Final Report on the evaluation study titled "Ex-post evaluation of actions cofinanced by the Cross-Border Cooperation Programme Poland - Belarus - Ukraine 2007-2013" WYG PSDB Sp. z o. o. 7, Bitwy Warszawskiej 1920 street 02-366 Warsaw Tel.: + 48 22 492 71 04 Fax: + 48 22 492 71 39 www.wygpsdb.pl 1 2 Table of Contents 1. Summary ......................................................................................................................................... 5 2. Introduction ................................................................................................................................... 10 2.1. Subject matter and objectives of the study ........................................................................... 10 2.1.1. The scope of the Programme ........................................................................................ 11 2.2. Research questions ................................................................................................................ 13 3. Results of the study ....................................................................................................................... 15 3.1. Analysis of the effectiveness of the Programme ................................................................... 15 3.1.1. Location and types of projects implemented ................................................................ 15 3.1.2. Beneficiaries of the projects .......................................................................................... 21 3.1.3. Results of the projects versus the planned objectives of the Programme .................... 24 3.1.4. Projects implemented in response to local needs and challenges facing cross-border areas…………………………………………………………………………………………………………………………………………36 3.1.5. Limitations and stimuli of cross-border cooperation .................................................... 44 3.1.6. Evaluation of the selection system and the effects of the project implementation ..... 48 3.1.7. Evaluation of the application selection system, including its effectiveness .................. 53 3.1.8. Implementation of projects ........................................................................................... 56 3.1.9. Evaluation of information and promotion activities ...................................................... 60 3.2. Analysis of the effectiveness of the Programme ................................................................... 68 3.2.1. Assessment of changes and how were the lives of local communities/target groups influenced ...................................................................................................................................... 68 3.2.2. Assessment of the impact of the Programme on Polish-Belarusian-Ukrainian relations……………………………………………………………………………………………………………………………………76 3.2.3. Evaluation of effects of synergy with other actions undertaken by beneficiaries ......... 79 3.2.4. Assessment of the added value of the Programme in the socio-cultural aspect and in terms of implementation of horizontal policies ............................................................................ 81 3.2.5. The impact of projects on shaping attitudes and alliances on cross-border cooperation………………………………………………………………………………………………………………………………85 3.2.6. The greatest successes and failures of the Programme ................................................ 92 3 3.3. Analysis of the sustainability of the Programme ................................................................. 101 3.3.1. Assessment of sustainability of project partnerships .................................................. 101 3.3.2. Evaluation of sustainability of the results achieved .................................................... 111 4. Conclusions and recommendations ............................................................................................ 122 4.1. Table of recommendations .................................................................................................. 129 5. List of Figures ............................................................................................................................... 136 6. List of Tables ................................................................................................................................ 137 7. List of Maps ................................................................................................................................. 139 8. Annexes ....................................................................................................................................... 139 8.1. Annex 1 - Reports on the projects' case studies .................................................................. 139 8.2. Annex 2 - Reports on the municipalities' case studies ........................................................ 139 8.3. Annex 3 - Research tools ..................................................................................................... 140 8.3.1. Scenario of an interview with technical staff involved in the implementation of the Programme .................................................................................................................................. 140 8.3.2. Scenario of an interview with representatives of Poland, Belarus and Ukraine - members of the Joint Monitoring Committee (JMC) .................................................................. 141 8.3.3. Scenario of an interview with a leading partner (as a case study) .............................. 142 8.3.4. Scenario of a telephone interview with a project partner (as a case study) ............... 144 8.3.5. Scenario of an interview with a representative of a city/municipality council (as a municipality case study) .............................................................................................................. 145 8.3.6. Scenario of an interview with a councillor in a city/municipality council ................... 146 8.3.7. Scenario of an interview with a representative of a civil society organisation ........... 147 8.3.8. Scenario of an interview with a representative of the project implemented within the CBC PBU 2007-2013 in the case study municipality .................................................................... 147 8.3.9. Scenario of an interview with a representative of the project implemented in the case study municipality financed from other funds than the CBC PBU 2007-2013 ............................ 149 8.3.10. Scenario of an interview with people from the cultural or educational background at the local level ............................................................................................................................... 149 8.3.11. CAWI/CATI survey with partners ................................................................................. 150 4 1. SUMMARY This evaluation study concerns the Cross-Border Cooperation Programme 2007-2013 Poland-Belarus-Ukraine (Programme) implemented under the European Neighbourhood and Partnership Instrument (ENPI). This programme is a continuation and deepening of cooperation between the three neighbouring countries, with the aim of promoting cross-border development processes. The purpose of the study was to evaluate the achievements of the Programme, including the implementation of its main objective and specific objectives, which are implemented within the priorities and their subordinate measures, and the impact of the implementation of the Programme on the support areas and the economic and social lives of its inhabitants. The final report consists of 4 parts that provide knowledge about the effectiveness and rationality of assistance provided under the Programme. Following a summary of the main conclusions (Chapter 1), the research assumptions and, in brief, the methodology used (Chapter 2) are presented in the report. Chapter three of the report provides an analysis of the effectiveness, utility and sustainability of the Programme's results with references to research questions. Part four includes the conclusions and recommendations of the study. The next sections of the report are annexes consisting of case study reports and research tools used in the evaluation study. The conclusions of the study are positive, although most of them require confirmation in the longer term. The analysis of the products and results of the Programme shows that deepening and consolidating of cross-border co-operation takes place, and that the projects implemented contribute to the joint solving of the identified problems of partners. The implemented projects cover all basic areas of the economy and represent all sectors identified in the Programme as representing the areas requiring support: small and medium-sized enterprises, tourism, road, water and sewer infrastructure, environmental protection and crisis management, border infrastructure, health systems, social and cultural sphere. Projects that were non-commercial in nature were implemented under three priorities and their subordinated measures across the Programme-supported area. Beneficiaries of the Programme were representatives of all categories listed in the Programme catalogue of beneficiaries. The most of beneficiaries are local government units (38.78%), non-governmental organizations (16.84%), government administration organs (11.73%), educational units (7.65%) and hospitals (7.14%). The effects of the Programme are used by all target groups to whom the projects were addressed. Projects were mostly targeted to the largest