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Twinning Reform 2017 Overview - NCP Italy Video - conference 28 July 2017 Claus Lech 1
Twinning in nearly 20 years • Last revision of the Manual in 2012, smaller changes since then • Reform triggered by EU MS calls to cut red tape • New FR calling for COM DEC and alignment with NEAR policy objectives including Cssr prioritisations on call to enhance visibility • Time to revisit basic compensation level and methods from 2004 to see if compensation levels reflect reality & ensures interest 2
Latest developments • Process was presented during 2014 IB days with NON-PAPER on Reform of Twinning • Meeting NCPs in Vienna September 2016, in 2017 in Brussels March 27 -28, in Malta May 8 -9 • Commission Decision 1122 of 21 February 2017 • Draft Manual to NCPs and EUDs 1 March 2017 • DEV DAYS consultation 24 March 2017 • Many comments from NCPs/EUDs often contradictory • Since 2015/2016 version – concepts unchanged – further alignment with NEAR developments though 3
KEY ELEMENTS 4
Recall key elements of Twinning reform • • Maintain and possibly further simplify Harmonise Twinning (ENI and IPA) Align NEAR political agenda developments Enhance legal certainty via Commission Decision 5
Maintain and simplify procedures - NB: Twinning is not TA – we are linking PA's not only - - experts EU MS proposal to focus on methodology, administrative model, added value and highlighting the key building blocks and still very indicative on financial aspects (amounts identified only for budget headings – not in detail) (Twinning Manual section 2. 2. and Annex C 2) contract to be signed earlier – implementation (arrival of RTA), to start max 3 months after notification of selection (2. 4. 2. 3) narrative heavy reporting could be only every 6 months (5. 5. 2. 2. ) use of Unit costs/flat rates: requirements for documentary evidence, is only to give evidence that the activity took place reserves in budget to fund sustainability actions (6. 2. 11) 6
Harmonise Twinning ENI and IPA - Role of Contracting Authority - CA always to be the one circulating the standard fiches to MSs (Done by HQ for IPA before) (2. 1. 3. ) - CA always the entity preparing the contract (3. 1. 2. ) - HQ entities consulted on fiche not contract. Past: ENI – advice on fiche. IPA Opinion on contract. Future for all: Twinning Interservice Group Opinion on the fiche (2. 1. 2) - NB Respect empowerment agreements – if indirect management without ex-ante then their might be no role for HQ either - Selection aligned (2. 4) 7
Align with NEAR developments - PAR principles - Integrating PAR principles: since it is about - supporting the approximation of the regulatory framework and the norms and standards to those of the EU and ultimately enhance public governance systems (governance reforms) - (Annex A 1) Terminology - mandatory results, intervention logic and target setting basis (use of Unit A 3 papers on indicators etc) - (Annex C 1 a Levels of intervention logic) NB: Manual keeps door open to not have extra consultation process for Twinning only (2. 1. 1) 8
Align with NEAR developments - Visibility / Communication - added focus (Annex C 2 and Annex - C 19: Communication and Visibility Plan Template) More Sector and "Political" focus - Fiche should link project to sector (reform/developments) - Reports also to flag sector developments - PAO/EUD to ensure coordination of actions enhancing complementarity with other sector reform actions - EU MS RTA, RTA counterpart & experts hopefully to be better integrated in local frameworks coordination - not live a parallel life – networks should be described in fiche 9
Legal Certainty/Commission Decision 1122 of 21. 02. 2017 • Secures continued use of unit costs/flat rates - an important financial simplification element (also required by FR Art 124) and reflects - in Annex B - the methodology used and to be used for establishing compensation amounts • As consequence: Unit costs to be defined at contracting stage based on input from EU MS and actions of the CA • Establish the existence and status of the Twinning manual and role of DG Near. C. 3. • As consequence: leads to simplify compensation to EU MS for experts (one fixed flat daily allowance at 350€) and for RTA (instalment/removal costs, per diem etc – now as COM staff LTM) 10
Recap – including already mentioned key elements 11
Recap • Fiche to focus on reform context and using benchmarks and indicators as • • • for other projects (2. 1. 1) Twinning Inter-service Group only giving advice/opinion on finalised version of the fiche (Manual paragraph 2. 1. 2) Contracting Authority always circulating fiches to EU MS NCPs (2. 1. 3) EU MS proposal focus on methodology, administrative model, added value and highlighting the key building blocks and to include Declaration of availability of the RTA for the period of implementation (2. 2 and Annex A 9) Selection process with "consensus defined as non-objection" , partner country "fundamental say" EUD able to halt procedure (2. 4. 1) Contract always prepared by CA maximum 3 months after notification of selection (3. 1. 2. ) 12
Recap • Start of Activities: As soon as Initial work plan is ready and agreed • • by the SC – targeting 5 -6 months after circulation of fiche (3. 3) Reserve funds for sustainability actions combined with more focus on Partner country obligations (6. 2. 11) More focus on defining obligations and infrastructure etc. of BC (2. 1. 1, 4 and Annex C 1) IDs - BC PL and RTA counterpart mentioned in the fiche, ID of component leaders counterparts before contract signature (3. 1. 2) 1 BA staff available to support the RTA until the RTA assistant can be selected (5. 2. 1) 13
Recap • Initial Work-plan (6 months rolling plan for activities) (5. 2. 2) - prepared in 4 -6 weeks following signature of the contract and arrival of the RTA including Communication and Visibility plan. Work plan to define how much time will be devoted to each activity of the project including STE CVs - updates prepared by RTA and RTA counterpart, - agreed and signed by two PLs - discussed by SCs - accepted by all contracting parties (max 14 days after SC) - to accelerate the preparation EU MS PL's and/or Component Leaders and/or one support staff 14
Recap - Twinning Light – from 6 to 8 months as implementation as long as 250. 000€ suffices (8. 1) - A conceptual remark: Twinnings with more than one RTA has always been possible but only if appropriate (absorption capacity of BC Administration and EU MS capacity) - Training RTA counterpart and BC PL: Can particpate in HQ training. Potential un-clarity under 4. 1. 6. 6. - NB: Clarification "or" should be understood as "and/or" as per 3. 3 - Reports – from detailed report every 3 months to possibility to only submit the narrative report part every 6 months* and report to possibly include elements of wider reform context. (5. 5. 2. 2) * In such case the rolling work plan update will still be discussed and so will the financial report every 3 months. 15
Recap -RTA to sign an availability statement be inserted in the proposal (2. 2 and Annex A 9) - For MS PL, a statement to be signed by the person being authorised to commit the MS administration, confirming the availability of the manager including his/her function and entity to assume the role of PL (2. 2) - RTA: possibility to be temporarily replaced by EU MS PL (4. 1. 6. 8) - Number of RTA assignments (from months to maximum duration of projects etc) (4. 1. 6. 7) - Replacement of RTA assistants (from redo to use ranking) (4. 1. 6. 10) - EU MS component leaders designation (from "if relevant" to "obliged") - Curricula to be inserted in the proposal: PL, RTA and CL (2. 2) not any more STEs CVs) 16
Mandated bodies - novelties 17
Mandated bodies Bodies and semi-public entities, which under the laws of a Member State are not considered to be directly part of the public administration, can request to be accepted as a mandated body if they fulfil some specific criteria:
MBs criteria • have delivery of public service(s) defined as main purpose in its mandate/statute ; • are under permanent structural supervision of a government authority and/or steered by a board of publically appointed trustees; • are subject to the financial control of an entity appointed by the government; • are subject to audit of a an entity appointed by the government and/or reporting financial statements to a state audit institution.
MB self-declaration • A body or other semi-public entities requesting to be registered by the Twinning Coordination Team as a mandated body for the purpose of participating in the implementation of a Twinning project must submit to its Member State NCP a self-declaration based on the template in Annex C 17 (if needed amended to reflect the institutional responsibilities for verifying the accuracy and veracity of information provided).
MS NCP is in charge of: • Reviewing the content of the self-declaration regarding the eligibility of mandated bodies: based on the model in Annex C 17, exercise its duties, depending on the institutional arrangements set up in the individual Member States, for certifying the eligibility of the mandated body which includes analysing the accuracy and veracity of information provided and subsequently forward the request for registration of the mandated body to the Twinning Coordination Team.
Two different kinds of mandates can be registered: • Full mandate; • Ad hoc mandate.
Full mandate • An entity which meets all the criteria may ask its NCP to send a request for registration to the Twinning Coordination Team. A full mandated body may participate in all Twinning projects after having been included in the list of full mandated bodies on DG NEAR webpage.
Full mandate 2 • It is understood that, in addition to meeting the above criteria, the entity will have sufficient and proportionate level of permanent staff, meaning that the permanent staff has to be commensurate with the requirements of the project so as to avoid the need to subcontract or temporarily hire experts for carrying out Twinning assignments.
Ad hoc mandate • A body or other semi-public entity which satisfies the formal criteria, but can only make a small, specialised contribution to a Twinning project can be given an "ad hoc" mandate. When requesting registration with ad hoc status, the Member State NCP specifies the Twinning project for which the mandate refers. • These bodies are not included in the public list on the Twinning webpage.
Ad hoc mandate 2 • Public universities and research institutes fulfilling the criteria and whose specialised expertise meets the needs identified in the Twinning Fiche are examples of entities that could become ad hoc mandated bodies. • Minimum staff required to comply with ad hoc mandated body status depends on each Twinning project.
General management bodies with no specific sector specialisation • General management bodies established in some Member States for implementation of projects/programmes at the service of public administrations, can be assigned a full mandated body status as long as they fulfil the criteria above. • Should such a body have undergone the six-pillar assessment, they do not need to submit a registration as mandated body, but is considered eligible full mandated body.
Twinning project cycle Activity Actors Timeline Needs analysis Beneficiary, EUD, PAO Programming phase (PP) Drafting of the « Twinning fiche » Beneficiary, EUD, PAO, private experts PP - Depends on nature and complexity Final fiche sent to HQs (Brussels) From EUD to DG NEAR Unit C 3, Line Only when for DGs, Co. TE sufficient Assessment quality Opinion on the fiche DG NEAR Unit C 3 to EUD 2 weeks Publication of the fiche EUD - Europe. Aid website Asap after possible revisions Circulation of the "Twinning fiche" Contracting Authorithy to MS NCPs Same day / close to Publication 29
Twinning project cycle Activity Actors Timeline Proposals Member States 8 weeks Selection meeting BC by consensus 2 weeks Notification of result Contracting Authorithy 2 weeks Preparation of the contract file, filling the templates listed in 3. 1. 1. Contracting Authorithy In max 12 weeks -Requests the CV of the BC PL, RTA counterpart, names and function of CL counterpart) CA 1 week - Organise a VC with MS PL to clarify the following: CA 2 week • the accountancy statement on the compensation of costs related to the RTA • RTA situation (alone or with family) 30
Twinning project cycle Activity Actors Timeline Data sent from the MS PL to CA MS PL 4 weeks Draft Contract sent from CA to MS PL CA 6 weeks • travel itineraries of the PL, RTA and Short Term experts (who requests 3 offers) • indicate the plans for participation of the PL(s), CLs and staff in the initial work plan • indicate the plans for participation of the PLs for communication and visibility activities • Clarifications related to a general management body (if indicated in the proposal) • entity issuing payment requests (if different from MS lead entity signing the contract ) 31
Twinning project cycle Activity Actors Timeline Contract Originals signed by MS PL sent to CA MS PL 8 weeks Signature of the original contracts by the CA , intialised Annex A 1 and A 3 by the BC PL CA 10 weeks Secondment of the RTA – Starting the CA and MS implementation of the project Max 12 weeks – after the notification of result Drafting of initial work plan RTA/MS PLs/CLs/staff 4/6 weeks First steering Committee RTA/MSPLs 2 weeks Start of activities RTA 4 weeks (NB possibility Kick off meeting before) 32
Advise on drafting the Contract 33
Twinning is not an input based TA • Twinning is unique and not to be mixed with input based TA • Twinning works with EU MS not with private consultants – on financial aspects the EU MS have a compensation – not profit - motive • Twinning is however still grants – under grants maximum flexibility MUST be ensured • If not trusting EU MS in the cooperation or if BC does not have capacity to engage, but want somebody "doing it" – in contrast to basic principles of ownership - Twinning might not be the right tool to choose. 34
The financials – novelties Commission Decision: • • One flat daily allowance set at 350€ for all expert categories Twinning Project Support Costs and setting the flat rate at 136% Indirect cost fixed at 6% Reserve funds fixed at 2. 5% Methodology for flat rates established Methodology and timing for CA fixing unit costs described When fixed evidence of "event" triggering the compensation, not of amount NB: Initial work-plan: To accelerate the preparation of 35
Budget Structure Budget Heading 1: RTA and RTA related costs esti 15 -30% /DC Budget Heading 2: Horisontal Cost items esti 5 -10% / DC Budget Heading 3: Mandatory results esti 60 -80% / DC Budget line Indirect costs fixed at 6% of Σ headings 1 -3 (DC) Budget line Reserves fixed at 2, 5% of Σ headings 1 -3 (DC) Sub-headings in Twinning Manual are not an exhaustive list Consider reflecting all agree unit costs in an Annex to the contract. 36
The Financials – the initial budget • RTA and RTA related costs: • • - Can be fixed with high level of precision Horisontal costs: - "up to" sums to a large extent to be based on actually incurred costs for Communication/Visibility plan Mandatory results: - It is only at the moment of the preparation of the initial work plan (and its subsequent updates) that details of activities need to be decided upon hence details of costs will only be known when the first work-plan is established, but unit costs and flat rates known 37
Info CA must get from the EU MS The contacts/nominations data for drafting the Contract Special Conditions Annex A 1: Fiche and the although often sketchy proposal given by the EU MS Annex A 2, Annex A 4, Annex A 5 and Annex A 6: Don’t touch Annex A 3: NB: Indication given by EU MS in proposal, amounts will be at level of headings. Work plans de facto materialising the contract. See upcoming slides Annex A 7: Regulating financial aspects Annex A 8: If consortium agreement to include Annex A 9: Required CVs and the declaration by RTA 38
RTA salary compensation Calculation of wage and non-wage compensation RTA described in detail in COM DEC / Annex B -> EU MS to submit details for CA Commission Decision text Wages • "While submitting their analytical accounting statements, Member States shall pay particular attention to specifying all elements taken into consideration. • In the case of wages, reference shall be made to the basic salary and to statutory benefits. The basic salary shall be determined in accordance with the pay grade held: functions performed by the civil servant are therefore irrelevant and solely the pay grade established on the basis of the official remuneration schemes for the public service at national or local level is considered. • The other statutory costs shall include all additional payments in form of statutory benefits linked to specific functions, responsibilities and conditions, as well as specific salary components that are not paid on a monthly basis, such as holiday allowances and additional month(s) payment at the end of the year. Since the diversity of national legislative conditions for remunerating personnel does not allow compiling an exhaustive list of eligible cost components, 39
RTA salary compensation • Member States shall be guided by the principle that costs which are in line with their usual policy on remuneration and in compliance with the national legislation can be included. Non-statutory, nonmandatory and discretionary premiums or bonuses shall not be included Non-wage Similarly, the institution dispatching the RTA shall receive a reimbursement equalling the non-wage labour costs incurred for the RTA, including compulsory social security contributions such as those related to health, pension, unemployment), based on an analytical accounting statement of the last closed accounting year. The non-wage labour costs should take full account of statutory rights according to the civil service legislation of the given Member State in particular rights of civil servants working abroad, family allowances and insurances" (And further: In the case of non-wage labour costs, reference shall be made to the employer's social contributions such as insurance contributions, payments for healthcare, labour disability, unemployment and other statutory allowances") 40
RTA – Travel: -> EU MS to inform Contracting Authority about living arrangements of RTA and Contracting Authority to establish unit rate based on 3 offers covering all period of project (or accept to rely on 3 offers presented by EU MS) Commission Decision text: • If the RTA moves to the partner country without household effects or family, or both, travel costs can be compensated as a monthly travel allowance to cover return fares with one registered luggage. The amount of this monthly allowance shall be established based on the economically most favourable quote among those provided by three travel agencies before the signature of the Twinning contract. The quotes shall be endorsed by the authority signing the Twinning contract • If the RTA moves to the partner country with household effects or family, or both, travel costs can be compensated as a yearly travel allowance to cover return fares with one registered luggage for the RTA and each accompanying member of his or her family. The amount of this yearly allowance shall be established with the same method used for the monthly allowance. 41
RTA Subsistence allowance Per diem: -> EU MS to inform of Per diem level for RTA taking due account of sufficient funds for achieving the mandatory results. Commission Decision Text • While it can be expected that the RTA's salary covers expenses that continue to be borne in the place of origin, the Member State can pay the RTA a daily subsistence allowance to meet the extra costs of living in the partner country, such as lodging, extra security and additional health insurance. • The daily subsistence allowance for the RTA is capped at maximum 75% of the per diem rate for the partner country published by the Directorate-General for International Cooperation and Development (DG DEVCO) and applicable at the signature of the Twinning contract. • Considering that the subsistence allowance for the RTA covers costs that need to be met also during temporary absences such as holidays and business trips, Member States can pay it for the whole duration of the assignment of the RTA in the partner country. 42
Other RTA related costs -> EU MS to inform CA of other cost items ie: • Schooling costs – capped at same level as used for EU officials. • • Based on invoice. Removal costs – impossible to fix an amount from X cities in Y countries going to Z partner countries -> Based on 3 offers Training. Need for costs for Brussels based RTA training? 43
The Financials – RTA assistant -> Since the RTA is to select her own assistants the maximum amounts for these will be introduced in initial budget by CA based on known competitive ceilings Commission Decision text "A RTA is normally supported by one, and exceptionally more, full time administrative or language assistant(s), or by an assistant who performs both the role of administrative and language assistant, whose monthly payment(s) shall be budgeted as monthly unit costs, based on the value of the contract(s) signed divided by months of contract duration, following a public procurement procedure and established on a case-by-case basis taking into consideration conditions prevailing in the partner country and indications provided by the local EU Delegation" 44
The Financials – horisontal costs -> Taking due account of sufficiency of funds to achieve mandatory results, EU MS to indicate intensity and engagement of EU MS PL and Component Leaders in • Work-planning – Initial WP now AFTER contract signature • Steering Committees & Communication/visibility activities -> taking due account of sufficiency of funds to achieve mandatory results, CA and EU MS based on needs analysis re • infrastructure and meetings facilities and • extraordinarily needs of project (heavy translations of acquis, etc) to establish an "up to amount" to cover such costs based on actually incurred costs 45
The Financials – horisontal costs -> EU MS and CA to agree to a fixed maximum amount for Communication and Visibility (max 3% of Twinning Budget) to be included as "up to" in initial budget A small-scale Communication and Visibility programme includes • Opening/closure • Thematic/milestone events • Minimum: Use of Social Media, Link to EUD webpage A large-scale Communication and Visibility programme might include • Development of expensive AV material (films, animations etc) • Internet/ TV intensive Advertising campaign 46
The Financials – STE – Flat Daily • Member States shall be compensated with a flat daily allowance for the absence from duty of officials or assimilated agents who act as short-term Twinning experts, which means experts being dispatched for less than 29 consecutive calendar days in the partner country. NB: No LTEs or alike. But more RTAs possible. • The flat daily allowance to be paid to Member States to compensate the absence from duty of officials or assimilated agents acting as short-term Twinning experts is 350€/day. -> CA can introduce the unit cost but not the detailed number of Units which can only be established when work-plan is ready 47
The Financials – STE – Travel • Each time an official or assimilated agent is dispatched to the partner country to act as a short-term expert, travel costs should be compensated on the basis of a travel allowance established based on the economically most favourable quote among those provided by three travel agencies before the signature of the Twinning contract. The quotes shall be endorsed in advance by the authority signing the Twinning contract. -> Contracting Authority to establish unit cost and agree this with the EU MS for all known travel routes possible to foresee at contracting stage and agree with EU MS (We would recommend as annex to Annex A 3) 48
The Financials – PC staff DSA • Officials or agents of a recipient administration can receive a subsistence allowance when on mission to a Member State. The maximum amount of this allowance corresponds to the per diem rate for the Member State concerned published by DG DEVCO and applicable at the signature of the Twinning contract. -> EU MS to inform CA of the amount taking due account of sufficient budget to achieve mandatory results 49
The Financials – TPSC – ex-TMC Commission Decision • a) costs related to time spent by officials or assimilated agents in the Member State in order to prepare and follow-up their missions in the partner country; • b) costs related to time spent by the Member State(s) project leader(s) in order to coordinate project implementation from his/her home administration without being seconded from his/her post; • c) costs related to time spent and costs incurred for the delivery of activities during study visits of partner country's officials or agents to a Member State; • d) costs related to time devoted to the logistical arrangements necessary for the organisation of activities in the partner country. 50
The Financials – TPSC – ex-TMC • Compensated on the basis of a flat rate of 136% of all flat daily allowances paid for activities delivered in the partner country by short-time experts. -> CA can introduce the unit cost but not the detailed number of Units which can only be established when work-plan is ready 51
The Financials – TPSC – Indirect • Costs covered: • time devoted to support the drafting of interim and final reports; • other costs such as training provided to officials, office space and equipment, human resources management, general management and administrative costs of the Member State grantee linked, among other things, to accounting or bookkeeping or invoicing • Limited to 6% (some costs are already compensated) -> CA can introduce when figure known from the indicative Budget Headings 1 -3 52
The Financials – monitoring PLs financial monitoring and responsibilities • 25% rule related to Budget Headings -> Addendum rule • Budget can never be increased • Side letter a term reserved for "between SC" modifications: Responsibility of the PLs to notify on urgent modifications of work plan/STE changes etc • Financial section of the 3 monthly reports: document the actual expenditure vs budgeted costs, indicating at budget heading and activity level the consumed amounts in euro • Any doubts to be discussed and agreed an amicable solution found between contracting parties 53
Questions please 54