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October 2015 1 Culture and Tourism Mini Case Study MALTA: Grant Scheme for Sustainable Tourism Projects by Enterprises Work Package 9 Ex post evaluation of Cohesion Policy programmes 2007-2013, focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) October 2015 Authors: David Bradley

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Page 1: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

October 2015 1

Culture and Tourism Mini Case Study MALTA Grant Scheme for

Sustainable Tourism Projects by Enterprises

Work Package 9

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development

Fund (ERDF) and the Cohesion Fund (CF)

October 2015 Authors David Bradley

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 2

EUROPEAN COMMISSION

Directorate-General for Regional and Urban Policy Directorate B - Policy Unit B2 Evaluation and European Semester

Contact Violeta Piculescu

E-mail REGIO-B2-HEAD-OF-UNITeceuropaeu

European Commission B-1049 Brussels

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 3

Ex post evaluation of Cohesion Policy programmes

2007-2013 focusing on the European Regional

Development Fund (ERDF) and the Cohesion Fund (CF)

Work Package 9 Culture and Tourism - Case Study Malta

Mini Case Study Grant Scheme for Sustainable

Tourism Projects by Enterprises

Contract 2014CE16BAT034

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 4

Work Package 9 - Case Study Malta

Mini Case Study Grant Scheme for Sustainable Tourism Projects by Enterprises

This report is part of the Malta Case Study carried out within the Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF)

Author David Bradley Date 15th October 2015

LEGAL NOTICE

This document has been prepared for the European Commission however it reflects the views only of the authors and the Commission cannot be held responsible for any use which may be made of the information contained therein More information on the European Union is available on the Internet (httpwwweuropaeu) Luxembourg Publications Office of the European Union 2016 copy European Union 2016

Europe Direct is a service to help you find answers to your questions about the European Union

Freephone number () 00 800 6 7 8 9 10 11

() The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 5

Table of Contents

1 FORWARD7

2 SYNTHESIS9

3 BACKGROUND INFORMATION 9

4 PROJECT DESCRIPTION10

5 POLITICAL AND STRATEGIC CONTEXT12

6 IMPLEMENTATION13

61 The process of project design and planning13 62 Management monitoring and evaluation system of the project 13 63 Governance arrangements of the project 15 64 Innovative elements and novel approaches to implementation16 65 Key implementation obstacles and problem-solving practices 16

7 KEY RESULTS17

8 SUSTAINABILITY AND TRANSFERABILITY 21

81 Sustainability 21 82 Transferability 21

9 LESSONS LEARNT 23

REFERENCES 24

ANNEX ERDF 135 PROJECT SELECTION CRITERIA 25

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 2: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 2

EUROPEAN COMMISSION

Directorate-General for Regional and Urban Policy Directorate B - Policy Unit B2 Evaluation and European Semester

Contact Violeta Piculescu

E-mail REGIO-B2-HEAD-OF-UNITeceuropaeu

European Commission B-1049 Brussels

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 3

Ex post evaluation of Cohesion Policy programmes

2007-2013 focusing on the European Regional

Development Fund (ERDF) and the Cohesion Fund (CF)

Work Package 9 Culture and Tourism - Case Study Malta

Mini Case Study Grant Scheme for Sustainable

Tourism Projects by Enterprises

Contract 2014CE16BAT034

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 4

Work Package 9 - Case Study Malta

Mini Case Study Grant Scheme for Sustainable Tourism Projects by Enterprises

This report is part of the Malta Case Study carried out within the Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF)

Author David Bradley Date 15th October 2015

LEGAL NOTICE

This document has been prepared for the European Commission however it reflects the views only of the authors and the Commission cannot be held responsible for any use which may be made of the information contained therein More information on the European Union is available on the Internet (httpwwweuropaeu) Luxembourg Publications Office of the European Union 2016 copy European Union 2016

Europe Direct is a service to help you find answers to your questions about the European Union

Freephone number () 00 800 6 7 8 9 10 11

() The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 5

Table of Contents

1 FORWARD7

2 SYNTHESIS9

3 BACKGROUND INFORMATION 9

4 PROJECT DESCRIPTION10

5 POLITICAL AND STRATEGIC CONTEXT12

6 IMPLEMENTATION13

61 The process of project design and planning13 62 Management monitoring and evaluation system of the project 13 63 Governance arrangements of the project 15 64 Innovative elements and novel approaches to implementation16 65 Key implementation obstacles and problem-solving practices 16

7 KEY RESULTS17

8 SUSTAINABILITY AND TRANSFERABILITY 21

81 Sustainability 21 82 Transferability 21

9 LESSONS LEARNT 23

REFERENCES 24

ANNEX ERDF 135 PROJECT SELECTION CRITERIA 25

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 3: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 3

Ex post evaluation of Cohesion Policy programmes

2007-2013 focusing on the European Regional

Development Fund (ERDF) and the Cohesion Fund (CF)

Work Package 9 Culture and Tourism - Case Study Malta

Mini Case Study Grant Scheme for Sustainable

Tourism Projects by Enterprises

Contract 2014CE16BAT034

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 4

Work Package 9 - Case Study Malta

Mini Case Study Grant Scheme for Sustainable Tourism Projects by Enterprises

This report is part of the Malta Case Study carried out within the Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF)

Author David Bradley Date 15th October 2015

LEGAL NOTICE

This document has been prepared for the European Commission however it reflects the views only of the authors and the Commission cannot be held responsible for any use which may be made of the information contained therein More information on the European Union is available on the Internet (httpwwweuropaeu) Luxembourg Publications Office of the European Union 2016 copy European Union 2016

Europe Direct is a service to help you find answers to your questions about the European Union

Freephone number () 00 800 6 7 8 9 10 11

() The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 5

Table of Contents

1 FORWARD7

2 SYNTHESIS9

3 BACKGROUND INFORMATION 9

4 PROJECT DESCRIPTION10

5 POLITICAL AND STRATEGIC CONTEXT12

6 IMPLEMENTATION13

61 The process of project design and planning13 62 Management monitoring and evaluation system of the project 13 63 Governance arrangements of the project 15 64 Innovative elements and novel approaches to implementation16 65 Key implementation obstacles and problem-solving practices 16

7 KEY RESULTS17

8 SUSTAINABILITY AND TRANSFERABILITY 21

81 Sustainability 21 82 Transferability 21

9 LESSONS LEARNT 23

REFERENCES 24

ANNEX ERDF 135 PROJECT SELECTION CRITERIA 25

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 4: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 4

Work Package 9 - Case Study Malta

Mini Case Study Grant Scheme for Sustainable Tourism Projects by Enterprises

This report is part of the Malta Case Study carried out within the Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF)

Author David Bradley Date 15th October 2015

LEGAL NOTICE

This document has been prepared for the European Commission however it reflects the views only of the authors and the Commission cannot be held responsible for any use which may be made of the information contained therein More information on the European Union is available on the Internet (httpwwweuropaeu) Luxembourg Publications Office of the European Union 2016 copy European Union 2016

Europe Direct is a service to help you find answers to your questions about the European Union

Freephone number () 00 800 6 7 8 9 10 11

() The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 5

Table of Contents

1 FORWARD7

2 SYNTHESIS9

3 BACKGROUND INFORMATION 9

4 PROJECT DESCRIPTION10

5 POLITICAL AND STRATEGIC CONTEXT12

6 IMPLEMENTATION13

61 The process of project design and planning13 62 Management monitoring and evaluation system of the project 13 63 Governance arrangements of the project 15 64 Innovative elements and novel approaches to implementation16 65 Key implementation obstacles and problem-solving practices 16

7 KEY RESULTS17

8 SUSTAINABILITY AND TRANSFERABILITY 21

81 Sustainability 21 82 Transferability 21

9 LESSONS LEARNT 23

REFERENCES 24

ANNEX ERDF 135 PROJECT SELECTION CRITERIA 25

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 5: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 5

Table of Contents

1 FORWARD7

2 SYNTHESIS9

3 BACKGROUND INFORMATION 9

4 PROJECT DESCRIPTION10

5 POLITICAL AND STRATEGIC CONTEXT12

6 IMPLEMENTATION13

61 The process of project design and planning13 62 Management monitoring and evaluation system of the project 13 63 Governance arrangements of the project 15 64 Innovative elements and novel approaches to implementation16 65 Key implementation obstacles and problem-solving practices 16

7 KEY RESULTS17

8 SUSTAINABILITY AND TRANSFERABILITY 21

81 Sustainability 21 82 Transferability 21

9 LESSONS LEARNT 23

REFERENCES 24

ANNEX ERDF 135 PROJECT SELECTION CRITERIA 25

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 6: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 7

1 Forward

The European Commission Directorate-General for Regional and Urban Policy (DG REGIO) is undertaking an ex post evaluation of Cohesion Policy programmes financed by the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) during the period 2007-2013 in regions covered by the Convergence Regional Competitiveness amp Employment and European Territorial Cooperation objectives in the 28 member states The Consortium IRS-CSIL-CISET-BOP has been selected to undertake the ex post evaluation on lsquoCulture and Tourismrsquo (Work Package 9) An important element within the exercise is a series of case study analyses of NUTS2 regions covering interventions co-financed by ERDF during the 2007-13 programming period In addition to the full case studies (at a regionrsquos programme level) the evaluation also includes two mini case studies (focused on individual projects) for each programme case study As with the programme case studies mini case studies are based on desk research and semi-structured face-to-face interviews with the main participants involved in the chosen projects This report presents the results of the mini case study Grant Scheme for Sustainable Tourism Projects by Enterprises This is the second of two mini case studies selected from among the many projects funded by Maltarsquos Operational Programme I (OPI) ndash Investing in Competitiveness for a Better Quality of Life The report begins with a brief synthesis of the Grant Scheme for Sustainable Tourism Projects by Enterprises project before moving on to a fuller description and the presentation of the results of the analysis undertaken The report ends with a review of the main conclusions of the study together with a series of lessons learnt for future policymaking The mini case study was based on desk research and on a programme of 15 semi-structured interviews Of these 12 interviews were with beneficiary enterprises The remainder were with key actors in the design and delivery of the project Those interviewed were

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 7: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 8

Table 11 ndash Persons interviewed Name Role Contacts

00356 2200 1140 Mr Jonathan Vassallo

Director-General Planning and Priorities Coordination Division MALTA jonathanvassallogovmt

00356 2200 1173 Dr Georgina Scicluna Bajada

Head Operational Programme I Planning and Priorities Coordination Division georginascicluna-bajadagovmt

00356 2291 5035 Ms Moira Pisani

Director Policy and Programme Implementation Ministry for Tourism moirapisanigovmt

00356 2291 5200 Mr Leslie Vella Director Malta Tourism Authority leslievellavisitmaltacom 00356 2200 1867

Mr Mark Camilleri Projects Manager ERDF 135 (Aid Schemes) Planning and Priorities Coordination Division markecamillerigovmt

00356 2291 5059 Mr Oliver Farrugia Project Leader ERDF 135 Ministry for Tourism oliverfarrugiagovmt

00356 2291 5052 Ms Cora Vella Laurenti Senior Executive ERDF 135 coravella-laurentigovmt 00356 2291 5076 Ms Catherine Xuereb Implementation Executive ERDF

135 catherinecxuerebgovmt

Supported business voluntary sector interviewees

Name Role Contacts +356 276 58035

Mr Claude Sciberras

Dive Systems(WS) Ltd Improvement in facilities and services at Divesystems for an exceptional diving experience

claudedivesystemsmaltacom

+356 237 72408

Mr Joe Aqullina

Garden View Complex Club Class Enhancing the student experience and language learning offer

joeclubclasscom

+356 797 890890 Ms Amanda Abela Supreme Travel Ltd upgrade of open top buses audio system amandasupremecoachescom

+356 214 90700

Mr Andrew Naudi

Melita AFC Upgrade of Melita FCs 5 a-side pitches and marketing initiatives Embellishment of Melita AFC grounds to enhance sports tourism in Malta

anaudicomputimecommt

+356 2289 4458 Ms Elaine Cutajar Debono

Sunsights Ltd (Pergola Hotel) getting connected through conferences elainepergolahotelcommt

+356 215 53719 Ms Charmaine Pace Axaiq

All Seasons Holidays Ltd obo Hotel Xiendi Resort and Spa Stepping steady HXSS charmainehotelxiendicom

+356 994 93306 Ms Veronica Zammit Tabona

Villa Arrigo Ltd attracting niche tourism to imposing villa in the middle of Malta VZTonvoinet

+356 2229 0000 Mr Brian Azzopardi Atlantis Diving Centre New dive centre Brianatlantisgozocom

+356 214 24657 Mr Tony Cassar

Cyberspace Ltd a gastronomic tourism portal for Malta and Gozo infocyberspacecom

+356 790 60759 Mr Joseph Muscat Malta Sunripe Co Ltd the Mgarr Agritourism experience project msunripemaltanetnet

+356 795 94104 Mr Chris Brincat

Luna Holiday Complex Improving tourists perception of accommodation quality in Malta chrislhcmaltacom

+356 994 87060

Mr Brian Meilak

Baron Group Ltd Exclusive Gozo farmhouse accomodation for upmarket niche tourism segments

brianbarongroupmaltacom

Source the author

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 8: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 9

2 Synthesis

Grant Scheme for Sustainable Tourism Projects by Enterprises project was selected as a mini case study as the largest project providing direct support to businesses aiming to support the adaptation of the tourism industry to capitalise on strategic sector opportunities The project demonstrates the challenge for a Member State keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets We found evidence of assisted projects having achieved strong growth in turnover post project implementation Part of this growth may be attributable to an increase in overall tourist numbers over the 2007-2013 programe period The availability of ERDF funding was essential for the achievement of some of the results ERDF has in some cases addressed specific market failures mainly connected to the small size and fragmentation of niche tourism markets A strong argument could be made that ERDF support helped to increase standards faster and to a higher level than would otherwise have been achieved by the private sector

3 Background information

Country Malta

Region Malta

Full project title Grant Scheme for Sustainable Tourism Projects by Enterprises ERDF 135 Duration of project 2009 and 2015

Key words tourism international tourism reduced seasonality

Funding

Total budget euro 157513767

ERDF contribution euro66943351

National budget euro11813533

Regional budget -

Private contribution euro78756884

ERDF Objective

Convergence

Competitiveness

Territorial cooperation

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 9: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 10

Motivation for selection The project is interesting in that it involves significant private secor investment The private sector investment levered by the project exceeded the amount of ERDF support The project is the largest project within Axis 2 which has provided direct support to businesses to secure the adaptation of the tourism industry towards expanding market niches In addition the project demonstrates the challenge of a public sector keen to demonstrate robust systems of financial management whilst securing significant investment by private sector operators in new markets

4 Project description

Overall objectives and purpose The Grant Scheme for Sustainable Tourism Projects by Enterprises is a Maltese Ministry for Tourism-managed project The Scheme directed public financing to licensed enterprises implementing sustainable tourism projects to strengthen their competitiveness It aimed at financing ldquoholistic projectsrdquo so as to have a stronger impact on the sector Five intervention areas were identified

The promotion of Research amp Innovation through the intervention of Product Upgrade and Investment in Equipment

The adoption of new technologies through the intervention in Information and Communication Technology

Undertaking environmental practices through interventions relating to investment in Environmentally Friendly Measures

Investment in entrepreneurship Investment in marketing

Project Activities

The scheme has supported direct and indirect tourism service providers and SMEs The aim was to assist the growth and development of beneficiary tourism and cultural operators and to increase the impetus for the continuous growth of sustainable tourism The Grant Scheme for Sustainable Tourism Projects by Enterprises programme was initiated in February 2009 with the first call for project applications from businesses A total of 110 investment projects have been supported across a total of 92 organisations the overwhelming majority of which were SMEs A minority were either larger businesses such as the Island Hotel Group or non-business organisations such as Zejtun Parish or Melita Football Club The majority of supported businesses were accommodation providers The project was largely focussed on action category 57 ldquoOther assistance to improve tourism servicesrdquo however through its supported investments it also contributed to all three categories of Cultural Action (58 59 and 60) Examples of supported cultural actions are set out below in Table 41

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 10: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 11

Table 41 Illustrative supported actions

Centru Animazzjoni u Kommunikazzjoni (CAK) The Shipwreck film production

Leone Philharmonic Society Staging of quality operas in the island of Gozo

Zejtun Parish Zejtun Parish Religious Heritage Route

Zejtun Parish Further Enchantment of certain areas and services forming part of the Zejtun Parish Religious Heritage Route

Masqerade Theatre Company Ltd Centre for the Development of Creativity and Life Skills through the Theatrical Arts and English Language Learning

Assocjazzjoni Sportiva Hibernians The Corradino Prison Museum amp Interpretation centre Source Ministry for Tourism ERDF 135 Supported Projects database Supported investment projects have varied substanially in size The smallest awared was EUR 7600 in co-financed support for a destination management company to translate its website into six languages The largest single award was for EUR 195000 to support a package of measures to assist a hotel in Gozo to broaden its client base and extend its season The main focus of this project was an upgrade of its hotel rooms The median project award was EUR 57000 (the mean award was EUR 72000) Beneficiaries The programme supported a range of different types of SMEs and a small number of voluntary sector bodies including website designers diving companies accommodation providers a football club an agri food business and a parish council The majority of supported businesses were accommodation providers Most beneficiaries were in receipt of just one award just 16 received more than one award Only two businesses The Limestone Heritage Park and Gardens and the Easy School of Langauages received three awards The Limestone Heritage Park for example received some 270000 Euros of support for separate but complementary investment projects from across three of the calls The Main Outputs and Results The project was co-financed with national funds and ERDF matching the applicantsrsquo funds Supported businesses and other activities were not lsquogaprsquo funded ndash the requirement was simply for them to provide 50 of the overall cost of the proposed investment The total ERDF expenditure by the Grant Scheme for Sustainable Tourism Projects by Enterprises programme was EUR 6694000 About a quarter of the funds allocated were to projects located in Gozo1 This ERDF expenditure by the programme represents some 66 of the overall actual Axis 2 expenditure

1 1550482 Euros

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 11: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 12

Table 42 Financial resources (Euros) for Grant Scheme for Sustainable Tourism Projects by Enterprises 2010-2015

Year

ERDF National Private Total ERDF National Private Total2008

2009

2010 euro8383567 euro1479453 euro9863020 euro19726040 euro4708527 euro830916 euro5539443 euro11078887

2011 euro23142143 euro4083908 euro27226050 euro54452100 euro17291407 euro3051425 euro20342832 euro40685663

2012 euro25383567 euro4479453 euro29863020 euro59726040 euro24474299 euro4318994 euro28793294 euro57586587

2013

euro15937500 euro2812500 euro18750000 euro37500000 euro13755245 euro2427396 euro16182642 euro32365283

2014 euro3187500 euro562500 euro3750000 euro7500000 euro4079741 euro719954 euro4799695 euro9599390

2015 euro00 euro00 euro2634132 euro464847 euro3098979 euro6197957

Total euro76034277 euro13417814 euro89452090 euro178904180 euro66943351 euro11813533 euro78756884 euro157513767

anticipated for 2015

Programmed Actual

Source MEAIM June 2015

5 Political and strategic context

The Ministry for Tourismrsquos role has been to co-ordinate the joint efforts of government national agencies and the private sector at all levels of tourismsrsquo broad-based structure The Ministry encourages and supports operators in the areas in which it handles funds As well as a Ministry for Tourism there is the Malta Tourism Authority which has responsibility for branding and marketing Malta and developing the tourism product The introduction of a separate Priority Axis (Axis 2 Promoting sustainable tourism) led to a more than ten-fold increase in the ERDF spend on tourism or culture The potential interventions identified in the OP were

Investment in the upgrading of the Maltese (and Gozitian) tourism product across all identified niches and segments including

o Upgrading of coastal areas o Enhancement of tourism zones o Restoration and revalorisation of cultural sites o Nature protection interventions that impact on the tourism industry

Marketing of diverse tourism segments Aid schemes to tourism and cultural undertakings and non-

undertakings

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 12: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 13

6 Implementation

61 The process of project design and planning

The project originated in an analysis of the tourism sector conducted at the beginning of the programming period 2007-2013 Tourism Policy for the Maltese Islands 2007-2011 was a key policy document used to define the project and selection criteria The Tourism Policy for the Maltese Islands 2007-2011 highlighted the need for ldquoan urgent upgradingrdquo of Maltarsquos product offer At a strategic level the Maltese Government was committed to delivering the programme as planned and absorb all available funds The size of this project was governed by a combination of an assessment of the capacity of the private sector to come up with projects that strongly supported the objectives of the programme the resources available to the Ministry of Tourism for match-funding and significant demands on the available funds from other ministries During the 2004-2006 period EUR 15 million were invested in supporting tourism industry projects This experience helped to give an indication of levels of latent demand for funding support The amount committed under the Aid Scheme amounted to EUR 7942000

62 Management monitoring and evaluation system of the project

The scheme was advertised and information sessions for prospective applicants were organised by the Ministry for Tourism Applications of around 20 pages in length were prepared Applicants were given 8 weeks between the call date and the submission deadline to prepare applications for funding The 1st call was in February 2009 and resulted in 91 applications Of these 30 projects were successful (61 unsuccessful) Out of the 30 29 signed the Grant Agreement during 2009 one of the successful applicants opted out of the scheme The 2nd call was in October 2009 and the 3rd call in October 2010 A 4th call was then issued in January 2013 to fill underspend resulting from the first three calls Prior to these subsequent calls several events were held to explain the objectives of the scheme the criteria for selection and the demands on beneficiaries Those with current responsibility for managing the project considered that the quality of applications improved with more innovative projects included in the groups of projects supported that responded to calls 2 3 and 4 It was considered that a combination of applicants being better informed greater use of external consultants and stronger economic conditions all contributed to the perceived improvement in the quality of applications An evaluation committee made up of a Chairman and a representative of the Ministry for Tourism and a representative of the Malta Tourism Authority carried out an initial eligibility assessment with ineligible applicants informed at this stage A preliminary assessment of the projects was then carried out with projects scored using the scoring matrix specifically designed for the project The Financial Controller was used to provide expert advice on the financial capacity of applicants A more detailed assessment of the higher scoring projects was then carried out by an external committee of experts with expertise in specialist areas including

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 13: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 14

environmental standards equal opportunities ICTs employment National Tourism Policy

In most cases the time taken between submission and approval was between six and eight months In a minority of cases the process lasted over a year In addition to the project manager a team of four were employed on contracts for the duration of the scheme (2009-2015) As a result of rentention difficulties a total of ten different people have been ivolved in the administration of the team The main reason for staff turnover is understood to stem from team members leaving to take up different job opportunities Expenditure was closely monitored with several stages of checking before payments were released in the case of private sector beneficiaries (see Figure 61 below) The Project Manager is starting to discuss with the Evaluation Unit how the project should be evaluated An external evaluation of the project is planned for later in the year The monitoring of the scheme started during the fourth quarter of 2013 and is currently ongoing Information is being collated and this shall provide a clear picture of the positive effects the scheme had on the sector

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 14: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 15

Figure 61 Financial Flow Chart ndash Private Sector Beneficiaries

Source Operational Programme 1 Cohesion Policy 2007-2013 Investing in competitiveness for a better quality of life Malta March 2014 p178 63 Governance arrangements of the project The project was managed by the Tourism Sustainable Development Unit (TDSU) within the Ministry for Tourism (the Intermediate Body) The partners involved in the design of the project and initial project assessment were the Malta Tourism Authority and the Ministry for Tourism Invoice validation and endorsement was made by the Tourism Sustainable Development Unit within the Ministry for Tourism and then re-validated and endorsed by others within the Ministry for Tourism before payment was released by the Treasury

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 15: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 16

64 Innovative elements and novel approaches to implementation An ERDF supported project of this scale and complexity involving the private sector was novel in the context of Malta Even though the intervention approach is already in use at the European level the project ndash particularly by seeking to support beneficiary businesses with an integrated package of support ndash seems rather innovative for the Maltese context A preliminary assessment of the projects was carried out with projects scored by the selection committee using the scoring matrix designed for the project The criteria are presented in the Annex ERDF 135 Selection Criteria The criteria demonstrate an exceptionally averse attitude to risk with applicants scoring worse on the preliminary assessment if they have been established for less than five years or if the project represents more than a 5 of net assets 65 Key implementation obstacles and problem-solving practices Implementing a project of this scale and complexity involving the private sector proved challenging The skills and experience gained from administering the scheme have proved to be in high demand and as a result staff retention has been an issue The first call for projects resulted in the majority of applications either scoring poorly against the appraisal criteria or being ineligible Prior to subsequent calls potential applicants were given more detailed advice notes and several workshops were held which businesses and business support advisers could attend This additional advice and support helped to increase the ratio of high scoring applications and reduce the number of rejected applications The preliminary appraisal scoring matrix (see Annex) included a ldquocommitmentrdquo category Applicants scored higher if they appointed a project manager and accountant and more marks still if ldquofurther additional resources were appointed on the projectrdquo One of the successful applicants we interviewed submitted two unsuccessful applications before employing a specialist adviser to write up their application for support Several of the beneficiaries experienced delays of several months between them paying contractors and suppliers and receiving payments from the Treasury Several referred to cash flow difficulties before being reimbursed The advice and support was consistent for all 4 stages Despite significant levels of ineligible spend resulting from calls 1 to 3 the decision was taken by the TDSU that the measures that were in place to provide information to beneficiaries were both robust and sufficient claiming that

consistant advice was communicated to the beneficiaries by the TDSU in relation to the queries raised about eligiblenon-eligible activity areas

the information seminars delivered prior to the launch of each call by the TDSU explained in detail the eligible activity areas and the methods that were to be adopted prior to the adoption of changes

apart from information seminars the TDSU also communicated these methods to applicants during the initial site visit conducted by the TDSU as well as during the signing of the Grant Agreement

the TDSU conducted frequent meetings with beneficiaries whenever requests were put forward

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 16: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 17

The Ministry for Tourism judged that when beneficiaries ldquodecided not to adhere to the procedures set out in the guidance notesrdquo for example claiming for expenditure for an item of equipment different to that specified in the application for support then they had no other option but to ldquoimplement the necessary rectificationsrdquo Several of the supported businesses judged that the cost to their business of delaying construction refurbishments and risking completion after the start of the summer tourism season left them with no alternative but to press ahead with works according to the planned timetable The incorporation of ldquoinformation and communication technologyrdquo was among the selection criteria Many of the supported projects involved purchasing digital or other technical equipment The period between applications being submitted and the purchase of the equipment was typically over a year In the case of several of those we interviewed the model or version of such equipment changed over this period Several projects purchased equipment which they assumed had been agreed However because a different model or version had been purchased and the change had not been notified this expenditure was deemed ineligible In some cases significant amounts of expenditure were deemed ineligible Moreover delays in implementation led to late submission of claims Where the beneficiary had not informed the TDSU of delays and thus not received acceptance of change to the submission date again this expenditure was judged ineligible Overall around EUR 1 million of underspend resulted Underspend led to an additional 4th call for applications Had more projects actually needed the full amount of public sector grant award then the consequences for supported businesses could have been much more negative with potentially some businesses facing financial difficulty or even being forced into liquidation

7 Key results

Table 71 Results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises

Year No of projects implemented by enterprises

No of enterprises adopting new products and processes

Programmed Achieved Programmed Achieved

Total 110 115 90 68

Source Managing Authority (Breakdown by year not available) The results achieved by the Grant Scheme for Sustainable Tourism Projects by Enterprises appear to have been generally positive In order to gain some insights into how successful the project has been we interviewed a random stratified sample of 12 beneficiaries of the grant scheme We stratified the sample by the type of activity of the beneficiary The following types activities were interviewed2

bull Agri-tourism bull Coach operator bull Dive school

2 Data derived from MTA database of ERDF 135 supported investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 17: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 18

bull Dive school bull Events venues (conferences weddings etc) bull Farmhouse accommodation bull Football club bull Hotel bull Hotel bull Hotel bull Language school and accommodation bull Web designer

Our interviews with project beneficiaries found that the grant assistance provided a valuable boost to supported businesses and other (supported organisations) with each of those receiving capital grant support experiencing a growth in turnover following implementation of the investment The businesses supported were all well established businesses and mostly over 10 years old Each of the twelve projects we looked at appear to have increased the competiveness of their business3 In most cases beneficiaries felt that the investment has helped to increase their potential to extend the tourism season This finding suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The modest reduction in seasonality that has been achieved by the programme overall (see Malta case study report) reflects a much weaker emphasis across the remainder of projects supported by Priority Axis 2 to specifically aim to reduce seasonality and achieve growth of winter and shoulder season activities and markets

33 Or the potential to attract tourists to use the supported facility attraction in the case of non-commercial organisations supported

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 18: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 19

Melita AFC with the activities rendered possible through the grant supplied thanks to the ERDF scheme has managed to attract a number of foreign teams to use their premises for training camps tournaments as well as to host various tournaments including foreign teams Tournament Team Country of Origin Dates Travel Agent or Broker US Virtus Badolato Switzerland February 2013 Henry Bray FC Burgdorf Germany March 2013 Vacations Malta Ltd KC Kolliken Switzerland March 2013 Vacations Malta Ltd FC Klus Balsthal Switzerland March 2013 Vacations Malta Ltd FC Rothorn Switzerland March 2013 Vacations Malta Ltd FC Scandinavia Scandinavia (Sweden

Norway Finland Denmark)

April 2013 Johann Nyberg

St Andrew School United Kingdom April 2013 Mary Grace Lynch Groups

Atalanta Calcio (Former Players)

Italy June 2013 Lavinia Boroni

Mansfield Town United Kingdom July 2013 ProSports Travel AC Milan Junior Camp Italy July 2013 ESE Education FC Parkside United Kingdom April 2014 Sim Corporation FC Zuzwil Switzerland March 2014 Groups Ltd FC Gontenschwil Switzerland March 2014 PampA Sullivan AC Milan Junior Camp Italy July 2014 ESE Education Rugby League European Federation (RLEF)

Europe July 2014 Malta Rugby League

UEFA U17 Championships (Holland)

Holland July 2014 UEFA

FC Embrach Switzerland July 2014 Mice Services FC Tafers Switzerland March 2015 EIBTM Eurolawyers Chamionships 2015

Europe July 2015 (scheduled) Mice Services

Source Melita AFC The effectiveness of supported schemes will be influenced by the ability of the public sector to co-ordinate actions The example below highlights the need for a coordinated stategy for business support The Atlantis Diving Centre has with ERDF support invested heavily in Technical Diving The business saw a great potential for year-round diving The main diving season in Malta has typically started with Easter and finished by the end of October Between November and March most dive centres have tended to close doors Atlantis Diving made this investment on the assumption that facilities provided by the local authories including cliff ladders to access the dive sites would remain in place throughout the year ldquoThe first winter 20132014 worked pretty well and more or less we always had some sort of access to the seardquo In January February and March 2015 Atlantis however claimed that there was ldquonot a single ladder providing access dive sites around Gozordquo The business is now considering closing for 3 or 4 months in 20152016 due to the uncertainty as to whether access to the dive sites will be provided next winter

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 19: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 20

Figure 71 Malta Sunripersquos ERDF 135 supported audio visual presentation facilities

The high ratio of grant support (intervention rate of 50) has enabled some projects (4 out of the 12 we looked at) to go ahead with investments which they would not have been able to do without grant support One such project was Malta Sunripe Co Ltdrsquos investment in new facilities to enable agri-tourism tours The project appears to have the potential to improve tourist experience with a new niche tourism product facility service with potential to stimulate repeat visits and recommendations to visit Malta in winter The project is understood to be regarded by the Managing Authority as being among the more successful projects The overriding business aim of the investment was to generate sufficient revenue to enable the farm to continue to support two families and for their farming way of life to remain as unaffected as possible In this respect the project has been a spectacular success more than doubling the turnover of their business with around two agri-tours per week or 80 tours per year Half of the respondents considered that their investment would have been delayed and the scale or quality of the investment would have been affected without grant support The remaining two felt that that the investment would just have been delayed None of the supported businesses felt the project would have gone ahead exactly as planned without ERDF support The majority of assisted projects focussed on room or facility refurbishments and equipment upgrades Such investments can be expected to have increased the competiveness of supported businesses and may have had a demonstration effect helping to stimulate a change in the quality of visitor offer that is currently occurring Only a minority of supported projects look likely to have the potential to directly lead to a net additional increase in the overall number of tourists visiting Malta outside of the peak holiday season Several projects were implemented which appear to have increased the competiveness of Malta in niche tourism market areas and which offer the potential to extend the tourism season and attract net additional visitors to Malta

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 20: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 21

8 Sustainability and transferability

81 Sustainability Long-term funding for investments has historically been made difficult by the limited level of tourism demand between September and April In funding ldquosustainablerdquo tourism projects initiated by enterprises and voluntary sector bodies it could be argued that ERDF has intervened to help correct some important market failures mainly related to the highly seasonal nature of tourism in Malta and Gozo Helped by a combination of ERDF support and strong growth in tourist numbers over recent years most of those assisted have experienced strong growth since the implementation of the ERDF supported investment The ERDF support has strengthened competitive position and viability Supported investments have also helped to broaden the visitor offer ndash adding to the range and quality of facilities and attractions The project complements the integrated package of measures which have drawn on the advice of different segments of Maltarsquos tourist industry and then been closely co-ordinated by the Maltese Government It remains too early to tell whether the very significant investments in cultural heritage sites will help to stimulate investments which will in turn lead to a longer-term reduction in seasonality Although there has been a strong growth in visitor numbers across the whole year for many businesses tourism demand remains heavily skewed towards the summer months and levels of demand remain relatively week in the winter months Should any of the supported investments fail to achieve economic levels of use or utlilisation throughout most of the year this could be expected to limit the ability of the supported enterprise to reinvest in their repair maintenance and necessary upgrading ndash and in turn the long-term sustainability of the investment Our finding that in most cases beneficiaries felt the investment has helped to increase their potential to extend the tourism season is nevertheless encouraging It suggests that the overall project (ERDF 135) will have made a contribution towards a less seasonal higher value added more sustainable tourism industry replacing seasonal jobs with full-time year-round jobs The Ministry of Tourism initiated discussions with the Managing Authority in order to ldquocapitalise on the good aspects of the scheme in discussion and to improve on areas which proved less positiverdquo The Ministry is still in a very early stage of assessment and further discussions with the MA shall materialise in this regard 82 Transferability Mechanisms that could be expected to favour a smoother implementation of the project would be

To ensure the remuneration level is sufficient to attract and retain an appropriately skilled team with the experience to cope with the demands of the role Schemes of this nature are expensive to manage

Better initial communication of the aims of the project and the demands on applicants

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 21: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 22

Very clear ongoing guidance ndash written and verbal ndash which reminds businesses of what project expenditure will be ineligible

Employment of an outward facing manager to communicate with beneficiaries and provide a hand-holding role through from pre-application to project completion Such support could be expected to have helped to alleviate some of the problems faced by businesses and the problems faced in retaining project staff

A two-stage application process with a short pre-application to avoid businesses incurring the cost of expensive full applications

More internal or external support to assist with the appraisal of projects and reduce the time between application and approval would have speeded up the implementation of projects

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 22: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 23

9 Lessons learnt

The lessons learnt can be divided into those which are positive and those where problems remain Positive lessons

Clear advice and guidance can raise the quality of applications particularly in contexts where private sector businesses have no prior experience of ERDF support

A strong argument could be made that ERDF support helped to ldquoraise the barrdquo sooner and to a ldquohigher standardrdquo than would otherwise have been achieved by the private sector without pump-priming support The quality of individual business websites is improving many accommodation providers have upgraded the quality of their accommodation and new entrants have entered the market without grant support which are contributing to a higher quality and more diverse tourist offer Strong growth in tourism demand then created the conditions by which others were able to follow suit

The extent to which the raising of the bar contributed to the overall growth in tourism demand and created a demonstration effect which then stimulated local competitors to respond is difficult to establish

Other lessons

The appraisal process may have been overly mechanistic ndash projects achieved a high score if they combined the five areas of intervention Insufficient priority may have been afforded to projects that had the direct potential to attract net additional visitors to Malta The scheme attracted a broad range of types of projects Thematic calls for example ldquoInvestment in diving infrastructure to enable all year round divingrdquo with appropriately tailored selection criteria and adjusted intervention rates may have stimulated stronger applications and achieved better value for money

More needs to be done to reduce the administrative burden on assisted businesses Several interviewees were unsure whether they could cope again with the bureaucracy associated with applying for ERDF support For several the recruitment of an outward-facing business support manager to provide initial advice and guidance and ongoing support to make sure expenditure was not being made that would be deemed ineligible was necessary Greater hand-holding to facilitate stronger applications for support reduce ineligible spend and in turn reduce underspend would be beneficial

There is a need for continued efforts to ensure the effective coordination of strategies and investments

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 23: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 24

References

bull Maltarsquos National Strategic Reference Framework (NSRF) bull Thematic Evaluation An Evaluation of the Contribution of Operational Programme

I Initiatives to Competitiveness and Improvement of Quality of Life (Competitiveness Report) Monitoring Committee 4th November 2014 London Economics

bull Tourism industry sub-sectors COUNTRY REPORT MALTA March 2014 European Commission

bull Tourism Policy for the Maltese Islands 2006-2010 bull Tourism Policy for the Maltese Islands 2007-2011 bull Tourism Policy for the Maltese Islands 2012-2015

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 24: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 25

Annex ERDF 135 Project selection Criteria

AgeTime - 33 and 38 (from app date to last date in 38)

InvestmentCommitment - 361 376 and

39 Turn

over

Need for Support Holistic Nature of Project

Total (15 pass)

5 () 5 () 5 () 5 () 10 () 5 ()

Age of organisation Time Critical Project Duration

age of project investment costs vis-agrave-vis net assets

Commitment and capacity to implement Need for Support No of Intervention

Areas

Award 1 if Establshed 0-2 years

Award 1 if project duration over 24 mth

Award 1 if more than 11

Award 0 if no preparatory studies presented

Award 3 to large enterprises (based on the Enterprise Size Declaration)

Award 1 - One Action in Line with the Incentive Guidelines

Award 3 if Established 3 - 5 years

Award 3 if project duration 13 - 24 mth

Award 3 if 6-10 inclusive

Award 2 if preparatory studies presented

Award 5 to medium enterprises (based on the Enterprise Size Declaration)

Award 2 - Two Actions in Line with the Incentive Guidelines

Award 5 if Established for over 5 years

Award 5 if project duration 0 - 12 mth

Award 5 if Less than 5

Add 1 if project manager and accountant appointed

Award 7 to micro and small enterprises amp to self-employed (based on the Enterprise Size Declaration)

Award 3 - Three Actions in Line with the Incentive Guidelines

See Column S for ratio

Add an additional 2 points if additional resources beyond the project manager and accountant are appointed on project

Add 3 if the enterpise forms part of a network or is a start up (ie establihsed less than 5 years)

Award 4 - Four Actions in Line with the Incentive Guidelines

Employment levels to be verified with ETC records

Award 5 - Five Actions in Line with the Incentive Guidelines

Project interventions include Product upgrade Environmentally friendly measures ICT Entrepreneurship Marketing

PreliminaryRisk Appraisal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 25: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 26

Envir

onm

ent S

usta

inabil

ity -

37

2 an

nd 4

1

Equa

l Opp

ortu

nities

- 4

1

Info

rmat

ion a

nd

Com

mun

icatio

n Te

ch 4

2

Inno

vatio

n an

d co

mpe

titive

ness

42

Emplo

ymen

t 4

2

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

Com

plian

ce w

ith n

ation

al to

urism

poli

cy a

nd se

ason

ality

5 5 5 10 10 20

Com

petiti

vene

ss

Proje

ct in

itself

(3)

Com

petiti

vene

ss F

or

Malt

a (2

)

Stru

ctura

l Ref

orm

s (2)

Prod

uct e

nhan

cem

ent

(2)

Prod

uct a

uthe

nctic

ity

(2)

Impo

rted

(2)

Susta

inabil

ity (2

)

Earn

ingsV

Add

ed (3

)

Distr

ibutio

n of

inco

me

(2) 10

100 () 100 ()

Total Score

MA Scoring

Strategic

Horizontal

Source Project documents

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

bull more than one copy or postersmaps from the European Unionrsquos representations (httpeceuropaeurepresent_enhtm) from the delegations in non-EU countries (httpeeaseuropaeudelegationsindex_enhtm) by contacting the Europe Direct service (httpeuropaeueuropedirectindex_enhtm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) () () The information given is free as are most calls (though some operators phone boxes or hotels may charge you)

Priced publications

bull via EU Bookshop (httpbookshopeuropaeu)

Priced subscriptions

bull via one of the sales agents of the Publications Office of the European Union (httppublicationseuropaeuothersagentsindex_enhtm)

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 26: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 27

HOW TO OBTAIN EU PUBLICATIONS

Free publications

bull one copy via EU Bookshop (httpbookshopeuropaeu)

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Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria
Page 27: Culture and Tourism - European Commission€¦ · Agritourism experience project" msunripe@maltanet.net +356 795 94104 Mr Chris Brincat Luna Holiday Complex "Improving tourists perception

Ex post evaluation of Cohesion Policy programmes 2007-2013 focusing on the European Regional Development Fund (ERDF) and Cohesion Fund (CF) ndash Work Package nine Culture and Tourism

October 2015 28

  • 1 Forward
  • 2 Synthesis
  • 3 Background information
  • 4 Project description
  • 5 Political and strategic context
  • 6 Implementation
    • 61 The process of project design and planning
    • 62 Management monitoring and evaluation system of the project
    • 63 Governance arrangements of the project
    • 64 Innovative elements and novel approaches to implementation
    • 65 Key implementation obstacles and problem-solving practices
      • 7 Key results
      • 8 Sustainability and transferability
        • 81 Sustainability
        • 82 Transferability
          • 9 Lessons learnt
          • References
          • Annex ERDF 135 Project selection Criteria