Final Report - European Commission - Europa

Chapter 3 Explaining the performance of the Phare programme 33
the part of other donors), they have yet to have a significant impact in promoting integration.
The same applies to construction work at the ports, where, in addition to slow
implementation, budgetary shortfalls will result in projects that are only partially complete.
Funds were also allocated for the construction of border crossings with Greece. Here
implementation has been also extremely poor. Financial and contractual irregularities were
identified by a recent review commissioned by the Delegation (see section 3D).
In the aftermath of the Kosovo crisis, the emphasis being given to regional integration of
transport networks has intensified 60 . In this context, the Albanian government, whilst
evidently committed to the Stability Pact and SAP, will also be aware that investments that fit
this agenda will have the best chance of securing external funding. In this environment, there
is a risk that investment priorities could become distorted. At the same time, the analytical
basis for the heavy emphasis on the rehabilitation of international transport corridors in
Albania is not well developed. Albania, although predominantly agricultural, has become
dependent on agricultural imports. Investment in major transport corridors, without
corresponding investment in secondary and tertiary networks, could therefore further erode
the competitiveness of local agriculture. Except in a limited and ad hoc fashion, this
complementary investment is not occurring.
Institutional reform
Improvements in Justice and Police (and more generally on public administration reform) are
essential for eventual integration of Albania with the EU. However, as discussed earlier,
Phare programmes have had a limited impact in these areas. The 2001 programme expands
this support to even more complex areas such as asylum and migration management; and
integrated border controls (including IT components). Unfortunately, success in these areas
will be even more difficult to achieve than in previous activities.
There have also been a number of interventions directed specifically at harmonisation and
approximation of Albanian law and policy with EU norms. For example, the policy advisory
function to the Ministry of Agriculture was in principle directed at the creation of a “Towards
Europe Policy Unit”. However, in practice, it did not serve this function, and had no
significant output related to EU integration. 61 In the Ministry of Justice, Phare has recently
supported the establishment of a Directorate of Approximation to EU legislation.
In general, it is unlikely that these complex and very specific programmes will achieve any
significant impact given the overall quality of Albanian public administration. Indeed, the
focus on EU harmonisation and integration issues may distract resources and staff from the
more basic and strategic objective of improving public administration in Albania.
The goal of European integration remains popular in Albania. However, interviews with the
Evaluators indicated that the EU’s image has been affected by the slow pace of
implementation and poor project management of Phare interventions.
EU integration and development objectives
There is also, as noted in Chapter 1, a question of the strategic choices implied by a focus on
EU integration: does it imply an EU focus on transport infrastructure connecting Albania with
Italy and Greece at the expense of the transport network within Albania (one “unintended
consequence” of EU integration so far has been that many staple foods, such as tomatoes,
60
61
For example, the EC publication ‘Albania – a future with Europe’ states, “….Direct roads
between main cities are crucial. Albania also needs to be connected with its neighbouring
countries, and become and integral part of the Trans-European road network. Both the Phare
Cross Border Programme and overall Phare funds focus on the development of efficient
transport systems in strategic locations….”
Audit of Agriculture Projects, Draft Final Report, April 2001, ADE S.A.