Final Report - European Commission - Europa

Chapter 3 Explaining the performance of the Phare programme 31
As in other sectors, impact has been further limited by slow and inefficient implementation. 58
Even the relatively successful IPRS has experienced implementation problems.
Local Community Development
Support for local community development has been provided through the Albanian
Development Fund, an organisation that grew out of the World Bank’s Poverty Alleviation
Programme, and has for the most part been directed towards the provision of rural
infrastructure (with roads and bridges representing over 50%). The programme has produced
relatively quick outputs – extremely quick relative to Phare implementation. They are likely
to contribute to development and poverty reduction at a local level, although – given a lack of
monitoring and assessment – assessing the sustainability is difficult. The project has also had
a positive impact on the development and performance of the local construction industry and
on employment. 59 Local commitment to the projects is ensured by requiring a small financial
contribution to the project costs.
The ADF is an autonomous non-governmental body answering to a board (which includes
ministerial representation). It is also generally regarded as an Albanian rather than a donor
organisation. Many donors are using the ADF, because of its capacity to channel funding to
small infrastructure projects aimed at assisting local community development.
The efficiency of the ADF is hindered by Phare procedures and regulations, which are often
not compatible with those of other donors (most of whom adopt World Bank procedures).
Phare funded projects also lack monitoring and assessment (particularly beneficiary
assessment). This makes it difficult to form a judgement on the relative importance of
“bottom-up” community participation, as well as other aspects of project development.
The programme has experienced a number of serious hiatuses. One related to the submission
of a weak work programme by the PMU, followed by an exceedingly protracted revision and
approval process emanating from delays in Brussels. The programme was further halted for a
long period for audit, because of some procedural and accounting problems. However, it
would appear that these issues are being addressed.
Sustainability of many projects is likely to be low because of the absence of a maintenance
policy on the part of local governments (who ultimately assume responsibility for the
infrastructure). Phare support has not targeted poverty, which was not regarded as a priority
PHARE objective. Instead, ADF stated in interviews with the Evaluators that EC policy has
been to distribute resources evenly across the country, for political reasons.
C. Democracy and the Rule of Law
Phare has had little impact on democracy and the rule of law, despite significant –but
weakly designed- programmes in the justice and police sectors. Phare has offered
very limited support to civil society and NGOs. However, the EC and a number of
Member States provided important support in the immediate aftermath of the 1997
crisis.
In the immediate aftermath of the 1997 civil disorder, the EU and a number of Member States
took actions that had a positive impact on the restoration of order and the rule of law. Partly
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59
See “Audit of Agriculture Projects”, Draft Final Report, April 2001, ADE S.A.
Only local contractors are used and they have to abide by rigorous tender procedures.