Terms of Reference

1.7 MB·Dutch

by  Nederlandse overheid

ANNEX 1

Terms of Reference
Termsof Reference
Evaluation of Matra (in pre-accession countries:
Western BalkansandTurkey), 2012-2014
1. General
These Termsof Reference (ToR)havebeendraftedby theEurope Department (DEU)and
approvedby itsdirector. ThePolicyandOperations EvaluationDepartment (IOB) was
involved inthedraftingprocess, andthe IOBguidelinesforevaluation1 havebeenfollowed
as closelyas possible. These ToR will be definitively adoptedonthebasisof the
implementingorganisation’s commentsafter thatorganisationhas been selected.
2. Background andgoal
2.1 Backgroundanddevelopmentof Matra
Thegeneral objectiveof theMatra (Social Transformation)programme when it was launched
in November1993 wasessentially to supportdemocratisation inCentraland Eastern
Europeancountries,following theupheavals thathad taken placethereattheend of the
1980s.
Since1993 Matrahasevolvedfromaprogrammesupportingthe transition intheformer
EasternBloccountries to abilateral complement to theEuropean Union’spre-accession
policyand Neighbourhood Policy. In2004-2007,oncethe Czech Republic,Estonia, Hungary,
Latvia,Lithuania, Poland,SlovakiaandSlovenia hadaccededtothe EUin2004,Matra was
phased outfortheseeight countries. It wasalsophasedoutfor Bulgaria andRomaniain
2007-2011after they joinedthe EU in2007.Overtheyears Matra came tofocus on current
and potential candidate countries, theEU’sand NATO’s neweasternneighbours,and more
recently severalof the EU’ssouthernneighbours.
In thelight of thescarcityof resources,the conclusion was drawn in2009that theMatra
programme neededa sharpergeographical andthematicfocus. From thattime therevised
programme waslimitedtoitsoriginal purpose:supportfor themultiple transitions in countries
with EUaccession prospectsor countries witha Communistpast.Asa resultthe EU’s
southern neighbours were removedfrom theMatra country list.
1EvaluationPolicyandGuidelinesforEvaluation(October2009),draftedbyIOB.
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Because cutbacksand considerations of efficiency dictatedeven clearer choices inexternal
policy, itwasdecidedthatasfrom2012 Matra wouldonlybeusedforSoutheastEuropean
pre-accession countries.2 Atthe sametime theprogramme’s thematic scope was limited to
strengtheningthe rule of law. Thedecision was takentophase Matra outforthe Eastern
Partnership countriesand insteadmeet theneed to strengthenthe rule of law in these
countriesthrough supportfrom theHuman RightsFund.
Thegeneral objectiveof theMatra programme iscurrentlytocontributetothedevelopment
of a pluraldemocracy,grounded inthe ruleof law,with roomfor dialoguebetween
governmentand civil society, withacentralemphasis onbuilding capacityand strengthening
theinstitutionsof civil society andgovernmentandonstrengtheningbilateral relations.3 The
programmefocusesonhelping countriesto meet the Copenhagen criteria andtoadoptthe
acquis communautaire.4
The Netherlandsaims to linkMatra projectstotheEuropean Commission’s Instrumentfor
Pre-Accession Assistance(IPA).5 In additiontotheMatra programme,the Ministry of Foreign
Affairs (BZ) also contributes to societal transition throughthe HumanRights Fund (Turkey is
theonly Matra country whereprojectsarefinancedfromthisfund)and theStability Fund
(whichfinancesprojects in Bosniaand Herzegovina,Kosovo and Montenegro).This raises
thequestionof theextenttowhich Matra complementsEUprogrammesand national
programmes.
By contrast with pastpractice,BZ issolelyresponsiblefor Matra management6 andMatra
costsarepaid entirelyfrom theBZbudget.
Despite theprogramme’snarrower geographicalfocussince2012, Matrafundsare
nonetheless spenteach year in EasternPartnership countries,atthe explicit requestof the
House of Representatives.7 Thesefundsare spentin part on civil societyprojects, viaDutch
2Albania,BosniaandHerzegovina,Kosovo,Macedonia,Montenegro,SerbiaandTurkey.Thismeant
thattheEasternPartnershipcountries(Armenia,Azerbaijan,Belarus,Georgia,MoldovaandUkraine)
wereremovedfromtheMatracountrieslist.Seethelettertoparliamentof14November2011on
SocialTransformation/reviewingMatra(ref.DEU-275/2011).NBAsCroatiabecameaEUmember
stateon1July2013,Matraisbeingphasedoutthereaswell.
3GrantsPolicyFrameworkMatraCoPROL(OrderoftheMinisterofForeignAffairsof12July2013,
no.DEU-0575/2013,layingdownadministrativerulesandaceilingforgrantsawardedunderthe
MinistryofForeignAffairsGrantRegulations2006(MatraCoPROL2014-2015)).
4Lettertoparliamentof14November2011onSocialTransformation/reviewingMatra.
5ForIPAsupportconditions,see http://ec.europa.eu/regional_policy/thefunds/ipa/works_en.cfm and
http://ec.europa.eu/enlargement/instruments/overview/index_en.htm.
6WiththeexceptionoftheMatraPolitical PartiesProgramme(MPPP).
7MadeinthreeamendmentsadoptedbytheHouse.In2015apartofMatra’sbudgetwilloncemore
bereservedforprojectsinEasternPartnershipcountries.
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embassiesand theVisegrad Fund,8 and inpart viaextra contributions tofoundations linked
topoliticalpartiesforprojects inEasternPartnership countries.
In response to theArab Spring, aseparateMatraprogramme (Matra South) was setupfor
theEU’s southernneighboursandhasbeen inoperation since2012.9 By contrast with the
Southeast Europeancountriescovered by the regular Matra programme, the countriesof the
Arab regionhavenoaccessionprospects. The two programmes nonetheless work largely
accordingtothe same system. In the restof theseToR,however,‘Matra’ refersonlytothe
programmefor pre-accessioncountries.
2.2 Componentsofthe Matraprogramme
The current Matraprogrammehasthefollowing components.
1. Matra CooperationwithPre-accession Countriesonthe Rule of Law (CoPROL): targeted
supportfor central governments
This componentfinances partnerships between Dutchgovernment bodiesand their
counterpartsin Matra countries. Thepartnershipsmust beaimedatadopting theEUacquis
in theareaof the ruleof law andmustcomplement theactivitiesof theEuropean
Commission. They must also raise theNetherlands’ profileas regardsthe recipient
governments.10 Theyhave thefollowingobjectives:11
A. Strengthening capacity: Thecapacity of oneor more governmentalor semi-
governmental institutions in one of thetargetcountries toadoptand implement
theEUacquis must be strengthened by drawingon the capacityof oneor more
relevantgovernmental or semi-governmental institutions inthe Netherlands.
B. Strengthening bilateral relationsbetweenthe Netherlands and the Matra
countries:Cooperationbetween Dutchgovernment institutionsand their
counterpartsin thetarget countries mustnotonlystrengthenbilateraltiesbutalso
foster greater understandingof Dutchpolicy in thetarget countries.
For theperiodfrom1 January 2013 to 31 December 2015, theMinister of ForeignAffairs
made €12 million availablefor this componentofMatra. After two roundsof thetender
procedure, sixprojectshavebeenapproved. Theprojects will continueuntil 2015, in some
8ThesefundsarespentthroughtheVisegrad4EasternPartnershipProgram(V4EaP);see
http:/visegradfund.org/v4eap/.
9Seelettertoparliamentof24June2011onthecurrentsituationinNorthAfricaandtheMiddleEast
(ref.32623),p.8.
10GrantsPolicyFrameworkMatraCoPROL,p.6.Inpracticethismeanspartnershipsaimedatthe
Matracountry’smeetingtheCopenhagencriteriaandadoptingEUvaluesandstandards.
11Idem,p.8.
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caseswithanextensionthrough2016.After the completionof the secondround, €1.75
million remainedtobe awardedforbudget year2014.There seemtobeseveral reasonsfor
this.Onthe onehand,toofew of theprojects submittedprovedtomeetall the requirements
set intheassessmentframework.On theotherhand,there wasa lackof enthusiasm among
severalof theparties concerned to reach agreementwithpartners in theMatra countrieson
specific jointprojects.Thisevaluation will providea goodopportunitytoexaminehow this
componentof Matra is working.
2. Trainingcivil servantsandyoung diplomatsfromMatra countries
Two componentsof Matraprovideforbrief courses totraincivil servantsinpre-accession
countries in subjects that are importantfor theirEU accession.
The MatraPre-Accession Training programme ontheRuleof Law (PATROL)provides
trainingfor seniorofficialsfromthe executivebranch andjudiciary usingDutchbest
practices. These courses have beenoutsourcedthroughatender proceduretothe T.M.C.
Asser Institute inconjunction withEcorys andTheHagueAcademyfor LocalGovernance.
This component coverstheperiod 2012-2015andhasabudgetof €3,997,764.PATROL’s
objectivesare:
A. Strengthening the institutionalcapacityof governmentbodiesin target countriesin
thefieldof the ruleof law, thusenhancingtheir capacitytoimplementnecessary
reforms andat the sametimehelpingto embed insocietythe coreEuropean
values thatunderlie such reforms.
B. Strengthening relations between officials in thedifferent target countries.
C. Strengthening thetiesof officials inthe target countries with theNetherlandsand
increasingtheir understandingof Dutch policy.12
YoungdiplomatsfromMatra countries also take brief courses in theNetherlands. For the
period 2012-2014,thesecourseshavebeenoutsourcedtothe Netherlands Instituteof
International Relations ‘Clingendael’, witha budget of €544,692. Their objectivesare:
A. Strengthening theparticipants’abilityto contributetotheir countries’moving
closer to theEU.
B. Strengthening the Netherlands’bilateral relationswith thetargetcountries,by
fosteringcloser ties withthe Netherlandsonthe part of participantsandincreasing
their knowledgeandunderstanding of Dutchpolicy.
12SeeActivityAppraisal DocumentontheMatraPre-AccessionTrainingprogrammeontheRuleof
Law(MatraPATROL),activityno.24679(inDutch),p.1.
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C. Forminga network between participantsfromthedifferenttarget countries,thus
potentially helpingtoeventually strengthen relations between them.13
3. Supportingandstrengthening civil societyinitiatives (‘Matra delegatedprojects’)
This componentof the Matra programmefocuseson strengthening the ruleof law asa
crucial elementof theCopenhagencriteria,withaspecial emphasis on thejustice system.
Implementation isdelegated to theDutchembassies inthe target countries,which use the
funds to supportsmall-scaleactivitiesby localorDutchorganisations.The projectsmayalso
consistof cooperationbetweengovernmentauthorities, including knowledgeexchange
between line ministries. They shouldbe exclusivelyfocusedononeor moreof thefollowing
themes: legislationandjustice,public administration/public order/police, orhuman
rights/minorities.The projects may lastfornomore than two years. In2012 €8.3million was
reservedfor Matra delegated projects, of which €8.2 million wasactually spent;in2013these
figureswere €6.05 millionand €6.01 million respectively. For 2014 €5.6 millionhas been
budgeted.
Theobjectives of this specific Matraprogramme componentarethegeneral Matraobjectives
mentionedabove: building capacity,strengtheningthe institutionsof civil societyand
governmentand strengtheningbilateral relations.14
4. Supportfor politicalpartydevelopment
The MatraPolitical PartiesProgramme (MPPP) isaimedatstrengtheningdemocracy in
Matra countriesthroughtwinningbetween Dutchpolitical partiesandtheir sisterpartiesor
organisations. Thefundsareprovided through grants tofoundations linked to Dutchpolitical
partiesrepresented in Parliament.15
Theobjectiveof this grantprogramme isstrengtheningthe leadershipand networks of the
Dutchrecipientparties’ sister partiesororganisations in thetargetcountries. TheMPPP was
evaluatedin2006byWarnerStrategy &Fundraising.16
13SeeActivityAppraisal DocumentonTrainingyoungdiplomatsfromSoutheastEuropeancountries
withEUaccessionprospects,activityno.24153(inDutch),pp.1-2.
14TherulesforembassiesusingMatradelegatedfundscanbefound(inDutch)at
http://portal.rp.rijksweb.nl/irj/portal/?NavigationTarget=HLPFS://cisrijksportaal/cisfacilitair/cishandboek
bedrijfsvoeringbz/cishbbznederlands/cisbeleidsplanninguitvoering/cisoverigefinancieringsprogrammas/
cismatrakap.
15ThePolitical Parties(Financing)Actcallsthesefoundations‘institutionsforactivitiesabroad’
(section4).OfthepartiescurrentlyrepresentedintheHouseof Representatives,thePeople’sParty
forFreedomandDemocracy(VVD),LabourParty(PvdA),ChristianDemocraticAlliance(CDA),
Democrats’66(D66),GreenLeftAlliance,ChristianUnion(CU),CalvinistParty(SGP)andAnimal
RightsParty(PvdD)haveinstitutionsforactivitiesabroad.
16‘EvaluatieMatraPolitiekePartijenProgramma2000-2005:Vanpartijnaarpartij:Nederlandse
ondersteuningvanpolitiekepartijeninEuropeselandenintransitie’[EvaluationofMatraPolitical
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Asfrom2013, responsibilityfor implementing thiscomponenthas beentransferred to the
Ministry of the Interior andKingdom Relations (BZK), thusplacingthe grant programme
under thePolitical Parties(Financing) Act. Thetransfer was meant to streamline theprocess
of awardinggrantstothe differentpoliticalparties’foundations,andavoid theapplication of
differentstatutoryframeworksandthusof differentmanagement rules todifferentgrants. By
contrast with BZ’sMatra grantframework,the Political Parties (Financing)Actdoesnot
imposeany conditions on thecountries wherethefundsare spent,soastoavoidanycontrol
over thepartyfoundationsbythe Minister of the Interior. Ina lettertothe partiesconcerned,
theMinisters of the Interior andof ForeignAffairsdidhoweverexpress theirexpectation that
in practicethe grants will be spent inthe Matra countries.17 At thesametime,theexistence
of sister partiesin thecountries concernedand their abilitytocooperate on leadership
development andnetwork-buildingalsoplaya role. MPPP implementationthus takes place
in a specific political context.
In 2012BZawarded €1.2million inMPPPgrants.In theperiod2013-2014theeightparties
with an institutionfor activitiesabroadwereeligiblefor annualgrants totalling €1million.18
Amendmentstothe budgetappropriated additional sums of €1 millionin2012, €750,000 in
2013and €500,000 in 2014.19
2.3 Backgroundandjustification
This evaluation was announced in theexplanatorymemorandum onBZ’s budgetfor 2014.20
The Ministeralso mentionedtheplannedevaluation in hisresponsetoquestions in
parliament21 and to theamendment submittedby MPs Han tenBroekeand MichielServaes
proposinganadditional€2millionfor Matra in2014.22
The current Matraprogrammehasbeenunder way since2012 and is beingfundedforfour
years. In2015 the minister will decideonthe contentof theprogrammefrom 2016. The
PartiesProgramme2000-2005,Dutchsupportforpolitical partiesinEuropeancountriesintransition]
(2006).
17Seee.g.theletterof6April 2012onMPPPfromtheVVD(ref.DAM-024/2012),availablefromDEU.
18Undersection8(3)ofthePoliticalParties(Financing)Act.
19Inaddition,thereisanannual contributionof €500,000forpoliticalpartiesintheMatraSouth
countries.BecausethePoliticalParties(Financing)Actsetsnoconditionsfortheplacewherefunds
maybespent,thisadditional sumisinpracticedifficulttodistinguishfromtheMatrafunds.
20‘TheMatraprogrammewillbeevaluatedin2014.’(BZbudget,Annexe3:grantoverview,Matra
CoPROL)
21‘In2014theMatraprogrammewill beevaluated.’(Responsetoquestions14and15onthe2014
budget)
22‘Nowwithregardtotheamendments:theamendmenttoitem 19submittedbyMPsTenBroekeand
ServaesconcernsMatra.Iagreewiththethinkingbehindtheamendment.Theadditional €2million
theypropose wouldcreatescopetocarryonusefulprojectsinpre-accessionandEasternPartnership
countries.Iwill workwithmystaffattheMinistryofForeignAffairstoensurethatpartoftheadditional
resourcescanbespentontheprogrammeforpoliticalparties.NextyearMatrawill beevaluated,so
it’sagoodideatoexaminethefutureuseof Matrafundsatthattime.Ithereforeseethisamendment
asanexpressionof supportforcurrentpolicy.’
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timetableof thisevaluationis thereforeaimedatmakingthefinal report availablenolater
than March2015,sothatthe resultsof the evaluation canbe taken intoaccount inthe
minister’s decisions.
In thefirstquarterof 2015thefinal report will alsobe issuedof theIOB’s evaluationof Dutch
policyonthe democratic transition in theArab region.That reportwill lay thebasisfor
decision-makingonthefutureof MatraSouth.23 These synchronised timetableswill facilitate
better coordinationof decision-making on thetwodifferentprogrammes.
2.4 Goal
Theevaluationhasa dualgoal.Ontheone hand,it will allow the ministertoaccount to
Parliamentfor theMatra programmeasit hasbeen implemented. On theotherhand, it
should make it possible to draw lessons thatcanbe taken intoaccount inpossiblefuture
decisionsonMatra.
3. Evaluation questions
Theevaluationwillfocusonthefollowing questions:
1. Relevance
a. Wasthe Matraprogramme’sfocus on the developmentof democracyandthe rule
of lawjustified in viewof the challengesthatthe countries in question arefacing
as theymovecloser to theEU?
b. Is theprogramme consistent with the Netherlands’policypriorities in thefield of
strengtheningthe rule of law?
c. Do the Matraprojectsfocus on major challenges these countriesface withregard
to theruleof law?
d. What was Matra’sadded valuein relationtootherDutchprogrammesand
programmesof other donors,notably EUprogrammes like theIPA, whichare
being implemented inthe countriesinquestion?
2. Effectiveness:
Has the Matraprogrammecontributed to:
23ThepartoftheIOBevaluationoftheDutchroleintheEUNeighbourhoodPolicythatdealswith
MatraprogrammesinEasternPartnershipcountrieswill alsobemadeavailableatthatsametime.
Thiswill playaroleinthedecisiononstructurallyextendingtheMatraprogrammetotheEastern
Partnershipcountriesfrom2016.
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a. candidatecountries’ meeting the Copenhagen criteria andadopting theEU’s
values andstandardsin the areaof the rule of law;
b. strengtheningthe Netherlands’bilateral relationswith thetargetcountries;
c. (with regardtoPATROLand thecoursesfordiplomats) thetarget countries’
working more closely withoneanother?
3. Management:
Were the Matraprogrammecomponentsorganised ina way thatfosteredaneffective
process of selectingand implementing projects(includingfinancialand substantive
monitoring)?
These central evaluation questions will beanswered making useof thefollowing questions
for eachprogrammecomponent.
Matra CoPROL
Relevance
- Havethe projectsfocusedonthe main issuesin thearea of the ruleof law that
are important in theaccession processesof the countrieswhere they havebeen
implemented?
- Were theprojects consistent with the Netherlands’policypriorities in thefield of
strengtheningthe rule of law?
- Did differentdonors coordinate/harmonise theirefforts? To whatextentdid
CoPROL projectscomplementthe projectsof other donors?In particular, did the
projects playa roleaspilotprojectsforEU projects ona larger scale?
Effectiveness
- Havethe projectsincreased the capacity of thetargetcountries’ partner
institutionsto meet theCopenhagencriteriaand to adoptthe EU’svaluesand
standards intheareaof the ruleof law?
- Are theprojectsexpectedtostrengthenthe relationships between thetarget
countriesand theNetherlands?
- Are theprojectsexpectedtostrengthenthe relationships between thegovernment
institutionsinvolved?
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Management
- Were the Dutch governmentbodies concernedwell enoughequippedfor /geared
to cooperation withtheir partners inthe target countries?If they werenot, why
not?
- Did the selectionandassessmentprocedures lead to asufficientnumber of
applicationsandapprovedprojectsof thedesiredquality?
Matra PATROLand Matra coursesfor diplomats
Relevance
- Did thePATROL courses address theaspects ofstrengtheningthe rule of lawthat
are most relevanttothe target countries’accession?
- Did the coursesfor diplomats address theaspectsof the accessionprocess that
are most relevanttothe target group?
- Were thetrainingprogrammes consistent with theNetherlands’policypriorities in
thefieldof strengtheningthe rule of law?
Effectiveness
- Havethe coursesorganisedsofar increased theparticipants’ knowledge and
understanding of core Europeanvaluesand standards?
- Havegraduatesof thePATROLand Clingendaelcourses helped implement
relevant reforms in their countriesof origin?
- Do thegraduateshavemoreknowledgeandunderstandingafterthe coursesof
theNetherlands’‘strict butfair’ policyonEU enlargement?
- Havethe graduatesbuiltnetworks withone another, andaretheyusing those
networks?Arethe networks broader than the graduatesalone? Towhatextent
are thenetworksusedtohelp countriesadopt core European valuesand
standards?
- Are thegraduates still intouch withthe Netherlands/the Dutchembassy? To what
extent isthe Dutchgovernment, in The Hagueand inthe target countries,using
thenetworksandencouragingtheir use byothers?
Management
- Are these twoprogramme componentsbeing properly managed?
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