ESF Transnational Cooperation 2014-2020 and the Common Framework Paper for the meeting of the ESF Committee, Vilnius, 26 September 2013 Table of contents 1 General... 1 2 Summary of the Common Framework... 2 2.1 Participation... 2 2.2 Common themes... 3 2.3 EU-level platform... 4 2.4 Coordinated calls... 5 3 General timetable for the Common Framework until 2015... 6 4 Matrix - proposed roles and responsibilities of the actors involved in TNC 2014-2020... 7 Attachment Draft Rules of Procedure for a Common Framework for implementing Transnational Cooperation under ESF 2014-2020 1 GENERAL Between May 2011 and September 2013, ESF practitioners have met on a regular basis 1 to develop ideas on the shape of ESF transnational cooperation (TNC) in the programming period 2014-2020 and more detailed proposals on related implementation modalities. The original forum comprised a Working Group on TNC post 2013, which was established under the auspices of the Ad-hoc Group on Innovation and Transnational Cooperation (Ad-hoc Group). 2 Once the Working Group came to an end in 2012, the baton was passed to the newly established Learning Network on ESF TNC 2014-2020 ; 8 Member States (MSs) are formally represented in this network, 3 while personnel from others regularly attend meetings on an informal basis. 4 Deliberations have focused on addressing the weaknesses identified in TNC implementation during the current programming period, while avoiding the drawbacks perceived in the preceding EQUAL 2000-2006 Community Initiative. 5 In the first case, the lack of institutionalised coordination 6 across MSs with regard to the TNC agenda has meant that project promoters have found it hard to identify TNC partners in other MSs and establish partnerships. In addition, the situation has been exacerbated by the fact that costs related to partner search, necessarily incurred by applicants prior to signature of contract, are 1 9 times in total 2 The core of the Working Group was made up of members of the TNC Learning Network (which ran from 2010 to 2012), though representatives of MSs not participating in this network were welcome to attend as well. 3 Czech Republic (network lead), Finland, Belgium (Flanders), Germany, Poland, Spain, Sweden, UK (England and Northern Ireland separately) 4 Italy, Lithuania 5 EQUAL concerned TNC actions to promote new means of combating discrimination and inequalities in connection with the labour market. 6 For example, calls across MSs have almost always not been coordinated. 1 of 7
usually not allowed as eligible expenditure; further, a similar common restriction on costs incurred by TNC partners has not encouraged foreign organisations to partner with domestic applicants (since they would either have to work for free or arrange for their own source of funding). In the second instance, the rigidity of the mechanism established for the implementation of EQUAL has been generally viewed negatively by national administrations, since it did not allow sufficient room for manoeuvre. The thinking and suggestions of the Working Group on TNC post 2013 fed into the development of the TNC-related sections of the EC s proposal for the new ESF Regulation, published in October 2011. Since that time, work has involved discussing and designing a mechanism for TNC in the new programming period which will be neither too loose nor too restrictive. In order to gauge and build interest and tailor the mechanism to meet the needs of Managing Authorities (MAs), input and feedback was solicited on a regular basis. To this end increasingly detailed proposals have been presented to the Ad-hoc Group (in October 2011, June and December 2012, June 2013), while a wider audience was consulted during 2 so-called TNC Learning Seminars (September 2011, September 2012) which brought together representatives from over half the MSs; in all cases, the response has been positive. Most recently, an informal canvassing of MSs indicated that 100% of those that responded would consider participating in the system put forward. Work on the design of a mechanism for TNC for the programming period 2014-2020 is now approaching an end. Based on the relevant articles of the draft ESF Regulation, proposals essentially foresee optional institutionalised collaboration (informally termed the Common Framework ) between MAs in different MSs around a limited number of common themes; in the case that MAs cannot or are unwilling to participate in the Common Framework, they can always implement TNC as during the current programming period (informally termed the flexible approach ). 7 It is intended that Rules of Procedure for the Common Framework, including the common themes on which it is to be based, are proposed by the EC and endorsed by the ESF Committee at its first meeting in 2014. 8 The sections below set out 1) a summary of the Common Framework, 2) the general timetable for the Common Framework until 2015, and 3) a matrix sketching the roles and responsibilities of relevant actors. A preliminary draft of the Rules of Procedure for the Common Framework is attached for consideration; it should be consulted for further details on how the Common Framework is to operate. 2 SUMMARY OF THE COMMON FRAMEWORK In brief, optional institutionalised collaboration under the Common Framework is proposed to comprise the synchronised development, launching and administration of calls (including project selection) by participating national/regional MAs/IBs, such calls being based around a number of pre-selected common themes. Support for the system would be provided by an EU-level platform, to be made up of bodies with pre-defined roles and responsibilities (notably Thematic Networks established for each common theme), as well as tools to facilitate the identification of TNC partners by project promoters and the subsequent formalisation of partnerships. 2.1 Participation Participation in the Common Framework will be entirely optional, though once an MA has opted in, it will be bound by the Common Framework s Rules of Procedure; however, it will also be able to opt out whenever it wishes to do so. In addition, no preconditions shall be set on participation (e.g. the Common 7 Additionally, MAs will be able to follow both options simultaneously in relation to a single Operational Programme. 8 This is the procedure foreseen in Article 10(2) of the draft ESF Regulation for formalising TNC common themes; it is proposed that it is also employed to formalise Common Framework implementation modalities. 2 of 7
Framework will not need to be indicated in Operational Programmes (OPs); TNC will not have to be implemented under a dedicated priority). 2.2 Common themes The 6 common themes around which it is proposed that the Common Framework is based are listed in the table below, together with example issue areas each would cover. This list has been developed on the basis of information received from MSs on which investment priorities are most likely to appear in their OPs; in addition, a wide variety of stakeholders were consulted as described in section 1 above. The following should be noted: The number of common themes is limited in order to correspond to the finite resources available and what is workable (a proliferation of common themes will make the institutional architecture of the Common Framework difficult to manage). In this context, it should be borne in mind that the Common Framework primarily targets project promoters through the coordination of calls across participating MSs; consequently, while there will be space for MAs/IBs to learn from each other and exchange best practice, subjects which do not address project promoters directly (such as those addressed via Learning Networks in the current programming period - e.g. results based management) would not be appropriate for the Common Framework. 9 The wording of the common themes deliberately does not match related investment priorities, since MAs requested that it was made clear that participation in the former was not to be limited by the restrictions imposed for the latter (which might discourage participation in the Common Framework). Some common themes are extremely broad; it is expected that the relevant Thematic Networks (see below) will narrow their scope in line with member s mutual interests. Issue areas relevant to more than 1 or all common themes are repeated in the table. Common theme Active Labour Market Policy Inclusion Youth employment Learning and skills Adaptability Social economy Example issue areas Employability and labour integration; Labour mobility; Employment services improvement of and access to; Gender equality; Social innovation Active inclusion in the labour market; Access to services (e.g. transport, health, welfare, housing, etc.); Combating discrimination, such as Roma; Fighting against poverty; Local community development; Gender equality; Social innovation NEETs; Recent graduates; Mobility measures; Apprenticeships; Gender equality; Social innovation Combating/addressing early school leaving; Vocational Education and Training; Apprenticeships; Accreditation (of prior learning); Lifelong learning; Transitions within and between school and work; Gender equality; Social innovation Active ageing; Quality of working life (including work-life balance); Work organisation (e.g. flexible forms of employment); Anticipation (e.g. of future structural changes); Investment in employees (e.g. upskilling/reskilling); Green jobs; Gender equality; Social innovation Social entrepreneurship (including outreach, start-up support, coaching/mentoring, social franchising); Financial instruments to support social entrepreneurship; Gender equality; Social innovation 9 If there are issues which should be addressed at EU level by bringing together MAs/IBs, thought should be given to mechanisms other than the Common Framework (e.g. classic Learning Networks). 3 of 7
2.3 EU-level platform An EU-level platform is mentioned in Article 10(3) of the draft ESF Regulation. It is proposed that it comprises a number of bodies and tools. Its primary concern will be ensuring that the Common Framework operates effectively and efficiently; however, it will also concern itself to a limited extent with the flexible approach and TNC in general. 10 The bodies shall include: The EC, to be responsible overall for the establishment, implementation and oversight of the Common Framework. Technical assistance hired by the EC (EC TA), to support the EC, Thematic Networks, the TNC Advisory Group and MAs with regard to TNC in general and the Common Framework in particular. It should be operational over the full implementation period of the Common Framework (i.e. from 2014 to 2021/2022). Thematic Networks, to be established for each common theme and provide policy input for their themes, including the design of coordinated calls (see below). They should cover the full implementation period of the Common Framework (i.e. from 2014 to 2021/2022) and meet twice a year. They should be led, convened and chaired by the EC TA (on behalf of the EC), which will also provide the secretariat function; strategic oversight and decision making will be ensured by participating MSs. Membership should be compulsory for MSs participating in a given theme (a representative from an MA and 1 expert), with other MSs attending if they wish, though with restricted decision making power; other relevant personnel and/or organisations could be invited (e.g. external experts, social partners). Thematic Networks should be funded under the contract the EC concludes with a contractor for the EC TA, including travel related costs for MSs participating in a given theme. A TNC Advisory Group, to cover the full implementation period of the Common Framework (i.e. from 2014 to 2021/2022). It should be led, convened and chaired by the EC, with the EC TA supplying the secretariat. Membership should be compulsory for all MSs involved in the Common Framework; other MSs could attend if they wished, though with restricted decision making power. Costs, including those related to members travel, should be funded under the contract the EC concludes with a contractor for the EC TA. The Advisory Group should have an overview of the whole of TNC (Common Framework and flexible approach) and should provide advice to the EC, EC TA and TNs, particularly on issues of a horizontal nature (e.g. partner search, eligible expenditure). Participating MSs: MSs would be responsible for launching national and/or regional calls in the context of a coordinated call, selecting projects, concluding and monitoring contracts; in addition, they would attend Thematic Networks and the TNC Advisory Group. The tools shall include: An EU-level partner-search database to be established and maintained by the EC TA. It should be simple, clear and comprehensive. Its primary focus should be the project proposals initially selected by MAs or Intermediate Bodies (IBs) in the context of coordinated calls, since these should form the basis for developing TNC partnerships. However, it should also cater for the needs of project promoters under the flexible approach, and should therefore allow space for relevant information to be uploaded (e.g. project ideas). 10 This will apply in particular to the EC s technical assistance, the TNC Advisory Group and the EU-wide partner search database and central website. 4 of 7
A central EU-level website to be established and maintained by the EC TA. Bringing together all relevant information (e.g. from previous programming periods, from different MSs), it should serve as a 1-stop shop for any party interested in TNC. 2.4 Coordinated calls It is proposed that 2 coordinated calls are launched over the programming period, to cover all common themes. They would actually comprise a number of individual national and/or regional level calls launched by MAs (or IBs on behalf of MAs) participating in the Common Framework during an agreed window; a timetable and parameters would be agreed at EU level. For those proposals selected by MAs/IBs, support for project promoters with regard to finding TNC partners would be provided via the EU-wide partner search database and partner search events. Once applicants had formalised a satisfactory TNC partnership, the relevant MA or IB would either extend the initial contract concluded into an implementation phase or sign a follow-on contract. 11 EU-level monitoring, dissemination/mainstreaming and evaluation of resulting TNC partnerships would be the responsibility of the EC TA with oversight and direction from Thematic Networks. 11 This system entails a de facto or de jure 2-step selection procedure firstly proposals would be selected on the basis of the quality of the project, after which an initial contract would be signed; subsequently, successful applicants would identify partners and formalise TNC partnerships, whereupon the initial contracts would be extended or followed up. However, since many MAs might not be able to adopt such a system, either due to legal or capacity constraints, its use is not compulsory. MAs, for example, could participate in coordinated calls using a 1-step procedure, in which TNC partners have to be indicated in proposals; in this case, however, MAs and IBs would have to make the arrangements necessary on their side to allow their project promoters to benefit from the Common Framework. 5 of 7
3 GENERAL TIMETABLE FOR THE COMMON FRAMEWORK UNTIL 2015 The general timetable for the preparation and implementation of the Common Framework until 2015 (i.e. related to the first coordinated call) is presented in the table below. It should be noted that: Where the EC is indicated as responsible, it will usually be supported by the EC TA; Thematic Networks and the TNC Advisory Group will meet regularly over the period; the chair for the former and the secretariat for both will be provided by the EC TA. For an indicative timetable for coordinated calls covering the whole programming period, see the draft Rules of Procedure for the Common Framework. Target By end 2013 1Q 2014 1Q-3Q 2014 3Q 2014 Tasks/responsibilities Common themes and implementing modalities for Common Framework prepared by the Learning Network on ESF TNC 2014-2020 (LN) Tender for EC TA launched Common themes and implementing modalities for Common Framework proposed by the EC and endorsed by the ESF Committee. Organization of launching event in conjunction with the larger event anticipated by the EC for launching ESF in the next programming period. To present the Common Framework in a plenary session, convince the unconvinced, finalise membership of Thematic Networks, present a detailed implementation timetable for coordinated synchronized calls and lessons learnt from the Mobility Network; to include capacity building workshop(s) on technical issues. EC and LN responsible for content, presentation and facilitation. Preparation of coordinated calls (Thematic Networks responsible for content, TNC Advisory Group for common parameters) EC TA if not operational, contracted (by end June 2014) Preparation of the partner search database and updating of TNC website by EC TA EC sends letters to MSs inviting them to take part in the first round of coordinated calls, with information on the content of calls, timing etc. 2015 MSs launch individuals calls and select projects Selected projects upload information into the partner search database (structure of information prepared by LN), MSs may validate information uploaded Partner search events held for each common theme and for a maximum of 100 people each; priority to be given to orphans (i.e. projects without partners) Applicants identify partners and formalise TNC partnerships; MSs extend or follow up initial contracts. EC TA to monitor MSs launching individual calls (role to be proactive and reactive), report to EC and TNC Advisory Group, advise MAs/IBs if needed, update of website, technical maintenance of TNC database, preparation of partner search events (prematching projects, preparing agendas and facilitating the events (together with the thematic networks), organising logistics, registration, premises) post 2015 MSs monitor projects, take part in meetings of Thematic Networks EC TA to 1) help with dissemination and mainstreaming of projects results (e.g. organisation of events/round tables, inviting thematic experts in this to be guided by Thematic Networks on use of knowledge, dissemination of information outside the ESF circle, research); 2) help Thematic Networks to promote mutual learning; 3) monitor/evaluate (based on data from MSs ) e.g. simple technical monitoring of projects twice a year, conducting case studies on/evaluating results of projects suggested by MAs, on-going evaluation of projects in order to improve the 2 nd round of coordinated calls 6 of 7
4 MATRIX - PROPOSED ROLES AND RESPONSIBILITIES OF THE ACTORS INVOLVED IN TNC 2014-2020 Membership/constitution EC EC TA Thematic Networks TNC Advisory Group MSs EC staff responsible for External contractor hired Participation obligatory for Participation obligatory for TNC by EC those in CF, open to those in CF, open to others Funding EC s ESF TA budget Included in the budget for the external contractor hired by the EC for TA Timetable Coordinated calls Partner search database Considers, approves and issues Considers, approves and issues parameters Considers, comments and approves specifications Partner search for a Issues invitations; attends Summarises proposals and preliminary partner matching; organisation (e.g. logistics) Central website Considers and approves Proposes specifications, specifications Establishes and maintains Thematic Networks Attends Leads, convenes and chairs (on behalf of EC); secretariat TNC Advisory Group Leads, convenes and Performs role of chairs secretariat others MSs to cover their own costs (e.g. travel); EC TA finances remainder Develops and proposes to EC Supports EC, TNC Define scope and content Develops and proposes Advisory Group and MSs parameters to EC Establishes and maintains Develops and proposes specifications to EC Facilitation and provision of experts Developing and launching national/regional calls respecting agreed parameters; select projects; conclude contracts Forwards proposals selected and other information to EC TA and/or data entry Attend Considers and comments specifications Attend and contribute Attend and contribute; led, convened and chaired by an MS 7 of 7