REPUBLIC OF ALBANIA. Prime Minister ORDER. Nr.12, date FOR

Transcription

1 REPUBLIC OF ALBANIA Prime Minister ORDER Nr.12, date FOR THE PREPARATION OF THE NATIONAL STRATEGY FOR DEVELOPMENT AND INTEGRATION Pursuant to article 102/3 of the Constitution, Council of Ministers Decision Nr. 692, date , Consolidating an Integrated Planning System in Albania, ORDER: 1. Preparation and drafting the National Strategy for Development and Integration (NSDI) , as a syntheses of all sectoral and crosscutting strategies. 2. Preparation of sectoral and crosscutting strategy documents, pursuant to the sectoral list stipulated in Annex 2 Structure of National Development and Integration Strategy, attached to the order. 3. For the preparation of the National Strategy for Development and Integration, (NSDI ), the sectoral and crosscutting strategy document includes institutional and inter-institutional structures, and applies the standards and procedures stipulated in Annex 1, attached to the Order. 1

2 4. For the preparation of the National Strategy for Development and Integration (NSDI ) will abide the time schedule stipulated in the Annex 1, attached to the Order. 5. Line ministry officials are entrusted with the quality and timely preparation of sectoral and crosscutting documents pursuant to the specific requirements of this Order, as well as the Prime Minister Order Nr. 78, date , For the establishment of Working Groups on Strategy, Budget and Integration, GSBI, amended by Prime Minister Order Nr. 54, date , For some changing on Prime Minister Order nr.78, date , For the establishment of Working Groups on Strategy, Budget and Integration, GSBI 6. Line ministries General Secretaries are entrusted with the coordination and preparation of the sectoral and crosscutting strategic documents pursuant to the specific requirements of this Order, and Prime Minister Order Nr. 78, date , For the establishment of Working Groups on Strategy, Budget and Integration, GSBI, amended by Prime Minister Order Nr. 54, date , For some changing on Prime Minister Order nr.78, date , For the establishment of Working Groups on Strategy, Budget and Integration, GSBI 7. Department of Strategy and Donor Coordination (DSDC) is entrusted with the preparation and drafting of the Strategy for Development and Integration s final document. 8. Line ministries and DSDC are entrusted with the implementation of the Order. This order enters into force immediately. PRIME MINISTER SALI BERISHA 2

3 Annex1. Introduction Methodology for NSDI drafting process: The methodology for NSDI drafting process is based upon the principle of fully functioning of all current tools and processes related to the Integrated Planning System IPS. NSDI specially relies upon a better harmonization with the Medium Term Budgetary cycle and the National Plan for the SSA implementation. Particularly, the new NSDI requires: Full linkage of NSDI with NIPSAA, where activities, measures and commitments of SAA framework are an integral part of the MTBP and NSDI. This way is determined in details the European integration s and other commitments costing. Better harmonization of MTBP with NSDI through: o Drafting the macroeconomic framework, that includes policy priorities, foreseen and programmed foreign aid, as well as other aspects related to financing and revenue. o Well defined policy objectives, which include as well the European Integration framework s objectives. In that respect, the Guideline for the Budget preparation stipulates the technical details for the objectives inclusion in the future MTBP. Harmonization of the IPS institutional/structures framework with IE structures. This implies: (i) informing the CPS for processes discussed in IEIC; (ii) integration directorates inclusion in the Strategic Management Groups; (iii) better communication of the Institutional Working Groups with line ministries Strategic Management Groups on European Integration matters. Institutional framework for the NSDI drafting. (I) Strategic Planning Committee (CPS): performs the decision making in the highest political level and approves the NSDI draft in each phase. The main CPS meetings relate to the: Approval of the macroeconomic and fiscal framework - January 2012 Approval of MTBP preparatory ceilings - February 2012 Approval of the NSDI vision and sectoral objectives - may 2012 Approval of the costed NSDI draft - October 2012 Approval of the NSDI final draft - February

4 (II) The Inter-ministerial Working Group for the Integrated Planning System coordination This group plays a pivotal role to the coordination of DSDC, Ministry of Finance and Ministry of European Integration. The Ministerial Working groups meetings are held in function of CPS meeting s preparation, by giving preliminary approval of materials to be discussed in the CPS. (III) The Strategy and Donor Coordination Department (DSDC) DSDC in its functions as central level policy coordination and NSDI drafting unit, is responsible for coordinating all processes and institutions for the NSDI , sectoral and cross-cutting strategies drafting. DSDC overviews the process undergoing in line ministries and continually reports to the Prime Minister on various issues of the process. (IV) The Ministry of Finance (MF) Ministry of Finance ensures the full linkage of the MTBP and the NSDI process. Ministry of Finance prepares the financial resources chapter required for the NSDI drafting, through the preparation of the macroeconomic and fiscal framework, as well as institutions coordination for the MTBP drafting. (V) The Ministry of European Integration (MIE) Ministry of European Integration ensures the linkage of the National Plan for the SAA Implementation and the MTBP to the NSDI drafting process. Ministry of European Integration prepares the NSDI s European integration perspective part, and analyses the Programme Policy Declaration to ensure the NPISAA s reflection to the MTBP. (VI) Technical level Working Groups Two technical level groups coordinate at central level the IPS s main institutions and process management, and are composed from representatives of DSDC, Ministry of Finance and Ministry of European Integration: Working Group I: coordinates the work for the IPS calendar preparation; Guidelines preparation for drafting NSDI ; selection of the list of sectors and strategy; analyzing the Priority Policies; discussing the modifications of the Guideline for the State Budget preparation; preparation of the NSDI s financial resources chapter, preparation of the European Integration s related part; preparation of the NSDI draft. Members: DSDC/CoM, General Budget Directorate/MF, IPA s Directorate/MEI, European Secretariat Directorate/MEI, Internal Market Directorate/MEI, Justice and Home Affairs Directorate /MEI. The process for drafting the Guidelines for the State Budget preparation is leaded by the Ministry of Finance. Working Group II: coordinates the work for the macroeconomic framework preparation, as well as NSDI s financial resources chapter preparation. Members: DSDC/CoM, Macroeconomic Directorate/MF, General Budget Directorate/MF, Institutional Support and Integration Process Directorate /MEI. The process is leaded by the Ministry of Finance s Macroeconomic Directorate. 4

5 (VII) Line Ministries ( LM) Coordination and decision-making throughout the NSDI drafting process for each line ministry is performed through the following structure: Ministers lead the whole process and overview the quality and timely preparation of sectoral/cross cutting strategy documents in the NSDI framework, as well as sectoral and cross cutting strategies, upon the internal consultation in the SMG and consultation in all levels. Strategic management groups: leaded by the respective ministers and coordinated by the Secretary Generals, guarantees the full linkage of MTBP and NIPSAS with NSDI and sectoral and cross cutting strategies. SMG plays a pivotal role for the approval of line ministries drafted materials, before they are submitted to the DSDC. Secretary General serves as contact point for DSDC throughout the drafting process of NSDI s sectoral and crosscutting strategy documents, as well sectoral and crosscutting strategies, and is responsible upon others, for: - Overview and implementing the work plans for the NSDI s sectoral and cross cutting strategic document and sectoral and cross cutting strategies drafting from line ministries structures. - Reporting to the Minister on the process undergoing, as well as relating problematics to the GMS. - Coordinating the approved Work Plan implementation within the ministry. - The qualitatively and timely submission of sectoral and crosscutting strategic document and sectoral and crosscutting draft strategies. The Process for National Strategy for Development and Integration drafting Phase I: Starting and launching the process (January- February 2012) Phase one focuses on the process launching with line ministries and central institutions, as well as preparation of the respective structures engaged in the process. Institutional responsibilities come as following: Department of Strategy and Donor Coordination - DSDC : Preparation and approval of the Prime minister order, which includes corresponding Guidelines for the NSDI drafting. (January 2012) Lancing the process with line ministries through the meetings with General Secretaries, and each line ministry. (January february2012) Analyzing and approval in CPS of policy priorities, that affect the MTBP ceilings and to be considered throughout the macroeconomic framework drafting. (February 2012) 5

6 Ministry of Finance: Drafting the Macroeconomic and Fiscal framework. (January 2012) Preparation of MTBP preliminary ceilings, as well as those for the period. (February 2012) Drafting the Guidelines for the State Budget preparation and modifications, that ensures a costing for NSDI , as well as the NPSIAA s reflection to the MTBP. (February 2012) Line Ministries : Preparation and approval in the SGM of the Work Plans for NSDI s sectoral/crosscutting strategic document and strategy/crosscutting document drafting process, and their submission to the DSDC. Work plans must contain the SGM meetings calendar. (February 2012) Reactivation or establishment, when if there are not existing, by PM order of the Ministry Advisory Groups, constituted with by interest groups, social partners, academics, civil society members etc. Advisory Group is involved in the sectoral/crosscutting strategic document, MTBP, sectoral/crosscutting strategies consultation process throughout the second and third phase of the process. (February 2012) Preparation of the Prime Minister Order for the Institutionalization of Inter-ministerial Groups and Technical Working Groups for drafting the crosscutting strategic document and crosscutting strategies, if not established, or updating existing Orders. (February 2012) Preparation and submission to the DSDC of the sectoral/crosscutting strategic document chapter first draft, on the present state, as well as performance based monitoring reports (including monitoring matrix) for year ( February 2012) Faza II: Preprartion and consultation of NSDI s sectoral/crosscutting documents Throughout the second phase, the focus will lie on the sectoral/crosscutting strategic documents drafting, in relation to the NSDI drafting. Institutional responsibilities for this phase come as following: Depratment of Strategy and Donor Coordination : Preparation of comments for line ministries submitted first drafts (present state, vision, goals, and objectives). (February march 2012) Analyzing of Program policies declarations, in cooperation with Ministry of Finance and Ministry of European Integration. (may 2012) Submission to the Strategic Planning Committee the sectoral/ crosscutting strategic documents first drafts (current situation, vision, Programme Policy Declaration). (may 2012) Examine the costed sectoral/ crosscutting strategic document drafts. (September 2012). 6

7 Ministry of Finance: Analyzing the budgetary requirements and hold hearing sessions with LM, in cooperation with DSDC and MEI. (may 2012) Preparation and approval in CPS of the revised macroeconomic framework, MTB document, revised ceilings for , as well as resources ceilings for (June 2012) Preparation and submission to LM of the additional guidelines for the Budget preparation. (July 2012) Ministry of European Integration: Analyzing Programme Policy Declaration, to ensure the NPSAA inclusion in the MTBP. (may 2012) Drafting the NSDI s European Integration part. (February - march 2012) Line Ministries : Programme policy review, serves as the base for NSDI and its sectoral strategies preparation (March 2012). Line ministries prepare Programme Policy Declaration, which comprise all line ministries policy commitments reflected in : o NSDI and other existing sectoral and crosscutting strategic document, o Government Program, o Stabilization Association Agreement, o Government Agreements or other commitments, o European Commission reports. For the crosscutting strategic documents preparation, line ministries in charge of the inter-ministerial working groups prepare and approve a draft on policies, goals and crosscutting policy objectives, based on each line ministry programme policy declaration submitted to DSDC. ( march 2012) Planning Budgetary Progamme expenses, by including NIPSAA, abiding the Guidelines for State Budget preparation. Filling the forms is the initial step for NSDI s sectoral/crosscutting strategic documents and sectoral and crosscutting strategies cost calculation. (April 2012) Preparation of the sectoral and crosscutting strategic documents first drafts which includes: Present situation, Vision, Policy Goals, Policy Objectives and Programme Policy Declaration based indicators. (April 2012) Holding consultation with the Programme Policy Declaration Advisory Groups. Advisory groups are constituted by interest groups from the interest groups and civil society members. (may 2012) Programme Policy Declaration and NSDI s sectoral and crosscutting strategic documents are revised based on held consultation and Advisory Groups comments. (June July 2012) Preparation of the costed sectoral/crosscutting strategic drafts documents. (July august 2012) 7

8 Phase III: NSDI Finalization (september 2012 march 2013) Department of Strategy and Donor Coordination: Programme Policy Declaration Analyzes and review, in cooperation with Ministry of Finance and Ministry of Integration. (September 2012) Reviews the costed sectoral/crosscutting strategic drafts documents. (September 2012) Preparation of the NSDI first draft. (September - October 2012) Approving the costed NSDI first draft by the Strategic Planning Committee. (October 2012) Preparation and review of the NSDI consulted draft. (October 2012) NSDI consultation with: interest group and social partners/ sectoral working groups with donors and Parliamentary Commissions. (November 2012) NSDI draft review and adoption of comments. (December 2012 January 2013) Finalization and submission of the final draft to the CPS and Council of Ministers for discussion and approval. (January February 2013) Publication of the NSDI (march 2013) Ministry of Finance: Analyzing of budgetary requirements and holding hearing sessions with LM, in cooperation with DSDC and MEI. (September 2012) Preparation and approval by the CPS of the revised macroeconomic framework. (October 2012) Preparation of the NSDI s financial resources and macroeconomic framework chapter, for the draft to be consulted and approved in the CPS. (October 2012) Finalizing the NSDI s financial recourses chapter, according to the revised macroeconomic framework. (January 2013) Ministry of European Integration: Analyzing the Programme Policy Declaration, to ensure the NPISAA inclusion to the MTBP. (September 2012) Finalizing the NSDI European Integration part. (September October 2012) Line Ministries: Holding consultation with Advisory Groups on the costed sectoral/crosscutting strategic document drafts. (September 2012) Review the costed sectoral/crosscutting strategic document drafts. (September - October 2012) Preparation, consulting and finalizing the sectoral and crosscutting strategies. (September march 2013) 8

9 Table 1. Calendar with time-schedule for the NSDI drafting process. Phases for drafting NSDI Phase I: Start and launch the drafting process Approval of the Prime Minister Order: Process of drafting NSDI Responsible Institutions Time Schedule Working Group I. (DSDC with MoF, MEI ) January February 2012 January 2012 Drafting of macroeconomic and fiscal framework for the period MoF January Launching the process with LM Working Group I. (MoF with DSDC, MEI ) January February 2012 SPC approves the priority policies for Working Group I. (MoF with DSDC, MEI ) Prepare preliminary budget ceilings for MTBP , as well as for the period Preparation of Guidelines for Budget preparation with the necessary changes Preparation of work plans for the drafting process of sectoral /crosscutting strategic document in the framework of drafting sector and crosscutting strategies of NSDI Reactivation or establishment (if there are not existing), by PM order of the Ministry Advisory Groups. Preparation of Prime Minister Orders on establishment of interministerial groups for drafting crosscutting strategic document and crosscutting strategy Preparation and submission to the DSDC of the draft of sector s current situation and monitoring reports for 2011 Phase II: The preparation and consultation of the sectoral and crosscutting strategic draft documents on the framework of NSDI Review of Programme Policy for Drafting and approval of Programme Policy Statements February 2012 MoF February 2012 Working Group I. (DSDC with MoF, MEI) February 2012 LM February 2012 LM February 2012 LM, DSDC February 2012 LM, MEI February 2012 March August 2012 LM March 2012 Drafting of European Integration chapter for NSDI MEI February- March 2012 Preparation of the budget programs expenditure forecast for by LM, including NPISAA Preparation of the first draft of sectoral/ crosscutting strategic documents Submission of the first drafts of sectoral/ crosscutting strategic documents to Strategic Planning Committee (current situation, vision, goals, objectives, indicators) LM April 2012 LM April 2012 DSDC May

10 Consultation with the Advisory groups of Programme Policy Statements for the period Analyses of budget submissions and organizing Hearing Sessions with LM Review of Programme Policy Statements and sectoral/ crosscutting strategic documents on the NSDI framework Preparation and approval to SPC of the revised macroeconomic framework for , MTBP document, revised ceilings for , as well as resource ceilings for Preparing and sending additional guidance for budget preparation to LMs (until 2020). Draft preparation of costed sector/crosscutting strategic documents. Phase III: NSDI finalization, as well as sectoral and crosscutting LM May 2012 MoF, DSDC, MEI May 2012 LM June- July 2012 MoF June 2012 MoF July 2012 LM July- August 2012 September March 2013 Analysis and review of Programme Policy Statements MoF, DSDC, MEI September 2012 Review the draft of costed sectoral/ crosscutting strategic documents DSDC September 2012 Preparation and approval to SPC of the revised macroeconomic framework for , MTBP document, revised ceilings for , as well as resource ceilings for Drafting of the NSDI chapter on financial and macroeconomic forecast for the draft approved and consulted to SPC MoF October 2012 MoF October 2012 Finalizing the Integration chapter for NSDI MEI September - October 2012 Consultation with Advisory Groups of the costed sectoral/ crosscutting strategic documents LM September 2012 Review the draft of costed sectoral/ crosscutting strategic documents LM September - October 2012 Preparation of the first draft of NSDI DSDC September - October 2012 Approval of the costed NSDI draft to SPC DSDC October 2012 NSDI consulting with stakeholders, social partners and sectoral working groups with donors. DSDC November 2012 Elaboration of NSDI draft and reflect comments DSDC December 2012 January 2013 Finalization of the NSDI draft on financial resources according to the revised macroeconomic framework MoF January 2013 Approval of the NSDI in the SPC and Council of Ministers CPS/CoM February 2013 Publication of NSDI DSDC March 2013 Preparation, consultation and finalization of sectoral and crosscutting strategies LM September Mars

11 Annex 2 National Strategy for Development and Integration NSDI Structure The national strategy document will have the following structure, displayed by chapters: Introduction The introducing part explains the NSDI relation with the Integrated Planning System, the process undertaken for the NSDI drafting. In addition, this part presents the innovation of the NSDI , compared to previous strategic documents drafted by the Albanian Government (NSDI , NSSDI, Poverty Reduction Strategy). Chapter 1: General Overview This introductory chapter consists of two main parts: The first part is focused on the sectoral achievements of the NSDI implementation. This part gives an overview of the current situation, including the challenges ahead for the future. This part represents an effort to answer the question Where does Albania currently stand? as a starting point for the reforms foreseen in the following chapters. This part will be drafted by DSDC s Strategy Coordination Unit, near the Council of Ministers. It will be prepared mainly from line ministries inputs through the 2011 Sectoral Strategy Monitoring reports and the NSDI Progress Report. The second part is focused on the European Integration, by giving an overview on the current stand of the three Copenhagen criteria implementation. This part is prepared by DSDC through MEI contributes. MEI provides the basic information on the progress achieved based on Copenhagen criteria, the challenges to achieve such criteria, as well as the roadmap envisioned by the Government of Albania for the EU accession. Chapter 2: Vision, Strategic policy and short to midterm goals This chapter clearly states the government of Albanian vision, by answering the question How we wish Albania to be in the year 2020? This vision is accepted to derive mainly by the European Integration commitments. This chapter are described: Strategic Policies: consists on the main directions where the government will focus its activity, seeking to achieve the stated vision. Strategic Policy goals: are displayed in the mid to long period. Each strategic policy may have one or more strategic goal, each containing specific results, are clearly measurable, actual, achievable in a timely manner, and fully affected by government activity. 11

12 Chapter 3: Strategic policy and Policy objectives Chapter 3, as the main part of the NSDI document, introduces the main sectoral and crosscutting policies, which have been identified from the national strategic process. Emphasis is given in the policy objectives development for the achieving of each of the goals described in chapter 2. This way, is ensured the logic linkage of strategic policies, goals and policy objectives. This chapter is constituted by 3 main pillars: 1. Democracy and Rule of Law 2. Economic and Social Development a. Economic development and finances b. Infrastructure c. Social development 3. Regional and territory development. In each pillar are been included policy parts for different sectors, according to the annex 3 sectors list. In the NSDI document, for each sector is described: Vision: a short overview where it s described the sector desirable condition by This vision serves as a starting point of the strategic planning process. Policy goal: especially described for every policy. Policy objectives: objectives must be specific, measurable, attainable, relevant and achieved in a timely manner. In some cases, major products may be displayed in function of the policy objectives achievement. Table 1 renders the sectoral list comprised in NSDI chapter 3. The main contribution for this part is the sector s strategic document for , provided by line ministries and submitted to the DSDC according to the procedure described in Annex 1. The sector s strategic document includes: current situation, vision, policy goals, policy objectives for each of the years, policy products and their cost, indicators in respect to policy goals. DSDC guides the preparation and finalization of this chapter, based on line ministries contribution. Chapter 4: Macroeconomic framework and financial sources for strategy implementation This chapter consists of two parts. The first part introduces the macroeconomic framework according to the foreseen macroeconomic scenario, and supported by clear objectives of fiscal policy. Preparation for this part is guided by the Macroeconomic Directorate of the Ministry of Finance. This directorate reviews the macroeconomic framework every four months: in February, June and October. The macroeconomic framework presented in February 2012, serves as bases of accounting the preliminary ceilings for the financial resources distribution, for policies implemented through the MTB program. Ceilings help line ministries to yearly distribute the necessary financial resources and to cost primary policies. These ceilings are published by the Ministry of Finance in February 2012, as part of the MTB Guidelines. During June 2012, along with the macroeconomic review is performed the MTBP ceilings 12

13 review, and published in the Complementary Guideline for the State Budget preparation. Line ministries review the primary policy costing in compliance with the revised ceilings. In the second part the NSDI policy implementation costing is introduced. This part gives an answer to the question: What is the financial sources allocation for implementing the Government primary policies? In this chapter, the DSDC s Strategy Coordination Unit, near the Council of Ministers, and the Analyses and Budgetary Policies Directorate of the Ministry of Finance will guide the preparatory work for this part. However, their work will depend on the cost calculation made by line ministries for each primary policy of the MTPB programme. This requires an extensive and thorough work from line ministries throughout the Medium Term Budget preparation process. During the NSDI final draft preparation, the Strategy Coordination Unit introduces the options for financial resources distribution to the Strategic Planning Committee, in order to receive a political decision for resources allocation between primary policies. Chapter 5: Accountability, monitoring and assessment analyses This chapter displays the monitoring system, thus answering the question How to measure progress?. Aside from explaining the monitoring and reporting system, this part introduces the chosen set of indicators with their respective goals. Indicators are mainly result indicators, the progress of which is periodically measured. These indicators are identified from line ministries, according to the objectives achievement and policy goals. After being discussed with DSDC and INSTAT, the list of goals and indicators is filled, and the responsible institutions for data production and publishing are set. The main contribution regarding content for the indicators identification is provided by line ministries. Table 1. Sectors list included in the NSDI Nr.1 NSDI chapter 3 structure A EU integration, foreign and defence policy 1 EU Integration 2 Foreign Policy 3 Defensive Policy B Democratization and Rule of law B.1 Justice and home affairs 1 Justice 2 Propriety Rights 3 Anti - corruption 4 Integrated border management 6 Organized crime, terrorism and trafficking 7 Public order 8 Public Administration 9 Decentralization 13

14 C Social and Economic development C.1. Infrastructure 1 Transport 2 Energy 3 Water and sewerage supply 4 Waste management 5 Information society and communication 6 Environment protection C.2. Market Economy 1 Public Finance 2 National Economy 3 Consumer protection, market overview and intellectual propriety 4 Tourism C.3. Social Policy 1 Job Creation 3 Gender equality 4 Social protection and social Insurance 5 Social Inclusion 6 Health 7 Education and scientific research 8 Culture and sport C.4 Rural and Regional Development 2 Regional Development 3 Rural and Agricultural Development 14

15 Annex 3. Line ministries reactivate the Inter-ministerial Working Groups for drafting the crosscutting strategic documents and crosscutting strategies. The table below shows line ministries leading and participating in Inter-ministerial Working Groups. Table 2: Inter-ministerial Working Groups and Ministries involved list. Inter-ministerial Working Groups Participatory ministries (leading ministry is underlined) MAFCSP MD METE MoES MEFWA MIE MoF MoFA MSH MoI MoJ MoLSAEO MIICT MPWT MCTYS Regional development X Leader X X X X X X X X Agriculture and rural development Leader X X X X X X X Information and Communication society X X X X X X X X Leader X X Intellectual propriety right reform Fighting organized crime, traffics and Terrorism X X X X X X Leader X X X X X X X Leader X Social Inclusion X X X X X X Leader X Fighting Corruption and transparent government (Council of Ministers X X X X X X X X X X X X X X X leads) Environment X X X Leader X X X X X X X Consumer protection, market overview and Intellectual propriety rights Leader X X X X Gender Equality X X X X X X X X Leader X Integrated Border management X X X X X X Leader X X X Fighting against Human trafficking X X X X X X Public Administration reform X X X X Leader X X X Decentralization X X X X X X X Leader X X X 15