Structural and Investment Funds
10. Training and educational actions aimed at the most complex implementation processes with potential risk of
irregularities, such as public procurement (including green public procurement), the investment process, smart
specialisations, state aid, environmental impact assessments, financial engineering, public‐private partnership,
spatial planning and revitalisation. The results of the project pipeline evaluation (referred to in point 8.) showed
high adequacy and effectiveness of the training actions and other educational activities, such as conferences and
manuals. In addition, within the framework of OP TA regular quality checks of trainings were conducted, which
confirmed their effectiveness.
2.5.2 RDP
It is envisaged that the programme will largely be implemented by institutions experienced in the implementation of
programmes funded from EU funds, which have staff and technical resources as well as adequate organisational
199
Performed by PSDB in 2011.
200
This conclusion was formulated in the framework of the study Evaluation of the scope of technical assistance support in terms of preparing
structure, thereby, it may be assumed that such entities have the administrative capacity sufficient for the
implementation of the Programme.
Initial and interim assessments of this capacity are planned to be carried out. Upon receiving the results of the initial
assessment, actions enhancing the organisational capacity will be identified, if necessary. Technical Assistance is
planned to be applied in case administrative capacity of the institutions involved in the implementation of the
Programme needs to be strengthened.
Assessment of the administrative capacity will allow, inter alia, the following:
• Identification of threats which may affect effective implementation of the programme,
• Analysis of changes and trends in these changes in terms of the administrative capacity of the institutions
concerned,
• Impartial comparison of these institutions, their efficiency and effectiveness compared to their capacity, • Taking actions aimed at enhancing the effectiveness of the implementation of the Programme.
It is assumed that the institutional actions in the area of RDP implementation will be, in the majority of cases, financed
from technical assistance funds which is a part of the Programme. Programme component – technical assistance –
plays a key role in its implementation as it allows its implementation in a proper and effective manner.
The evidence for the existence of an efficient and effective institutional system consists in a successful process of
winding up 2004–2006 programmes, as well as the effects of implementation of the 2007–2013 perspective so far.
The current system has worked well in practice and its evaluation is positive, therefore it is not planned to introduce
significant changes to the institutional system in terms of its actors. Despite the fact that final decisions on delegating
individual tasks have not yet taken yet and it is not possible to define an exhaustive list of institutions that will be
responsible for Programme implementation, as referred to above, the system will be based on the MA, the Paying
Agency and the entities to which they delegate their tasks.
The current implementation of an effective and efficient institutional system was possible largely thanks to the actions
undertaken in 2007 on the basis of a strategy to stabilise the employment system and to reduce personnel
fluctuations in public administration involved in the implementation of the Rural Development Programme for 2007– 2013 (RDP 2007–2013). These actions were possible mainly thanks to technical assistance funds– it was possible to
offer raises and, as far as possible, to harmonise the remuneration system in the entire RDP implementation system,
which resulted in a reduction in staff turnover and to increase the number of employees necessary for smooth
operation of the institutions involved in RDP implementation. Low remunerations and lack of development
opportunities were the main reasons behind staff turnover in the institutions at the initial stage of RDP 2007–2013
implementation.
o Structure
The assumed structure of the institutional system in the framework of RDP 2014–2020 is based on the experience
from the implementation of the previous financial perspectives. When making final decisions in this area, the
experience, knowledge and existing resources of individual institutions will be crucial.
o Human resources
A detailed analysis of the institutional capacity of individual institutions involved in RDP implementation will be carried
out on the basis of information and data obtained from the entities involved in the implementation of the RDP. Any
changes to the number of employees in this area will depend, inter alia, on the results of this analysis.
The institutional capacity of individual entities will be subject to monitoring. In addition, it is planned to introduce
structured and uniform action plans in the area of human resources involved in the implementation of RDP for 2014– 2020 aimed at, inter alia, correct orientation of spending technical assistance funds.
o Implementation tools for strengthening institutional capacity
In order to ensure an effective RDP implementation system and bearing in mind the experience to‐date and
programme regulations, it is planned to introduce a number of implementation tools financed from technical
assistance funds. This includes in particular:
1. Action plans for technical assistance, referred to above, relating to the area of human resources involved in the
implementation of the RDP,
2. Guidelines for beneficiaries in the use of technical assistance regulating, inter alia, eligibility of expenditure, the
3. Educational and training actions – including those focused on individual needs of particular institutions, covering
the most complex implementation processes, concerning detection and combating fraud and abuse, prevention
and detection of corruption, with a potential risk of irregularities (it is assumed that information on the planned
training actions will be part of the action plans for technical assistance and will be subject to verification).
4. Financing of the National Rural Network (NRN), including information and promotion actions. The purpose of NRN
under the new perspective will be to increase the participation of stakeholders in the implementation of rural
development, enhance the quality of rural development programme implementation, inform the public and
potential beneficiaries about the rural development policy and financial support and to promote innovations in
food production in rural areas and in forestry.
2.5.3 Operational Programme “Fisheries and the Sea”
It is envisaged that the programme will largely be implemented by institutions experienced in the implementation of
programmes funded from EU funds, which have staff and technical resources as well as adequate organisational
structure, thereby, it may be assumed that such entities have the administrative capacity sufficient for the
implementation of the Programme.
Initial and interim assessments of this capacity are planned to be carried out. Upon receiving the results of the initial
assessment, actions enhancing the organisational capacity will be identified, if necessary. If it is necessary to
strengthen the administrative capacity of individual institutions that are supposed to be involved in the
implementation of OP FISHERIES 2014–2020, it is planned that the achievement of an adequate level of administrative
capacity of these institutions will take place with support from the technical assistance budget.
Assessment of the administrative capacity will allow, inter alia, the following:
• Identification of threats which may affect effective implementation of the programme,
o Analysis of changes and trends in these changes in terms of the administrative capacity of the institutions
concerned,
o Impartial comparison of these institutions, their efficiency and effectiveness compared to their capacity,
o Taking actions aimed at enhancing the effectiveness of the implementation of the Programme. It is assumed
that the actions of the institutions involved in the implementation of OP FISHERIES 2014–2020 will be, in the
majority of cases, financed from the budget of technical assistance of OP FISHERIES 2014–2020.
The evidence for the existence of an efficient and effective institutional system consists in a successful process of
winding up 2004–2006 programmes, as well as the effects of implementation of the 2007–2013 perspective so far.
The current system has worked well in practice and its evaluation is positive, therefore it is not planned to introduce
significant changes to the institutional system in terms of its actors.
o Structure
The assumed structure of the institutional system in the framework of OP FISHERIES 2014–2020 is to be based on the
experience from the implementation of the previous financial perspectives. When making final decisions in this area,
the experience, knowledge and existing resources of individual institutions will be crucial.
o Human resources
A detailed analysis of the institutional capacity of individual institutions involved in OP FISHERIES 2014–2020
implementation will be carried out on the basis of information and data obtained from the entities involved in the
implementation of OP FISHERIES 2007–2013. Any changes to the number of employees in this area will depend, inter alia, on the results of this analysis. The institutional capacity of individual entities will be subject to monitoring. It is
planned to introduce an Action Plan in the area of human resources involved in the implementation of OP FISHERIES
2014–2020 that will define, inter alia, the following:
• Estimated demand for personnel in the institutions involved in the implementation of OP FISHERIES 2014–2020,
• The structure of employment in the institutions involved in the implementation of OP FISHERIES 2014–2020,
along with recommendations on the possible personnel shifts necessary in view of the dynamics of the process of
implementing the Programme.
o Implementation tools for strengthening institutional capacity
Building the institutional capacity of OP FISHERIES 2014–2020 will be achieved through technical assistance
communication, handling complaints, controls and inspections as well as audits in the framework of Programme
implementation.
In addition, in order to ensure an effective OP FISHERIES 2014–2020 implementation system, bearing in mind the
experience from the implementation of OP FISHERIES 2007–2013, it is planned to take up the following actions that
will be financed from the technical assistance budget:
• Development and implementation of an Action Plan in the area of human resources involved in the
implementation of OP FISHERIES 2014–2020, referred to above,
• Educational and training actions, including those targeted on the individual needs of particular institutions,
involving complex implementation processes.
2.6Planned simplifications for the beneficiaries
2.6.1 Action plan for the beneficiaries of cohesion policy funds
The Polish government is continuously working on reducing the bureaucratic burden imposed on the citizens and
economic operators. Particularly, these efforts are for the benefit of enterprises and entrepreneurship. The actions
are undertaken to provide conditions conducive to the development of enterprises and entrepreneurship, for example
through increasing competitive advantages, and consequently at achieving sustainable economic growth in the long
run. These actions are mainly intended to improve enterprises’ access to capital, strengthen entrepreneurial attitudes,
strengthen the business environment from the institutional, organisational and financial point of view as well as to
bridge the information gap by making available the analyses on the competitiveness of the industry sectors. The
actions bring about tangible outcomes which result in a steady improvement of Poland’s rank in the World Bank’s
Doing Business.
The economic activity in Poland is also positively influenced by European funds – including the funds under the
cohesion policy, as proven by numerous evaluation studies. Therefore, it is necessary to work out the rules which will
allow the beneficiaries to apply for EU funds without having to bear undue administrative burden.
Under the 2014–2020 financial perspective, the institutions responsible for the implementation of the cohesion policy in Poland will continue to introduce as broad selection of simplifications for EU fund beneficiaries as possible.
In 2012, the Supreme Audit Office conducted parallel audit in Poland (that also took place in 12 Member States)
concerning the simplification of the implementation rules of structural funds. The audit has been ordered by the
Contact Committee Presidents of the Supreme Audit Institutions of the European Union and the European Court of
Auditors. It should be noted that the results of the audit are positive.201 Poland has introduced all the simplifications provided for in EU regulations, not only the mandatory, but also the discretionary ones. This approach will be continued in the 2014–2020 financial perspective.
It should be noted that a vast majority of duties imposed on the beneficiaries results directly from and is the
consequence of EU legislation (the Framework Regulation and fund regulations). Draft delegated and implementing
acts presented by the Commission must frequently result in an increase in the bureaucratic burden (such as the scope
of the data collected in the IT system proposed by the EC). Therefore, the room for reduction of burdens in this regard
is rather small. The administrative burden may be reduced only in the areas that are governed by the national
regulations of the Managing Authority or Intermediate Body. It should be emphasised that the implementation system
of EU funds for 2014–2020 was planned so as to continue with positive actions aimed at reducing the burden on
beneficiaries and improving their institutional capacity (e.g. a system of advance payments for beneficiaries being
local government units and SMEs which, in the 2007–2013 perspective, allowed them to maintain liquidity during
economic slowdown).
Moreover, the responsibilities of the beneficiaries have been clearly defined. Pursuant to national recommendations,
when developing operational programmes, the relevant institutions involved in their preparation had to include in the
operational programme a summary assessment of key administrative duties on the part of the beneficiaries related to
the implementation of the programme and to indicate their source.
It was also recommended that the source be indicated in the description of the key duties of beneficiaries – Union and
national law, their objectives and potential consequences of a failure to implement them.
201
Simplifying the structural fund implementation rules. Post‐audit feedback, Supreme Audit Office, 03.06.2013. The audit showed that the
institutions involved in the implementation of national operational programmes have introduced the mandatory changes resulting from
amendments to the EU regulations covered by the audit. They have also taken action in order to introduce discretionary changes. Inter alia
simplified methods of expenditure settlement under the project have been introduced, the requirements for advance payments for project