Skills and jobs: transnational cooperation and EU programmes Information note (28 February 2013)

Transcription

1 Skills and jobs: transnational cooperation and EU programmes Information note (28 February 2013) Introduction In the context of the Committee of the Regions conference on skills and jobs on 28 February/1 March 2013 in Dublin, this note provides basic information on the most important EU funding programmes for transnational cooperation in the fields of employment, education, training and social inclusion with regards to the period In view of the European Council's agreement on the EU budget of 7/8 February 2013, which consent by the European Parliament is currently sought for, all figures are in 2011 prices and remain indicative. Moreover, the European Parliament and the Council will still have to agree the details of the legal provisions for all future EU programmes in the months to come. While most observers think that a budget agreement between Council and Parliament can be found in June/July, EU legal provisions could be decided upon during the second semester and administrative implementation would still take another six months. With commitments for programmes to be made before end-2013, this scenario will most likely result in an approval gap for new projects lasting for the first half of European Social Fund (ESF) The ESF will co-finance about 100 national and regional 1 programmes supporting active labour market and inclusion policies. During the period , about half of these programmes include transnational cooperation strands. Budget: Between 2014 and 2020, the ESF total will be in the order of EUR billion (tbc, the final amount is only known once all ESF programmes are decided, which is expected for the first semester of 2014). Between 2007 and 2013, about EUR 3 billion were spent on transnational cooperation. Management: The ESF is managed by national/regional Managing Authorities through Operational Programmes (OPs). Project applications are dealt with in the framework of OP-specific priorities and provisions. Transnational cooperation: As during the current period, the draft ESF regulation 2 suggests to Member States to support transnational cooperation within the OPs managed by them. A list of themes and an implementation framework will be decided and the European Commission will provide for a platform to facilitate networking and exchange of experience including on social innovation. More information: (Future of the ESF post- 2014); (ESF and transnational cooperation ) European Regional Development Fund (ERDF) The ERDF will finance about 350 national and regional 3 development programmes. Based on the community initiative Interreg, the ERDF developed cross-border, and transnational and interregional cooperation since the early 1990s. During the period, about 70 cooperation programmes, the majority of which covering defined cross-border and transnational areas, exist under the heading European Territorial Cooperation (ETC). For the EU as a whole, four programmes are dedicated to interregional cooperation (Interreg IVC), urban development (Urbact II), spatial research (ESPON), and cross-cutting themes of managing cooperation (Interact). Budget: Between 2014 and 2020, the ERDF total will be in the order of EUR billion (tbc, the final amount is only known once the programmes are decided, which is expected for the first semester of 2014). On 7/8 February 2013, the European Council concluded to allocate a total of EUR 8.95 billion to ETC of which EUR 6.63 billion to cross-border, 1.82 billion to transnational and EUR 0.5 billion to interregional cooperation 4. Management: ETC programmes are managed by regional Managing Authorities and those existing for the networking programmes at EU level through Operational Programmes (OPs). For the first time, 1 Regional ESF programmes currently exist in Belgium, Germany, Italy, Spain and the UK. 2 European Commission (2012): Proposal for a regulation of the European Parliament and of the Council on the European Social Fund and repealing Council Regulation (EC) No 1083/2006; COM (2011) 607/2 of 14 March 2012; details on transnational cooperation are laid down in article 10 of the draft regulation; 3 Regional ERDF programmes currently exist in all EU Member States except in Denmark, Estonia, Latvia, Lithuania, Luxembourg, Malta and Slovenia. 4 Compared to a total of EUR 8.7 billion (in current prices) for European Territorial Cooperation during the period.

2 legal provisions for ETC programmes will be laid down in a specific regulation 5. The regulation stipulates that for each programme thematic concentration shall be provided for by focusing on four of the 11 thematic priorities defined for the ERDF and the ESF 6. For cross-border programmes, a special reference is made to employment and social inclusion. Transnational cooperation: Priorities and other details of the implementation of all ETC programmes will most likely be known in the second half of More information: (EU cohesion policy ) (European Territorial Cooperation ); Erasmus for all The programme will combine existing EU funding in the fields of education, training, youth and sport through support for three key actions: (1) Learning opportunities for individuals; (2) Cooperation for innovation and good practices between educational institutions, youth organisations, businesses, local and regional authorities and NGOs; (3) Support for policy reform. Among others, it will co-finance knowledge alliances between higher education institutions and businesses to promote creativity, innovation and entrepreneurship, and sector skills alliances between education and training providers and businesses to promote new sector-specific curricula and innovative forms of vocational teaching and training. Budget: Between 2014 and 2020, about EUR billion 7 will be allocated to the programme (tbc, the final amount is only knownin the second half of 2013). The draft regulation 8 suggests to concentrate 65% of the resources on mobility grants, 26% on cooperation projects and 4% on policy reform. Management: The different activities of the programme will be implemented through national agencies and calls for proposals/tender. Transnational cooperation: As for the current programmes, transnational cooperation projects would have to be applied for to the European Commission and its executive agencies. More information: EU Programme for Social Change and Innovation (PSCI) The PSCI will have three strands supporting the development, implementation and evaluation of EU employment and social policy ( Progress axis), activities related to workers mobility ( EURES axis), microfinance and social entrepreneurship. Budget: EUR billion (tbc, the final amount will be only fixed later in 2013). The draft regulation 9 suggests to allocate 60% on the Progress axis, 15% on EURES and 20% on microfinance and social entrepreneurship. Management: The PSCI will be managed by the European Commission on the basis of multiannual work plans and calls for proposals/tender. Transnational cooperation: Within the Progress axis, national, regional and local authorities, employment services, NGOs and other can apply for financial support for analysis, networking and information activities. With regard to the microfinance axis, the Commission will cooperate with the EIB. More information: 5 European Commission (2012): Proposal for a regulation of the European Parliament and the Council on specific provision for support from the European Regional Development Fund in the context of the European territorial cooperation goal, COM(2011) 611/2 of 14 March 2012, 6 These are laid down in article 9 of the draft Common Provisions Regulation COM(2012) 496 final of 11 September 2012 and concern: research and innovation; information and communication technologies; competitiveness and SME support; low carbon economy; climate change adaptation; resource efficiency; sustainable transport; employment and mobility promotion; social inclusion; education, skills and life-long learning; administrative capacity. The EP is currently arguing in favour of five priorities. 7 On 7/8 February 2013, the European Council did not conclude on an amount for Erasmus for all but only on real growth compared to current funding levels. On 15 February, the Council of ministers responsible for education indicated a 50% increase for the programme for European Commission (2011): Proposal for a regulation of the European Parliament and the Council establishing Erasmus for all : The EU programme for education, training, youth and sport; COM(2011) 788 of 23 November European Commission (2011): Proposal for a regulation of the European Parliament and of the Council on a European Union Programme for Social Change and Innovation; COM(2001) 609 of 6 October 2011;

3 Transnational Cooperation under the European Social Fund Legal basis: Articles 10 and 11 ESF. Rationale for the policy and main objectives The main purpose of transnational cooperation between member States under the ESF is to contribute to the quality and effectiveness of employment policy and delivering reforms., Essentially this means the exchange and sharing of information and good practice, and working together towards common solutions by bringing together administrations, social partners, NGOs and organisations in the field of employment, social inclusion and training. A transnational dimension has an important multiplier effect: it can strengthen the capacities to innovate, modernise and adapt to new social and economic challenges as well identify issues and suggest solutions for reforms which can shape policy y and deliver therelevant policy related targets. It can also help to improve the quality of governance. During the programming period the Commission, through the EQUAL Community Initiative, was the main driver behind the delivery of transnational and interregional cooperation under ESF.. The EQUAL Community Initiative was established to promote new means of combating all forms of discrimination and inequalities in the labour market through transnational and interregional cooperation (General Regulation 1260/1999, Article 20). Its implementation was based on Commission Guidelines, specifying common provisions for all operational programmes. During the period , the promotion of transnational and interregional cooperation is an obligation, not an option for Member States ( ESF Regulation 1081/2006, article 3). The Regulation stipulates only the purpose and broader objectives and, therefore, each Member State and region, may choose the implementing arrangements most suitable for its needs. However, it is sufficient for transnational cooperation to be included in at least one OP with national coverage, not in every single Operational Programme in a Member State.. On the basis of member states' and regions' commitment to, and resources and support for transnational and interregional cooperation in their Operational Programmes, the Commission was able to organise complementary support for promoting exchanges of experience, thematic networking and mutual learning through, in particular, the Learning Networks of the ESF Managing Authorities For the programming period , Article 10 of the draft ESF Regulation (as proposed by the Commission) allows Member States to implement transnational cooperation in three different ways: - Common themes proposed by the Commission and endorsed by the ESF Committee, whereby MS benefit from an EU-level platform established and operated by the Commission (common framework) - No central coordination, (flexible approach)

4 - A combined approach of the above. A. The Common framework will consist of the following: I. Common themes, aligned to the EUROPE 2020 thematic objectives and investment priorities, will form the backbone of transnational cooperation around which the other elements of the common framework are developed. They will focus on policy, policy impact, coherence and visibility. They will be "demand driven" and will reflect the priorities of the Member States' Operational Programmes. Common themes will be proposed by the Commission in consultation with the Member States (through the ESF Geographical desks)and will be endorsed by the ESF Committee( article 10 paragraph 2 of ESF Regulation) at the beginning of the programming period in order to focus the choice of partners among those operating in the selected priority fields. Some flexibility should be retained for the introduction of new themes throughout the implementation period, to reflect changing needs in line with the procedure mentioned above.. II. Coordinated Calls (two cycles for the whole programming period) to create synergies and effective partnerships among the Members States around common themes. Each cycle will consist of a coordinated call for each common theme Each coordinated call will consist of parameters 10 established jointly by the Commission and the Member States participating in a given common theme and national /regional calls developed in line with these parameters during a "common window" of six months in order to facilitate the partner search The themes of these latter calls could be narrower than the common themes in order to respond to specific needs/expectations. For example,the common theme "active inclusion", could encompass national/regional calls in different areas such as integrating the Roma in the labour market or getting ex-offenders into employment. III. The EU Platform will be the vehicle for implementing the common framework and will comprise the following actors: The European Commission, responsible for the establishment, implementation and overall coordination of the common framework. Networks, to be set up for each Common Theme, bringing together the Commission and all the MSs which have registered the theme as one of their priorities for transnational cooperation. The Monitoring group, led and convened by the Commission, with compulsory membership for all Member States involved in the Common Framework and the possibility for Member States involved only in the flexible approach. to attend also. 10 Parameters could include the following: definition of a TNC project; eligible applicants and partners; number of partners; project duration; eligible activities; eligible costs; nature of results; whether projects should include a specific dissemination/mainstreaming phase; whether project should provide for evaluation of the partnership

5 The Group should have an overview of all Article 10 activities and should provide advice to the other actors, in particular as regards horizontal issues such as eligibility of expenditure, partner search etc. The Technical Assistance to be contracted by the Commission to assist the latter in its tasks, as well as the Networks, the Monitoring Group, and the Member States themselves, particular as regards their involvement in the different components of the common framework. IV. Tools which will consist of: An EU-level partner-search database focusing on project proposals. This will form the basis for developing TNC partnerships in the context of specific coordinated calls under the Common Framework. However, it should also cater for the needs of project promoters under the flexible approach. A central EU-level website that should also cater for the needs of MSs which choose the flexible approach. B. For the Flexible approach, implementation is expected to continue in the same way as during the current period (i.e. without central coordination) but with some limited institutionalised support through the EU-level partner search database (e.g. inclusion of project proposals) and the central website (e.g. timetable of national/regional calls). In addition, other initiatives may be organised at EU level e.g. mutual learning events, papers/advice on innovative/relevant initiatives (e.g. regional cooperation in the Baltic Sea region), linking MAs which might have common interests, dissemination of good practice. Moreover, the flexible approach will allow for certain initiatives which might be excluded by the Common Framework - for example, TNC within a defined geographical area. C. For the Combined approach, Member States will be able to implement TNC using the Common Framework and the flexible approach within a single OP, priority, or even measure; implementation would then proceed as described above for the relevant parts of the OP in question. Member States are free to choose the approach they wish to follow when implementing TNC under ESF. Participation in the Common Framework will be optional and will not be subject to a formal binding commitment by Member States( for example indication in the Operational Programmes) nor to restrictions such as implementing TNC either via a dedicated priority axis or horizontally. The desk officer has an important role to play in guiding a Member State towards one particular approach, taking due account of the specific situation and needs of that country. As for the Commission's "preferred" approach, this is reflected in the drafting of Article 10 of the ESF regulation which aims to address the challenges experienced in relation to TNC during the current ( ) and in the previous ( ) programming periods. Programming

6 In October 2010, the European Commission produced A Synopsis of the Approaches of Member States to Promote Transnationality and Innovation within the ESF (document updated in June 2012 and available on CIRCA). In this document, the Commission suggested that an added value of transnationality may be seen as: Avoiding duplication of investment and effect; Encouraging the sharing of practical techniques, exchange of experience and best practice thus stimulating and supporting innovation; Helping to promote common standards and enabling products and ideas to be validated more widely and at higher levels; Increasing the capacity of the participating administrators and organisations; Contributing towards shaping a European perspective and way of thinking a true European mindset. Once common objectives have been agreed and there is a common understanding of what the mutual learning process is aiming to achieve, it is easier to determine where there is greatest potential to add value and opt for one or other type of TNC activities11: There are obvious benefits to be gleaned for individuals who rtake in TNC activities. The most commonly used methods to help individuals derive benefits from TNC are through study visits and work shadowing type activities. These provide the opportunity for individuals to explore and compare personal and job characteristics similar to ones they have themselves. Well organised mutual learning activities have the potential to deliver policy benefits where good practice can be identified and then transferred or applied elsewhere. TNC can help assess the procedures and processes involved in ESF activities. Carefully organised study visits supported by explanatory materials can lead to structural and procedural learning that can inform the processes and procedures used. Best practice can be identified which offers the potential for transferral to other situations. Improving the way ESF work in practice is a common objective for ESF stakeholders. Project visits and peer review type activities are becoming increasingly favoured as ways to assess the effectiveness of ESF projects and interventions. Project managers, 11 Under transnational cooperation the following activities would be eligible (not exhaustive) list):exchange of staff; Exchange of trainees and other beneficiaries; Peer reviews and study visits; Joint creation of practical tools for diagnosis, implementation, monitoring and evaluation; Joint developments of products, strategies, methods, etc., including testing and implementation; Compilation of joint policy recommendations.

7 staff, beneficiaries and most stakeholders can benefit from this form of learning exchange and as such inform and improve future practice. Partnerships, in different forms, are increasingly becoming a key method for delivering ESF activities across member states. Many EU funded transnational exchanges work on developing joint products or tools such as training modules, e-learning tools and best practice guides and manuals. These are often seen as more tangible outcomes and make the benefits of the exchanges more clear and visible. They present opportunities for wider dissemination of learning and mainstreaming good practice. For transnational cooperation (TNC) different programming options are available: I. Specific approach The development of a specific priority axis dedicated to TNC (for which the ESF contribution will be increased by 10 %) in an OP as stated in article 11 of the ESF regulation Transnational Cooperation Dedicated Priority Axis within an OP (example) Priority Axis 1: Priority Axis 2: Priority Axis 3: Priority Axis 4: Priority Axis 5: Objective 1 Objective 2 Objective 3 TNC Technical Assistance Priority Priority 1+2 Priority 1 Advantages In the above case the ESF budget dedicated to TNC does not count for thematic concentration. Guarantee of resources to support transnational activities, by providing ring-fenced and "protected" budgets dedicated to transnational cooperation. Clearer concentration of activities and focus on priorities. This allows more strategic approach to be taken, directing transnational cooperation to the areas where it would have most added value.

8 Better visibility of transnational cooperation and of individual transnational projects. It is important to be able to clearly identify the volume of transnational activity and its added value to national activities. For potential transnational project promoters, such visibility is helpfull for a better understanding of what transnational cooperation can and should involve. For outside actors (media, researchers), such visibility is fundamental in order to promote and analyse transnational cooperation. Effective monitoring of transnational activities, based on a clear framework, and measuring the extent of the implementation of transnational cooperation. Such an approach can facilitate measuring its added value by defining specific indicators. Ensures the development of dedicated guidance and support mechanisms (support staff, specific bodies ) and tools (guidebooks, information meetings ) for transnational cooperation. Avoiding the under-utilisation of transnational budgets. By providing a clearer focus, dedicated support and greater visibility, the specific approach has led to the development of more transnational projects and a better utilisation of funds. Drawbacks Linking the transnational priority to other priority axes can prove challenging. Due to the specific priorities and (sometimes) specific support mechanisms, the dedicated priority is sometimes totally separate from other OP priorities, making added value at OP level less apparent. Additional administrative burden. The specific forms of guidance, monitoring, management structures and tools required to effectively support transnational cooperation imply a greater administrative burden, and additional costs, to ESF Managing Authorities. Examples:

9 II. Horizontal / cross-cutting approach) The integration of TNC within all or some thematic priorities of an OP Transnational Cooperation Horizontal Approach (example) PA1 PA2 PA 3 PA 4 Objective 1 Objective 2 Objective 3 Technical Assistance Priority Priority 1+2 Priority 1 TNC Advantages Flexibility in the design and scale of projects. Some felt that the cross-cutting approach allows project managers to propose transnational activities in the themes and types of action where they are most appropriate and offer most added value. Avoidance of "missing out" on innovative transnational projects. The greater openness of the horizontal approach can allow more freedom for innovative projects across a wider variety of themes. Building capacity for all key ESF actors in transnational cooperation, not just a few. Drawbacks Lack of focus and commitment on transnational cooperation., Lower level of visibility for transnational cooperation within the Operational Programme Risk of greater fragmentation of transnational resources: TNC is implemented across ESF which might result in a significant number of Intermediate Bodies, many calls for proposals, a high number of projects of a different scale and size and a real demand for transnational partners in other MS. Lack of ring-fenced transnational budgets means that funds are sometimes rechannelled into other ESF priorities, particularly to counter the impacts of the economic crisis.

10 . Examples III. Dual Approach A combination of the dedicated priority (specific approach) with the horizontal/crosscutting approach Advantages Flexibility, particularly in allowing a combination of different types and sizes of transnational projects, addressing a wide variety of themes. Project promoters can in principle choose to focus on transnational cooperation in the specific priority, or just "add on" a more limited level of transnational activity. Drawbacks The existence of the specific priority means that there has been little or no incentive for organisations funded under other ESF priorities to implement transnational activities. In those Member States, while there is a good level of expenditure in the specific transnational priorities, there is often a significant underspend in the budget set aside for horizontal transnational activity. It is difficult to determine whether a project proposal fits into the separate transnational priority or into other proirities. Examples

11 Further reading