Guidance document on monitoring and evaluation : European cohesion policy, ERDF : concepts and recommandations.
Date: 2016-02-10
Institutions: Directorate-General for Regional and Urban Policy
Subjects: EU programme, economic and social cohesion, fund (EU), regional development, regional policy, user guide

THE PROGRAMMING PERIOD

March 2014

EUROPEAN COHESION FUND 
EUROPEAN REGIONAL DEVELOPMENT FUND

Concepts and Recommendations

Regional and
Urban Policy

 
 
THE PROGRAMMING PERIOD 

March 2014

EUROPEAN COHESION FUND 
EUROPEAN REGIONAL DEVELOPMENT FUND

Concepts and Recommendations

 
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ISBN: 978-92-79-45496-7
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Preface 

Cohesion policy is a visible expression of solidarity across the European Union and represents a very 
substantial  part  of  the  budget  of  the  European  Union.  Citizens  expect  to  know  what  has  been 
achieved  with  public  money  and  want  to  be  sure  that  we  run  the  best  policy.  Monitoring  and 
evaluation have a role to play to meet such expectations.  

This document provides concise guidance for programmes that cover a wide variety of themes and 
contexts.  We  believe  that  this  concise  approach  is  the  right  one,  given  the  rich  experience  that 
Member  States  and  Commission  have  accumulated  in  the  past  years.  The  paper  sets  out  some 
important  changes  in  the  understanding  and  organisation  of  monitoring  and  evaluation.  The  most 
important  one  is  the  emphasis  on  a  clearer  articulation  of  the  policy  objectives.  This  is  key  to 
implement a results oriented policy and moving away from an excessive focus on the absorption of 
funding.  The  second  major  concern  is  the  better  specification  of  differences  in  tasks  between 
monitoring  and  evaluation.  It  sets  out  more  clearly  the  different  types  of  evaluation  and  calls  for 
more methodological rigour in capturing the effects of our interventions.  

With a view to summarising selected information about the implementation of programmes, annex 1 
of  the  guidance  paper  sets  out  definitions  of  common  output  indicators,  to  be  applied  in  all 
programmes, when appropriate. 

The  paper  also  advocates  some  important  standards  that  should  guide  our  work.  Appropriate  and 
rigorous methods are a necessary base for the credibility of evaluation. Transparency throughout the 
whole  process,  starting  from  the  design  of  Terms  of  Reference  up  to  the  publication  of  reports  is 
another key ingredient to ensure quality and unbiased results. 

This  paper  does  not  include  detailed  guidance  on  evaluation  methods  or  on  the  assessment  of 
projects. Guidance on methods is given in the online portal EVALSED, maintained and updated on 
the website of the Directorate-General for Regional and Urban Policy. The paper also does not deal 
with Commission proposals on conditionality and the performance framework, specific guidance on 
these issues may be provided. While Structural Funds are governed by the same general regulation, 
some differences occur when it comes to implementation. Therefore this guidance paper covers the 
European  Regional  Development  Fund  and  the  Cohesion  Fund.  For  the  European  Social  Fund,  a 
separate guidance paper has been issued.  

Governance  shared  between  Member  States,  regions and  the  European  level  is  a  central  feature  of 
Cohesion  Policy.  The  success  and  relevance  of  monitoring  and  evaluation  will  depend  on  the 
commitment of actors at all levels. The Commission sees as one of its main tasks the facilitation of 
exchanges of experience across Member States and reaching out to the academic community to make 
the  best  ideas  available  for  the  policy.  We  will  continue  to  learn,  to  fail  in  some  cases  but  aim  to 
improve systematically our policy. We must remain open to include new ideas in order to maintain 
the relevance of our approach and of the guidance provided. 

*** 

The Evaluation Unit of the Directorate-General for Regional and Urban Policy would like to thank 
the  representatives  of  Member  States  in  the  evaluation  network  on  regional  policy  and  the 
representatives of the academic world for their critical comments and generous advice to make this 
paper both theoretically sound and practically useful. Our special thanks go to Harvey Armstrong, 
Massimo Florio, Frans Leeuw, Alberto Martini and Frank Vanclay. 

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Table of contents 

1.  KEY CONCEPTS.................................................................................................................... 4 

1.1.  Intervention logic of a programme as starting point. Results and result indicators.......... 4 
1.2.  Monitoring and evaluation: supporting management and capturing effects..................... 5 
1.2.1  Monitoring............................................................................................................ 6 
Evaluation............................................................................................................. 6 
1.2.2 
1.2.2.1 Impact evaluation – capturing effects ................................................................ 6 
1.2.2.2 Implementation evaluation – the management side ........................................... 8 
1.2.2.3 The evaluation of integrated programmes.......................................................... 9 

2.  STANDARDS FOR EVALUATIONS .......................................................................................... 9 

3.  PRACTICAL POINTS FOR THE PROGRAMMING PERIOD 2014-20 FOR EUROPEAN REGIONAL 
DEVELOPMENT FUND AND COHESION FUND ............................................................................. 10 

3.1  Programming .................................................................................................................. 10 
3.1.1  Clear objectives and selection of result indicators ............................................. 10 
3.1.2 
The role of output indicators .............................................................................. 11 
3.1.3  Common indicators ............................................................................................ 12 
3.2  Ex ante evaluation of operational programmes .............................................................. 12 
3.3  Monitoring – the annual implementation report ............................................................. 13 
3.4  Evaluation during the programming period.................................................................... 14 
3.5  The evaluation plan......................................................................................................... 15 
Establishing an evaluation plan.......................................................................... 15 
Elements of an evaluation plan .......................................................................... 16 
Examination and amendment of evaluation plan ............................................... 16 
3.6  The use of evaluations .................................................................................................... 16 
3.7  Ex post evaluation........................................................................................................... 17 
3.8  Transparency................................................................................................................... 17 
3.9  Role of the European Commission ................................................................................. 17 

3.5.1 
3.5.2 
3.5.3 

ANNEXES ............................................................................................................................... 20 

List of Common Indicators ...................................................................................................... 20 
Examples for the use of result indicators ................................................................................. 32 
A structure of evaluation standards:......................................................................................... 37 
Recommended reading............................................................................................................. 39 

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1. KEY CONCEPTS 

A  common  understanding  of  key  concepts  and  terms  of  programming,  monitoring  and  evaluation 
should form  the basis of their practical application by regions, Member  States and the  Commission. 
Section 1 of this document undertakes to facilitate such shared understanding1. 

1.1. Intervention logic of a programme as starting point. Results and result indicators2. 

The  starting  point  in  designing  any  public  intervention  is  to  identify  a  problem  to  be  addressed.  As 
there will be always a multitude of real or perceived needs, the decision on which unmet needs should 
be tackled is the result of a deliberative social process (a "political decision"). It is part of this process 
to also define the direction of the desired change and sometimes the desired situation that should be 
arrived  at  (target).  A  public  intervention  often  will  aim  at  more  than  one  result.  For  instance, 
investment in the railway network might aim to improve the accessibility of a region and to reduce the 
burden on the environment. 

Results and result indicators 
The  intended  result  is  the  specific  dimension  of  well-being  and  progress  for  people3  that  motivates 
policy action, i.e. what is intended to be changed, with the contribution of the interventions designed. 
An example is mobility, the improvement of which is the aim of building transport infrastructures, for 
instance a new railway line. 

Once a result has been chosen it must be represented by appropriate measures. This can be done by 
identifying one or more result indicators. Examples for the above case of railways are travel time, CO2 
emissions and traffic fatalities. A reduction in these dimensions could be the objective of a policy. 

Result indicators are variables that provide information on some specific aspects of results that lend 
themselves to be measured. 

Selecting clear result indicators facilitates understanding of the problem and the policy need and will 
facilitate a later judgement about whether or not objectives have been met. In this context it is useful 
to set targets for result indicators.  

Having identified needs and a desired result does not yet mean that the public intervention has been 
fully  designed.  Different  factors  can  drive  the  intended  result  towards  or  away  from  the  desired 
change. A policymaker must analyse such factors and decide which ones will be the object of public 
policy.  In  other  words,  an  intervention  with  a  certain  intervention  logic  must  be  established.  For 
example,  if  number  of  traffic  accidents  is  the  result  indicator  of  a  programme,  safer  roads,  a  modal 
shift  towards  rail  or  a  better  behaviour  of  drivers  could  be  assumed  to  change  the  situation.  The 

1 Section 1 provides a general discussion of key concepts for monitoring and evaluation. Specific legal terms of 
structural funds regulations are applied only in the following sections. 
2  This  section  benefits  from  the  methodological  note  "Outcome  indicators  and  targets"  produced  for  DG 
Regional  Policy  by  an  expert  group  led  by  F.  Barca  and  P.  McCann.    In  this  paper,  the  meaning  of  the  term 
"result" is the same as "outcome" in the Barca/McCann paper. In most languages there is only one word for both 
terms.  For  further  information  on  the  definition  of  ESF  result  indicators,  please  consult  the  upcoming  ESF 
guidance paper on evaluation and monitoring 
3  The  notion  of  change  also  comprises  changes  in  behaviour,  social  practices,  institutions  etc.  Desired  results 
include changes to be achieved via a "horizontal" approach (e.g., environmental objectives) because the question 
remains the same: What should be changed by the public intervention? 

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programme designers must clarify which of those factors they want to affect. The specific activity of 
programmes leads to outputs.  

Outputs are the direct products of programmes; they are intended to contribute to results.  

The  intention  to  change  the  situation  in  a  certain  region,  for  a  sector  or  group  of  people  (potential 
beneficiaries) is the raison d’être of the programme.  However, public investment programmes  often 
cannot support all persons, areas or enterprises that  are concerned by a problem. In most cases only 
some potential beneficiaries will become actual beneficiaries.  

It  can  be  useful  to  illustrate  an  intervention  graphically  by  a  logical  framework.  Such  a  stylised 
representation of a programme should reflect that an intervention can lead to several results and that 
several  outputs  can  lead  to  these  changes.  Equally,  it  can  be  useful  to  differentiate  the  result(s)  by 
affected groups and time horizons. 

Graph 1 illustrates outputs, results and impacts in a simplified logical framework for the purposes of 
programming and monitoring and evaluation. Note that use and place of "impact" has changed from 
former guidance provided by DG Regional Policy. Section 1.2 below explains the part of monitoring 
and evaluation, including the use of the term impact. 

Graph  1:  Outputs,  results  and  impact  in  relation  to  programming,  monitoring  and  evaluation 

Programming 

Strategy 

Monitoring and 
Evaluation 

Needs 

Specific 
Objective 

Intended 
Result 

Actual 
Result 

Other  
Factors 

Operations 

Allocated 
INPUTS 

Actual 
INPUTS 

Contribution (impact)  

Targeted 
OUTPUTS 

Achieved 
OUTPUTS 

1.2. Monitoring and evaluation: supporting management and capturing effects 

The public expects managing authorities to fulfil two essential tasks when running a programme:  

-

-

to deliver the programme in an efficient manner (the management of a programme) and  

to assess whether a programme has produced the desired effects.  

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We  will  argue  below  that  monitoring  is  a  tool  serving  foremost  the  management  purpose,  while 
evaluation contributes to both tasks. Learning is an overarching objective of all evaluations. 

1.2.1  Monitoring 

To monitor means to observe. Monitoring of outputs means to observe whether intended products are 
delivered and whether implementation is on track.  

Cohesion  policy  programmes  are  implemented  in  the  context  of  multilevel  governance  with  a  clear 
demarcation  of  roles  and  responsibilities.  The  actors  in  this  system  –  implementing  agencies, 
managing authorities, the national and the EU level – differ in their information needs to  be met by 
monitoring.  One  of  the  tasks  at  the  European  level  is  to  aggregate  certain  information  across  all 
programmes  in  order  to  be  accountable  to  the  Council,  Parliament,  the  Court  of  Auditors  and  EU 
citizens  in  general  on  what  Cohesion  Policy  resources  are  spent  on.  This  is  the  task  of  common
indicators defined at EU level.  

Monitoring also observes changes in the result indicators (policy monitoring). Tracking the values of 
result indicators allows a judgement on whether or not the indicators move in the desired direction. If 
they do not, this can prompt reflection on the appropriateness and effectiveness of interventions and on 
the  appropriateness  of  the  result  indicators  chosen.  Note  that  policy  monitoring  means  tracking  the 
development for all potential beneficiaries, not just for actual beneficiaries.  

The  values  of  result  indicators,  both  for  baselines  and  at  later  points  in  time,  in  some  cases  can  be 
obtained from national or regional statistics. In other cases it might be necessary to carry out surveys 
or to use administrative data, such as registry of enterprises or unemployment benefit recipient data. 

1.2.2  Evaluation 

Changes  in  the  result  indicator  are  due  to  the  actions  co-financed  by  the  public  intervention,  for 
example  by the Funds, as well as other factors. In other words, the difference between the situation 
before and after the public intervention does not equal the effect of public intervention: 

Change in result indicator ═ contribution of intervention + contribution of other factors 

Only the left hand side of this equation can be observed.   

Impact is the change that can be credibly attributed to an intervention. "Effect of an intervention" or 
"contribution of an intervention" are alternative expressions for this idea. 

1.2.2.1 Impact evaluation – capturing effects 

To disentangle the effects of the intervention from the contribution of other factors and to understand 
the  functioning  of  a  programme  is  a  task  for  impact  evaluation.  Two  distinctive  questions  are  to  be 
answered:  

-

did the public intervention have an effect at all and if yes, how big – positive or negative – was this 
effect. The question is: Does it work? Is there a causal link? This is the question counterfactual 
impact evaluations aim to answer. 

- why an intervention produces intended (and unintended) effects. The goal is to answer the “why 
and  how  it  works?”  question. To  answer  this  question  is  the  aim  of  theory-based  impact 
evaluations.

Note that both questions cannot exist in complete separation from each other: Each evaluation asking 
the "does it work" question needs to assume basic elements of a theory of change (a how? and why?) 

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to determine which changes should be looked at and attributed to a cause. Similarly, every evaluation 
asking  "why  it  works?"  will  assume  –  maybe  implicitly  –  a  counterfactual  situation.  This  is  the 
conceptual  level  at  which  the  two  wings  of  impact  evaluation  share  some  features,  whilst  primarily 
answering the two different questions of "does it work?" and "why?". 

The  importance  of  theory-based  impact  evaluations  stems  from  the  fact  that  a  great  deal  of  other 
information,  besides  quantifiable  causal  effect,  is  useful  to  policy  makers  to  decide  what  policy  to 
implement  and  to  be  accountable  to  citizens.   The   question  of  why  a  set  of  interventions  produces 
effects,  how,  for  whom  and  under  what  conditions,  intended  as  well  as  unintended,  is  as  relevant, 
important, and equally challenging, if not more, than the “made a difference” question. This approach 
does not mainly produce a quantified estimate of the impact,  it produces a narrative.  Theory-based 
evaluations can provide a precious and rare commodity, insights into why things work, or don’t and 
under  what  circumstances.   The  main  focus  is  not  a  counterfactual  (“how  things  would  have  been 
without”)  rather a theory  of change (“did things work as expected to produce the desired change”).  
The centrality of the theory of change justifies calling this approach theory-based impact evaluation.  

Typical methods include literature reviews, administrative data analysis, case studies, interviews and 
surveys  in  order  to  reconstruct  and  verify  the  intervention  logic.  Often  mentioned  approaches  are 
realist evaluation, general elimination methodology, contribution analysis and participatory evaluation. 
A good evaluation of this type will always be open to flag up unintended effects. Such effects and the 
understanding of their mechanisms can be as important as the intended intervention logic. 

Counterfactual impact evaluation is a set of techniques borrowed from statistical and medical science. 
They  have  the  potential  to  provide  a  credible  answer  to  the  question  "Does  it  work?".  The  central 
question of counterfactual evaluations is rather narrow — how much difference does a treatment make 
 and produces answers that are typically numbers, or more often differences, to which it is plausible to 
give  a  causal  interpretation  based  on  empirical  evidence  and  some  assumptions.   Is  the  difference 
observed in the outcome after the implementation of the intervention caused by the intervention itself, 
or by something else? Evaluations of this type are based on models of cause and effect and require a 
credible  and  rigorously  defined  counterfactual  to  control  for  factors  other  than  the  intervention  that 
might account for the observed change.  

Typical  methods  are  difference-in-difference,  discontinuity  design,  propensity  score  matching, 
instrumental  variables  and  randomised  controlled  trials.  The  existence  of  baseline  data  and 
information  on  the  situation  of  supported  and  non-supported  beneficiaries  at  a  certain  point  in  time 
after the public intervention is a critical precondition for the applicability of counterfactual methods. 
Naive before-and-after comparisons, often used in practice, assume that the influence of other factors 
is negligible. If this assumption is made, this should be explicit and might be acceptable as a “rule of 
thumb approach” in some few cases, for instance in the example of connecting households to a waste 
water treatment.  

Note  that  counterfactual  methods  can  typically  be  applied  to  only  some  interventions  (e.g.,  training, 
enterprise support), i.e. relatively homogenous interventions with a high number of beneficiaries. If a 
public authority wishes to estimate the effects of interventions for which counterfactual methods are 
inappropriate (for instance, for major infrastructures), other methods can be used. For example, for a 
road project this could be an ex post cost-benefit-analysis or a sectoral transport model. 

Ideally,  counterfactual  and  theory  based  approaches  should  complement  each  other.  Policymakers 
should use the results of both sets of methods as they see fit. Even assuming that the counterfactual 
methods proved that a certain intervention worked and could even put a number on this, this is still a 
finding  about  one  intervention  under  certain  circumstances.  Qualitative  evaluation  techniques  are 
needed to understand to which interventions these findings can be transferred and what determines the 
degree of transferability. 

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Impact evaluations of both types are carried out during and after the programming period. The ex ante 
evaluation of programmes can be understood also as a theory-based analysis, assessing the strength of 
the theory of change and the logical framework before the programme is implemented. An important 
task  is  to  look  into  different  possible  interventions  and  to  select  those  most  likely  to  achieve  the 
programme goals at the least cost. 

Box 1: Is there an ideal evaluation guaranteeing valid answers? 

As illustrated in the example of impact evaluations, all methods and approaches have their strengths 
and weaknesses. All evaluations need: 

-  To  be  adapted  to  the  specific  question  to  be  answered,  to  the  subject  of  the  programme  and  its 

context. 

-  Whenever  possible,  evaluation  questions  should  be  looked  at  from  different  viewpoints  and  by 

different methods. This is the principle of triangulation. 

- The costs of evaluation need to be justified by the possible knowledge gain. When deciding on an 

evaluation what is already known about an intervention needs to be considered. 

In sum: Choice and combination of methods need to be decided on a case-by-case base. A range 
of methods is available and there is no "best" method for all circumstances.  

Closing the policy cycle 

Impact  evaluations  of  both  types  will  first  of all  explore  if  and  how  the  public  intervention 
under  scrutiny  made  a  difference  for  the  beneficiaries.  However,  a  good  evaluation  should 
also relate its findings (e.g., the impact on beneficiaries) to the policy monitoring (see section 
1.2.1) that looks at the entirety of potential beneficiaries. The reason for this is that it was a 
perceived need of a region, a sector or a group of people that triggered the intervention in the 
first place. So after an appropriate duration, authorities should ask if the problem identified in 
the beginning has been fixed. Was the effect of the intervention big enough to matter? In other 
words, was the intervention useful?  

1.2.2.2 Implementation evaluation – the management side 

Implementation  evaluations  look  at  how  a  programme  is  being  implemented  and  managed.  Typical 
questions are whether or not potential beneficiaries are aware of the programme and have access to it, 
if  the  application  procedure  is  as  simple  as  possible,  if  there  are  clear  and  relevant  project  selection 
criteria,  is  there  a  documented  data  management  system,  are  results  of  the  programme  effectively 
communicated. 

Evaluations of this type typically take place early in the programming period. 

Box 2: Impact evaluations are needed 
To  date  Cohesion  Policy  evaluations  have  tended  to  focus  more  on  implementation  issues  than 
capturing  the  effects  of  interventions.  For  the  2014+  period,  the  Commission  wishes  to  redress  this 
balance and encourage more evaluations at EU, national and regional level, which explore the impact 
of Cohesion Policy interventions on the well-being of citizens, be it economic, social or environmental 
or  a  combination  of  all  three.  This  is  an  essential  element  of  the  strengthened  result-focus  of  the 
policy. 

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1.2.2.3 The evaluation of integrated programmes 

Most regional policy programmes are of an integrated, complex nature. This means that different parts 
of programmes are planned to interact and to reinforce each other in their working. The evaluation of 
such programmes represents a special challenge.  

One  strategy  is  to  evaluate  first  of  all  the  components  of  an  integrated  programme  separately.  The 
effectiveness of the components is typically a necessary condition for the effectiveness of the package. 
If  their  effectiveness  can  be  demonstrated,  it  becomes  more  plausible  that  the  whole  programme  is 
delivering  on  its  objectives.  In  a  next  step,  we  could  evaluate  if  the  combination  of  two  or  more 
interventions is more effective than a single intervention. 

Theory-based  evaluations  could  assess  if  the  intervention  logic  of  the  different  components  fit  with 
each other and make synergies likely to occur. This could be done both during the ex ante evaluation 
and during a programming period. 

Thirdly, it is possible to assess the effect of an integrated programme as a whole. Traditionally this has 
been  undertaken  for  large  programmes  by  macroeconomic  models.  Other  methods  are  also  being 
tested,  for  example  counterfactual  methods  comparing  the  development  of  supported  with  non-
supported regions4.  

2. STANDARDS FOR EVALUATIONS 

In  order  to  ensure  the  quality  of  evaluation  activities,  the  Commission  recommends  Member  States 
and regions to base their work on clearly identified standards, established either by themselves or to 
use  European  Commission  standards  or  those  of  national  evaluation  societies,  the  OECD  and  other 
organisations.  Most  of  the  standards  converge  on  principles  such  as  the  necessity  of  planning,  the 
involvement  of  stakeholders,  transparency,  use  of  rigorous  methods  and  independence  and 
dissemination of results. A possible structure with some explanations is provided in annex 3. 

4  See,  for  example:  "Measuring  the  effects  of  European  regional  policy  on  economic  growth:  a  regression 
discontinuity  approach".  Busillo,  Muccigrosso,  Pellegrini,  Tarola,  Terribile  (2010).  Reproduced  also  in  Fifth 
report on economic, social and territorial cohesion, 2010. 

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3. PRACTICAL POINTS FOR THE PROGRAMMING PERIOD 2014-20 FOR 
EUROPEAN REGIONAL DEVELOPMENT FUND AND COHESION FUND 

The intention of this section is to provide (future) programme managers with some practical ideas on 
what  is  required  for  monitoring  and  evaluation  of  cohesion  policy.  It  explores  what  should  be  done 
and  when  taking  into  account  the  ideas  and  principles  sketched  out  in  the  previous  section  of  this 
paper  and  what  has  already  been  presented  in  the  proposed  regulations  for  the  future  programming 
period. 

3.1  Programming 

Programmes  with  a  clear  identification  of  changes  sought,  concentrated  on  a  limited  number  of 
interventions  are  a  decisive  condition  for  achieving  tangible  results.  The  concentration  of  financial 
means will also facilitate a programming process of good quality, in which the limited administrative 
resources can be dedicated to the careful preparation of interventions. 

3.1.1  Clear objectives and selection of result indicators 

(art. 27, art. 96, CPR) 

Priority  axes  are  the  building  blocks  of  programmes.  Each  priority  axis  will  include  one  or  more 
investment  priorities  selected  by  Member  States  and  regions  according  to  their  specific  needs  and 
context. The specific objective is the expression of what each investment priority aims to achieve (see 
art.2.34, CPR for legal definition of a specific objective). The change sought by the specific objective 
is expressed in one (or some very few) result indicators.  

Result indicators shall meet certain quality criteria. They should be (CPR, annex XI): 

a)

responsive to policy: closely linked to the policy interventions supported. They should capture the 
essence of a result according to a reasonable argument about which features they can and cannot 
represent; 

b) normative: having a clear and accepted normative interpretation (i.e. there must be agreement that 

a movement in a particular direction is a favourable or an unfavourable result); 

c)

d)

robust: reliable, statistically validated; 

timely collection of data: available when needed, with room built in for debate and for revision 
when needed and justified. 

Annex 2 provides worked examples of result indicators. 

Each result indicator requires a baseline value (art. 6, ERDF regulation, art. 5, CF regulation; art. 16, 
ETC  regulation).  A  baseline  is  the  value  of  a  result  indicator  at  the  beginning  of  the  programming 
period  (for  example,  the  number  of  start-ups  in  that  year  for  a  priority  that  intends  to  drive  up  the 
number of start-ups in a region). It can be available from statistical or administrative data. Especially 
for  smaller  interventions,  it  can  be  necessary  to  generate  unavailable  information,  for  example  by 
surveys. 

If a programme is not in a position to deliver the baseline for a result indicator in the case of the ERDF 
and CF, this can be seen as a case of not meeting the ex ante conditionality on result indicators. Thus, 
the programme needs to establish an action plan to provide the baseline as soon as possible (see art. 
19.2 CPR for the procedure to follow). 

10

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
Box 3: Attention, a trap: A baseline for what or whom? 

At  the  programming  stage,  when  deciding  about  the  programme,  the  future  managing  authority  will 
analyse the situation of all potential beneficiaries. For example, this could be the productivity of SMEs 
in a region before programme implementation. This is the baseline required by the regulation.  

This  should  be  distinguished  from  the  data  needed  for  counterfactual  evaluations  which  will  be 
different in most cases. What is needed here is information for supported entities and for a group of 
non-supported comparison entities. This information will often not be available from statistics. It must 
be collected for the purpose of the planned evaluation, for example through the monitoring system for 
supported SMEs and other appropriate means for non-supported SMEs. See annex 2 for examples. 

Programmes  shall  set  targets  for  programme  specific  result  indicators  for  2023,  but  they  may  be 
expressed in quantitative or qualitative terms (art. 6, ERDF regulation; art. 5, CF regulation; art. 16, 
ETC regulation). As explained in section one of this paper, two issues need to be clearly distinguished: 

-

-

the estimate of a future value of the result indicator. As with the baseline, this value relates to all 
potential  beneficiaries.  This  value  will  be  influenced  by  the  programme  and  other  factors.  It  is 
this stated aim that is meant by the legal text.  

the  contribution  of  the  programme  to  the  change  in  the  result  indicator  (the  impact  of  the 
programme). Impact evaluations can answer this question. 

Annex 2 provides examples how the target of a result indicator could be expressed. To set qualitative 
targets can mean to spell out the range of expected values, the expected direction of change and the 
expected  pace  of  change.  If  no  meaningful  indication  is  possible,  the  priority  should  set  out  certain 
intermediate steps or barriers to be overcome in order to achieve the final objective. 

Investment priorities will be implemented through projects. Result indicators are an expression of the 
objective of an investment priority. Consequently, result indicators can inform the decision on project 
selection  criteria  because  projects  should  be  able  to  demonstrate  how  they  will  contribute  to  the 
achievement of the objectives of a priority. It should be underlined that project selection is a task of 
Member States. 

3.1.2  The role of output indicators 

Output indicators shall cover all investment priorities of a programme (art. 27.4(b), 96.2(b) CPR). As 
explained  in  section  1.1,  they  should  be  derived  from  the  intervention  logic  of  the  programme, 
expressing  its  actions.  Output  indicators  from  the  list  of  common  indicators  may  be  insufficient  to 
reflect the actions of a certain programme; in this case it is necessary to identify programme specific 
output indicators. 

The programme shall set cumulative targets for output indicators for 2023 (art. 6, ERDF regulation; 
art. 5, CF regulation; art. 16, ETC regulation). Baselines for output indicators are not required (or in 
other words, the baseline is zero). 

Box 4: How to set targets for output indicators? 

To set targets for output indicators requires knowledge on what products of an intervention should be 
supported at what cost. For many interventions it will be possible to base the computation of unit costs 
on past experience, be it a programme co-financed by cohesion policy or national schemes or based on 
the use of sectoral norms.  

If an intervention is completely new, setting targets can be challenging. At the programming stage, the 
planning body can only set out their best estimate that might need revision at a certain point in time.  

11

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
What  is  important  in  both  cases  is  to  provide  to  the  public  enough  information  to  understand  the 
estimate. This approach will enhance democratic transparency and open up the estimate to critique and 
improvement. 

3.1.3  Common indicators 

Common  indicators  are  designed  to  aggregate  information  in  a  Member  State  and  across  Member 
States.  They  reflect  frequently  used  investments  of  the  ERDF  and  the  Cohesion  Fund.  Common 
indicators  reflect  the  actions,  not  the  objectives  of  a  programme  or  of  regional  policy.  Actions 
reflected in common indicators are not more important than others. 

Member States shall use indicators from the list of  common indicators whenever appropriate (art. 6, 
ERDF  regulation;  art.  5,  CF  regulation;  art.  16,  ETC  regulation;  see  annex  1).  "When  appropriate" 
means,  for  example,  if  a  programme  does  not  support  the  construction  of  roads,  the  corresponding 
common indicators "kilometres of new roads" is not applicable.  

3.2  Ex ante evaluation of operational programmes  

(art. 55, CPR) 

An  ex  ante  evaluation  shall  appraise  the  following  elements  in  order  to  improve  the  quality  of 
operational programmes: 

-

-

-
-

the contribution to the Union strategy for smart, sustainable and inclusive growth having regard 
to the selected thematic objectives and priorities, taking into account national and regional needs 
and lessons drawn from previous programming periods; 
the  internal  coherence  of  the  proposed  programme  or  activity  and  its  relation  with  other 
instruments; 
the consistency of the allocation of budgetary resources with the objectives of the programme; 
the consistency of the selected thematic objectives, the priorities and corresponding objectives of 
the programmes with the Common Strategic Framework, the Partnership Agreement, the relevant 
country-specific  recommendations  under  art.  121(2)  of  the  Treaty  and  the  relevant  Council 
recommendations adopted under art. 121(2) of the Treaty; 
the relevance and clarity of the proposed programme specific indicators;  
 how the expected outputs will contribute to the results; 

-
-
- whether the quantified target values for indicators are realistic, having regard to the support from 

-

-
-

the Funds envisaged;  
the rationale for the form of support proposed; 
the adequacy of human resources and administrative capacity for management  of the operational 
programme; 
the suitability of the procedures for monitoring , and for collecting the necessary data to carry out 
evaluations. 
the suitability of the milestones selected for the performance framework; 
the adequacy of planned measures to promote equal opportunities between men and women and 
prevent discrimination; 
-
the adequacy of planned measures to promote sustainable development 
- measures planned to reduce the administrative burden of beneficiaries. 

-
-

The ex ante evaluation can help to understand the data needs for the envisaged evaluations and it can 
also  establish  baselines  for  result  indicators.  Ex  ante  evaluations  can  also  support  Member  States  in 

12

March 2014 

 
 
 
 
 
 
 
 
 
 
their assessment of the ex ante conditionalities linked to statistical systems and result indicators (annex 
XI, CPR). 

The ex ante evaluation should be carried out in interaction with the establishment of the programme 
and  shall  be  submitted  to  the  Commission  at  the  same  time  as  the  operational  programme  together 
with  an  executive  summary.  Member  States  shall  integrate,  where  appropriate,  the  strategic 
environmental assessment into the ex ante evaluation. 

More detailed guidance on the ex ante evaluation has been made available by the Commission. 

3.3  Monitoring – the annual implementation report  

(art. 50, art. 111, CPR) 

Annual  reports  are  one  of  the  key  elements  of  the  monitoring  of  an  operational  programme.  All 
implementation reports are required to set out certain information, starting with the report for 2016:  

-

-

-

-

on  the  implementation  of  a  programme  and  its  priority  axes.  Besides  financial  data,  this  will 
require  cumulative  values  for  output  indicators.  Values  will  relate  to  selected  and  fully 
implemented operations. See art. 2.14 CPR for definitions. 

"Cumulative" means to provide each year a value that includes the achievements of former years.  

Information  based  on  selected  projects  will  be  especially valuable  in  the  first years  of  a  period 
when the actual values, using information of completed projects will be necessarily very low.  

any  issues  affecting  the  performance  of  the  programme,  including  the  achievement  of  target 
values, 

values  for  the  result  indicators  of  programmes  taken  either  from  statistics  or  provided  by 
information sources specific to the priority such as surveys, at particular points in time. Note that 
such values encompass the contribution of the programme and the contribution of other factors. 
They  relate  to  all  potential  beneficiaries  (the  same  unit  of  analysis  as  for  the  definition  of  the 
baseline). 

a  synthesis  of  the  findings  of  evaluations  that  have  become  available  during  the  previous 
financial year. 

The reports submitted in 2017 will in addition assess: 

-

-

progress towards achieving the objectives of the programme,  

including  the  contribution  of  the  programme  towards  the  change  of  result  indicators,  when 
evidence from evaluations is available. 

The  report  submitted  in  2019  and  the  final  report  shall  include  the  above  mentioned  elements  and 
include  information  on  and  assess  the  contribution  to  achieving  the  Union  strategy  for  smart, 
sustainable and inclusive growth. 

In  addition  to  the  requirements  of  the  annual  report  the  managing  authority  might  need  to  collect 
additional  data.  For  instance,  the  tracking  of  result  indicators  for  beneficiaries  might  be  needed  for 
evaluations  (see  section  3.5.2  on  the  evaluation  plan).  Or,  in  a  different  case,  the  operational 
programmes could include an integrated territorial investment (ITI) and the programme managers may 
wish to use special result indicators for the ITI, though this is not required by the regulation.  

Electronic data transmission 

Data  on  indicators  should  be  transferred  to  the  Commission  electronically  as  part  of  annual  reports. 
This issue will be treated in detail in the implementing regulation (see art. 111.5, CPR). 

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March 2014 

 
 
 
 
 
 
 
 
Box 5: Typical reporting errors  

Seemingly  small  errors  can  compromise  the  value  of  the  reporting,  especially  when  information  is 
aggregated across programmes as it is the case for common indicators. Some typical errors are: 

- the use of a wrong measurement unit (for instance square kilometres instead of hectares, Megawatt 
hours instead of Megawatts, use of national currencies instead of Euro), 
- reporting annual instead of cumulative values, 
- wrong use of decimal separator in electronic systems (comma instead of point), 
- inconsistencies between annual implementation report and structured data transmission via  SFC, 
- typing errors when inputting data. 

Experience  shows  that  quality  control  by  regional  and  national  authorities  is  essential.  Serious 
deficiencies  in  the  monitoring  system  may  lead  to  the  suspension  of  interim  payments  by  the 
Commission (CPR, art. 142.1 (d)). 

3.4  Evaluation during the programming period  

(art. 56, CPR) 

Evaluation during the programming period should reflect  the needs  of  programmes. Evaluations can 
cover programmes, priorities, themes across programmes etc. 

All types of evaluation, including impact evaluation and implementation evaluation, will play a role. 
Implementation  evaluations  supporting  the  smooth  delivery  of  a  programme  are  more  likely  to  be 
useful in the early stages of implementation. Evaluation capturing the effects of priorities and looking 
into  their  theory  of  change  will  occur  at  a  later  stage.  The  legal  provisions  do  not  prevent  Member 
States from carrying out mid-term evaluations. 

The  Commission  encourages  Member  States  to  include,  on  a  voluntary  basis,  the  evaluation  of  the 
impacts of similar interventions in a previous programming period. This can make sense as for many 
interventions  it  takes  years  before  the  effects  are  fully  realised  (e.g.,  for  large  scale  infrastructures, 
RTD projects). 

At  least  once  during  the  programming  period,  an  evaluation  shall  assess  how  support  from  the  CSF 
Funds  has  contributed  to  the  objectives  of  each  priority.  Impact  evaluations  using  theory  based 
approaches or counterfactual methods are appropriate tools.  

It  is  a  task  of  the  managing  authority  to  ensure  that  such  evaluations  are  carried  out. The  managing 
authority can also meet these obligations when evaluations are carried out under other requirements, 
for instance if required by Commission decisions on State aid schemes co-financed by the ESI Funds. 
Such  evaluations  should  be  mentioned  in  the  evaluation  plan  and  must  be  subject  to  the  follow-up 
required  by  the  CPR,  e.g.  they  must  be  examined  by  the  monitoring  committee  and  sent  to  the 
Commission. 

A summary report for each operational programme in December 2022 shall wrap up main evaluation 
findings  and  assess  main  outputs  and  results,  providing  comments  on  the  reported  information  (art. 
114.2  CPR).  One  of  the  main  purposes  would  be  to  feed  the  ex  post  evaluation  under  the  lead 
responsibility of the European Commission. 

Evaluations  and  their  follow-up  shall  be  examined  by  the  monitoring  committee.  The  monitoring 
committee  may  issue  recommendations  to  the  managing  authority  regarding  evaluation  of  the 
programme.  It  shall  monitor  actions  taken  as  a  result  of  its  recommendations  (Art.  49.4,  CPR). 
Steering  groups  nominated  by  the  monitoring  committee  can  be  a  valuable  part  of  the  process  of 

14

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
steering evaluations. All evaluations shall be sent to the Commission, preferably in electronic format 
(Art. 56.3, CPR). 

Although  not  required  by  the  regulation,  evaluations  across  all  programmes  under  a  partnership 
agreement can be very useful, depending on the institutional context of a Member State. 

The evaluators must be functionally independent of authorities responsible for the preparation and the 
implementation of the future programme (Article 54 CPR). This independence is essential to support a 
good evaluation where the evaluators will constructively criticise and give expert judgements on the 
different elements of the programme.  The level of independence should be such that there is no doubt 
that  the  work  is  carried  out  with  objectivity,  and  the  evaluation  judgments  are  unbiased  and  not 
subordinated to an agreement of the services responsible for design of the programme. Note however, 
that  it  is  also  necessary  to  organise  evaluation  in  a  way  that  ensures  that  evaluators  are  sufficiently 
familiar  with  the  interventions  they  will  assess.  Equally,  it  is  necessary  that  the  organisation  of 
evaluations facilitates the consideration of findings by the authorities responsible for programming and 
implementation.  

The Commission services consider it as best practice to assign the evaluation to external experts or to 
a  different  organisation  from  that  responsible  for  implementing  the  programme  and  any  of  the 
intermediate  bodies  reporting  to  it.  With  regard  to  the  issue  of  functional  independence,  this 
arrangement does not raise any doubts. Such external expertise can bring knowledge and capacities to 
the programming authority that is not available with the administration itself. 

A  good  practice  is  to  assign  the  implementation  of  the  programme  and  the  evaluation  to  different 
departments within the same organisation.  

Where  evaluation  and  programme  design  are  assigned  to  the  same  department  or  unit  of  an 
organisation – e.g. in cases of small implementation structures - this could give rise to doubts about 
the  functional  independence  of  the  evaluation  function.  Hence,  clear  arrangements  should  be  made 
which ensure independence. Good practice would, in the view of the Commission services, require the 
following measures to be taken: 

– Clear (written) job description for the person, team or sector assuming the evaluation function; 
– Exclusion of the aforementioned person, team or sector from the authority of the services in charge 

of programme design/implementation. 

3.5  The evaluation plan  

(Art. 114, CPR) 

The  purpose  of  an  evaluation  plan  is  to  improve  the  quality  of  evaluations  carried  out  during  the 
programming period.  

3.5.1  Establishing an evaluation plan 

An evaluation plan shall be drawn up by the managing authority or the Member State for one or more 
than one operational programme and submitted to the monitoring committee no later than a year after 
the  adoption  of  the  programme  (art.  114.1,  CPR).  The  monitoring  committee  will  examine  and 
approve the evaluation plan (art. 110.2, CPR). The evaluation of domestic resources can be included in 
the evaluation plan.  

The  Commission  recommends  starting  drawing  up  the  evaluation  plan  together  with  the  operational 
programme. The ex ante evaluator can provide valuable help in doing so. 

15

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.5.2  Elements of an evaluation plan 

An evaluation plan should include the following elements: 

-
indicative list of evaluations to be undertaken, their subject and rationale;  
- methods to be used for the individual evaluations and their data requirements; 
-
-
-
-
-
-

provisions that data required for certain evaluations will be available or will be collected; 
a timetable; 
a strategy to ensure use and communication of evaluations; 
human resources involved; 
the indicative budget for implementation of the plan; 
possibly a training plan. 

Including  a  budget,  human  resources  and  possibly  a  training  plan  contributes  to  meeting  the  legal 
obligation of Member States to provide the resources necessary for carrying out evaluations (art. 54.2, 
CPR). 

The planning for evaluations to be carried out early in the programming period is likely to be  more 
precise  than  for  evaluations  planned  for  a  later  point  in  time.  Note,  however,  that  for  certain 
evaluations techniques data need to be created at the beginning of the programming period. Omissions 
in this respect cannot be rectified later in the period. 

Member  States  may  set  up  coordination  mechanisms  for  evaluation  at  national  or  regional  level  or 
across funding sources, according to their needs.  

3.5.3  Examination and amendment of evaluation plan  

(art. 110.2, CPR) 

The  Monitoring  Committee  shall  examine  the  evaluation  plan  and  approve  necessary  amendments. 
The  Commission  recommends  an  examination  and  update,  if  necessary,  of  evaluation  plans  once  a 
year.  Note  that  the  existence  of  an  evaluation  plan  does  not  exclude  the  possibility  of  additional 
evaluations, responding to emerging urgent needs. 

3.6  The use of evaluations  

Planning  and  organising  robust  evaluations  of  the  impact  of  interventions,  explaining  their 
mechanisms  and  understanding  their  delivery  systems  are  demanding  tasks.  Nevertheless,  even 
evaluations of good quality can remain without consequences if their use has not been considered in 
advance, during and after completion. 

Without any claim of completeness, the Commission recommends that certain issues are considered: 

- The  usefulness  of  evaluations  depends  on  the  motivation  and  awareness  of  the  organisation 
commissioning  the  evaluation.  Is  there  an  understanding,  openness  for  the  idea  of  learning? 
Regions  and  Member  States  should  develop  and  communicate  to  their  stakeholders  their  own 
understanding  on  these  topics.  Or  is  evaluation  seen  just  as  an  obligation  imposed  by  the 
Commission? 

- Evaluation  should  be  a  task  not  just  for  managing  authorities.  In  particular  for  regional 
programmes with a wide range of interventions it is important to ask questions that are relevant 
for implementing agencies and sectoral ministries. 

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March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
- An  evaluation  process  needs  to  be  use  and  user  oriented  from  the  beginning.  The 
communications  between  evaluator  and  commissioner  of  evaluations  on  purpose,  methods  and 
use should start before any real work is undertaken.  

- The communication of evaluations, their process and their reports should be organised. Reports 

need to be adapted to the future reader or a variety of different readers. 

- Often  the  use  of  evaluations  can  start  during  the  course  of  an  evaluation.  Feed-back  from  the 
evaluator  to  beneficiaries  and  commissioners  can  enhance  the  quality  and  use  of  an  evaluation 
process. 

-

It  is  generally  better  to  develop  recommendations  in  a  dialogue  between  evaluator  and  the 
commissioner of evaluations because commissioners often have a clearer understanding what is 
feasible in a certain institutional or political context. 

- The creation of knowledge - learning - is a cumulative process. It takes time, the effort of many 
evaluators, the exchange of findings and critical discussion. The Commission believes that there 
is a role to be played especially by central national administrations to organise this process. 

3.7  Ex post evaluation  
(art. 57, art. 114, CPR) 

The purpose of the ex post evaluation shall be to obtain a view of the programming period as a whole. 
It will examine the effectiveness and efficiency of the Funds and their impact on economic, social and 
territorial  cohesion  and  their  contribution  to  the  Union  priorities  of  smart,  sustainable  and  inclusive 
growth.  

The ex post evaluation shall be a responsibility of the Commission in close cooperation with Member 
States and managing authorities to be finished by 31 December 2024. The ex post evaluation will be 
facilitated  by  evaluations  of  Member  States  and  Commission  during  the  programming  period, 
especially  by  the  Member  States'  summary  of  evaluations  and  main  outputs  and  results  during  the 
period submitted to the Commission by 31 December 2022. 

The Commission encourages Member States to carry out their own ex post evaluations. 

3.8  Transparency  
(art. 54.4, CPR) 

All  evaluations  shall  be  made  public,  preferably via  internet.  English  abstracts  are  recommended  to 
allow for an European exchange of evaluation findings.  

Member States can go beyond these legal requirements. Examples include interactive electronic maps 
with  projects  and  beneficiary  information  or  additional  information  on  baselines  and  monitoring  of 
result indicators.  

3.9  Role of the European Commission 

The regulations governing regional policy require the  European Commission  to summarise a certain 
amount  of  information  at  European  level,  for  instance  via  progress  reports  (CPR,  art.  52)  and 
evaluations  carried  out  by  the  Commission  (CPR,  art.  56.4).  Going  beyond  such  obligations  the 
Commission wishes to cooperate with Member States and to support them, when necessary.  

17

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
The Directorate-General for Regional and Urban Policy aims: 

-

-

-

-

-

to make the knowledge and experiences of regions and Member States in the field of evaluation 
available  to  their  peers,  e.g.,  via  seminars  and  the  publication  of  all  evaluation  reports  on  its 
website; 

to  support  the  development  of  a  quality  assurance  system,  for  instance  by  using  a  peer  review 
approach; 

to facilitate the exchange of experience across Member States, for example via the DG REGIO 
network with Member States;  

to provide guidance on evaluation approaches and methods, for instance by guidance documents 
and further development of EVALSED; 

by offering learning events, for instance evaluation summer schools. 

18

March 2014 

 
Glossary 

Baseline 

The  value  of  the  indicator  before  the  policy  intervention  at  stake  is  undertaken.  For 
example, the baseline for output indicators is zero. The baseline for result indicators to 
be  presented  in  Operational  Programmes  is  the  situation  before  the  programme 
intervention  of  a  region  or  population  of  persons  or  enterprises  etc  that  you  want  to 
change. 

Common indicators  A  list  of  indicators  with  agreed  definitions  and  measurement  units  to  be  used  where 
relevant  in  Operational  Programmes,  permitting  aggregation  to  the  national  and  EU 
level. 

Evaluation 

Impact 

Indicator 

Method 

Output indicator 

Result 

Result indicator 

Evaluation is the systematic collection and analysis of information about programmes 
and projects, their purpose and delivery; it derives knowledge on their impact as a basis 
for  judgments.  Evaluations  are  used  to  improve  effectiveness  and  inform  decisions 
about current and future programming.  

The  change  that  can  be  credibly  attributed  to  an  intervention.  Same  as  “effect”  of 
intervention or “contribution to change”. 

A  variable  that  provides  quantitative  or  qualitative  information  on  a  phenomenon.  It 
normally includes a value and a measurement unit. 

Methods are families of evaluation techniques and tools that fulfil different purposes. 
They  usually  consist  of  procedures  and  protocols  that  ensure  systemisation  and 
consistency  in  the  way  evaluations  are  undertaken.  Methods  may  focus  on  the 
collection or analysis of information and data; may be quantitative or qualitative; and 
may  attempt  to  describe,  explain,  predict  or  inform  action.  The  choice  of  methods 
follows from the nature of the intervention, the evaluation questions being asked and 
the mode of enquiry – causal, exploratory, normative etc. 

An  indicator  describing  the  “physical”  product  of  spending  resources  through  policy 
interventions. Examples are: the length, width or quality of the roads built; the number 
of  hours  of  extra-teaching  hours  provided  by  the  intervention;  the  capital  investment 
made by using subsidies. 

The  specific  dimension  of  the  well-being  of  people  that  motivates  policy  action,  i.e. 
that  is  expected  to  be  modified  by  the  interventions  designed  and  implemented  by  a 
policy.  Examples  are:  the  mobility  in  an  area;  the  competence  in  a  given  sector  of 
activity. 

An indicator describing a specific aspect of a result, a feature which can be measured. 
Examples are: the time needed to travel from W to Y at an average speed, as an aspect 
of mobility; the results of tests in a given topic, as an aspect of competence; the share 
of firms denied credit at any interest rate, as an aspect of banks’ rationing. 

19

March 2014 

 
 
 
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Annex 2 

Examples for the use of result indicators 

Example 1: Support to enterprises in a less developed region 

Description of specific objective 
Region X wants to boost the productivity of its SMEs. The result indicator connected to this objective 
is  defined  as  the  value  added  per  worker,  averaged  across  all  SMEs.  The  policy  instrument  is  non-
repayable grants, funded by the ERDF and national co-financing. 
Measured in this way, the baseline value of SME productivity in the region is significantly below the 
national  average.  Its  baseline  value  is  80%  of  the  national  average.  The  baseline  is  known  from 
national statistics. 

Target  for  result  indicator:  The  region  aims  to  improve  the  productivity  of  SMEs  in  the  region, 
bringing it up to 85% of the national average. The programme co-financed by ERDF will be one of the 
means to achieve this target. Given the budget available, it is expected a maximum of 15% of SMEs 
will  be  supported  by  the  programme.  There  is  no  past  evaluation  available  that  would  allow 
quantification  of  by  how  much  the  investment  grants  increase  the  productivity  of  the  supported 
enterprises. 

Monitoring of result indicator 
The  annual  reports  will  provide  information  on  the development  of  the  productivity  of  SMEs  in  the 
region. The information is available from national statistics, with a time lag. The monitoring finds that 
the productivity of SMEs in the region is falling further back in comparison to the national average.  

Evaluation 
Besides documenting the extent to which the target was reached, the region wants to learn whether the 
support  programme  is  truly  effective.  To  this  end,  it  intends  to  use  a  counterfactual  approach  to 
evaluation: the study will attempt to determine which effect the support has on the SME productivity 
two  years  after  the  investment  took  place.  The  evaluation  design  will  use  the  fact  that  the  available 
budget was limited, allowing to support of only a fraction of the eligible firms that apply for the grant. 
The estimate of the effect is obtained by comparing the productivity of the firms right above and those 
just below the cut-off point for admission. 

Impact on what? 
(result indicator) 

Productivity 

Data required 

Productivity of supported enterprises after support 
Productivity of non-supported enterprises after support 

Data sources for evaluation 
Region X is in a lucky situation: Data for supported and non-supported enterprises is available from 
the balance sheets of enterprises which is collected by the tax authority. The region agrees access to 
data for evaluation purposes with the tax authority. To reach this agreement took several months. 

The evaluation carried out in year X finds that the supported enterprises fair better in terms of 
productivity than non-supported SMEs. 

Issues for a policy discussion 
The monitoring committee discusses the findings of the evaluation. It is confronted with the situation 
that the programme has a positive effect on supported enterprises whereas the overall productivity of 
SMEs is worsening.  The committee should discuss reasons of this development. It could be that the 
programme should receive additional funding in order to change the situation or that other reforms 
outside the reach of the programme should be initiated by the region.

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Example 2: Support to construction of a highway network, including missing links in trans-
European network 

Description of specific objective 
As  part  of  its  major  infrastructure  programme,  Member  State  X  intends  to  expand  its  highway 
network,  including  the  construction  of  a  last  missing  project  in  the  trans-European  network.  This 
programme  continues  a  similar  transport  programme  from  the  previous  programming  period.  The 
Member State aims to improve its accessibility by the road network, measured by a road accessibility 
index (result indicator).  

The  baseline  for  the  extension  of  the  TEN-T  projects  is  that  2  out  of  three  concerning  the  Member 
State  (three  highway  projects)  are  completed,  representing  70%  of  the  envisaged  road  length.  The 
baseline for the infrastructure programme as a whole is the value X of the road accessibility index. The 
index value at programme start has been calculated by applying the existing national transport model. 
The  Member  State  aims  to  reduce  the  index  value  for  the  three  most  lagging  regions  by  about  15% 
within the programming period (the target for the result indicator). 

Monitoring of result indicator 
During the programming period, the accessibility index will be modelled every second year, starting 
with the third year of implementation. 

Evaluation 
The evaluation plan comprises several elements:  

-

ex  post  cost  benefit  analyses  for  key  projects  co-financed  by  the  programme  of  the  previous 
programming period;  

- modelling  of  the  accessibility  index,  using  the  existing  transport  model.  The  model  allows 
isolating  the  effect  of  key  projects  financed  under  the  infrastructure  programme  on  the 
accessibility index. 

Impact on what? 
(result indicators) 

Road accessibility index 

Data required 

Road transport data, collected by regular national and 
regional surveys 

33

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
Example 3: Enhancing innovation in SMEs 

Description of specific objective  
Region X wants to enhance the innovation of SMEs. The problem to be addressed is the insufficient 
capacity  of  in-house  innovation.  Consequently,  the  result  indicator  is  the  percentage  of  SMEs 
innovating  in-house.  This  indicator  is  taken  from  the  basket  of  indicators  used  for  the  European 
Regional Innovation Scoreboard (RIS). It is defined as follows:  

SMEs with in-house innovation activities. Innovative firms are defined as those firms which 
have introduced new products or processes either 1) in-house or 2) in combination with other 
firms. This indicator does not include new products or processes developed by other firms. 

The policy instrument is non-repayable grants to enterprises. The region estimates that the programme 
volume will allow the support to 10% of SMEs in the region. 

The baseline is the percentage of SMEs innovating in-house in the year before the programme (25%).  

The target is a higher percentage of such SMEs. The region believes that a value between 30-35% at 
the end of the period is possible.  

Monitoring of result indicator  
The Regional Innovation Scoreboard is updated every 2 years. In principle, data is collected via the 
Community Innovation Survey, carried out every two years.  

Evaluation 
Evaluation will focus on the mechanisms and barriers that induce or prevent SMEs from undertaking  
in-house innovation. Potential factors influencing the decisions of SMEs, and therefore to be explored 
are:  
-
-
-

access to credit,  
ability to attract qualified professionals,  
'innovative  environment',  e.g.  the  degree  of  cooperation  between  enterprises,  universities  and 
public institutions. 

Two surveys – one on enterprises, another on policy makers – three years into the programming period 
will provide the necessary input. It is a key concern to let the interviewees rank the above mentioned 
factors and explore others. The survey results  will be  interpreted  via  expert review and a discussion 
with beneficiaries and policy makers. 

Impact on what? 

Data required for evaluation  

Percentage of SMEs innovating in-house 

Values of the indicator, taken from Regional 
Innovation survey, 
Results of surveys for evaluation purposes 

34

March 2014 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Example 3a: An example of a specific objective needing further refinement- Enhancing R&D in 
SMEs in a more developed region 

Description of specific objective  

A future managing authority suggests using ERDF funding to enhance R&D of SMEs in its region. As 
an approximation, enterprise R&D expenditure is chosen as result indicator. 

The  baseline  would  be  the  level  of  R&D  expenditure  by  SMEs  in  the  region  in  the  year  before  the 
programme, expressed as R&D expenditure per employee and year. The value is known from national 
or regional statistics.  

The target would be to maintain this percentage within a margin of x Euro. This R&D expenditure per 
employee proved to be stable throughout the last years. 

The suggested policy instrument (action) is non-repayable grants to enterprises. The region estimates 
that  the  programme  volume  will  allow  the  support  to  0.2%  of  SMEs  in  the  region  (around  80 
enterprises). The region believes that the support will have an effect on the supported enterprises but 
that  the  support  is  insufficient  to  bring  about  change  in  the  R&D  expenditure  of  enterprises  in  the 
region. 

Monitoring of result indicator  
The regional statistics on R&D expenditure becomes available every two years. 

Evaluation 
The  evaluation  will  deliver  an  estimate  of  the  effect  on  the  supported  enterprises  in  terms  of  R&D 
expenditure.  The  method  foreseen  is  a  difference-in-difference  approach,  integrating  a  regression 
analysis.  The  method  will  need  before  and  after  observations  of  supported  and  non-supported 
enterprises.  The  necessary  data  will  be  sourced  not  from  the  monitoring  but  from  a  commercial 
database.  

An intervention to be challenged 
When the managing authority presents the draft operational programme to the future members of the 
monitoring committee (the partnership) and DG Regional Policy, this intervention is challenged: the 
partners  doubt  its  relevance  :  it  is  too  small  to  bring  about  real  change  in  the  R&D  expenditure  of 
SMEs in the region. The managing authority is asked to explore: 

− A  re-definition  of  the  eligible  population  of  enterprises.  This  could  be  done  by  limiting  the 
eligible SME population in terms of geography, branches or, most likely, by type of supported 
SME, for example, of a certain technological level.  

− how  a  baseline  value  2013  can  be  established  for  the  redefined  eligible  population  at 

reasonable costs.  

35

March 2014 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
Example 4: European Territorial Cooperation 

Description of specific objective 
Two regions covered by a cross-border co-operation programme intend to improve education services 
across the border. The support (grants) is provided to education-related cross-border activities in the 
following  fields:  co-operation  between  universities,  schools  and  training  providers,  mobility  of 
personnel, mutual recognition of degrees, language training and exchange programmes. 

The programme identifies two result indicators:  

1. Access to education services on the other side of the border measured as number of persons 

using education services on the other side of the border 

2. Quality of education services across the border measured as satisfaction rate of persons using 

such services. 

Baselines

1. The number of persons using education services on the other side of the border at programme 

start is known from administrative data (2000 persons). 

2. The  satisfaction  rate  of  persons  using  education  services  on  the  other  side  of  the  border  at 
programme  start  was  unknown.  When  preparing  the  programme,  the  regions  launched  a 
telephone survey among one thousand current users. The survey found that 50% of users were 
satisfied  with  the  quality  of  education  services,  20%  very  satisfied  and  30%  found  the 
situation unsatisfactory. 

Target for result indicators. The regions aim to bring up the percentage of satisfied and very satisfied 
users up to 80% of all users, while the number of users should go up by at least 100 persons.  

Monitoring of result indicators 
The  number  of  persons  using  education  services  on  the  other  side  of  the  border  can  be  monitored 
annually  by  administrative  statistics.  In  order  to  monitor  the  development  of  the  satisfaction  rate,  a 
telephone survey will be organised every two years.  

Evaluation: 
The regions plan to set up an evaluation process that will closely involve active and potential users of 
cross border education services. In a series of discussions with participants, the evaluators will inquire 
which of the supported services are seen as especially successful, why and which services are seen as 
less useful. In addition, the evaluators will inquire with non-users why they are not (yet) using cross-
border education offers and what should be changed in their opinion. 

36

March 2014 

 
 
 
 
 
 
 
A structure of evaluation standards5: 

Annex 3 

A) Evaluation activities must be appropriately organised and resourced to meet their purposes. 

1. Programmes should use an evaluation function with a clearly defined responsibility for co-

ordinating evaluation activities. 

2. For this evaluation function, human and financial resources must be clearly identified and 

proportionately allocated. 

3. Each programme must clearly define the procedures for the involvement of stakeholders.  

B)  Evaluation  activities  must  be  planned  in  a  transparent  way  so  that  evaluation  results  are 
available in due time. 

1. An evaluation programme is to be prepared by the evaluation function in consultation with 

stakeholders.  

2. All activities must be periodically evaluated in proportion with the allocated resources and the 

expected impact. 

3. The timing of evaluations must enable the results to be fed into decisions on the design and 

modification of activities. 

C) Evaluation design must provide objectives and appropriate methods and means for managing 
the evaluation process and its results. 

1. A steering group should be set up for each evaluation to advise on the terms of reference, to 

support the evaluation work and take part in assessing the quality of the evaluation. 

D) Evaluation activities must provide reliable and robust results. 

1. The evaluation must be conducted in such a way that the results are supported by evidence and 

rigorous analysis. 

2. All actors involved in evaluation activities must comply with principles and rules regarding 

conflict of interest. 

3. Evaluators must be free to present their results without compromise or interference. 
4. The final evaluation reports must as a minimum set out the purpose, context, questions, 

information sources, methods used, evidence and conclusions. 

5. The quality of the evaluation must be assessed on the basis of the pre-established criteria.  

We recommend the consultation of the following sources: 

• Quality of an evaluation report: EVALSED, The Guide. 

http://ec.europa.eu/regional_policy/sources/docgener/evaluation/evalsed/guide/designing_implementing/man
aging_evaluations/quality_en.htm 

• Website of European Evaluation Society: It provides access to the standards of national evaluation 

societies.  
http://www.europeanevaluation.org/library/evaluation-standards.htm  

5 Adapted from: Evaluation standards of the European Commission. Communication to the Commission from 
Ms Grybauskaite in agreement with the president. Responding to Strategic Needs: Reinforcing the use of 
evaluation. Brussels, 2007. 

37

March 2014 

 
 
 
 
 
 
 
 
 
 
                                                 
 
• OECD, 2010. Quality standards for development evaluation. 

http://www.oecd.org/dataoecd/55/0/44798177.pdf  

38

March 2014 

 
Recommended reading 

Annex 4 

1. EVALSED. An online resource providing guidance on the evaluation of socio-economic 

development.   
http://ec.europa.eu/regional_policy/sources/docgener/evaluation/guide/guide_evalsed.pdf 

EVALSED provides a short introduction to several evaluation techniques. A library of 
evaluations carried out in the framework of regional policy is part of EVALSED. 

2.

Impact  Evaluation  and  Development.  NONIE  -  Network  of  networks  on  impact 
evaluation. 
http://www.worldbank.org/ieg/nonie/   

3. Société  Française  de  l'Evaluation.  Evaluation  des  impacts  des  programmes  et  services 

publics. 2011.  
http://www.sfe-asso.fr/sfe-evaluation.php?mode=cahiersindiv&id_cahier=21   

4. Addressing  attribution  of  cause  and  effect  in  small  n  impact  evaluations:  towards  an 

integrated framework. Howard White and Daniel Phillips, June 2012 
http://www.3ieimpact.org/en/evaluation/working-papers/ 

5. Key evaluation checklist. Michael Scriven, 2005 

http://www.wmich.edu/evalctr/archive_checklists/kec_feb07.pdf 

6. Outcome indicators and targets. Methodological note produced for DG Regional Policy by 

the High Level Group led by F. Barca and P. McCann. 
http://ec.europa.eu/regional_policy/sources/docgener/evaluation/performance_en.htm   

7. Evaluation  standards  of  the  European  Commission.  Communication  to  the  Commission 
from  Ms  Grybauskaite  in  agreement  with  the  president.  Responding  to  Strategic  Needs: 
Reinforcing the use of evaluation. Brussels, 2007. 
http://ec.europa.eu/dgs/information_society/evaluation/data/pdf/sec_2007_0213_en.pdf  

39

March 2014 

 
 
 
 
 
European Commission

THE PROGRAMMING PERIOD 2014-2020 - GUIDANCE DOCUMENT ON MONITORING AND EVALUATION - Con-
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doi:10.2776/969657