Regional Operational Programmes
in the Czech Republic
Zagreb, June 2008
Jiří Blažek
Dept. of Social Geography and Regional Development,
Faculty of Science,
Charles University in Prague,
e-mail: [email protected]
Introduction (1)
• The whole implementation structure for the new
programming period differs significantly from the one that
was used for period 2004-2006
• First of all, the number of operational programmes
increased several times
• This is a result of not only involving larger number of
state departments in managing EU SFs money but also
due to decentralization of significant financial resources
and esp. responsibilities to 7 cohesion regions (NUTS II)
consisting of 1-3 self-governing regions at NUTS III level
• The second main impetus for changes of institutional
structure stems from new EU requirements on paying,
auditing and control authorities
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Introduction (2)
• Thirdly, profound changes are designed in the sphere of
financial management to streamline and speed up the
absorption of EU SFs financial resources as a result of
extensive evaluation effort of previous programming
period
• On the other hand, all institutions which have been
already involved in managing programmes from
programming period 2004-2006 are in more or less
identical manner involved also in managing of the new
set of programmes
• To sum up, there is a lot of change but also significant
continuity or more precisely of institutional inertia
3
National Implementation Framework (1)
• Main coordinator: Ministry for Regional
Development (MRD), in conjunction with the
Ministry of Finance which is responsible for the
system of financial flows
• Key institutions:
– National Co-ordination Authority
– Monitoring Committee: Management and Co-ordination
Committee
– Paying and Certifying Authority: National Fund
– Audit Authority: Central Harmonisation Unit for
Financial Control
4
National Implementation Framework
(2)
• For the overall co-ordination of NSRF is responsible
National Co-ordination Authority of the NSRF
(NCA) and is the official partner for the EC on NSRF
issues
• A specific department within MRD has been
appointed to perform the competence for National
Coordinating Authority of the NSRF
• The role of the Monitoring Committee of NSRF is
fulfilled by the Management and Co-ordination
Committee (MCC), established by MRD under Act No.
248/2000 on Regional Development Support
• The NCA supports the Monitoring and Co-ordination
Committee in its tasks and provides for secretarial
assistance
5
Subcommittees of MCC
• As the coordination among operational programmes
(including ROPs) often concerns specific sectors like
RD&I, environment, transport, urban issues, rural
development, the NSRF Coordinating Authority
organizes besides the regular meetings of the
Monitoring Committee of the NSRF, meetings
focused on the four strategic objectives of the NSRF
• For this purpose the following co-ordination committees
have been established under the MCC:
- Competitive Czech Economy
- Open, Flexible and Cohesive Society
- Attractive Environment
- Balanced Territorial Development
6
National Implementation Framework
• The overall coordination rests in 3 pillars:
- Coordination and methodological role of National
framework for Cohesion Policy chaired by Ministry for
Regional Development
- Development of integrated central information system
for programming period (responsibility: Ministry for
Regional Development (MSSF)
- Role of central paying, certification and auditing body in
responsibility of Ministry of Finance
• Important tool for overall coordination, management,
evaluation and publicity is the newly established OP
Technical Assistance
7
National Implementation Framework
• The following bodies on national and regional
levels were charged by the government with
responsibility of managing authorities (MA) for
operational programmes:
- Ministry for Regional Development
- Ministry of Trade and Industry
- Ministry of Labour and Social Affairs
- Ministry of Education, Youth and Sport
- inistry of Environment
- Ministry of Transport
- Cohesion regions at NUTS II level
8
System of financial flows
• In previous programming period (2004-2006), the system
of financial flows operated in the way that from SFs were
cover only expenditures which were already executed by
final beneficiary and which were subsequently certified
by Paying Authority of respective operational programme
• This was a lengthy procedure in addition representing
significant financial burden on final beneficiaries
• Motivation: anti–fraud measure
• In the new programming period all financial resources
from SFs and CF are integrated into state budget
• Final beneficiaries will receive an advance from Czech
state budget PCA then manages transfer of money from
EC accounts back to state budget
• This system should significantly speed up the absorption
of EU financial resources
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ROPs - context
• Czech Republic established in 2001 14 self-governing
regions
• However, negotiation with EC/Eurostat ----only 8
cohesion regions (NUTS II)
• Accession expected sooner (around year 2002) --regions new and therefore considered weak (esp. by EC)
---- therefore for period 2004-2006 Joint Regional
Operational Programme was prepared covering all
Czech regions eligible for support under Obj. 1. (except
Prague).
• MA – department of MRD
• However – part of responsibilities concerning selection of
projects and day to day implementation MRD transfered
to Regional Councils established at NUTS II level (single
purpose bodies and units)
• (7 regional councils – each consisting from 10 elected
regional representatives of each region, i.e. 20 or 30
10
members )
Self-government units (NUTS III)
versus „cohesion regions (NUTS II)
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Conflict over Intermediary Bodies (1)
• Intermediary Bodies (IB) – management of the
project cycle.
• Firstly, MRD established a network of regional
branches of its subordinate institution of Centre for
Regional Development (CRD) expecting these
bodies would play a role of IB.
• However, self-governing regions were aware of the
fact that these bodies would play a key role in
implementation so they established their own
network of secretariats of Regional councils.
• After difficult negotiation between MRD and
regions a „compromise“ solution was found that
both subjects will be involved.
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Conflict over Intermediary Bodies (2)
• Therefore, regional councils played all roles of
Intermediary Bodies untill contract signature (i.e.
preparation and management of call for
proposals, evaluation of projects proposals,
selection and preparation of individual contracts)
• Then, Regional Branches of CRD came into the
scene – signature of the contracts, monitoring,
on spot checks, payments.
• Management od JROP oversees the Monitoring
committee, and in each of NUTS II regions
implementation oversees „Committee for
Regional Development“ (i.e. monitoring
subcommittees) – composition reflects the
principle of partnership.
13
Regional operational programmes
2007-2013
• Introduction of 7 Regional operational programmes (i.e.
one in each of 8 Czech cohesion regions except for
Prague which is not eligible for support within the
Convergence objective) is one of fundamental changes of
the overall implementation structure for cohesion policy in
the Czech Republic.
• Due to significant pressure form self-governing regions
and due to sympathetic attitude of the EC the Czech
Republic authorities reached an agreement that instead of
Joint Regional Operational Programme a set of ROPs will
be prepared under the responsibility of regions.
• Namely, in all cohesion regions single purpose Offices of
Regional Councils were established and charged with a
role of Managing Authority for each of the ROPs.
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Regional operational programmes
2007-2013
• In addittion these former „Secretariats of
Regional Councils“ continue to play a role of IBs.
• In cases when self-governing region is both
NUTS III and NUTS II region, the preparations
were quite straightforward.
• In case that the particular cohesion region
consists of more than one self-governing region
(and this is more common in the Czech Republic
than previous case) special groups were set up
to coordinate preparations for new EU
programming period in the sphere of cohesion
policy (e.g. group for programming).
15
Implementation system for ROPs
• The role of Managing authority for each ROP is assigned
to a single purpose Regional Council which is assisted by
administrative and managerial support from the Office of
Regional Council.
• This Office is legally independent from self-government
bodies but its director is appointed by Regional Assembly.
• In cases when the cohesion region consist of more than
one self-governing region, the Office of Regional Council
has a branch in each of self-governing region to smooth
up the implementation in particular region by being closer
to potential applicants.
• In addition, each Regional Council also establishes also
Board of Regional Council to be more operational
• and
• a standard Monitoring Committee to respect the principle
of partnership and to monitor implementation of ROP in
line with EC regulations.
16
Implementation system for ROPs
• The role of Paying and Certification Body as well as the
role of Audit Authority is fulfilled by The Ministry of
Finance.
• Therefore, the key responsibilities of The Office of
Regional Council are information provision to potential
project applicants, administration of evaluation
procedure, contracting, and control of projects.
• Regional Council as a Managing Authority is responsible
for transparent ROP preparation and negotiation with the
EC, monitoring data collection, reporting, project
selection, monitoring of projects, provision of cofinancing from national public resources, chairing of
Monitoring Committee, and for publicity on a programme
level.
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Example of structure of selected ROPs.
•
•
•
•
•
ROP NUTS II Southwest
Priority Axis 1 – Accessibility of transport
Priority Axis 2 – Development of sustainable tourism
Priority Axis 3 – Sustainable development of towns and rural settlements
Priority Axis 4 – Technical assistance
•
•
•
•
•
ROP NUTS II Southeast
Priority Axis 1 – Transport
Priority Axis 2 – Integrated development and renewal of the region
Priority Axis 3 – Tourism
Priority Axis 4 – Technical assistance
•
•
•
•
•
•
ROP NUTS II Central Moravia
Priority Axis 1 – Urban regeneration and development
Priority Axis 2 – Integrated support of local development
Priority Axis 3 – Transport accessibility and services
Priority Axis 4 – Sustainable development of tourism
Priority Axis 5 – Technical assistance
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Organization structure of Office of
Regional Council
Director
Internal audit
Directors´ office
Dept. of ROP management
Financial department
Communication and publicity
Technical assistance and absorption cap.
Methodological support
Monitoring and evaluation
Project administration
Implem. of projects and payments
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Description of tasks of the
departments
Methodological support
-
Drafting and up-dating of methodogies for administrative proceedures
of the Office employees
Drafting and up-dating of guidance for project applicants
Monitoring and evaluation
-
-
Monitoring of implementation of the programme (data collection,
analyses, reporting)
Evaluation of progress of ROP (analyses, regular reports for EC)
Proposals for enhancement of absorption capacity
Dealing with MSSF
Internal audit
- Implementation of internal audit
- Cooperation with external auditors
- Reporting of irregularities outside ROP structure
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Support to project applicants
Communication and publicity
– drafting and implementation of communication plan
- ensuring publicity and marketing of ROP (workshops, web pages,
information leaflets and publications, mass media etc.)
Technical assistance and absorption capacity
– drafting of plan of TA
-
preparation and implementation of TA projects
implementation of measures for strenghtenning the absoprption
capacity
Project administration
– Consultation with potential project applicants (!!! –
consistency, highly demanding – each project is different)
– Checks of formal criteria of submitted applications
– Evaluation
– Preparation of materials for decision of Regional Council
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21
Financial management and
projects checks
Financial department
– Transfer of fin. resources from Regional Council
(RC) budget on account of FB
– Management of RC budget
– Cooperation with MRD and MoF
Implem. of projects and payments
– signing of contracts wit projects applicants
– ex-ante, interim and ex-post checks
– checks of monitoring reports of individual
projects
– autorization of payment requests
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R E G I O N Á L N Í
R A D A
R E G I O N U
S O U D R Ž N O S T I
S T Ř E D N Í
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Č E C
H Y
WWW.ROPSTREDNICECHY.CZ
Director´s office
- personnal agenda
- education of employees
- material and technical
operation of the Office
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Project cycle
Consultation +
application
submission
Check of formal
criteria + of eligibility
+ evaluation of
project application
Project approval +
signing of contract
On-going check of
project implemen.
Financial reporting
Transfer of financial
resources to Final B.
Check of sustainability of
projects outputs (5 ys.)
Publicity, monitoring and evaluation; technical assistance
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The role of European integration
department of Regional Office
• Regional Office = self-government body
• „the other side“ of implementation of SFs
in regions
• Organization structure
• Unit of grant schemes
• Unit of grants in the sphere of life-long
learning
• Unit for preparation and implementation
projects from EU funds
25
Dept. of EUROPEAN INTEGRATION
Administration of fin. resources
(Unit of grant schemes, Unit of grants
in the sphere of life-long learning)
Region is not beneficiary of grants, but
reallocates resources to other subjects in the
region.
JROP
(308 mil. Kč)
OP HRD
(58 mil. Kč)
OP VK
(GG)
(1 800
mil.Kč)
Coordination of of projects
co/financed by SFs (Unit of prep.
and management of projects)
Region is implementing the projects and is
beneficiary of grants.
JROP
Abcap (34 mil.
ROP
OP VK
(IP)
OP HR &
Empl.
Kč)
IOP
OP TA
OP International
cooperation
(INTERREG)
PROCURE
E-Ten
?
26
Structure of Dept. of European Integration
Director
asistent
lawyer
economist
Units for prep. and
implem. projects from EU
funds
Unit of grant
schemes
1+7 referents
1+9 referents
Unit of grants in
LLL
1+7 referents
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Unit of grant schemes
• 7 project managers, 2 financial managers each
responsible for particular sphere or priority within
given OP
• Redistribution of fin. resources applicants, check
of eligibility of expenditure
• 138 projects (most of them active).
• Also contact point for Norwegian funds for
Central Bohemia
• Preparation of global grant in the sphere of
retraining
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Unit of grants in the sphere of
life-long learning
• 3 project managers, 2 financial managers each
responsible for particular sphere or priority within
given OP, 1 Manager of TA, 1 manager of publicity
• Projects in the sphere of:
• knowledge society and strenghtenning of
competitiveness,
• modernization of system od elementary, secondary
and tertiary education
• Improvement of conditions for R&D
• but also respect to children with special needs
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Unit for preparation and implem.
projects from EU funds
•
•
•
•
6 project managers
Tasks:
projects in the sphere of absorption capacity
preparation and implem. projects from EU funds
in the sphere of international cooperation
including Procure
• Preparation of procedure of project
management
• Management of Regional Fund for advance
financing of EU projects
• Project pipeline
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Main problems:
• Personal dimension:
– Inadequate number of employees with regard to scale
of agenda
– Finding a suitable personnel (high demands).
– High fluctuation of staff (high demands vs. Public
sector pay vs. fees for consultants ---- benefits for
staff)
• Communication:
– External – among different units of implementation
strucuture
– Internal – among different units of Regional Office (a
lot of documents has to be approved by the elected
regional representatives).
– Political influences
31
And perhaps final remark…
• In programming period 2004-6 the share
of JROP on total allocation within Obj. 1
was about 38% in new programming
period „only“ 18%.
• But total amount annually available from
EU SFs more than trippled.
• Regions can also apply and gain support
via TOPs.
32
• Thank you for your attention
• and
• many thanks
• to Mgr. Marek Kupsa (Director of Office of
Regional Council)
• and to
• Mgr. Ivo Říha (Director of European Integration
Department of Central Bohemia region).
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