria, while the internal borders include those with Croatia, Bosnia and Herzegovina, Montenegro, the former Yugoslav Republic of Macedonia and Albania.

The indicative financial allocation for National CARDS assistance for Serbia for the period 2000-2006 is Euro 1277 Million. In addition, Serbia is benefiting from a share in the regional CARDS budget for 2000-2006. For implementation of Neighbourhood Programmes, Serbia is using CARDS regional allocations for the period 2004-2006 and an additional specific allocation under 2004 National CARDS budget.

The Multi-Annual Indicative Planning Document (MIPD) and Operational Programme (OP) for each border 2007 – 2013 are being prepared by the Serbian authorities (MIER). It aims at ensuring the necessary coordination and coherence between the different components of IPA. The OP is based on the needs, challenges and priorities which are established in the European Partnership and the priorities identified within existing CARDS Regional CBC Programmes. IPA Component II will support cross–border programmes to be initiated between Serbia and the adjacent candidate and potential candidate countries (Croatia, Bosnia and Herzegovina, Montenegro, the former Yugoslav Republic of Macedonia and Albania), as at the moment there is no activity within internal borders; only initial discussions were held with Croatia and Bosnia and Herzegovina.

External borders

The NPs at external borders are guided by the Phare-CARDS Joint Programming Documents 2004-2006 for Bulgaria/ Serbia and Montenegro (including Kosovo under the UNSCR 1244) and Romania/ Serbia (including Kosovo under the UNSCR 1244), by the Interreg-CARDS Joint Programming Document for Hungary/ Romania/ Serbia (including Kosovo under the UNSCR 1244) and Interreg-CARDS-Phare Operational Programme for Italy/Adriatic Programme. Regarding Bulgaria, two joint calls for proposals under CARDS Regional Programme 2004 were launched in 2006 for Joint Small Projects and Capacity Building Grant Scheme. Projects evaluation is under way. The JTS for this programme is in Pernik. In the framework of programme with Romania, one joint call for proposals under CARDS 2004 is finished (projects evaluation is under way) and call for proposals under CARDS Regional Programme 2005 is ongoing. The JTS for this programme is in Timisoara. For programme with Hungary the JTS is in Budapest. The CARDS Regional Programme 2004 call for proposals was implemented in 2005, 18 projects were selected and currently are being implemented. Second call for proposals linked to the CARDS Regional Programme 2005 is ongoing. Regarding Italy/ Adriatic programme, the NP joint call for proposals is closed and selection of projects is under way. The JTS is in L’Aquilla, Italy.


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Internal borders

Initial meetings with Croatian partners were held in order to reach an agreement on the dynamics of programming of joint programme that will be implemented under IPA.

Within the framework of the CARDS Regional Programme 2005, the funds were allocated only for the external borders, whereas in 2006 the funds are to be allocated for both, external and internal borders with the distribution slightly higher for programmes at external borders. Moreover, the separation of Serbia and Montenegro should result also in the division of allocated funds between two states.

Transnational cooperation

Under the CADSES NP call for proposals seven projects with participation of Serbian partners have been selected. The signing of the contracts is expected at the end of October 2006.

Kosovo under the UNSCR 1244

Kosovo as defined under the UNSCR 1244 potentially can develop CBC programmes with Montenegro, Albania and the former Yugoslav Republic of Macedonia. Cooperation between municipalities on the territory of Kosovo under the UNSCR 1244 and neighbouring municipalities along the administrative borders is already researched (i.e. the study conducted jointly by KIPREK, Kosovo NGO and European Movement, Serbian NGO) and to a certain extent experienced (i.e. GPKT initiative supported by East West Institute).

So far, the main CBC initiatives involving Kosovo are the GPKT (Gnjilane, Presevo, Kumanovo and Trgoviste) initiative supported by East West Institute and, at a very starting point, the Kukes, Dragas, Tetovo CBC initiative supported by the OSCE. The future CBC programmes launched under IPA will benefit from the lessons learnt and structures established under these initiatives. However, they can hardly be considered as CBC programmes regarding CARDS/IPA procedures:

• They are implemented at the municipal level;

• They are all “trilateral” initiatives (Kosovo/ Serbia/ the former Yugoslav Republic of Macedonia and Kosovo/ the former Yugoslav Republic of Macedonia/Albania) which, in the case of Kosovo, could hardly be duplicated under CARDS or IPA CBC.

• They consist mainly of networking activities (among municipalities and CSOs) and do not include the set-up of mechanisms for call for proposals and projects co-funding.

The awareness on CBC and capacity to prepare and implement CBC programmes is extremely low. In this regard, Kosovo is a specific case which certainly requires a specific and long term approach. Under the UNSCR 1244, Kosovo could potentially participate in the SAP Countries CBC Programmes Serbia and Montenegro (including Kosovo under the UNSCR 1244)/ the former Yugoslav Republic of Macedonia and Serbia and Montenegro (including Kosovo under the UNSCR 1244)/ Albania. So far, this participation is jeopardized by the very low capacity in implementing such programmes as well as political concerns. As stated in the draft of the Multi-Annual Planning Document for Kosovo, Kosovo will benefit from IPA component I (Transition Assistance and Institution Building) and component II


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(Cross-border Cooperation). IPA allocation for CBC programmes in Kosovo, as agreed in the Multi-Annual Indicative Framework is Euro 8,2 million for the period 2007-2009. Kosovo will participate in IPA as a full beneficiary under the UNSCR 1244 and not in the frame of Serbia (including Kosovo under the UNSCR 1244), as it is the case for CARDS programmes.

Montenegro

In terms of the concept of the borders, under the new neighbourhood framework the external border of Montenegro is Italy, while the internal borders include those with Albania, Croatia, Bosnia and Herzegovina and Serbia (including Kosovo under the UNSCR 1244).

After the separation of Montenegro from Serbia it became an independent country. However, due to the willingness and efficiency of EU approach, the state remained involved in one ongoing programme - the Italy/ Adriatic New NP (administrative assessment of the CfP done), and it is concerned to be eligible for the regional CADSES programme (contracting pending).

The Adriatic NP is the successor to the Community Initiative Programme “Interreg IIIA – Tansfrontaliero Adriatico”. It covers Italian regions bordering on the Adriatic, as well as the Western Balkans (7 Italian Adriatic regions and Croatia, Bosnia and Herzegovina, Serbia, Montenegro and Albania). This Programme provides an indicative amount of Euro 1.8 million for financing activities. At the time of the Inception Report, the A.1 Call for Proposal was launched. Administrative assessment of the call has been conducted. Some 120 projects have been submitted.

There are a number of similar on-going smaller-scale CBC projects managed by the UNDP and GTZ, one of them focusing on enhancing cross-border cooperation between the municipality of Rozaje and its neighbouring municipality in Serbia (including Kosovo under the UNSCR 1244).

2.3 Relevant Project Context

As a result of the significant EU assistance in the last years, the CBC concept and mechanisms, including the compilation of Joint Programming Documents, the establishment of Joint Management Structures and calls for proposals, have been experienced in the most of the countries in the area, with the exception of Montenegro and Kosovo under the UNSCR 1244. Number of CARDS Regional CBC Programmes have been implemented or are under implementation. No doubt that the experience gained throughout those exercises highly contributed to strengthening of the national, regional and local capacities. Even if all the national structures in charge of CBC programmes are understaffed and are requesting additional TA and capacity building, there is almost always a small team of young and dedicated persons having a precise understanding of the mechanisms to be set up for the implementation of CBC programmes. CBIB project will be developed on this existing experience and know-how.

However, the NAA conducted during the inception period shows that:

• The past and ongoing CARDS Regional CBC Programmes were exclusively implemented at the external borders. So far, internal borders did not benefit from any CBC programmes with the exception of a few initiatives supported by other donors (although the objectives and/or content of most of these initiatives are not in line with the EU CARDS Regional CBC Programmes concept). As a result, the awareness as well as the capacity in project preparation at the local level within a country is very


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different from one border to another. If a real CBC dynamic is launched at the external borders, we are starting from zero at the internal borders.

• Being located at the external borders, the past and ongoing programmes were and are facilitated by the support provided by the member states and candidate countries, at the national as well as local levels (for example, Bulgarian municipalities have a leading role in the ongoing NP Bulgaria/ the former Yugoslav Republic of Macedonia. The non member and non candidate countries had often a passive role in defining the JPDs and were not in charge of establishing the Joint Management Structures. The extension of CBC programmes to internal borders raises therefore a double challenge:

The CBC at the internal borders will have to be implemented parallel to the ongoing and future CARDS Regional CBC Programmes at the external borders. How to absorb this additional scope of work, knowing that the national structures in charge are already understaffed?

Implementing CBC at the internal borders will require from the national authority not only more work but also more technical inputs than the ongoing programmes at the external borders (JPDs, JMS, monitoring, etc). How to be ready to face this new complexity?

• Kosovo under the UNSCR 1244 and Montenegro are far behind the other countries/regions in terms of experience in implementing CBC programmes and in terms of capacity. This will be a handicap not only for the regions eligible for CBC in Kosovo and Montenegro, but also for the neighbouring countries.

If technical assistance is to be provided to the national authorities in charge of the future CBC at the internal borders even more is to be done in order to prepare the regional and local authorities. In all the countries, a decentralisation process is ongoing, but is far to be finalized. The legal framework of the decentralization is still to be stabilized and the operational and financial capacities of the Local Government Units are still to be built (particularly if we consider that the border regions are often rural and marginal areas). Obviously, the CBC programmes are participating in this decentralisation process and one of the challenges faced by CBIB project is to improve the capacities of Local Government Units in implementing CBC programmes when the whole structure of these units is still under construction. Flexibility will be needed as well in establishing close and regular cooperation with the local government units (which could be more efficient than single training sessions or seminars). Another issue will be to involve, in the preparation and the implementation of CBC programmes, the bodies concerned with the decentralisation process: ministries of local self-government, associations of local government units, etc. They have, or will have, a major role in supporting and coordinating the local government units, but are not yet fully participating in CBC programmes.

Local Civil Society Organizations (CSOs) are in the same situation. Significant assistance has been provided during the last decade to strengthen the capacities of the CSOs. However, mainly the national CSOs or Non-Governmental Organisations (NGOs) located and operating in the capitals and main cities benefited from this assistance. Many of these NGOs have now a better capacity in project preparation and implementation than the national and local administrations. But the situation is quite different in most of the border regions, as illustrated by the low quality of the project documents submitted by local CSOs to the previous calls for proposal. Significant efforts are needed in order to improve their capacity and also to improve the cooperation of the CSOs with the Local Government units.


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If the awareness on CBC is still low in many border regions and also within many national institutions, the awareness on IPA CBC is of course even lower. But the demand for practical information on IPA CBC is already huge everywhere and particularly at the local level. One of the difficult tasks of CBIB project will be at the same time to support the implementation of the ongoing NP (under CARDS/Phare and CARDS/Interreg) and to start the awareness campaign about IPA CBC.

2.4 Overall key issues

There are four key issues which are to be seriously considered in order to ensure the efficiency and effectiveness of CBIB project:

• The recent creation of new borders as consequence of Montenegro secession and ongoing discussion in regards to the future status of Kosovo which should be already prepared for IPA CBC.

• The lack of TA in most of the countries

• CBIB project lifetime

• CBIB resources.

The new borders and the status of Kosovo

In terms of number of borders, situation has changed from the time the ToR for CBIB was drafted and the effective start of the project. In the meantime, Montenegro has gained its independence which has created additional four borders between Montenegro and Albania, Croatia, Bosnia and Herzegovina and Serbia. This fact has serious impact on CBIB approach since the number of borders has increased.

The participation of Kosovo in the SAP Countries CBC programmes (CARDS 2005 and 2006) will reflect only issues of capacities of administration to manage CBC programmes. Nevertheless, the status of the borders of Kosovo with the former Yugoslav Republic of Macedonia, Albania and Montenegro is clear regarding IPA CBC (Kosovo is a full beneficiary of IPA component II).

The Agency for European Integration is in charge of European integration and management of CBC programmes in Kosovo and is supported by UNMIK Pillar 4. The Agency is dramatically understaffed. The acting director is following CBC issues at the regional level, but there is nobody in charge of the operational aspects of implementing CBC programmes. The Agency does not have the human resources and capacity to organize the coordination of the different ministries which should be involved in CBC process (such as the Ministry of Local Administration). As a result, the capacity and awareness about CBC in the other institutional bodies is expected to be even lower than in the Agency for European Integration. Since Kosovo is not directly involved in the CARDS Regional CBC Programmes, there is no task manager specifically in charge of CBC in the EAR Pristina, the contracting authority for CARDS programmes, and it is not yet considered for IPA. A strong technical assistance is therefore required in order to prepare Kosovo to enter successfully in IPA CBC process.

Current technical assistance (TA) to national authorities (NA)

So far, there are two TA programmes supporting line ministries responsible for CBC. Those programmes are being implemented in Croatia and Serbia. Meetings were organized and mutual support and coordination has been agreed upon.


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In Bosnia and Herzegovina, a possible TA to National Aid Coordination Unit could be provided through newly launched EC project. However, it is clear that by the time the TA will be in place and will start its implementation period, CBIB project will be already phasing out. This project will provide a useful support for a follow-up of CBIB activities, but synergies with this project will not happen during CBIB implementation period.

In Serbia, the TA to MIER is extended for additional 18 months under present conditions.

In the former Yugoslav Republic of Macedonia and Albania, there is no TA programme and CBIB project is already requested to support the ongoing NPs at the external borders.

There is no TA programme in Kosovo under the UNSCR 1244 and the capacities of the national institutions as well as local stakeholders are much lower than in the other regions.

CBIB project lifetime

Following the findings of the NAA and the results of the interviews with our Counterparts, the support will have to be provided first to the national authorities in order to strengthen their capacities in managing the current CARDS Regional CBC Programmes.

In parallel, the project will support them with TA in the programming activities (preparation of JPDs under IPA CBC for Internal borders) and in the establishment of JMSs (Internal borders). If we take into consideration the time needed to have the JPDs prepared (8 borders without Kosovo and Montenegro), it is expected that these documents could be approved in early autumn 20072. JMSs should be established during the same period, staff will have to be recruited and trained. JMS on all 8 borders will again not be fully operational before the end of 2007.

Taking the above into consideration and the fact that CBIB project will end by November 2007, no proper support can be provided to final beneficiaries in preparing the projects to be financed under Regional CARDS and future IPA CBC. There is a risk that a considerable gap would be created in having management structures established and operational, but no project preparation capacity built among the final beneficiaries. The Contracting Authority and the project Counterparts should think how to address this issue to minimise the negative impact if no sustainability will be ensured.

CBIB resources

Resources in terms of EU key expert man days (Tirana, Skopje, Sarajevo) as well as incidental budget available within CBIB project are limited. Taking into account all above mentioned, new borders, lack of TA, and NA low capacities in most of the countries in addition to non existing programming documents and management structures, the following needs to be pointed out:

Montenegro

As already mentioned, no CBIB office was planed to be established in Podgorica. In our proposal, we suggested the alternative of having one of the local long term experts posted in Podgorica, but this nowadays would not be sufficient to adequately address the needs of Montenegro (four new borders) and the complete lack of resources in Montenegrin ministry.

2 Guidelines for preparation of JPDs can be prepared only when IPA Implementing Rules will be available


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The possibility of allocating additional resources (through a separate framework contract or through an extension of this one) to allow the establishment of an office providing specific assistance to Montenegro should be explored.

Kosovo under the UNSCR 1244:

Even though CBIB project has no office in Kosovo, initial assessment was already carried out, but was limited to interviews of the main stakeholders potentially involved in CBC. The proper NAA could not be carried out at this point and the cooperation with the ongoing Department for International Development (DFID) study is therefore considered as very important for the definition of a further strategy for the participation of Kosovo in the CBC process and for the possible participation of the CBIB project in this process. Taking all this into account, issue of CBIB available resources is as crucial as project lifetime. CBIB will try to manage with existing resources not influencing quality of the outputs.

Main recommendations related to these overall key issues:

To consider the possibility of opening a CBIB office in Podgorica.

To consider the opportunity of additional support to the preparation of Kosovo under the UNSCR 1244 for its participation to IPA CBC.

To consider the possibility of follow-ups of CBIB project in order to provide capacity building to final beneficiaries of CBC programmes.

3. Objectives and Expected Results

3.1 Overall objectives

The overall objective of the CBIB project is to strengthen the capacities of eligible partners – national authorities and potential beneficiaries (local government units and local CSOs) to respectively undertake and manage cross border cooperation programmes and to prepare and implement cross-border projects mainly in view of the future 2007 – 2013 cross border programme under the IPA. It should also enhance prosperity and good neighbourly relations through improved cooperation in the border regions of the beneficiary countries. The assistance will be provided through capacity building, information provision, technical assistance, training and ad hoc support which will have a direct and positive impact on the ability of the eligible project partners to fully participate in cross-border development projects. The project will underpin efforts to improve neighbourly relations which, in turn, will lead to a greater level of cooperation. As EU policy shows, this cooperation leads to enhanced economic integration and cross-border trade – one of the most important ways to increase prosperity across borders.

3.2 Specific Objectives

The project will work on two main areas grouping seven specific objectives stated in the ToR:

1. Strengthen Institutional Capacity for IPA CBC

• assist the eligible partners in the eligible areas to participate in the initial programming relating the to IPA CBC in line with those activities foreseen in the plans of National Governments;


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• assist the beneficiaries in the Preparation of JPDs/OPs;

• assist the beneficiaries in setting up an efficient operation of Joint Management Structures (Joint Cooperation Committee, Joint Steering Committee, Joint Technical Secretariat);

• extend the project development capacities of all eligible partner organisations in the eligible areas through focusing on technical assistance.

2. Enhance Project Preparation Capacity

• assist the eligible partners in the eligible areas to increase cooperation on practical problems in the border regions;

• build upon previous experience gained under previous funding instruments (CARDS, Interreg, Phare CBC and Tacis CBC) of cross-border cooperation to improve capacity in project preparation and project implementation in the beneficiary countries;

• build up a pipeline of suitable projects for support under the IPA CBC, after 2006.

3.3 Expected outputs/results

In order to develop more systematic approach which will guarantee better coordination and major impact, the CBIB project team has developed the above two specific objectives into four major results as described hereafter. The contents of this section of the report are shown in summary form in a logical framework annexed to this inception report (Appendix B).

Result 1: Programme Management established

1.1 Provide Institutional support to NA

1.2 Provide Institutional support for the IPA CBC programme management

1.3 Establish Joint Management Structures

1.4 Prepare Operational Guidelines

1.5 Deliver training on programme management of JMS Staff “Internal borders"

The Team has already in the Inception phase conducted visits to partners to examine opportunities for providing technical assistance under CBIB. The project team received invaluable feedback on activities and could fine-tune the direction of the programme activities to ensure that the objectives of the project are followed at all times.

The required Joint Management Structures (Joint Monitoring Committee, Joint Steering Committee, and Joint Technical Secretariat) for the successful management of all cross-border cooperation projects will be in place and staff will be fully trained and effective by the end of the project implementation.

The training programme outlined in our Work Plan will provide effective and efficient method of building capacity among those who will be working in the structures to be put into place to implement and manage cross-border (Border Region Cooperation) initiatives. The staffs of the Secretariats are important actors in strengthening capacity as they too will work on


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improving participation in the project preparation process and provide sustainability following the completion of the CBIB project.

Result 2: Programme Content developed

2.1 Prepare Joint Programming Documents

IPA Implementing Rules were drafted and are the precondition for drafting the Joint Programming Documents. The project team will support the preparation of these programming documents, which should be approved, in place and operational for all countries in the Western Balkans during the course of the project implementation.

Result 3: Regional Cooperation increased

3.1 Build Cross-border project awareness on national and regional level

3.2 Prepare and distribute publications

3.3 Launch large scale mailing to promote ongoing programme

3.4 Prepare the database and make it operational

3.5 Design Web site of CBIB Programme and make it operational

3.6 Establish Regional Forum

Dissemination of information, particularly IPA CBC rules and procedures will be a core activity of the project. All partners must have access to information about programming opportunities, the rules and procedures, and importantly, in their own language, so that they can study and learn about the programme.

Furthermore, information on CBIB project to eligible partners will be elaborated to maximise the profile of the CBIB project and the services and products offered to interested targets.

The project team will also organise in cooperation with National Authorities in beneficiary countries a large number of Information workshops (or days) as part of the process of raising awareness and building up the number of successful applications.

Result 4: Project Pipeline prepared

4.1 Conduct Training in Project Preparation and Project Cycle Management (internal & external borders)

4.2 Provide hands-on support for preparation of project proposals

Dedicated training on project design and preparation, project cycle management, calls for proposals and relevant European Commission Rules and Procedures will also be organized.

The training programme proposed will guarantee the most effective and efficient transfer of expertise to build sufficient capacity among our audience to enable them to fully participate in, and take advantage of, funding mechanisms and opportunities. In addition, the project


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team will provide hands-on support to NA and final beneficiaries in preparation of project proposals.

3.4 Counterpart, Target Groups and Beneficiaries

The target groups of this programme are the local and regional authorities situated in the eligible area (Albania, Bosnia and Herzegovina, Croatia, the former Yugoslav Republic of Macedonia, Serbia (including Kosovo under the UNSCR 1244), and Montenegro) and the final beneficiaries will be the eligible partners for the NPs such as:

• National, regional and local authorities;

• Associations of local and regional authorities, para-statal bodies, offices of Central Government in the regions (with local and regional competencies) and other not for profit organisations (such as NGOs, universities, business associations, etc.) acceptable to the local authorities in the project preparation process.

3.5 Assumptions and Risks

Assumptions

The interest of the national, local and regional authorities on both sides of the external borders of the EU (and Phare countries) and among the CARDS borders in cross-border cooperation will be necessary for the success of the CBIB project.

It is assumed that:

• Eligible partners in the external border regions of the beneficiary countries remain interested in cross-border cooperation;

• EU member states continue to view cross-border cooperation as beneficial;

• There is willingness among all eligible partners in all parts of the beneficiary areas to participate;

• The national authorities consider cross-border cooperation programmes as beneficial for strengthening the cooperation with the neighbouring countries;

• Eligible partners and their staff are willing to attend training;

• Participants are sufficiently convinced on the need for training in Programme Management and Project Preparation;

• The beneficiaries at the regional and local level see the CBC Programmes support as an additional resource for implementing the investments/activities foreseen in their development strategy;

• Coordination between donors is achieved.

Risks

• Diminished interest from Member States and Candidate Countries to undertake border region cooperation with less experienced neighbours.


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• Insufficient resources: local and regional authorities in the beneficiary countries already face difficult funding situations, which limit their ability to finance cross-border projects and make it difficult for them to dedicate specific members of staff to be responsible for project development activity. Any deterioration in the resources available to local and regional authorities in the beneficiary countries would be extremely damaging in terms of the impact of the CBIB Project.

• Inadequate support and interest on behalf of the different levels of authority: for Border Region Cooperation Programmes to be effective, the participation of local and regional authorities and the support of the national authorities in the eligible areas are essential. This relates not just to the submission of projects but also to the management of Programmes. This will mean that competent individuals have to be identified and that they must be willing to become involved. Failure to identify such individuals will reduce the effectiveness of the Border Region Cooperation Programmes.

• Monopoly of Cross-border Cooperation by national authorities: there is a risk that participation becomes dominated by certain local and regional authorities. Therefore, when and wherever feasible, involvement of non-state actors should be pursued, thus ensuring that border communities’ concerns and needs are indeed being addressed as a means of promoting both border region stability and development.

• Delays to the introduction of the Border Region Cooperation Programmes could generate negative opinions among the final beneficiaries which could influence their expectations and affect their participation.

• Low levels of motivation of the national authorities to develop and implement cross-border cooperation programmes among the CARDS countries, the complexity of the different programmes, as well as diverging views at national and local levels.

• Deterioration of the political stability in relation to the ongoing negotiations in regard to the future status of Kosovo.

4. Project Approach and Overall Planning

4.1 Summary of project approach

The CBIB approach reflected in this Work Plan prepared for the period 2006 – 2007 follows the Logical Framework concept and NAA and inputs provided by the project Partners.

The overall aim of the Inception Phase, as in any project, was to assess the actual situation “on the ground” and, where necessary, to make changes in the planning of activities and resource usage presented in the Technical Proposal. Such an assessment is particularly important in the case of this project, given that its’ Terms of Reference (ToR) were finalized almost 12 months before the start of project activities in June 2006 and that changes to the project’s operating environment had certainly occurred over this period. However, it should be pointed out that even if resource planning done at this early stage reflects a thorough and detailed analysis of the actual situation, it can only be indicative when considered over the entire duration of a project as complex as this one. Clearly, there will be a need to update the initial assessment and its associated activity and resource planning at regular intervals throughout the project.


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The ToR foresaw the beginning of project in early January 2006. However, due to a prolonged contracting process, the project did not start until June 16, 2006.

The Technical Proposal closely followed the Terms of Reference (ToR) in its definition of project activities. The ToR has mainly focused on the assistance to be provided on the Internal Borders where JMS structures do not exist and where Joint Programming Documents still need to be prepared. It has been also indicated by the EC headquarters that the main priority of the project should be “to focus on the Regional CBC under future IPA framework”. Project was also supposed to focus on the support in preparation of the project pipeline under the same financing instrument (2007-2013).

The ToR (Appendix A) describes 5 main activities to be carried out during the implementation phase of the project. They are:

(i) Awareness Raising in the Eligible Regions

(ii) Training in Programme Management

(iii) Training in Project Preparation and Project Cycle Management

(iv) Programme and Project Oriented Advice and Support

(v) Facilitating a Regional Cross-border Cooperation Consultative Forum

CBIB project has conducted in its Inception Phase the NAA in all Beneficiary Countries (Appendix E).

In brief, we can summarize these findings in 4 areas as follows:

Institutional/Management Capacity of NA and Programming Documents

By far the best developed CBC programmes in the western Balkans are those on the external borders of the region where Member States or Candidate Countries are involved. National and Regional authorities are understaffed and are lacking sufficient know-how on managing CBC programmes. Because the central government authorities are mainly occupied with programme activities at their external borders, and no Guidelines for the preparation of JPDs and JMSs were produced, in the absence of JPDs both central and regional authorities have been reluctant to dedicate the resources needed to establish joint management structures; at present there are none on the internal borders.

Differences between the borders are significant;

Guidelines for implementation of CARDS Regional CBC Programmes at the internal borders do not exist;

Joint Management Structures do not exist at the internal borders;

Joint Programming Documents at the internal borders have not been developed so far.

Funding

In comparison to the external borders there is little EC or bilateral assistance funding allocated to internal borders and therefore little incentive for preparing JPDs. Considering the CARDS programme, which is the main source of assistance funding to the region, over the period 2002-2004 only Euro 1.8 million out of Euro 16.8 million was allocated to internal


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borders, the rest being for NPs in the region. This funding disparity between internal and external borders is set to continue under future IPA CBC programmes, as a being one of the consequences of the recent EC guidance on developing matching funds for programmes on both sides of borders. For example, over the period 2007-2009, Bosnia and Herzegovina will be allocated some Euro 10.2 million for cooperation with Italy whilst receiving Euro 5.8 million for developing programmes on its borders with Serbia, Croatia and Montenegro.

EC or bilateral assistance funding allocated to internal borders is not sufficient;

Funding disparity between internal and external borders will continue under future IPA CBC programmes.

Awareness on CARDS Regional CBC Programmes - IPA CBC

At the central level, the level of awareness is relatively high due to implementation of previous NPs. At the local and regional level the distribution of knowledge is not the same. The level of knowledge on the programmes at the external borders is higher than in the regions or municipalities in the internal borders. NGOs have low level of awareness on CARDS Regional CBC Programmes. The information is almost non existent in remote areas.

Regarding IPA CBC the level of awareness differs substantially between the central and local government administrations. At the central level the majority of those interviewed seem to have information on the IPA CBC policy and programming framework, but they are less informed about the cycle, implementation rules, strategic programming and financial documents due to the lack of Implementing Guidelines.

Awareness on CARDS Regional CBC Programmes is low or often nonexistent at the internal borders;

Information on IPA CBC exists only in the central government administration;

No knowledge on IPA CBC implementation rules exists due to the lack of Implementation Guidelines.

Project preparation

The general finding is that capacities to develop quality project proposals are quite low especially at the regional and local levels at the internal borders. If the internal borders CBC programmes are to be developed, considerable resources and strong efforts need to be mobilized for developing capacity building programmes, in order to enable the beneficiaries to successfully participate in these programmes in the future.

Capacities of the beneficiaries to participate in CBC Programmes result to be weak;

Participation of beneficiaries in the Calls for Proposals at the external borders is hindered by logistic reasons.

As already indicated in the ToR, the findings of the NAA have confirmed that there is a need to continue with strengthening capacity at all levels and thus enable sound participation in cross-border cooperation programmes.

It is clear that the assistance of the CBIB project has to be provided first to the National Authorities in order to strengthen their capacities in managing the current CARDS Regional CBC Programmes and in supporting them with TA in the programming activities and in the establishment of JMS.


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The assistance in the preparation of Joint Programming Documents at all eligible borders (8 for the moment) will be provided as soon as the Guidelines for the JPDs preparation will be drafted and approved. The JPDs are expected to be approved in early autumn 2007 and JMSs established and operational before the end of 2007.

The JPD and JMS are the precondition for launching the CfP at the internal borders and this might happen only towards the end of 2007.

Nevertheless, the Project Team has foreseen in its WP some assistance to be provided in preparing a project pipeline at least for current calls for proposals (external borders). For the external borders, target groups will be different from those interested in the Regional CBC programmes, but since the NA will be also participating in the process, it is expected that at least some Institutional capacity will be built and several good projects will be prepared which could be latter on used as case studies for future training activities.

Awareness activities will be carried out in the whole Region, including Kosovo and Montenegro. They will be organized mainly at the border regions in order to facilitate participation from both sides of the border. This will improve networking, the exchange of ideas and will provide good basis for the partner search.

It is true that the Beneficiary Countries are at the different level of capacity in managing CBC programmes, and therefore the lead role will be given to those who are more advanced (Serbia and Croatia). Nevertheless, the former Yugoslav Republic of Macedonia and Albania could not be left behind in this process and will be involved in all planned activities, supported by CBIB offices in Tirana and in Skopje. Activities in Kosovo will be also covered jointly from CBIB office in Skopje and Belgrade and activities in Montenegro will be covered from CBIB office in Belgrade.

Following the recent referendum in Montenegro, there is a possibility of a separate Croatia-Montenegro; Albania-Montenegro; Bosnia and Herzegovina-Montenegro and Serbia-Montenegro programme. The project team will develop activities for the majority of the border areas, but the JPDs will be prepared and JMS established, for the moment, only for 8 border areas:

1) Serbia – Croatia

2) Serbia –Bosnia and Herzegovina

3) Serbia – Montenegro

4) the former Yugoslav Republic of Macedonia – Serbia (including Kosovo under UNSCR 1244)

5) the former Yugoslav Republic of Macedonia – Albania

6) Albania – Montenegro

7) Bosnia and Herzegovina – Montenegro

8) Bosnia and Herzegovina – Croatia

Having in mind complex project approach, duration of the project, as well as the location in different countries of the project sub-offices, it is proposed to regroup the 5 implementation phase activities described in the ToR into 2 main objectives and 4 major result areas in order to manage the programme more effectively.


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An overview of the project structure, as proposed in this report, in relation to the ToR is given in Table 2, below. The Logical Framework Matrix for this WP is attached as (Appendix B) and the Chart describing the CBIB approach is attached as (Appendix G).

Table 2: Project Objectives/Components in Relation to ToR Objective 1: Strengthen Institutional Capacity for IPA CBC Project Results ToR Activities

1 Programme Management Established (Internal borders)

Programme and Project Oriented Advice and Support (JMS) Training in Programme Management (JMS staff and NA)

2 Programme Content Developed (Internal and external borders)

Programme and Project Oriented Advice and Support (Simplified procedures, Guidelines and JPDs)

Objective 2: Enhance Project Preparation Capacity Project Results ToR Activities

3 Regional Cooperation Increased(Internal and external borders)

Awareness Raising in the Eligible Regions Facilitating a Regional Cross-border Cooperation Consultative Forum

4 Project Pipeline Prepared (External and internal borders)

Training in Project Preparation and Project Cycle Management Hands-on support to NA on CfP

To summarize, the support will be provided on two levels:

Objective 1: Strengthen Institutional Capacity for IPA CBC

Project will address current needs of national and local authorities, will assist them in preparing programming documents for Regional CBC programmes under future IPA framework and will assist them in establishing management structures at the Internal borders. Assistance will be also given through training activities in management of programme cycle (assistance to the development of projects, participation in project selection process and other activities of JMS). Training to the staff of the JMS will also be provided (preparation of programming documents, manuals, monitoring of the programmes, etc).

Result 1: Programme management established

Result 2: Programme content developed


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Objective 2: Enhance Project Preparation Capacity

Project will, through training activities, provide assistance and on-the-job support on two main topics: How to apply for funding and how to prepare a good project proposal. For the first topic a large number of information tools will be used and series of workshops and info days will be organized. For the second, targeted training sessions will be provided and hands-on support will be delivered by the project team and STEs.

In order to enhance the on-going Regional meetings (two organized so far), the team will promote and organize a “Regional Cross-border Consultative Forum” to promote and facilitate the exchange of ideas, experience, and best practice from other countries and regions.

Result 3: Regional cooperation increased

Result 4: Project pipeline prepared (for IPA CBC)

4.2 Relation/Coordination with Other Projects

In the Western Balkans, there are a number of EU and other economic programmes, at different stages of implementation, which can be complimentary to CBIB.

During the Inception phase meetings were held with the Beneficiaries, EC Delegations, EAR, International donors, Government and non-government Institutions and other donor projects. Details of the schedule are to be found in Appendix M.

The aims of the arranged meetings were:

• to inform about the nature and focus of the project;

• to introduce the team and the role of each team member;

• to learn more about the existing projects, programmes and other donor and local activities;

• to seek recommendations, advice;

• to explore the possibilities for future cooperation or immediate support to our activities;

• to ensure that there is no overlapping among different projects in the same area;

• to gather all available information;

• to get access to all existing databases, contact lists, organizations, etc.

As a result, all international and local institutions showed great interest in the project and expressed the willingness to support it, cooperate and assist wherever necessary. Ministries responsible for the CBC programmes in all Beneficiary countries have actively participated in the Needs Assessment Analysis.


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In Croatia, meetings were organized with the TA team to Ministry of Sea, Tourism, Transport and Development of Croatia (MSTTD) and cooperation was agreed. Activities (preparation of JPDs, establishment of JMS and training activities) will be jointly managed in the border regions between Croatia and Bosnia and Herzegovina, Croatia and Serbia.

In Serbia, the TA to MIER is extended until mid April 2008 and might support CBIB activities especially on “internal border” with Bosnia.

In the former Yugoslav Republic of Macedonia, in order to optimize the existing financial and human resources of the CBIB project in the implementation of its training activities, some support could be provided by other organizations operating in the country - UNDP, ZELS - the association of local self-government units, Ministry for local self-government, EastWest institute, GTZ, OSCE.

In Montenegro, UNDP has already carried out some activities related to CBC at internal borders. A new regional project is under preparation where some additional activities for CBC are envisaged. UNDP could provide support to CBIB activities once the project will be operational (mid 2007) and especially through providing training to our final Beneficiaries.

4.3 Inputs

This section shows how the resources provided will be divided (in both financial and physical terms) between the various activities described in 4.1.

Not only the project environment, but also the organizational structure of the CBIB is very complex. Experts are divided among four offices in four different Countries (Serbia, Albania, the former Yugoslav Republic of Macedonia and Bosnia and Herzegovina) and some of them are also in charge of carrying out activities in the beneficiary countries/regions where there is no project office established (e.g. Montenegro, Kosovo under the UNSCR 1244 and Croatia).

The EU Experts in CBIB sub-offices are recruited on mid-term basis having 240 man days in 18 month of the project duration. They are assisted by one Local Long Term Expert (LLTE) (2 in Belgrade office). The detailed description of the responsibilities for all CBIB Key experts is presented in the section 6.2 and the allocation of their man days per activity is presented in the section 7 (Work plan).

It is important to point out that all EU Key experts as well as LLTE will dedicate 85% of their time to the implementation of the project activities. Only 5% of their time will be used for reporting and ongoing project management and coordination. Approximately 10% of the resources were used in the Inception phase.

EU short term man days (100 m/d) will be entirely allocated to enhancing programme management of our beneficiaries. 50% will be allocated to support the preparation of JPDs and 50% to delivering some specific training activities to the staff working in JMSs. In order to ensure that there is sufficient training provided, additional training activities on the same subject will be delivered also by the Local Short Term Expert (LSTE) (26 m/d).

50% of local STE man days (260 in total) will be used for drafting programme documents which will require a lot of coordination in local language with NA, local authorities and staff in JMS. They will be supported by EU Key experts and LLTE located in each beneficiary country. The remaining 104 man days will be used for training activities in project preparation where the knowledge of the local language showed to be essential in achieving better and quicker results and for the hands-on support in preparing project proposals.


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50% of the Incidental budget will be used for the awareness raising activities (Regional Forum establishment, workshops, info days, publications, web page, etc.) and 50% will be used for the facilitation meetings in the preparation of JPDs and for PCM training activities in building up project preparation capacities of the final beneficiaries.

Utilization of Resources

10.46

25.02

19.92

27.41

12.65

4.55 CBIB project in placeand operational

Result 1 - Programmemanagementestablished

Result 2 - ProgrammeContent developed

Result 3 - RegionalCooperation Increased

Result 4 - Projectpipeline prepared

Ongoing projectmanagement, reporting

5. Project organisation and inputs

5.1 Office The operational base for the project was set up, as indicated by the ToR, with a central office in Belgrade, Serbia, and branch offices in Tirana, Albania, in Sarajevo, Bosnia and Herzegovina and in Skopje, the former Yugoslav Republic of Macedonia. All offices are adequately equipped and staffed (one office manager and one secretary/assistant in Belgrade; one secretary/assistant in each branch office).


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5.2 Long term experts The table below gives the names and positions for the full team:

Expert Overall working days

Team Leader Natasa GOSPODJINACKI 346

EU Key Expert Tirana Sotiraq GUGA 240

EU Key Expert Skopje Remy REYMANN 2331

EU Key Expert Sarajevo Bryan Mc CARTHY 2402

Total international 1059

3 Long-term local experts Belgrade Bosko MARAVIC

Dragana JEVTIC3 Dragoljub FIDANCEV

600

Long-term local expert Tirana Jolanda TREBICKA 300

Long-term local expert Skopje Zupan MARTINOVSKI 300

Long-term local expert Sarajevo Vlado Pijunovic 300

Total local 1500

1 Mr. Rémy REYMANN has worked as EU Short Term Expert as a temporary replacement for Mr. Graham WALKER until 12 October 2006, for a total of 48 days. From 13 October, as per the addendum no 1, he is the Key EU Project and Programming Expert in the former Yugoslav Republic of Macedonia for a total of 185 days; 2 Of which 12 days completed by Mr. CHABRZYK until his replacement by Mr. Brian Mc CARTHY; 3 Mrs. Dragana Jevtic, local expert in Belgrade, has replaced Mrs. Jelena Mijovic. She has started on 17 October. The Team Leader is recruited on full time basis (346 days) and is based in the project in Belgrade (Serbia), but will divide her time in the field in the beneficiary countries equitably. The Team Leader is responsible for overall management and implementation of the project, including the coordination of the activities of all the other experts (long term and short term) located in all CBIB beneficiary countries. The Team Leader will manage the technical assistance to provide the required support for the participation of the eligible partners in the Border Region Cooperation Programmes. To maximise the impact from the pool of experts, the Team Leader is responsible to draw up and monitor work programmes for all other experts. She will work with the other experts to implement a technical assistance programme which will enable the beneficiaries to enhance their programme and project management capabilities. The Team Leader is also responsible for specifying the assistance to be provided and for notifying the Contractor’s project management staff of the need for specific inputs. Other three Project and Programming Experts are required for 240 working days each over the 18 calendar month period of the project. Key experts are based in each of the following CBIB project offices: Tirana, Sarajevo and Skopje. Each expert will travel extensively internally in the respective country of assignment and will provide the necessary support to the final beneficiaries.


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All three experts will be responsible of the coordination of the activities in their respective Countries of assignment. They will liaise with project partners locally, will work with targets to build up project pipeline and will in addition engage in some support activities (e.g. training). Five local Long Term Experts were recruited by the project and are located in the following offices:

• 3 local experts in Belgrade (2 experts in charge of Institutional Capacity Building and training; 1 expert in charge of Awareness raising activities)

• 1 local expert in Tirana; • 1 local expert in Skopje;

The local expert in Sarajevo is expected to be recruited in the first week of November.

5.3 Short term experts

In the Inception phase the activities to be undertaken within the framework of the project were reviewed and the need for a number of short term experts to complement and enrich the skills and experience of the core and support teams was ascertained. CVs for both international and foreign short term staff will be submitted to the Task Manager for approval.

Three hundred sixty (360) working days of short-term expert time has been allocated for the project. It is envisaged that expertise will be required for the following activities:

Objective 1: Institutional Capacity for IPA CBC Results: EU STE m/d LSTE m/d Result 1: Programme Management Established (Training in programme management)

50 26

Result 2: Programme Content Developed (support to preparation of JPDs)

50 130

Objective 2: Project Preparation Capacity Enhanced Result 3: Regional Cooperation Increased

0 0

Result 4: Project Pipeline Prepared (Training in PCM and project preparation)

54

Hands-on support in project preparation (Interreg, CBC and cross-border specialists )

50

Total: 100 260

5.4 Incidental Expenditures

The Provision for incidental expenditures in this contract amounts to Euro 180,000. It covers the eligible incidental expenditure incurred (e.g. local and international travel costs and subsistence allowances for missions to be undertaken as part of this contract from the bases of operations in the beneficiary countries and the costs of awareness raising and training events, seminars and workshops). During the inception stage, the Consultant has worked out a detailed breakdown of expected incidental expenditures, based on a precise identification of the activities to be carried out


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(i.e. number and unit cost of workshops, training sessions, etc). All countries are equally covered, except Kosovo where there are still uncertainties on the possibility of establishing JMSs and preparing JPDs. Detailed tables and charts are given in Appendix J.

Incidental Budget of the CBIB From June 2006 to November 2007

Available budget

Needed budget

Results Euro Euro 1 Programme Management Established 49,6002. Programme Content Developed 16,2003. Regional Cooperation Increased 101,0004. Project Pipeline Prepared 31,800General Operational Expenses 20,000 TOTAL

180,000 218,600

The available funds for the Incidental budget are not sufficient for the implementation of all requested activities especially when the number of borders has increased by one third. All territories are equally covered except for Kosovo under the UNSCR 1244, where for the moment no JMSs can be established and JPDs could be drafted only when it will be clear who our counterparts are.

6. Coordination

6.1 Institutional Structure Directorate General Enlargement, Unit D3, Regional Programmes, represented by the EC Programme Manager, identified in Article 8 of the Special Conditions, that is governing the implementation of this contract, is responsible for managing this contract. The Project Partners are:

• the EC Delegations (Belgrade, Tirana, Zagreb, Sarajevo, Skopje) and EAR (Belgrade, Thessaloniki, Skopje, Pristina and Podgorica ) in 6 beneficiary countries and, more specifically, the local sector managers. The local sectors managers should provide specific advice and instructions for ensuring optimum coordination of the project;

• the Countries CBC Programmes Secretariats;

• the ministries of the beneficiary countries responsible for the co-ordination of Border Region Cooperation;

• DG ELARG D1. Financial Instruments and Contracts and Geographical Desks and DG Regio.


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6.2 Management Structure

The project is managed by the EC Project Manager responsible for the approval of all reports.

In the beneficiary countries, the EC Delegations/EAR will provide guidance to the CBIB Team on all aspects of the implementation of the project. The CBIB Team will communicate regularly with the respective Delegations in the beneficiary countries, and the delegation sector managers in particular, in order that they are sufficiently informed on the conduct of the CBIB Project, in their country, to be able to fulfil this support role.

6.3 Steering Committee

In the Inception phase the Steering Committee (SC) was formed and its members were appointed. This Committee includes representatives of the Ministries (as voting members), EC DG ELARG D3 Programme Manager, EC Delegations and EAR from 6 Countries (as observers).

The SC is responsible for the implementation of the project at the strategic level and should:

• Ensure enhanced ownership and commitment from the Beneficiaries towards the project;

• Strengthen it’s role in the management and supervision of CBIB’s policies, strategies and activities;

• Guarantee the pro-active participation by all stakeholders but particularly by the final beneficiaries in the policy making and supervision of CBIB’s activities;

• Give direction and guidance to CBIB on matters of policy and strategy;

• Endorse the Inception Report, Interim Report and Final Report;

• Supervise the implementation of the project in general.

6.4 Reporting

The following reports will be prepared during the period of execution of the contract:

Work Plan to be used as Annual Work plan; part of Inception Report: 15/09/06;

Draft Inception Report, which will include the results of the NAA and will outline a schedule of planned activities and methodology to be used (Work Plan): 30/09/2006; final version end of October 2006, corrigendum 11 December 2006; 18 monthly reports, which will set out activities undertaken in the reporting period, the project outputs achieved and problems arising in the conduct of the project and remedial actions taken or to be taken;

2 Interim progress reports: on 22/12/06 (“taking into account the time for closing consultation and clarification on the IR, there is corrigendum for the submission of the draft interim report by end of December”). The second Interim Progress report will be submitted on 22/05/07;


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A Final Report, which will include a set of recommendations for further CBIB actions and priorities and a list of identified pilot projects or a recommendable projected pipeline, including budgets and implementation schedule. The draft final report will be submitted one month before the end of the period of execution of the contract: 22/10/2007.

6.4.1 Submission and approval of reports

Inception, Interim Progress and Final Reports produced by the CBIB Project will be submitted by the Consultant to the EC Project Manager or any other person duly mandated who is the only authority delegated by the Contracting Authority to approve reports.


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7. Work Plan The CBIB Work plan has taken into account the activities and results indicated in the ToR, and the approach was also developed based on the findings of the NAA and the consultations with our Counterparts.

Since draft IPA Implementing Rules will be available in December 2006 the corrigendum to this Inception Report was agreed with the Programme Manager in the EC to adjust the CBIB approach and the implementation of the activities presented in this Work Plan.

No major changes to the WP presented in this IR are foreseen expect that the EU STE man/days will be used for the support to the consolidation of the JPDs and that the workshops on national level that were planned to take place before the end of 2006, will have to be postponed to the beginning of 2007. The reason for this is the availability of IPA Implementing Rules which will set the frame to all CBIB activities for the whole duration of the project. Furthermore it was agreed with the EC that CBIB project should focus mainly on the future 2007 – 2013 cross border programme under the IPA. Therefore the information that will be delivered during these workshops will have to be prepared accordingly.

Consequently the Time Table of Activities will be adjusted and will be in line with the above mentioned.

In the WP presented here bellow, the description of activities is divided into those carried out in the Inception phase and the ones that will be carried out in the Implementation phase.

Since the findings of the NAA have showed that the needed support in all beneficiary countries should be provided taking the same approach (especially for the preparation of JPDs, establishing JMS and providing training activities where participants from both side of the border will be involved), the activities described will be implemented guaranteeing to all a sufficient number of actions in order to achieve the proposed results. Nevertheless, provided that there is a sufficient budget available, and based on specific needs of each Beneficiary, some activities will be developed on ad hoc basis.

All actions, expected results, outputs, the time table and sources of verifications are summarized at the end of each result. Tables and a short description of the actions to be taken in each Country are presented in the Appendix H.

7.1 Inception Phase

Introduction and Summary of actions in the Inception Phase

The service contract was signed with some delay due to administrative issues on 22 May 2006. The kick-off meeting was held in Brussels on 16 June 2006 and it was agreed that the Inception phase will last until 30 September 2006. Action Plan for the Inception Phase (Appendix K) was prepared to assure a timely and efficient implementation of the project.

The project TL, Ms Natasa Gospodjinacki, has started her duties on June 19 and the office in Belgrade was fully operational on July 15. The team of two long term experts was set up (Ms. Mijovic and Mr. Maravic were approved respectively on 16 and 24 August).

The EU Expert for Albania, Mr. Sotiraq Guga, has started his activities on 3 July 2006, and the office was fully operational by mid July. The local long term expert was approved on17 July.


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The EU Expert for the former Yugoslav Republic of Macedonia, Mr. Graham Walker, has suffered a very serious health problem. In order to fill the gap and to timely launch the inception period, a STE, Mr. Rémy Reymann, was appointed and started his activities on 17 July. Later on, as Mr. Walker’s health was not improving significantly, it has been proposed that Mr. Reymann definitively replaces the designated key Expert. The Skopje office was fully operational by the end of July. The local long term expert was selected, and approved on 16 August.

In Bosnia and Herzegovina, the availability of the key expert, Mr. George Chabrzyk appeared to be very limited. He arrived on site on 17 July and was not able to comply with the schedule which was agreed at the moment of the mobilisation. This resulted in a significant delay in the establishment of the project office in Sarajevo. The office was fully operational only at beginning of September, and the selection of the local LTE has just been completed.

The Consultant has addressed this situation as soon as it was visible – at the end of August. Finally the Consultant asked the Task Manager to replace this expert and proposed Mr. Brian McCarthy to be the project and programming expert in Bosnia and Herzegovina.

In the meantime, the Consultant has taken the requested measures to ensure the progress of the project activities in Bosnia and Herzegovina.

The replacement of Mr. Walker by Mr. Reymann and the replacement of Mr. Chabrzyk by Mr. McCarthy are effective since September 2006.

Despite these mobilisation difficulties, and though the summer period was not an easy one for meeting the main stakeholders and selecting local experts, the inception phase has been implemented satisfactorily.

During this Phase the CBIB Team has engaged in an open and inclusive process with the Project Partners and relevant stakeholders, in order to collect and assimilate all relevant current information that has enabled to make an assessment of the Project environment and of the pertinence of the ToR vis-à-vis the actual situation.

In the Inception Phase of the Project, an analysis on the ground has taken place and clear recommendations for adjustments of the ToR reflecting current developments are suggested in this report. The Inception report, the NAA report and the Work Plan were prepared and the project procedures established.

The visibility requirements of the EC have been fulfilled. Presentation material, business cards and website have been designed in conformity with current regulations.

Members of the Steering Committee were nominated. A first Steering Committee meeting was held on 12 October 2006.

The following is the summary of the activities carried out in the Inception Phase. All the details can be found in the Action Pan for the Inception Phase (Appendix K).

Activity 0.1: Project start-up arrangements including establishment of project offices, mobilization of project team

During the Inception Phase the focus has been on mobilising the team and establishing offices in Belgrade, Tirana, Skopje and Sarajevo. Support staff was recruited as well as LLTEs. The proposed EU Expert for the former Yugoslav Republic of Macedonia, Mr. Graham, was replaced by Mr Remy Reymann.

The Technical Assistance Team has agreed with the EC on communication procedures.


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Action Plan was prepared for the Inception Phase of CBIB, covering the period from16 June until 30 September 2006.

Activity 0.2: Establishment of contacts with the relevant institutions and stakeholders

From the start, the Team Leader assisted by the key experts, has established contacts through bilateral meetings with the Project Partners: representatives of the EC Delegations and EAR in the beneficiary countries, the CARDS Regional CBC Programmes Secretariats, the ministries responsible for the coordination of Border Region Cooperation. One of the main goals achieved in these meetings was to solicit the active collaboration and support of the stakeholders to the project activities, and to carry out a deep and accurate investigation, needs assessment as described in Activity 0.6 below.

Activity 0.3: Project Administration and Operational Financial Procedures

To ensure sound and transparent management of EU funds and resources, the Manual of Internal Procedures (Appendix L) was prepared and procedures for mobilisation of ST Experts were established.

Financial procedures manual was prepared as well and CBIB Team and staff are fully in line with the procedures. Uniformity of documents and records were created and methodology on operation among CBIB Team was agreed upon.

Activity 0.4: Visibility of CBIB

Brand image and visibility of CBIB through the elaboration of the Logo, brochures and all the corporate literature was developed and the visibility guidelines of EuropeAid were strictly followed. Web site was registered, but all the inputs to make the site operational will be provided in the Implementation phase.

Activity 0.5: Data base of CBIB

Existing information and contact details were gathered in all CBIB Countries and a user friendly data base to be used by CBIB Team and all interested parties was created. Once the Web site is operational the link to this DB will be activated.

Activity 0.6: Needs Assessment Analysis

Needs Assessment Analysis was carried out in order to assess CBC programmes under way or in preparation, to assess management structures, obstacles and problems indicated by beneficiaries, as well as capacity needs and bodies responsible for CBC in national administrations, by assessing the level of understanding of the various funding mechanisms (Interreg, Phare, CARDS etc.) and identifying structure that could be used as a model.

The NAA analysis was conducted on two levels. The first was in the form of a questionnaire, sent by fax and/or email to relevant contacts in all local and regional authorities. The second was conducted as a series of more in-depth face to face interviews with a selection of local and regional authorities to get a more in-depth understanding of the situation on the ground.

The project team had around 500 questionnaires returned across the region. All collected data was elaborated and five single NAA reports were produced (Albania, the former Yugoslav Republic of Macedonia, Serbia, Kosovo and Montenegro). All these reports were aggregated in one Needs Assessment report. (Appendix E) which provides accurate mapping of needs and gaps in knowledge. This provides the project with a clear indication of where and how to apply human and financial resources. The NAA report for Bosnia and Herzegovina will be completed by mid October.


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The results of the NAA Report are the integral part of the Inception Report and planning of the CBIB activities was done accordingly.

Activity 0.7: Development of Work plan for project implementation - Inception Report

Based on the NAA report’s findings the CBIB Work Plan was discussed with all the team and the process of targets was addressed and strategy was formulated. Action plans for each CBIB office were developed. These AP are the integral part of the Inception report.

The draft Inception Report was presented officially on October 12, 2006. Its approval will provide the kick off point for the full scale roll out of the project activities and, thus, the start of the implementation phase.

Activity 0.8: Project Planning Instruments and Report Structures

A set of planning instruments and report structures to implement the EU funded project CBIB was defined and the Team is familiar with the overall and specific tasks. The structure for the Inception report was agreed upon, inputs were provided by all CBIB offices and the draft IR was distributed to SC members for comments on 2 October 2006.

Activity 0.9: Establishment of a Steering Committee and proposal of a day-to-day mode of operation of the project

The Project has assisted its counterparts to establish a Steering Committee (SC). The SC will include representatives from the different partners and beneficiaries involved in the Project as well as a representative(s) from the European Commission.

The SC should give direction and guidance to CBIB on matters of policy and strategy, should guarantee the pro-active participation by all stakeholders but particularly by the final beneficiaries in the policy making and supervision of CBIB’s activities. The SC will endorse the Inception Report, Interim Report and Final Report and will supervise the implementation of the project in general.

The first constitutive meeting of the SC was held on 12 October 2006.

Activity 0.10: Provision of Advisory Services and Technical Assistance

Already during the Inception Phase some assistance to beneficiaries with current call for proposals was provided. CBIB support was requested by the Counterparts in order to ensure that available funds on CBC programmes 2004-2006 are successfully granted.

The CBIB office in Tirana has provided support to the Ministry of European Integration for preparation of the awareness raising package for the information day in the Region of Gjirokastra, South of Albania, for the launch of call for proposals of Greece/ Albania CBC programme. Simple guidelines for users (frequent asked questions, etc) were also prepared and a short presentation of key issues also introducing the project was delivered.

Furthermore, the support to the Ministry of European Integration to finalize its contribution to MIPD (the part dealing with CBC) was provided as well.

The CBIB office in Skopje has attended the information day organized in Kocani on the Joint Call for Proposals for the NP Bulgaria/ the former Yugoslav Republic of Macedonia and has provided support for the “partnerships meeting” organized by the JTS for Bulgaria/ the former Yugoslav Republic of Macedonia NP, in Kyustendil, Bulgaria.


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The table bellow summarizes the activities and the results achieved in the Inception phase:

CBIB in place and operational, NA carried out, WP and IR prepared

Objective Put the Project into operation, review the overall Project environment, establish contact with stakeholders involved in the implementation and co-ordination of the Project and prepare the first work programme

Expected results

1. Project Office is established 2. Local long term experts and support staff is hired 3. Short term expertise is allocated 4. Project implementation structure and communication with Project

Partners is established 5. Needs Assessment Analysis is carried out 6. Project environment is assessed, operational strategy is defined 7. Detailed work plan for the implementation period followed by the time

schedule and sequencing of individual activities is defined and agreed with the EC and beneficiaries

8. Inception Report is prepared

Outputs

Four CBIB offices operational All EU Experts, LLTE and staff in place Needs Assessment carried out and analysis provided CBIB Work Plan prepared IR prepared SC established

Sources of verification

Questionnaire, In-depth interviews, Site visits to key project stakeholders Minutes of the meetings LTE BDPA Contr. Incidental Contr. International 184 National 122 STE 0 International 0

Experts input (m/d)

National 0

20,000

2006 2007 Activities 6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11

Make CBIB offices operational Carry out Needs Assessment Prepare IR and WP

7.2 Implementation Phase

Objective 1: Strengthen Institutional Capacity for IPA CBC

The overall objective is to strengthen the capacity of NA and Local authorities responsible for the CBC programmes in establishing effective coordination and management mechanism that could ensure efficient implementation of future 2007 – 2013 cross border programme under the IPA. More specifically under this objective the project will aim to:

(i) strengthen the coordination mechanism of IPA CBC at the central level, line ministries and regional/local authorities;

(ii) facilitate and ensure that all necessary regulations, guidelines, and joint programming documents needed for functioning of joint management structure


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and implementation of IPA CBC are prepared for all internal borders and that there is sufficient know-how and execution to implement them;

(iii) facilitate the establishment of joint management structures required for management of IPA CBC Programmes at all the borders.

In broad terms the support under this objective will aim at achieving the following results:

7.2.1 Result 1: Programme Management Established

An effective coordination mechanism established at the central level.

This will be ensured by establishing proper institutional structure under National Coordinator of IPA CBC, as well as effective functions, processes and procedures that enable effective coordination. Wherever possible it will be aimed at establishing dedicated management information systems for management of IPA CBC Programmes.

An effective coordination network of IPA CBC established at the level of line ministries and regional/local authorities.

This will be ensured by establishing a proper network of “focal points” in all institutions that could be potentially involved in IPA CBC. Procedures, roles and responsibilities have to be clarified or developed where these function are new (as it is the case in most of regional and local institutions). In line ministries wherever possible, it will be examined to unify coordination of IPA CBC Programmes with overall coordination of EU assistance mechanism.

Joint management structures established and operational for each programme/border.

As mentioned in conclusions of the Needs Assessment Analysis, failure to establish joint management structures and joint programming documents has been the main barrier for starting implementation of CARDS Regional CBC Programmes activities at the internal borders. The project will support beneficiary countries in establishing the required joint management structures for management of each cross-border programme under IPA CBC. Functions, tasks and responsibilities will be developed for each JMS and training will be provided to newly hired staff.

The following activities will be undertaken to ensure achievement of objectives and expected results under this component:

Activity 1.1 – Support to establishing effective coordination mechanism at the central level

As identified earlier in the report, capacities to coordinate CARDS Regional CBC Programmes at the central level vary in different countries, but generally they are weak and coordination structures are in most of the cases understaffed.

The project teams in Albania, Bosnia and the former Yugoslav Republic of Macedonia will provide direct support to national coordination offices in streamlining their organisational structures and functions, developing clear job descriptions, roles and responsibilities, procedures of communication, etc. In Serbia this support has been provided by another TA project financed by EAR, so advice under this component will be looked at carefully to avoid duplications. There is indication that a similar TA project might start also in Bosnia. Possibility


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of establishing a management information system for IPA CBC in each national coordinator office will be also explored (even though this is not a direct request in the ToR). The aim will be the establishment of a proper feedback or implementation monitoring mechanism which will strengthen the links between the different elements of IPA CBC Programmes in order to ensure that lessons learnt from previous activities are fed into the design of new programmes.

Timing: This support will be more of coaching and tutoring nature and will be provided throughout the duration of the project.

Activity 1.2 – Support to establishing effective coordination network of IPA CBC Programmes activities at the level of line ministries and regional/local authorities

A proper coordination and implementation for IPA CBC Programmes requires intensive involvement of line institutions and especially of regional and local authorities that will be the direct beneficiaries of cross-border cooperation activities. Our findings indicate that involvement of regional and local authorities in coordination of CARDS Regional CBC Programmes so far has been not substantial and generally sporadic.

The project will support the national coordinator offices to establish a proper network of “focal points” that will be in charge of coordination of activities under IPA CBC at their institution, region or local units.

Timing: This support will also be more of coaching and tutoring nature and will be provided throughout the duration of the project.

Activity 1.3 – Support to establishing Joint Management Structures

The implementation of Border Region Cooperation Programmes is dependent on the existence of Joint Management Structures and approved Joint Programming Documents.

CBIB project team will work in close cooperation with project stakeholders to identify and set up the Joint Management Structures, Joint Cooperation Committee (JCC), Joint Steering Committee (JSC) and Joint Technical Secretariat (JTS) needed to ensure the successful implementation of the NPs in the region.

• Identify possible bodies/organisations for joint management structures

• Facilitate establishment of task forces to discuss the joint management structures

• Support the establishment of the joint management structures

• Develop functional responsibilities and job descriptions for the JMS, detailed structures, participating authorities, reporting arrangements etc

• Provide training to staff of joint management structures.

In addition to the institutional set up, training and capacity building aspects of this activity, the project offices will act as a help desk to those structures in order to ensure that there is a facility to provide both ad hoc and sustained assistance until they move from initial set up phase through to independent management of the IPA CBC locally.

Synergy between JMSs for external borders already in place will be exploited to achieve effective establishment and operation of the new structures.


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All management structures must include representation from the national and regional authorities of each programme, eligible beneficiary organisations and IPA.

Processes, detailed structures, participating authorities, reporting arrangements and organisations involved will be set out in the Joint Programme Documents.

Activity 1.4: Training in programme management (Internal borders)

There are two aspects to the capacity building exercise. On one side there are activities designed to impart know-how and expertise towards those wishing to submit a project proposal and participate in the EU funding mechanisms.

However, the other side of the coin is a vital component of the capacity building process – that of building capacity among those within the management structure of the IPA CBC, to those people working in infrastructures, bodies and organisations responsible for the implementation and management of the IPA CBC on the non-EU side.

This means, more specifically, the staff at the structures to be set up to work on cross-border cooperation issues (JMC, JSC, JTS) in the partner countries and those involved in the various committees to be established should aid and support the new programming structures.

In order to build capacity and to provide support to new managers in the partner countries, as stated in the terms of reference, the project will provide detailed and clear explanations to our audience about:

• Programme priorities;

• New measures under existing programmes;

• New activities under existing measures;

• Participation in Joint Monitoring Committees and Joint Steering Committees;

• The key activities of staff that will form the Programme Secretariats.

To that we would add some information and clarification on IPA programme and related topics:

• Structure of the EU;

• Enlargement of the EU;

• CARDS programmes

To a large degree, this information and clarification is equally necessary for those working on the project preparation side as it is for those working on the management side. This is logical: the managers need to know and understand all aspects of the programme structure (from objectives to procedures to project management) to ensure that the programmes function properly under their control.

Those wishing to prepare project applications also need to understand the structure, framework and context of IPA CBC in order to be able to draft a successful project proposal. Only with a full understanding of the structure of the CBC programmes can applicants hope to be able to fully participate in funding opportunities.

To summarize, there is some content that is of equal relevance to the managers (in the joint management structures to be set up) and those applying for funding. Therefore, to reduce


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duplication, we propose to offer training and information sessions that are aimed at both audiences (and attended together) to provide an equal level of understanding of the programmes on one level and then to follow up further with fully tailored, more in-depth training and coaching sessions for the managers of IPA CBC.

The training activity can be broken down into three separate strands. These are:

Activity 1.4.1 (Module 1): Training to JMSs staff on programme management and IPA CBC

Two 3-day workshops will be organized at all 8 borders in the Region. Training sessions will aim at involving staff in the management structures and representatives of the National Authorities from both sides of the border to ensure better cooperation and networking.

Training and information components aimed at audiences wishing to apply for project funding will focus on the main important aspects of the CBC- new priorities of programming; new and updated measures in programming; role of programme committees and secretariats, as well as covering the necessary aspects of PCM training. They will be developed under the two major headlines:

1. Management of the Programme Cycle: assistance to the development of projects, as part of the system in place to advise potential beneficiaries; participation in the project selection process; the key activities of the Joint Technical Secretariats.

2. Management, Control and Audit of the Programmes: preparation of/improving manuals, guidelines, management checklists; training of the staff involved in management, control and audit functions relevant to their responsibilities under the programme; monitoring the programme, the role of the Monitoring Committee and the requirements of its members.

It is not known at this stage how many individuals this component could include as the structures are not yet operational. However, relevant staff will be included in all the capacity building training exercises and information events.

Activity 1.4.2 (Module 2): Train the trainers on PCM ensuring that IPA CBC joint management staff is able to continue to support the process of building capacity among eligible partners through their own training and information dissemination activities

It is important to ensure that the expertise available within the CBIB project is sustained beyond the life of the project itself. Key to that is the ability of the management structures from the partner country side to continue to support local and regional authorities in building capacity and ensuring continued success in project preparation and management.

Thus, a smaller number of participants from strand 2 will be selected to undergo a training of trainers programme. These individuals will be equipped with the necessary training skills to impart their knowledge of the IPA CBC and the project preparation process to future individuals and organisations.

More in-depth engagement will focus on the management side of programming, with much more emphasis on the principles of PCM, focusing on:

• PCM and its use by donors;

• Key analytical methods at programme and project cycle management stages;

• EC PCM in terms of the management structures (“roles and responsibilities”);


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• Problem analysis, SWOT analysis, the identification of stakeholders and needs prioritisation and planning;

• Logical framework analysis and OVIs

Activity 1.4.3 (Module 3): Advanced training on project preparation and monitoring

Informing and explaining the roles of the joint management structures to be set up will be a central plank of the messaging and more emphasis will be given to:

• Drafting project fiches;

• Ex-ante appraisal;

• Monitoring and assessment (at contract, project and programme level);

• Evaluation (financial and economic appraisal; technical and institutional appraisal);

• Project management;

• Reporting and finances;

• Time schedules for programming and procurement.

These subjects are equally relevant to the managers of the IPA CBC and thus our managers will also attend the training sessions and information days to be implemented under the project.

This has a number of benefits:

a) Reducing duplication and cost;

b) Providing networking facility between various actors;

c) Providing a forum for building lasting relations that can continue after the project ends.


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Result 1:

Programme Management Established

Objectives The overall purpose of Objective 1 is to establish an effective coordination and management mechanism that could ensure efficient implementation of IPA CBC .

Specific action 1. Support to establishing effective coordination mechanism at the central level; 2. Support to establishing effective coordination network of IPA CBC at the level of line

ministries and regional/local authorities; 3. Support to establishing Joint Management Structures (8 workshops and 8 facilitation

meetings); 4. Delivery of training sessions (24 training sessions – 3 modules for each border); 5. Preparation of training manuals;

Assumptions

The interest and full commitment of the national, local and regional authorities on both sides of the external borders will be there.

Expected results 1. Effective coordination mechanism established at the central level; 2. Effective coordination network of IPA CBC established at the level of line ministries and

regional/local authorities; 3. Joint management structures established and operational for each programme/border; 4. Capacity built and support provided to new managers in the partner countries; 5. Staff in the JMS and NA trained in project preparation and monitoring;

Outputs

Albania: 1. Capacities of the Unit for Regional Coordination (URC) at the MEI enhanced. 2. Job description developed. 3. A revised version the URC organizational structure produced. Establishment of a

“network of focal points” for IPA CBC at line ministries and regional and local units facilitated.

4. A MIS for the URC/MEI to maintain data on the IPA CBC, beneficiaries and selected projects developed.

For all beneficiary Countries: Serbia (including Kosovo under the UNSCR 1244), Montenegro, the former Yugoslav Republic of Macedonia, Bosnia and Herzegovina, Croatia, Albania (8 borders):

1. Establishment of the JMS and the JTSs for Albania – the former Yugoslav Republic of Macedonia; Montenegro-Albania/Serbia (including Kosovo under the UNSCR 1244)/ Bosnia and Herzegovina/Croatia, Serbia – Croatia, Serbia – the former Yugoslav Republic of Macedonia, Bosnia and Herzegovina - Serbia, Bosnia and Herzegovina –Croatia.

2. National IPA CBC Consultative forum established. 8 WS, 8 facilitation meetings , 24 training sessions, 3 manuals prepared.


Report on JMS; coordination network; In total 160 people involved in the workshops, 480 people trained, job descriptions prepared, MIS for NA in Albania developed, 3 training manuals prepared for each country LTE BDPA Contr. Incidental Contr. International 312 National 334 STE 86 International 60

Experts input (m/d)

National 26

49,600

2006 2007 Activities and sub activities 6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11

Support to establishing effective coordination mechanism at the central level

Support to establishing effective coordination network of IPA CBC in line ministries/ regional/local authorities

Support to establishing Joint Management Structures

Delivery of training in programme management


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7.2.2 Result 2: Programme Content Developed

Operational guidelines and joint programming documents produced and disseminated

In the absence of joint programming documents both central and regional/local authorities have been reluctant to dedicate the resources needed to establish joint management structures. At present, there are none at the internal borders.

IPA Implementing Rules are now available and will be used as the base for the preparation of the JPDs and setting up JMSs. These guidelines will provide the guiding framework for the preparation of Joint Programming Documents for programmes at all internal borders.

Synergy between Border Region Co-operative Programmes will be exploited to achieve effective use of technical assistance in the preparation of projects, training programmes and other areas where common tasks and processes are required.

Although the involvement of eligible partners and beneficiaries will be maintained throughout the programming phase, arrangements for technical assistance to be available to assist in the identification and preparation of Project Fiches will be assured. This assistance will include site visits and technical discussions with eligible partners.

Timing: This activity will gradually start before the end of 2006 with the establishment of joint task forces and will be intensified in the period January-May when the CBIB team will support and facilitate the preparation of the JPDs.

Activity 2.1 – Support to preparation of Joint Programming Documents (JPDs)

The JPD is the strategic document against which the performance outputs of each project is measured and its success monitored and evaluated.

The CBIB project team will provide hands-on specific assistance for the preparation of JPDs for all programmes supporting internal borders. Assistance will be provided on each and every stage of the process of preparation of JPDs.

Objectives, goals and measures for the programme will be agreed upon by the Joint Management Structures and endorsed by the European Commission. Their preparation will therefore be subject to rigorous quality checks to ensure compliance with EC guidelines.

Timing: preparation of JPDs will start in January 2007. The establishment of Joint Management Structures for each border will follow the approval by the EC of JPDs. We envisage that this activity will indicatively be undertaken between January – July 2007.


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Result 2:

Programme Content Developed

Objectives The overall purpose of Objective 1 is to establish an effective coordination and management mechanism that could ensure efficient implementation of IPA CBC.

Specific action 1. Review IPA Implementing Rules; 2. Provide comments on IPA Implementing Rules; 3. Support to preparing Joint Programming Documents (JPDs), creating of the JPD Task

Force (16 facilitation meetings), and drafting JPDs (16 workshops).

Assumptions

The interest and full commitment of the national, local and regional authorities on both sides of the external borders will be there.

Expected results 1. JPD Task Force (16 facilitation meetings) created 2. Preparation of Joint Programming Documents (JPDs) supported, and JPDs (16

workshops) drafted. Outputs 1. Establishment of the task force and definition of an action plan for preparation of the JPD

Albania – the former Yugoslav Republic of Macedonia; Albania – Montenegro, Serbia – Croatia, Serbia – the former Yugoslav Republic of Macedonia, Montenegro – Serbia, Bosnia and Herzegovina - Serbia, Bosnia and Herzegovina –Croatia, Bosnia and Herzegovina –Montenegro;

2. JPDs prepared:

Albania: 2 JPDs for borders with Albania-the former Yugoslav Republic of Macedonia and Albania-Montenegro;

the former Yugoslav Republic of Macedonia: 2 JPDs for borders with the former Yugoslav Republic of Macedonia-Albania and the former Yugoslav Republic of Macedonia-Serbia;

Kosovo under the UNSCR 1244: (please refer to pages 21 and 22 of this report);

Serbia: 4 JPDs for borders with Serbia-Croatia, Serbia- Bosnia and Herzegovina, Serbia-Montenegro, Serbia-the former Yugoslav Republic of Macedonia;

Montenegro: 3 or 4 JPDs for borders with Montenegro-Serbia, Montenegro- Bosnia and Herzegovina, Montenegro-Albania, Montenegro-Croatia (as optional);

Bosnia and Herzegovina: 3 JPDs for borders with Bosnia and Herzegovina -Croatia, Bosnia and Herzegovina -Serbia, Bosnia and Herzegovina -Montenegro;

Croatia: 2 or 3 JPDs for borders with Croatia- Bosnia and Herzegovina, Croatia-Serbia and Croatia-Montenegro (as optional). The preparation of JPDs on the Croatian side will be coordinated and facilitated by the CBC project in Croatia.


JPDs documents (minimum 8); coordination network; 16 facilitation meetings; 8 workshops;

LTE BDPA Contr. Incidental Contr. International 187 National 226 STE 170 International 40

Experts input (m/d)

National 130

16,200


Review IPA Implementing Rules Provide comments on IPA implementing Rules Support to preparing Joint Programming Documents (JPDs)


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Objective 2: Enhance Project Preparation Capacities

The overall objective is to enhance the capacity of National and Local authorities responsible for the CBC programmes and ultimately of the final Beneficiaries in preparing good project proposals. More specifically under this objective the project will aim to:

(i) Increase the level of awareness on IPA CBC;

(ii) Develop awareness about the support structures and mechanisms;

(iii) Transfer know-how on project preparation.

In broad terms the support under this objective will aim at achieving the following results:

7.2.3 Result 3: Regional Cooperation Increased

The communications part of the project will work in three key areas. The areas are:

1. General cross-border project awareness raising in relation to IPA CBC and CBIB project: Raising awareness of existing funding mechanisms, cross-border cooperation and IPA CBC;

2. Raising awareness of the CBIB role in preparation of JPDs and JMS:. Highlighting to eligible partners( National authorities, Local authorities and NGOs) the existence of a support system in helping them prepare and manage projects;

3. Raising awareness about the project preparation process: Raising awareness to eligible final Beneficiaries on project preparation and on management of the awarded projects;

The awareness raising or promotional component of the project will seek to highlight:

• The existence of funding mechanisms;

• Who can apply and how;

• Who is there to help (the support network available to interested parties);

• New developments in the IPA CBC;

• Key events, activities and milestones in programming and projects.

The awareness raising part of the project will seek at one time to create a minimum level of awareness among the general public at large, whilst targeting those in local and regional administrations, and other eligible organisations, in more detail on programming issues, with explanations and clarifications on the IPA CBC and the CBIB as a support service.

CBIB will organise a number of specific events as part of the awareness raising activity. The team will organise a number of information days (workshops) at which promotional and awareness raising activities will be carried out.


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Activity 3.1- Information workshops

Activity 3.1.1 Information workshops at the National level - General cross-border project awareness raising in relation to IPA CBC Programmes

Seven workshops will be organized on the National Level in order to launch CBIB project and raise awareness on IPA CBC and to provide an open forum for networking and local partnership forming.

• Albania: Tirana

• Bosnia and Herzegovina: Sarajevo

• the former Yugoslav Republic of Macedonia: Skopje

• Serbia: Belgrade

• Montenegro: Podgorica

• Croatia: Zagreb

• Kosovo: Pristina

Activity 3.1.2 Information workshops at the Local level - Raising awareness of the CBIB role in preparation of JPDs and JMS

Information days will be organized when the activities for the preparation of the JPDs will start and this is foreseen to take place at the beginning of 2007. They provide the first and most general of the awareness raising aspects of the project and its activities which will target the Regional cooperation.

These days will be intended as an introduction to programming and funding mechanisms in addition to forming support institutions (e.g. Joint Management Structures) that will be functioning under IPA CBC funding.

Target groups will be mainly representatives of the Local Authorities and NGOs. However, representatives from the National authorities involved in the management of CBC programmes will also be invited. As rules, procedures and programming are changing it is important to reach as many targets as possible, irrespective of the level of prior knowledge of EU programming.

The team will organise a minimum of 8 information workshops across the region for at least 400 participants.

Activity 3.1.3 Information workshops at the Local level - Raising awareness about the project preparation process

Information days will be organized as an introduction to project preparation and will target mainly the final Beneficiaries. However, those involved in management of CBC programmes at the National level will also be invited.

Topics will cover general information on funding mechanisms under IPA CBC, but will mainly focus on Project Cycle Management.


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The team will organise a minimum of 8 information workshops across the region for at least 400 participants.

Logistics

Each information day will be attended by up to 50 people. Whenever possible, it will be attended and opened by an official of the Commission. The Information days will begin with brief and precise presentations of the European Union, IPA CBC, and its funding mechanisms. Information will also be given on the IPA CBC, objectives, rules and procedures, partner search, project preparation and project management.

The structure of the day will follow classic models for events of this kind. The morning sessions will be given over to more general introductions and presentations with the afternoon sessions set aside for workshops and discussion groups (themes for these sessions include budgets, project preparation, evaluation, procedures, etc). With a moderator and secretary at each session the afternoon programme gives visitors the opportunity to discuss in more detail particular issues in which they are interested.

At the same time, information stands and representatives of the CBIB and Commission will be available for questions, to give information and to take in feedback from visitors. Information will also be available for those interested in joining the training sessions. Media will also be invited to the event.

Selection of participants will be undertaken by the project offices in the four partner countries (Belgrade, Skopje, Tirana and Sarajevo) in close cooperation with the project partners where relevant.

Evaluation forms will be distributed to select participants to assess impact of the information days. The feedback from these sessions will be used to fine-tune and improve the days as the project progresses.

The team will work closely with local Delegations and the EAR in terms of timing for all events.

For each event a detailed timetable and check list will be elaborated. This will ensure that the whole process, from event identification to the dissemination of results, is at all times transparent and progress can be reviewed on a constant and on-going basis.

Following each event, a full report will be provided with the main conclusions and results of the conference, as well as some recommendations / lessons learned for future events.

Other awareness rising activities

Activity 3.2- Media relations

Working with the media provides an excellent opportunity for increasing media coverage of the CBIB project and IPA CBC as well as, more generally, the European Union.

The project will make use of the media to promote the programme and to draw attention and raise the profile of key events and milestones over the life-time of the project activities.


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Key milestones upon which media relations activities will be considered include:

• The publication of the new round for applications (press release, interviews);

• The opening of key information workshops (press release, interviews, press conferences);

• Results of applications (press release);

• Promotion of opening and closing days for i.e., new IPA CBC projects funded (press release, interviews and press conferences).

All published articles will be collected and presented to the Commission. In addition to the events of the project, a number of tools and tactics will be developed in support of the awareness raising aspects of activities. These are listed below with some explanation of their role and importance:

Activity 3.3- Publications

Publications and printed and electronic information products will be developed in the local languages (where appropriate). The following should be considered as the minimum range of products that need to be produced under the publications component of the project:

• Leaflet / brochure on IPA CBC;

• Promotional leaflet on the CBIB;

• Standard presentation (PowerPoint) on key funding mechanisms, IPA CBC and the CBIB;

• Series of 1-2 page background fact sheets on key aspects of project preparation and management;

• Case studies – of successful projects and project applications;

• Translations of guidelines and procedures.

It is worth noting the importance of case studies in reaching out to audiences. They not only demonstrate the “human” factor of the IPA CBC and how CBC programmes can touch real lives, but are also a powerful communication tool in highlighting the real benefits of the IPA CBC to other audiences who may wish to get involved with their own project ideas.

Activity 3.4- Large scale mailing to promote the programme

Mailing shots will be considered for reaching specific key audiences directly. This would be useful for new general and specific publications (as part of the dissemination aspect of the project), for sending invitations to open days and the events organised by the project and for sending questionnaires and evaluation forms as part of the feedback aspect of the project. Those to be included in such mailings include:

• Local authorities and associations of authorities;

• Chambers of commerce;

• Local development agencies;


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• Associations of local and regional authorities;

The mailing will be both hard copy (by post) and also by email alert (please see electronic distribution system below).

Activity 3.5- Electronic distribution system (database)

A regular flow of information to our key target audiences throughout the project will be kept. To this end, the project will build up an on-line electronic mailing and distribution system to facilitate distribution, provide a mechanism for a cost-effective regular outflow of information and allow for a feedback mechanism (by email) for evaluation purposes.

The project team will take on the existing mailing databases and update the contacts. These will include:

• All local and regional authorities in the partner countries;

• Local and regional authorities in the EU member states;

• EU institutions (Commission, parliament and Council);

• Key media;

• Key decision makers (from national governments);

• International donor organisations;

• Large NGO’s.

At present, we estimate that the system would contain +/- 3, 000 relevant contacts.

Email alerts will be sent on a regular basis to keep the flow of information and dialogue open. Alerts will include the following information:

• Links to newly published documents and information products;

• News flashes for key events and milestones;

• Calendars of events;

• Questionnaires and surveys to gauge perceptions of project activities;

• Statistics on applications and successful projects;

• Press releases and news stories (for journalists).

Activity 3.6- Web site

Working closely with the Commission task manager, project Partners and webmaster, the team will ensure that the communications programme, with its core messages and target focus benefits from a strong on-line component.

The project will develop a web site in English with significant portions of the site in local languages, with relevant information on the IPA CBC and will vigorously promote the address to the general public and target audiences.


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Activity 3.7: Regional Cross-Border Cooperation Consultative Forum

The exchange of experience, know-how and ideas is a key element of the project. It is, therefore, vitally important to create forums at which project stakeholders can meet with counterparts from different regions to share and discuss their experiences of cross-border cooperation. By organising a regional forum, links and contacts will be made with other relevant counterparts, helping to facilitate:

• Networking;

• Finding project partners;

• Generating project ideas;

• Sharing experiences and exchanging ideas;

• Discussing programming and strategy;

• Exchanging best practices;

• Problem solving.

Building on the existing cooperation established between beneficiaries, such as the meeting held in Skopje in April 2005, informal, bilateral contacts will be organised in a more structured manner and on a more regular basis.

The team will organise a three-monthly regional cooperation forums, or seminars, during the project (four in total). Invitees to the seminar will be:

I. European Union institutions (Commission, Delegations, EAR);

II. Representatives of ministries and joint management structures from other countries and regions;

III. Partner authorities from EU member states;

IV. Those involved in IPA CBC;

Participants will be drawn from the countries of the Western Balkans and those neighbouring countries eligible to participate in IPA CBC with the countries of the Western Balkans.

The seminars will take the form of presentations (on best practices, case study presentations, developments in IPA CBC, etc) and workshops/discussions on particular themes. It is expected that around 50-70 individuals will take part in each seminar.


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Result 3 Regional Cooperation Increased

Objective To raise awareness among general population and targets about IPA CBC, cross-border funding opportunities, and the CBIB; to promote the existence of the CBIB project as a support service; to facilitate networking and the exchange of experiences and ideas among stakeholders in the wider region.

Specific action 1. 7 Workshops on the national level about CBIB, IPA CBC, project management 2. Informational workshops on the local level (8 border areas) about JPDs and

JMSs; 3. Nine (9) informational workshops on the local level (8 border areas) about

project preparation; 4. Publications / information products /press releases / information stands at

events; 5. Translations of existing guidelines and procedures; 6. Creation of database of project partners; 7. Creation of project web site; 8. Organization of four (4) Regional CBC Forums.

Assumptions

The interest of the national, local and regional authorities on both sides of the external borders of the EU (and Phare countries) and among the WB borders, in cross-border cooperation will be necessary for the success of the CBIB project

Expected results 1. General cross-border project awareness in relation to IPA CBC raised; 2. Awareness of the CBIB role in preparation of JPDs and JMS ensured; 3. Awareness about the project preparation process ensured; 4. Level of regional cooperation (generating project ideas and new partnerships)

increased.

Outputs

Albania: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), 1 Regional Forum (50 people), publications, DB, WB the former Yugoslav Republic of Macedonia: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), 1 Regional Forum (50 people), publications, DB, WB Serbia: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), 1 Regional Forum (50 people), publications, DB, WB. Kosovo under the UNSCR 1244: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), publications, DB, WB Montenegro: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), 1 Regional Forum (50 people), publications, DB, WB Bosnia and Herzegovina: 1 WS on National Level (100 people), 2 WS on Regional level,(50 people each), 1 Regional Forum (50 people), publications, DB, WB Croatia: 1 WS on National Level; 2 WS on Regional level,(50 people each), WS will be done in cooperation with Croatian TA team publications, DB, WB Information package for the CBC internal border programmes produced. Information package on the objectives and modalities of CBC calls for proposal for internal borders produced. Publication produced (leaflets, brochures, etc.)


18 workshops; 1100 participants in the WS (participants lists); 200 participants in 4 Regional Forums, press clipping, web site, data base, reports, handouts, presentations. LTE BDPA Contr. Incidental Contr. International 205 National 597 STE 0 International 0

Experts input (m/d)

National 0

101,000

2006 2007 Activities 6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11

1. 6 WS on the national level (IPA CBC, CBIB)

2. 9 WS on the local level (JPDs/JMSs) 3. 9 WS on the local level (project preparation)

4. Publications 5 Data base of contacts 6. Web site 7. Regional Forum (4)


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7.2.4 Result 4: Project Pipeline Prepared

The objective is to strengthen the capacity of local and regional authorities and civil society representatives that potentially intend to participate in IPA CBC to prepare good quality project proposals mainly in view of the future 2007 – 2013 cross border programme under the IPA.

The experience gathered so far in most of the “external borders”, where CARDS Regional CBC Programmes have been launched, indicated that there is a considerable number of projects which are rejected due to, amongst other reasons, not meeting basic quality criteria of applications and selection.

Based on the findings on the current situation, interviews with and collective feedback from the beneficiaries of all countries, the CBIB Project Team considers the following key issues that justify the training needs:

• Proper qualification for preparing good quality project proposals remains a major problem almost in all the borders;

• Past support on capacity building on these topics has been sporadic, with low coverage and centred on the creation of specific technical skills that are far from creating the critical mass required to reach certain project preparation qualities;

• The frequent staff retention problems, especially in the regional and local authorities in the bordering areas have, in general, weakened the capacities for preparing project proposals;

• Capacities to develop good quality project proposals are quite low especially at the regional and local levels at the “internal borders”. If the “internal borders” IPA CBC programme is to be developed, considerable resources and strong efforts need to be mobilized for enhancing capacities in project preparation in order to enable the beneficiaries to successfully participate in the IPA CBC in the future;

• Training on conceptual and practical issues related to different phases of project cycle management is strongly needed in order to understand the overall context and wider challenges related to IPA CBC activities

• Training on “PCM” is considered as the highest priority varying from 50% to 70% of respondents from central administration and on average to 80% of those from local administration. High priority has also training on “developing project proposals”: over 70% of respondents from local government and 50% of central institutions. Around 30% to 40% of respondents from central institutions consider priority training on IPA CBC.

To address these capacity deficiencies high-quality training programmes will be designed and tailored to build capacity, experience and expertise among our identified target audiences.

Approach to training

Training to be delivered by CBIB project will combine understanding of basic theoretical concepts with applied, hands-on exercises that replicate participants work context.


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In order to have an immediate effect the training under this project will be “process oriented training” in conjunction with IPA CBC processes and closely related to launch of call for proposals.

Whenever possible, the training modules and back up documents will be translated to the local languages and will be distributed among participants for future reference. A list of related reading materials will be provided to those willing to read more on the training topics. The training material (handouts, slides, case studies, etc) will be prepared in a manner which allows wide distribution, so that it can be circulated to non attending personnel as well.

Training will be delivered both through the classic training format as well as hands-on support in which participants learn by doing, taking in information far quicker when they are involved directly in the discussion and learning process.

Methods

• Presentation of case studies;

• Exercises on concrete examples;

• The use of visual aids (presentations, etc);

• Group discussions and brainstorming techniques;

• Guest speakers.

Materials

• Hand outs;

• Summarised translations;

• Flip charts and presentation slides;

• Information sheets;

• Contact files with web and email addresses.

In as much possible, the seminars will be designed in such a way to involve at least one international trainer and at least one national trainer or the local experts in each country office of the project. This mix is important primarily in terms of relevance, because it is believed that the blend of the international perspective provided by foreign experts and of the first-hand information and expertise provided by local experts would significantly contribute to the success of the capacity building exercise.

Timing: Tentatively, this training will be very much process oriented and will relate to the launch of call for proposals. The precise timing of these seminars will be reported in the coming progress reports.

Project pipeline

One of the results of the project activities is to help develop, or build up, a pipeline of projects for funding. At present, this does not exist in any structured form although a project pipeline of some sort does already partially exist. There are a number of project ideas that have not been successful in gaining financing so far. These exist in a number of forms, including;

1. Project ideas that applicants have devised but which have not been developed into project proposals under other funding mechanisms;


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2. Projects ideas, outlines and proposals that have worked in the past that can be scaled up to take advantage of higher funding levels.

The project team will assess the size and scope of the two sources of project pipeline ideas listed above. The team can then provide support to applicants to move rapidly to a situation where there are a number of projects in the pipeline that are ready and waiting for new funding rounds for submission.

Thus, the team will focus on two strands in building up the project pipeline:

a) Analyse what already exists in terms of outlines, plans and proposals and focus on providing support and advice to develop a pipeline of project proposals;

b) Work with other actors and interested parties through the project activities to feed more proposals into the pipeline for funding.

Two modules of training will be organised and the training will focus on the project application process and on how to prepare and submit a project for funding.

Activity 4.1: Training on PCM and project preparation

Initial training (Module 1): Targeting individuals at the beginning of the project preparation process.

Individuals entering the training at the beginning of the “awareness” process may have only heard of the programme, or have an idea of what kind of project they wish to prepare. The level of the training sessions will be basic, designed to get people acquainted with the IPA CBC Programme, and to begin to understand the basics of the project preparation process and project cycle management.

This training should be associated with the launch of IPA CBC activities and call for proposals. Wherever possible, it will be associated with ‘awareness’ process in the eve of launching calls for proposal. While awareness activities are supposed to increase understanding on IPA CBC activities (how it works , its rules and procedures, eligibility, finding a project idea, partner search, project relevance, and project preparation), this training will aim to enhance capacities for follow up preparation of project proposal.

The training package will be focused on main steps of Project Cycle Management based on the logical framework approach, putting emphasis on those elements of the cycle that relate more to project formulation, such as;

Problem analysis: identifying stakeholders, their problems; cause and effect relationships;

Analysis of the objectives: developing objectives from the identification phase;

Strategy analysis: identifying the different strategies to achieve the proposed objectives;

Log frame: defining the project structure, formulating objectives in measurable terms;

Scheduling the activities: determine the sequence of the activities, their duration; setting milestones;

Resource scheduling: developing input schedules as well as the budget.


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Method: This will be classical classroom-training which will be delivered to a medium to large audience. It will be delivered by combining the project core team, short term international and local experts. Classroom seminars will concentrate mainly on the theoretical and methodological aspects of the PCM related processes. These seminars will last from 2-3 days. The groups will be preferably 20-25 people. These training activities will be followed-up by specific “on the job training” to participants in relation to procedures, filling in projects proposals forms, etc.

Activity 4.2: Intermediate training (Module 2):

Targeting individuals who have good knowledge of the project preparation process

Individuals participating in intermediate training will come from two sources: ones who attended the initial training sessions (Module 1), or ones with a fair prior knowledge of EC programmes and procedures.

This training will be more technical and in-depth than module 1, and will be geared to working with people who are some way in the planning process for project submission.

For this part one three-day training session will be carried out covering the following topics: methodology, sustainability and added value, project design, log frame and Objectively Verifiable Indicators (OVIs), budgets and financing, administrative compliance, project evaluation and the evaluation grid, and the checklist for submission.

For those in Module 1, it will be assumed that they will follow training Module 2.

Project Cycle Management provides the framework for the two training modules. For both, the basic principles of PCM will be followed at all times.

A third level of training may be implemented – a module to review the specific weaknesses of project proposals (either those that have been rejected for funding, or those that are in the project pipeline) in smaller working groups.

Activity 4.3: Hands-on coaching for the preparation of project proposals:

This training will be more practical and geared to working with people who are some way directly involved in the preparation of project proposals to be submitted.

Project team will provide coaching and on-the-job training to the staff in organisation that will prepare project proposals to be submitted for funding IPA CBC Programme. Coaching will closely relate to the call for proposals process.

Typical hand-on coaching support will be provided for:

Identification of projects and their prioritisation;

Preparation and formulation of project proposals;

Appraisal of project proposals;

Reviewing submission.


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Timing: Tentatively, also hands-on coaching support will be very much process oriented and will relate to the launch of call for proposals. The precise timing of these seminars will be reported in the coming progress reports.

For each session, detailed lesson plans with clear objectives will be formulated and results outlined.

Comprehensive training materials and background documentation will be prepared for each session and handed out to the participants following the training session.

Select participants

Selection of participants is the single most crucial element in ensuring the success of the training seminars. Even the best designed training course will fail if it does not correspond directly to the needs of the participants; if the level of knowledge of the trainees is different to that of the ‘pitch’ of the course (too high or too low); or if participants have different levels of knowledge within the same group.

To facilitate this, the team will spend considerable effort in the selection process of participants. They will have to apply to join a training course by filling in a specific form which will gauge level of knowledge of the programme and previous experience in the application process.

Training sessions will be based more closely on real examples and projects and consequently the result of this will be higher motivation and a higher stakeholder sense of ownership in the project.

This will help to ensure that:

a) The right people to train are selected (i.e. those directly involved in project process);

b) Individuals attending have a similar level of knowledge and experience of programmes and funding mechanisms;

c) We work with participants who are indeed preparing or managing a project proposal.

Organise logistics for training seminars

The logistical arrangements for the seminars – venue, catering, materials, transport, etc. will be organised by the project in close collaboration with Project Partners. The travel schedule and timing for the training sessions will be organised correspondingly with the selection process of participants.

Prepare training manual

The training and background documentation will be prepared in advance of the sessions and presented for approval to the Commission. The documentation will be put together in a training manual, translated, and given at the end of the sessions to the participants.


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Evaluate training

It is important to know how well received the training seminars will be by the participants of the sessions. This allows the team to assess the impact of the training seminars and provides feedback that is useful in determining the results of the training sessions. It can also be used as a basis for modifying or even expanding the training sessions in the future.

The team will develop a tailored evaluation form that will assess the efficacy of the training experience per session, per activity and per trainer. At the end of the programme of training, the final evaluation will be analysed and recommendations will be made regarding the future training programmes of this kind.

We should note that:

• resources of the CBIB projects are rather limited to deliver large scale training and meet the actual large need for training on preparation of project proposals;

• training, on its own, will not solve some of the fundamental institutional problems in establishing a proper coordination and management system of IPA CBC Programme activities in the countries of the region. Unless the training is associated with necessary organisational and process improvements it might not be effective;

• addressing capacity building needs and training activities should be not considered only in the short term and linked to the life of the CBIB project. A longer term support and training strategy should support the sustainability of results of this project and build the foundation for successful participation of the countries in the IPA CBC programmes in the future. Intensive compressive training packages should be provided to each country/border and potential for establishment of a Regional Training Centre for CARDS CBC Regional Programmes and IPA CBC could be worth exploring.


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Result 4 Project Pipeline Prepared

Objective To enhance capacities for project proposal preparation To improve understanding of IPA CBC Programme, its rules and procedures To increase quality and quantity of proposals submitted To increase number of projects in pipeline

Specific actions 1. Training modules preparation (2 modules designed) 2. 2 training modules on PCM and project proposal preparation delivered in each

country/border 3. Hands-on coaching in preparation of project proposals 4. Training manuals prepared

Assumptions

The interest of the national, local and regional authorities and final beneficiaries necessary

Expected results 1. Increased quality of project proposals 2. Increase in number of projects funded 3. Increase in number of projects in pipeline 4. Decrease in number of rejected proposal, 5. Positive reaction to support services of CBIB

Outputs Albania: 2 training modules on PCM, hands –on support for the call for proposals for CARDS Regional CBC Programmes for “external borders” as well for the “internal borders” under IPA CBC (20 projects in pipeline) 5-8 training sessions delivered (30 people each session) the former Yugoslav Republic of Macedonia: 2 training modules on PCM, hands –on support for the call for proposals for CARDS Regional CBC Programmes for “external borders” as well for the “internal borders” under IPA CBC(15 projects in pipeline) 5-8 training sessions delivered (30 people each session) Serbia: 3 training modules on PCM, hands–on support for the call for proposals for IPA CBC “internal borders” (15 projects in pipeline) -6 training sessions delivered (30 people each session). Kosovo under the UNSCR 1244: training in Kosovo will depend on the possibility of launching CfP Montenegro: 2 training modules on PCM, hands–on support for the call for proposals for IPA CBC “internal borders” (max 15 projects in pipeline) 4 training sessions delivered (30 people each session) Bosnia and Herzegovina: 3 training modules on PCM, hands–on support for the call for proposals for CARDS Regional CBC Programmes for “ external borders” as well for the “internal borders” IPA CBC (15-30 projects in pipeline) 6 training sessions delivered (30 people each session) Croatia: 2 training modules in PCM; for the project preparation support should be provided by the CBC project in Croatia


12 training modules; 440 trainees; 2 training manuals, 80 projects in the pipeline for the entire Region. LTE BDPA Contr. Incidental Contr. International 96 National 170 STE 104 International 0

Experts input (m/d)

National 104

31,800


Preparation of training modules PCM training sessions Hands-on support in preparation of project proposal


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8. Conclusion As a conclusion we can say that, when considering the past and recent history of the Western Balkans region, cross-border cooperation could become a very instrumental tool to promote development, stability, peace and a better future for the countries of the region. This goes along with the wide-reaching reforms these countries are undertaking on their way of European integration. One of the challenges we see ahead to which the CBIB project will also contribute, is spreading the pace of reforms from central level to the regional and bordering areas of the countries of the region, which in most of the cases traditionally have been less advanced in the process. The CBIB project is starting at the eve of establishing regional cooperation at the internal borders, some of which are inheriting a long history of conflicts and separation. It is in the privilege of all our team to advise and contribute to the promotion of this cooperation in the benefit of people living in these bordering areas. It is our strong understanding and hope that promotion of cooperation across the bordering areas will pave the way for more structured and cohesive development of these regions, countries and the Western Balkan as a whole.

Allocation of resources per activity

EU STE L STE Team Leader

Key Expert Skopje

Key Expert Tirana

Key Expert

Sarajevo

2 Experts Belgrade

Expert Skopje

Expert Tirana

Expert Sarajevo

Total %

INCEPTION PHASE CBIB project in place and operational 0 0 76 34 58 16 49 18 55 0 306 10.46 Activity 0.1: Make CBIB offices operational 52 20 28 11 20 14 25 170 5.81 Activity 0.2: Carry out Needs Assessment 4 10 20 5 20 4 20 83 2.84 Activity 0.3: Prepare IR and WP 20 4 10 9 10 53 1.81 IMPLEMENTATION PHASE Result 1 - Programme management established 50 26 80 74 43 75 95 45 55 75 618 21.12 Activity 1.1: Support to establish effective coordination mechanism at the central level

3 8 11 10 10 15 10 67 2.29 Activity 1.2: Support to establish effective coordination network of IPA CBC in line ministries/regional/local authorities

2 13 9 10 10 20 10 74 2.53 Activity 1.3: Support to establish Joint Management Structures 55 34 15 40 60 10 10 40 264 9.02 Activity 1.4: Deliver training on programme management 50 26 20 19 8 15 35 15 10 15 213 7.28 Result 2 - Programme Content developed 40 130 45 59 63 60 75 73 52 90 687 23.48 Activity 2.1: Review IPA Implementing Rules 2 2 2 2 2 2 2 1 15 0.51 Activity 2.2: Provide comments on IPA Implementing Rules 1 1 1 1 1 1 1 1 8 0.27 Activity 2.3: Prepare Joint Programming Documents 40 127 42 56 60 57 72 70 50 90 664 22.70 Result 3 - Regional Cooperation Increased 0 0 85 42 33 45 307 102 88 100 802 27.41 Activity 3.1: Organize workshops on national level 15 8 9 7 39 24 18 10 130 4.44 Activity 3.2: Organize workshops on local level (JPDs/JMSs) 15 8 8 7 33 24 18 10 123 4.20 Activity 3.3: Organize workshops on local level (project preparation)

10 7 8 6 33 23 17 10 114 3.90 Activity 3.4: Prepare and distribute publications 10 5 5 5 60 15 20 30 150 5.13 Activity 3.5: Prepare and make the database operational 5 45 10 8 15 83 2.84 Activity 3.6: Design and make the Web site operational 10 4 10 65 3 4 20 116 3.96 Activity 3.7: Establish Regional Forum 20 10 3 10 32 3 3 5 86 2.94 Result 4 - Project pipeline prepared 10 104 20 19 28 29 45 55 45 25 380 12.99 Activity 4.1: Prepare training modules 10 10 0.34 Activity 4.2: Deliver Training in Project Preparation and Project Cycle Management

54 20 7 8 14 35 20 15 15 188 6.43 Activity 4.3: Provide Hands-on support in preparation of project proposals

50 12 20 15 10 35 30 10 182 6.22 Project management Ongoing project management, reporting 0 0 40 12 15 15 29 7 5 10 133 4.55 Total 100 260 346 240 240 240 600 300 300 300 2926 100.00

Table 2: Monthly allocation of resources MONTHS 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 Total EXPERTS QUARTER 1 QUARTER 2 QUARTER 3 QUARTER 4 QUARTER 5 QUARTER 6 June July Aug Sep Oct Nov Dec Jan Feb Mar April May June July Aug Sep Oct Nov International long term experts

Team leader 11 21 22 22 21 22 14 15 20 22 21 22 21 15 15 20 20 22 346 Project & Programming expert Tirana 1 11 20 15 20 18 18 20 20 18 16 11 10 8 8 8 10 8 240

Project & Programming expert Sarajevo 1 11 2 5 12 22 15 15 20 22 21 22 15 7 10 15 15 10 240

Project & Programming expert Skopje

7 17 13 20 12 14 15 15 15 18 17 14 15 10 14 14 10 240

Long term local experts Long term local experts Serbia 1 Long term local experts Serbia 2 22 33 33 44 32 36 40 44 44 44 44 32 32 44 44 32 600

Long term local expert Tirana 11 22 22 22 22 18 22 18 20 22 22 22 10 14 11 11 11 300 Long term local expert Sarajevo 21 22 21 22 20 22 22 22 22 22 22 20 20 22 300 Long term local expert Skopje 13 22 22 22 20 22 22 20 20 20 22 15 11 22 15 12 300 Short term experts ST International experts 20 10 10 10 20 20 10 100 ST local experts 10 40 40 30 40 27 23 40 10 260

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9. Next Reporting Period

Work plan and Deliverables for Next Reporting Period

The project will continue under the following plan for the next period.

Result 1: Capacities in Programme Management built

• Support to establish effective coordination mechanism at the central level

Result 2: Programme Content developed

• Prepare JPDs (support to establishment of Task Forces for the preparation of JPDs)

Result 3: Increase Regional Cooperation:

• Organize workshops on local level (JPDs/JMSs)

• Prepare and distribute publications (first set)

• Prepare and make the Database operational

• Design the Web site

Deliverables for the next reporting period:

• NAA report for Bosnia and Herzegovina prepared

• Hands-on support to NA started

• Task Forces for the preparation of JPDs established

• First set of publications prepared

• Database prepared and operational

• Web site designed

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Planned Use of Resources for the Next Reporting Period

Allocation of resources per activity

EU STE L STE Team Leader

Key Expert Skopje

Key Expert Tirana

Key Expert

Sarajevo

2 Experts Belgrade

Expert Skopje

Expert Tirana

Expert Sarajevo

Total %

Result 1 - Programme management established 0 0 0 8 11 6 10 15 50 15.43 Activity 1.1: Support to establishing effective coordinating mechanism at the central level

8 11 6 10 15 50 15.43 Result 2 - Programme Content Developed 15 4 12 15 25 20 13 14 118 36.42 Activity 2.3: Prepare JPDs (support to establishment of Task Forces for the preparation of JPDs)

15 4 12 15 25 20 13 14 118 36.42 Result 3 - Regional Cooperation Increased 0 0 25 14 13 16 51 13 12 12 156 48.15 Activity 3.2: Organize workshops on local level (JPDs/JMSs) 8 5 8 6 20 4 7 2 60 18.52 Activity 3.4: Prepare and distribute publications (first set) 9 5 5 5 15 5 1 6 51 15.74 Activity 3.5: Prepare and make the Database operational 1 10 2 2 2 17 5.25 Activity 3.6: Design the Web site 7 4 5 6 2 2 2 28 8.61 Total 40 26 36 37 76 43 40 26 324 100


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APPENDIXES


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Appendix A - Terms of Reference


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Appendix B - Logical Framework


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Appendix C - CBIB Offices Contact details and organizational chart


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Appendix D - CBIB SC Members List


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Appendix E - Needs Assessment Analysis Report


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Appendix F - Needs Assessment Analysis Questionnaires


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Appendix G - CBIB Approach –chart


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Appendix H - Country Approach


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Appendix I - CBIB Activities Time Table


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Appendix J - CBIB Incidental Budget Table


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Appendix K - CBIB Action Plan Inception Phase


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Appendix L - CBIB Manual of Internal and Financial Procedures


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Appendix M - Meetings held during the Inception Phase