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Ex-Post Evaluation of the INTERREG III Community Initiative

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Ex-Post Evaluation of the INTERREG III Community Initiative Ex-Post Evaluation of the INTERREG III Community Initiative TASK 5: IN-DEPTH ANALYSIS OF A REPRESENTATIVE SAMPLE OF PROGRAMMES PROGRAMME: INTERREG IIIA Czech Republic - Poland EVALUATION REPORT, elaborated by Jan Szczucki, Policy & Action Group Uniconsult, Poland Panteia and Partners: EureConsult S.A. (Luxemburg) Policy Research and Consultancy (Frankfurt / Germany) GÉPHYRES EURL (Roubaix / France) The Radboud University (Nijmegen / The Netherlands) Reference R20090284/30922000/LTR/CWI January 2010 This study has been financed by European Commission Directorate General for Regional Policy, Evaluation Unit Quoting of numbers and/or text is permitted only when the source is clearly mentioned. INTERREG III ex-post evaluation. In-depth evaluation of the PROGRAMME: INTERREG IIIA Czech Republic - Poland Table of contents EXECUTIVE SUMMARY...........................................................................................3 1 RESEARCH INTEREST AND METHODOLOGY ...............................................4 1.1. Outline and characteristic features of the programme .................................4 1.2. The financial implementation of the programme.........................................5 1.3. Dynamic financial analysis .................................................................... 11 2 PLANNED RESULTS, ACHIEVEMENT RATES AT MEASURE LEVEL AND TREND PATTERNS .......................................................................................... 14 2.1 Reviewing the programming quality and the programme relevance on the basis of the results achieved ................................................................. 21 2.2 The level of complexity and experimentation achieved by co-operation........ 24 3 PROJECT-LEVEL CO-OPERATION UNDER THE PROGRAMME ........................ 27 3.1 Selection of the project sample.............................................................. 28 3.1.1 Project 1: Enjoy Cieszyn....................................................................... 30 3.1.2 Project 2 Cooperation of University of Technology of Opole and Technical University in Ostrawa as regards rational use of energy ............................ 35 3.1.3 Project 3 Modernisation of road infrastructure relating to Polish – Czech T.G. Masaryk bicycle route .......................................................................... 37 3.1.4 Project 4 Protection of main underground water reservoirs by way of reorganizing sewage management in Lubawka......................................... 40 3.1.5 Project 5 Czech and Polish media cooperation: Let’s get to know each other 42 4 ANALYSIS OF FACTORS THAT DETERMINE THE CHARACTER OF THE PROGRAMME ...................................................................................... 47 4.1 Main factors fostering (or hampering) integration and means to promote positive factors or to overcome persisting obstacles.................................. 53 4.2 Extrapolating results on effectiveness and impacts to all INTERREG programmes ....................................................................................... 53 5 IN-DEPTH ANALYSIS OF RESULTS AND IMPACTS IN TERMS OF UTILITY AND EFFICIENCY ........................................................................................ 55 5.1 The external coherence of the programme .............................................. 55 5.1.1 Regulatory compliance and interaction / co-ordination with other Structural Funds programmes .............................................................................. 55 5.2 The intrinsic performance of the programme ........................................... 59 5.2.1 The overall governance and management system of the programme........... 59 5.2.2 Programme monitoring system.............................................................. 68 5.2.3 The Community added value and the sustainability / durability of the programme ........................................................................................ 69 6 OVERALL FINAL CONCLUSIONS AND POLICY RECOMMENDATIONS ............. 71 6.1 Final conclusions ................................................................................. 71 6.2 Policy recommendations ....................................................................... 72 R20090284.doc 2 January 2010 INTERREG III ex-post evaluation. In-depth evaluation of the PROGRAMME: INTERREG IIIA Czech Republic - Poland EXECUTIVE SUMMARY The Poland – Czech Republic Programme Interreg IIIA was the first programme implemented on the Polish-Czech border under the INTERREG Initiative. In general the implementation of the programme was very efficient and there were no major problems. What should be emphasised is the fact that the cooperation between the administrative structures of both countries was very good. This can be proven by the fact, that the successor to the programme i.e. the Poland – Czech Republic European Territorial Cooperation Objective 3 Programme, has been launched as a first ETC bilateral programme both in Poland and Czech Republic. The Programme was managed by the Czech Ministry of Regional Development (Managing Authority) in cooperation with the Polish Ministry of Regional Development (National Authority). An important role, particularly in the application stage, was also played by the Joint Technical Secretariat located in Olomouc (Cz) in which the staff from both countries were employed. The measures of the programme were largely oriented on modernisation and development of the existing infrastructure – mostly roads. This was justified by the fact that the infrastructure in neighbouring regions has been very much underdeveloped and in order to stimulate socio – economic development a lot of investment in infrastructure was needed. Important parts of the programme expenditures were been allocated to micro-projects, these projects usually relate to various types of cultural and sports events, exchange visits of children and young people. Such projects played an important role in promoting the programme, especially among the local communities. The micro-projects component has been successfully managed by the Euroregions. A relatively small portion of funds was allocated for the support of SME’s and activities relating to the labour market and common services for local people. This can be explained by the concentration of the programme on infrastructure investments, the lower priority attributed for these areas by the institutions managing the programme as well as by the fact that for labour market activities a lot of money was allocated within the respective national operational programmes in both countries. Within the programme the lead partner principle has not been applied, but the projects’ selection criteria included many aspects aimed at evaluating the possible cross-border impact and cross-border cooperation. Indicators of the programme achievements (both at measure and priority level) have been surpassed many times. This can be evaluated as a success of the programme, but it also may show that the selection of the indicators as well as their target values have not been sufficient throughout the programme. In general designing the indicators to be able to measure the real cross-border impact both at the programme and individual projects level seems to be an important challenge, also for the present European Territorial Cooperation Programme. Regardless of the indicators and the levels achieved, the programme has substantially stimulated cooperation between neighbouring regions in both countries. This is also confirmed by the very high number of applications within the present ETC Programme. R20090284.doc 3 January 2010 INTERREG III ex-post evaluation. In-depth evaluation of the PROGRAMME: INTERREG IIIA Czech Republic - Poland 1 RESEARCH INTEREST AND METHODOLOGY The scope of research is specifically determined by the terms of reference for the Ex-post Evaluation for INTERREG III and the method proposed in the Inception Report. In this pilot evaluation we strictly follow the terms of reference and the corresponding methodology. 1.1. OUTLINE AND CHARACTERISTIC FEATURES OF THE PROGRAMME The area in which the programme was implemented comprised 5 regions on the Czech side and 4 regions on the Polish side. While on the Czech side NUTS III regions were identical to the regions in terms of the country’s administrative division, in Poland they covered parts of two voivodeships: Dolnośląskie and Śląskie and the entire Opolskie voivodeship. As a result, the capitals of the 2 regions and the seats of the relevant authorities (Marshal Office - urząd marszałkowski – self-governing authority and Voivodeship Office - urząd wojewódzki – state administration) remained outside the area eligible for support under the Initiative Interreg IIIA Poland – Czech Republic. The qualification area included: − 5 administrative regions NUTS III (kraj) on the Czech side: Liberecký region, Královéhradecký region, Pardubický region, Olomoucký region, Moravskoslezský region; − 4 NUTS III regions on the Polish side: Jeleniogórsko – Wałbrzyski, Opolski, Rybnicko – Jastrzębski, Bielsko – Bialski. These 4 NUTS III regions belonged to 3 administrative regions mentioned before (Dolnośląskie, Opolskie, Śląskie). The global objective of the programme was the improvement of the quality of living conditions and standards in the cross-border areas concerned through common actions of societies and organisations from both sides of the border. The specific objectives on the priority level included: − Increasing economic
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