# EUR-Lex - 52011SC1460 - EN

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# 52011SC1460

**COMMISSION STAFF WORKING PAPER EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT /* SEC/2011/1460 final - */**

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1. 
PROBLEM DEFINITION

This impact assessment relates to the
preparation of the 11th European Development Fund (EDF) covering EU funding for
cooperation with African, Caribbean and Pacific (ACP) States and Overseas
Countries and Territories (OCTs).

The problem to be tackled in ACP States is
the high-level poverty, and the need for the EU to support their efforts
towards reducing poverty, attaining sustainable development and achieving
integration into the world economy, whereas OCTs continue to face specific
economic and social development problems which can have serious
implications for their specific environments. The external dimensions of EU
internal policies have been taken into account in the Commission's analysis.

2. 
ANALYSIS OF SUBSIDIARITY

The EU has clearly identified the areas
where it can offer added value in the EDF and has focused its funds
strongly on budget support, governance and infrastructure. The 10th EDF has
also demonstrated its added value in the form of strong responsiveness. By
keeping unallocated funds in the EDF to cover unforeseen needs and by using
innovative instruments such as FLEX and V-FLEX, the EU has been able to play a
key role vis-à-vis ACP States facing disasters or food, economic and financial
crises.

For EU Member States, the ACP-EU
partnership and the EDF offer a global reach and a means of implementing a
consistent set of objectives across 77 ACP States. In terms of presence,
scale and focus, EDF operations offer significant benefits over national actions.
This critical mass puts the EU in a better position to conduct political
dialogue with partner governments. The EU also has a long-standing reputation
and role as a promoter of inclusiveness and multilateralism. Thanks to its
large scale, the EU can deliver help to the poor in some of the world’s most
remote areas, where most of the Member States have no strategic interest and
their presence is limited.

EU interventions through the EDF in OCTs have added value because, in many cases, it is the only other donor
apart from the Member States to which the OCTs are constitutionally linked. It
has ensured both that OCT-EU cooperation has sufficient funding available and
that it is consistent with EU cooperation with ACP countries, of which most
OCTs are direct neighbours.

3. 
OBJECTIVES OF EU INITIATIVE

The general objectives of the 11th EDF remain
those laid down in the revised Cotonou Agreement (Article 1) and in Part IV of
the Treaty on the Functioning of the European Union (Article 198) for OCTs.

In addition, as
regards the specific objectives for the revision of the instrument, the
policy framework for the preparation of the 11th EDF consists of the
communication ‘Increasing the impact of EU development policy: an Agenda for
Change’ adopted on 13 October 2011 on the one hand, and the guidelines for the
revision of the Overseas Association Decision (OAD) on EU-OCT relations on
the other hand. The tools for implementing this framework are the 11th EDF Internal
Agreement and the related Implementing Regulation, Financial Regulation and
programming guidelines. The impact assessment logic (underlying
drivers, objectives, options and impacts) is based on the following themes stemming
from the framework: differentiation, concentration, coordination with Member
States, innovative instruments, flexibility, and regional cooperation (which is
specific to OCTs).

4. 
POLICY OPTIONS

For each theme,
two scenarios (the status quo and an alternative option) are considered. For
the alternative option, the implications of the following changes for the
various elements of the EDF ‘package’ (internal agreement, implementing and
financial regulations) are underlined:

· 
the differentiation principle i.e.
allocating more funds to the least developed partners and less development
grant aid to the more advanced;

· 
the concentration of EU aid on sectors
where it can have the greatest impact, i.e. on a limited number of areas;

· 
increased coordination with the Member
States: for ACPs, the joint programming process could result
in a single, joint programming document for each partner country or, as a
minimum option, an agreement on division of labour. For OCTs, this alternative
option would seek — where possible —a better alignment of the EU and Member
States’ programmes. In addition, the possibility of creating EU Trust Funds managed
by the Commission for ACPs could be introduced;

· 
reinforcement of the use of innovative
financial instruments, i.e. blending mechanisms to boost financial
resources for development. In certain ACP countries or regions, an increasing
percentage of EU development resources could be used through (existing or) new
financial tools, such as blending grants with loans from European financing institutions
or other risk-sharing mechanisms;

· 
reinforcement of the flexibility elements of
the EDF, including: (i) allowing initial allocations to be limited in
order to keep more funds aside (reserves) for topping-ups or special
allocations for specific sectors or initiatives; (ii) defining specific forms
of support for countries in situations of fragility, transition or crisis;
(iii) focusing EU efforts on response strategies directly linked to existing
partner countries’ policies, in the programming phase;

· 
making the use of OCT resources for regional
cooperation conditional upon their added value with regard to furthering
regional cooperation with ACPs and outermost regions.

5. 
ASSESSMENT OF IMPACTS

Regarding differentiation, under the
status quo option, the Commission-managed aid would continue to contribute to the
general objectives, particularly poverty reduction, with a global reach and a
global presence, but its impact and efficiency would not be maximised in
certain countries, resulting also in lower progress on Millennium Development
Goals (MDGs). Under the alternative option, a sharpened geographical focus
would lead to targeting resources where they are most needed and have the greatest
possible impact and value added in ACPs and OCTs. With the more advanced
partners, the EU would define alternative forms of cooperation and dialogue
through the most appropriate policy mix.

Regarding concentration, under the
status quo option, the Commission-managed aid would continue to be delivered in
a relatively wide range of sectors, without tackling the problem of aid
fragmentation. Under the alternative option, a sharpened sectoral focus would
contribute to the higher impact of EU aid by concentrating resources on a
limited number of sectors, thus increasing the EU’s critical mass. The
risk of losing visibility for the EU in certain sectors at country level would
have to be mitigated by effective division of labour and increased coordination
with other funding sources.

Regarding coordination with EU Member
States, under the status quo option the problem of aid fragmentation and
the risk of overlaps would not be tackled. Under the alternative option, the
efficiency and the political leverage of EU aid could be reinforced through
increased division of labour among donors, joint programming and the use of EU
Trust Funds.

Regarding the use of innovative
financial instruments, under the status quo option the impact and
efficiency of EU grants would not be maximised. Under the alternative option, the
financial leverage of EU grant resources would be increased through blending
and other risk-sharing mechanisms, as would the critical mass, particularly for
large-scale projects.

Regarding flexibility, under the
status quo option, some ‘flexible’ features of the EDF would remain but in some
cases it would not be flexible enough to respond to partners’ specific
situations. Under the alternative option, aid allocations could be adapted
rapidly to take into account evolving circumstances or specific situations
(such as crisis, fragility or transition), or to implement a more
incentive-based approach, thereby increasing not only the effectiveness and
reactivity of EU aid but its ownership by partners.

Regarding regional cooperation with OCTs,
under the status quo option the interaction and integration of OCTs in regional
cooperation with ACPs and outermost regions would remain limited. Under the
alternative option, the efficiency and impact of EU resources would be
reinforced both through better articulation between EDF and EU regional
cooperation resources and through the participation of OCTs in regional
programmes with ACPs.

6. 
COMPARISON OF OPTIONS

The comparison of the options’ impact on the
chosen objectives concludes that for each specific objective, the
alternative option is preferred over the status quo as the best approach to
tackling the problems identified and to responding to the general and specific
objectives. These options better reflect the revised policy orientations of EU
development policy and the new orientations for the EU-OCT relationship, which
would contribute to further increasing the effectiveness and maximising the impact
of EU funding on ACP countries and OCTs.

7. 
MONITORING AND EVALUATION

The Commission already has regular
monitoring and evaluation systems in place, covering the breadth of its aid
programme. They involve both internal staff and external expertise. The systems
evaluate country strategies, individual programmes and projects. In addition,
external, independent experts are contracted to assess the performance of EU
external action. The Commission also conducts strategic evaluations of its
policies, from programming and strategy to implementation of interventions in a
specific sector, a country or region, or a specific instrument. Regarding the EDF, the essential elements and the basis for
the EU intervention are set out in the EDF implementing regulation. The results of EU assistance on poverty
eradication are measured using as far as possible specific and measurable
indicators. Particular attention is paid to progress made towards achieving the
MDGs.