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OECD 1999 182 Table 7.1. EU TACIS: Funds allocated by sector and by year 1991-1997 – C= million – Russian Federation 1991 1992 1993 1994 1995 1996 1997 1998 Total National programme Nuclear safety and environment 12.89 0.00 0.00 0.00 0.00 5.50 5.00 6 30 Restructuring and private sector development 27.20 29.76 54.50 43.40 40.60 31.30 28.70 32 288 HRD and public administration 46.64 24.57 44.00 18.85 52.80 33.80 27.00 33 282 Agriculture 50.85 21.49 12.50 16.30 17.00 10.60 13.00 9 151 Energy 41.50 16.00 21.10 19.50 18.00 11.50 13.00 13 155 Transport 32.87 14.25 13.55 13.90 12.60 8.50 7.00 10 115 Policy advice and SPPs 0.00 0.00 0.00 18.95 0.00 26.00 31.00 0 76 Telecommunications 0.00 4.93 5.10 4.10 5.40 3.00 4.00 2 28 Others 0.00 0.00 10.00 15.00 14.79 2.80 4.20 10 57 Total 211.95 111.00 160.75 150.00 161.19 133.00 132.90 112 1 179 Other programmes Regional programmes* 106 89 172 132 125 152 135 140 1 051 Donor co-ordination** 0 35 21 25 40 43 37 36 237 Programme impl. support*** 6 24 11 21 23 38 34 35 192 Others**** 0 0 0 10 10 11 12 10 53 Total 112 148 204 187 198 244 218 221 1 532 Other for Russia (estimate) 56 74 102 94 99 122 109 111 766 Grand total (estimate) 56 74 102 94 99 122 109 223 1 945 * Includes Interstate. ** Includes EBRD, Bangkok facility, PCA, International Science and Technology Centre. *** Includes Co-ordinating Units, Monitoring, Information; **** Includes Democracy programme. Source: National programme data are from EU Delegation in Moscow, report dated 20 June 1995; subsequent data are from Action Programmes. The interstate data are from official records. The Commission has approved the estimate of the Russian part. Evaluating Country Programmes
Issues for Country Evaluation: The Case of the EU Country Programme in Russia This is a very complex exercise, since in most cases the CP is not conceived as a coherent exercise, but is the sum of a number of apparently heterogeneous programmes. Especially over the last ten years, many development co-operation agencies have made an effort to attain CP coherence, and ex-ante country strategy papers have been prepared. In the case of the European Commission (EC), a number of mechanisms have been employed such as National Indicative Programmes (NIPs) and Country Specific Programme (CSPs). Although the importance of these mechanisms may be increasing, the bulk of a country programme has a strong inertia and its design and implementation represent the actual levels of partnership between the donor and the recipient countries more realistically than any country paper. The case of the Tacis programme in Russia is particularly rich in terms of guidelines and programming documents. One policy document and three different programming tools are used. These are: – The Tacis Regulation, approved by the EU Council in 1991, 1993 and 1996, which sets out the general objectives, the policy framework, and the basic guidelines for the whole programme. – The Indicative Programme, which is agreed upon every three years between EU and each country participating in the programme, and includes general policy statements, priority areas of co-operation, sectoral concerns, and a global financial package. – The Action Programme, which is set every year, and includes the list of programmes and projects to be financed during the year, and their relevant budget allocations. Just to read these programmes is not sufficient to understand the full strategy of Tacis CP in Russia. If we consider the Tacis Regulations and the main elements of the Indicative Programmes, for instance, the objectives of Tacis strategy in Russia – at least during the period 1993-1999 – could be summarised as follows: – To build the framework for a market economy: OECD 1999 Focus on know-how transfers and human resources development. Enhancing privatisation and enterprise restructuring. Support the establishment of a new legal and institutional framework. – To strengthen the democratic process: Support good governance and decentralisation. Support the participation of civil society. 183
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