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EU external assistance in the Neighbourhood: ENPI (and other instruments) Jyrki Torni EuropeAid Cooperation Office. Presentations. Introduction on EC cooperation, the European Neighbourhood Policy and the ENPI 1. EC cooperation since 2007 – main characteristics

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EU external assistancein the Neighbourhood:ENPI(and other instruments)Jyrki Torni EuropeAid Cooperation Office


Introduction on EC cooperation, the European Neighbourhood Policy and the ENPI

1. EC cooperation since 2007 – main characteristics

2. European Neighbourhood and Partnership Instrument (ENPI), Cooperation issues

3. Anticipating and answering to funding opportunities

ec cooperation since 2007 key characteristics

EC Cooperation (since 2007):

Key characteristics

eu and ec aid implementation
EU and EC aid implementation

EU the largest donor in the world

27 + 1 donors together responsible for 60% of all official development aid (2007: €46,1 billion)

USA provides 21%

European Commission on its own:

Second largest donor of humanitarian aid

Third largest donor of development aid (11,3%, after USA and Germany)

Present in more than 150 countries

Based on OECD/DAC figures 2008

the ec and the external aid budget 2008
The EC and the external aid budget 2008

External aid: €12.3 bn(9%)

EuropeAid EDF fund: €4.7 bn (38%)

Non-EuropeAid Budget: €3.2 bn(26%)

Commission budget inside EU: €128 bn (91%)

EuropeAid Budget: €4.4 bn (36%)

EuropeAid implements external assistance. This excludes pre-accession aid, humanitarian aid, Common Foreign and Security Policy (CFSP) aid, and aid for trade. EC total budget includes European Development Fund (EDF). NB – 2008 provisional figures (Jan 09)

political framework of eu development cooperation
Political Framework of EU development cooperation
  • UN Millennium Development Goals (2000)
  • OECD Paris Declaration on Aid Effectiveness (2005)
  • Accra Agenda for Action (2008)
  • Cotonou Agreement (2000)
  • Monterrey commitments (2002)
  • Doha Declaration on Financing for Development (2008)
  • European Consensus on Development (2005)
  • Backbone Strategy (2008)
paris declaration on aid effectiveness 2005
Paris Declaration on Aid Effectiveness (2005)

paris declaration on aid effectiveness 20051
Paris Declaration on Aid Effectiveness (2005)

EU Response: commitment to four targets in addition to the Paris Declaration

  • Provide all capacity building assistance through co-ordinated programmes with an increasing use of multi-donor arrangements
  • Channel 50% of government-to-government assistance through country systems, including by increasing the percentage of our assistance provided through budget support or sector-wide approaches
  • Avoid the establishment of any new Project Implementation Units (PIUs)
  • Reduce number of un-coordinated missions by 50%
accra agenda for action 2008
Accra Agenda for Action (2008)

Ministers of developing and donor countries responsible for promoting development and Heads of multilateral and bilateral development institutions endorsed the Accra Agenda for Action in Ghana, on 4 September 2008 to accelerate and deepen implementation of the Paris Declaration on Aid Effectiveness.

accra agenda in a nutshell 1
Accra Agenda in a nutshell (1)
  • Strengthening Country Ownership over Development
    • Broaden country-level policy dialogue on development
    • Developing countries will strengthen their capacity tolead and manage development
  • Building More Effective and Inclusive Partnerships for Development
    • Reduce costly fragmentation of aid
    • Increase aid’s value for money
    • Welcome and work with all development actors
    • Deepen the engagement with civil society organisations
    • Adapt aid policies for countries in fragile situations
accra agenda in a nutshell 2
Accra Agenda in a nutshell (2)
  • Delivering and Accounting for Development Results
    • Focus on delivering results
    • More accountability and transparency to publics for results
    • Continue to change the nature of conditionality to support ownership
    • Increase the medium-term predictability of aid
the european consensus on development 2005
The European Consensus on Development (2005)
  • Objective: Eradication of poverty in the context of sustainable development including pursuit of MDGs
  • Wider peace and stability – addressing global challenges
  • More effective aid – range of modalities based on needs and performance; where conditions are right use budget support
  • Reaffirm increased EU aid: 0.56 % of GNI by 2010 reaching 0.7% by 2015 (March 2002 Council Meeting, followed by May 2005 Council Meeting)

doha declaration on financing for development 2008
Doha Declaration on Financing for Development(2008)
  • Member States adopted by consensus the Doha Declaration on Financing for Development at the closing of the Follow-up International Conference on Financing for Development to Review the Implementation of the Monterrey Consensus (Doha, Qatar, 29 November - 2 December 2008).
  • The declaration reaffirms the Monterrey Consensus and calls for a United Nations Conference at the highest level to examine the impact of the world financial and economic crisis on development. Officials from more than 160 countries, including nearly 40 Heads of State or Government, attended the four day conference

responding to the call for simplification
Responding to the call for simplification
  • Simplification: More than 35 instruments, replaced by 10
  • Harmonisation: same rules for all financing instruments regarding eligibility, financing mechanisms, procedures
  • Updating of the rules according to EU commitments:MDGs, untied aid, alignment, etc.
  • More flexible: regarding the types of beneficiaries, the actions to be funded and the co-financing rules.
  • Financing: budget support, SWAP, twinning, debt cancellation, pool funding, operational costs
  • More implication of the European Parliament: democratic control, right of scrutiny
new financial instruments 2007
New Financial Instruments – 2007

2007 - 2013

Policy driven instruments:

►Instrument for Pre-Accession Assistance (IPA)

►European Neighbourhood and Partnership Instrument (ENPI)

► Development Cooperation Instrument (DCI)

► European Development Fund (EDF)

► Instrument for Nuclear Safety Cooperation (INSC)

► Human Rights Instrument (EIDHR)

► Instrument for Stability

Before 2007

More than 30 instruments for delivering external relations assistance

complementarity between geographic and thematic instruments a
Complementarity between geographic and thematic instruments (a)

The New Financial Perspective 2007-2013, provides a rationalization of the various geographic and thematic instruments:

Greater Ownership

Budget Support Sector Policy Support

the geographic instruments provide the major mechanism for partnerships with recipient country governments, and focus on the development priorities of the country or region.



In addition to geographic instrument, the thematic instruments are meant to support actions in areas of work which are not included in an AAP.

complementarity between geographic and thematic programmes b
Complementarity between geographic and thematic programmes (b)

Play on specific added value of instruments:

Them. programmes to be mobilised around governance components in the NIPs:

Geographic programmes should aim at enhancing dialogue between State and civil society on rather consensual issues …

Egypt, “Promotion and Protection of Human Rights and Civil Society in Egypt, 2008”. Institutional support intertwined with support to civil society (HR, gender, children, environment).

Possibility for thematic programmes to address sensitive/more specific issues, in principle not requiring government consent.

Egypt: EIDHR call, enforcing women and children’s rights

DG External Relations and EuropeAid:



Budget of the European Commission

the programming process
Strategy Papers

Multi-annual Indicative Programmes


The programming process


► describe projects

identified for


► define the

budget per


►lead to EC

decision &


of funds

► Analysis of the situation

► Response strategy

► Priority sectors

► 7 years

►revised at mid-term

►normally attached

to Strategy Papers

► set indicative allocations

(global & per priority)

► cover 3 – 4


programmation documents
Programmation: documents

A financial instrument is a policy description with resources attached, and with very specific rules which describe how, where, when and for what the money can be spent.

AAPs set out the respective amounts of funding for each country or each thematic priority and give details about the initiatives to be financed with those funds. They can be consulted on EuropeAid's website (

"Annual" in this respect refers to the budget year.

programming actors
Programming: Actors

Strategy Papers



Indicative Programs


DG EuropeAid

Annual Action Programmes



DG EuropeAid



european neighbourhood and partnership instrument enpi cooperation issues

European Neighbourhood and Partnership Instrument (ENPI)

Cooperation issues















Occupied Palestinian Territory




=17 Partner countries

ENP partner


ENPI = ENP partner

states + Russia

financial instruments neighbourhood region
Financial Instruments / Neighbourhood region

European Neighbourhood and Partnership Instrument (ENPI)

Instrument for Development Co-operation (DCI – only the 5 thematic programmes)

European Instrument for Democracy & Human Rights (EIDHR)

Instrument for Stability (IfS)

Nuclear Safety Co-operation Instrument (NSCI)

thematic programmes part of dci
Thematic Programmes (part of DCI)

”Investing in people”Human and social development

Protection of the environment and sustainable planning / cultivation of natural resources, including energy

Non-state actors and local authorities in the process of development

Food security

Migration and asylum policies



E uropean

N eighbourhood and

P artnership

I nstrument















Occupied Palestinian Territory




=17 Partner countries



Common space of stability, security and prosperity

Avoid new dividing lines in Europe

Increase efficiency of external assistance

Greater coherence through unified instruments

Simplified programming and administration


Stimulating cooperation and economic integration of ENPI partners with EU member states

in order to support the achievement of

• Partnership- and cooperation agreements (East)

• Association agreements (South)

• and other agreements (ENP Action Plans)




European Neighbourhood & Partnership Instrument

  • Almost €12bn (+32% increase in “real terms”)
  • Much more flexible, policy-driven instrument
  • Supporting priorities agreed in the ENP Action Plans and Four Common Spaces (Russia)
  • Other features: cross-border co-operation, technical assistance

Plus increased EIB lending mandate: €12.4 bn (for Mediterranean/Eastern Europe / Southern Caucasus / Russia)

enpi allocations 2007 2013 11 2 bn enpi 0 8 bn on thematic programmes and hr instrument
ENPI allocations 2007 – 2013: 11.2 bn € ENPI & 0.8 bn € on Thematic programmes and HR instrument

Country and multi-country programmes

Min. 95.0% (> €10.6 bn)

CBC programmes

Up to 5.0%

(+/- € 550 million + additional +/- € 600 million from ERDF)

Earmarked funds under DCI and EIDHR

EIDHR € 321.3 million and DCI € 464.3 million (earmarked for ENP countries and Russia under five thematic programmes)

  • adapted to individual countries
  • 17 country programmes
  • 3 regional programmes (East, South, interregional)


priorities 2007 2008
Priorities 2007-2008

Armenia: Vocational Education and Training (VET), Justice Reform

Azerbaijan: Energy, Justice

Belarus: Energy, Environment

Georgia: Public Finance, Justice, IDPs

Moldova: Social Assistance, Public Health

Russia: Higher Education, CBC

Ukraine: Energy




  • Promoting reforms through consultations and experts (TAIEX, SIGMA)
  • Promoting higher education and student mobility(TEMPUS, Erasmus Mundus II)
  • Promoting cooperation between local actors from partner countries and the EU (CIUDAD)
  • Support in realizing the European Neighbourhood Policies and the strategic partnership with Russia
  • Promoting Investment projects in ENP Partner Countries (NIF)

More info



Priority 1: Establishment of networks (25-35%)

Sub-priority 1: Transport

Sub-priority 2: Energy

Sub-priority 3: Regional cooperation SME

Priority 2: Environmental protection and forestry (25-35%)

Priority 3: Border security, migration, fight against international crime as well as customs (20-30%)

Priority 4: Civil society contacts, information and development actions

(10-15 %)

Priority 5: Landmine cleansing, not exploded war relics, small arms and light arms (5-10%)



Priority Nr. 1:


PriorityNr. 2:


Priority Nr. 3:


  • Governance Facilityadditional financial support for partner countries with strongest development potential for the realization of leadership priorities of the respective action plan
  • Neighbourhood Investment Facility (for the enrichment of IFI-loans in partner countries – grants, to support the loan activities of such institutions in conjunction with the priorities of the EU)
  •  € 450m 2007-10 to foster the areas of Governance and Investments
Cross-Border Cooperation Programs for land borders (9) and sea crossings (3)

anticipating and answering to funding opportunities

Anticipating and answering to funding opportunities

key characteristics and trends of thematic calls for proposals
Key characteristics and trends of thematic calls for proposals
  • Competitive – which tendencies ?
  • Right to initiative
  • Procedural obligations – in order to maximise equality of chances of all applicants and transparency
  • Budget obligations: no core financing, but activity related financing; obligation of co-financing
  • Technicalities are important: HQ or local calls? Amounts? Eligibility?
  • Pooling of funds
good to keep in mind
Good to keep in mind
  • Experience
  • Added value
  • Partnership - In many cases it makes sense to build a consortium. A potential applicant may thus want to involve suitable partners (also from other countries) and discuss plans with them. It can also be useful to involve local partners, depending on the kind of action one is aiming for. It is always an advantage to start building a consortium as early as possible, meet the partners in person and distribute the responsibilities as clearly as possible.
  • Sustainability
  • Impact/multiplier effect
nsa definition in dci how broad is the concept
NSA definition in DCIHow broad is the concept

The non-State, non-profit making actors eligible for financial

support under this Regulation operating on an independent

and accountable basis include: non governmental organisations,

organisations representing indigenous peoples, organisations

representing national and/or ethnic minorities, local traders'

associations and citizens' groups, cooperatives, trade unions,

organisations representing economic and social interests, organisations fighting corruption and fraud and promoting good

governance, civil rights organisations and organisations

combating discrimination, local organisations (including

networks) involved in decentralised regional cooperation and

integration, consumer organisations, women's and youth organisations, teaching, cultural, research and scientific organisations, universities, churches and religious associations and communities, the media and any non governmental associations and independent foundations, including independent political foundations, likely to contribute to the implementation of the objectives of this Regulation.

evaluation full proposal
Evaluation full proposal
  • Financial & Operational Capacity (20 points – pass threshold 12)‏
  • Relevance (25 points – pass threshold 20)‏
  • Methodology (25 points)‏
  • Sustainability (15 points)‏
  • Budget & cost-effectiveness (15 points)‏
  • Register in PADOR – Potential Applicant Data Online Registration system
  • Check the main features of the Call – priorities? Eligibility criteria (nature of the applicant, nationality, experience)? deadlines? partnership requirements (number, nationality)?
  • Prepare application – description of activities, including a working plan and a presentation of partners, logical framework and budget
  • Evaluation, selection and contracting – criteria in the Guidelines. Open and restricted Calls. Timeline.
  • Action implementation
  • Reporting and final payment
  • Get an idea of the types of actions the European Commission funds by browsing EuropeAid's website ( and the websites of the EC Delegations
  • Consult the lists of those who have already received a grant or contract with the EU (
  • Check funding priorities in the multiannual and annual programmes of each instrument. The annual programmes and appropriate action fiches provide a good indication of upcoming funding opportunities (
  • Check the appropriate European Commission website which publishes all calls for proposals and calls for tender ( and the websites of the European Commission's Delegations in the countries of your interest
  • International calls for tenders are simultaneously published in the supplement S of the Official Journal of the European Communities available from the TED (Tenders Electronic Daily) at
  • Learn about the European Commission's external assistance procedures (
  • - Check the annual work programmes for grants which are published by 31 March each year (
evaluation full proposal1
Evaluation full proposal
  • Financial & Operational Capacity (20 points – pass threshold 12)‏
  • Relevance (25 points – pass threshold 20)‏
  • Methodology (25 points)‏
  • Sustainability (15 points)‏
  • Budget & cost-effectiveness (15 points)‏
open call for proposals steps
Open call for proposals: steps

1. Publicity

2. Receipt and registration

3. Opening and administrative check

4. Assessment of the quality of the concept notes

5. Assessment of the technical and financial quality of the proposal

6. Eligibility

7. Committee’s recommendations

8. Approval of the Evaluation Report with list

9. Contract preparation

10. Publicity

PRAG 6.4

key reference links and documents
KEY reference links and documents
  • Guidelines of the Call– priorities, eligibility criteria and contacts to ask questions on a specific call
  • Practical Guide – all the procedures

The European Commission's "Practical Guide" explains the contracting procedures applying to all EC external assistance contracts (grants and public procurement contracts) financed from the European Communities general budget and the European Development Fund (EDF).

  • 2009, launching of the Civil Society Helpdesk (CISOCH) –interactive platform based on a Wiki software for Delegations & Civil Society Organisations.
how to award a grant
How to award a grant?
  • Call for Proposals:
    • Open or restricted
    • International or local
  • Exceptions where direct award may be allowed:
    • urgency or crisis situation
    • de jure or de facto monopoly
    • mention in basic act
    • actions with specific technical characteristics requiring a specific entity
    • joint management with an international organisation
    • grants of low amount (less than 10 000€) in decentralised management

PRAG 6.3

PRAG 6.3


key reference links and documents1
KEY reference links and documents
  • Calls for proposals and calls for tenders:
  • Programmation documents: Instrument (Regulation), Strategy, Annual Action Programme

  • Stakeholder meetings (DCI)

Thank you!EU external assistancein the Neighbourhood EuropeAid Cooperation Office

Jyrki Torni Geographical coordination and supervision for [email protected]