Culture and tourism : ex post evaluation of Cohesion Policy programmes 2007-2013, focusing on the European Regional Development Fund (ERDF) and the Cohesion Fund (CF) : Podlaskie regional case study (Poland), mini case study Podlaskie, centre for education and muslim culture of Polish Tatars in Kruszyniany, work package 9.
Date: 2016-06-02
Institutions: Directorate-General for Regional and Urban Policy
Subjects: Cohesion Fund, European Regional Development Fund, Poland, case study, culture, economic and social cohesion, financing, public investment, tourism

Culture and Tourism 

Mini Case Study PODLASKIE: 
Centre for Education and Muslim Culture of 
Polish Tatars in Kruszyniany 
Work Package 9 

Ex post evaluation of Cohesion Policy programmes  
2007-2013, focusing on the European Regional Development 
Fund (ERDF) and the Cohesion Fund (CF) 

Contract: 2014CE16BAT034 

June 2015 1 

October 2015 
Author: Tomasz Komornicki 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
EUROPEAN COMMISSION 

Directorate-General for Regional and Urban Policy 
Directorate B - Policy 
Unit B.2 Evaluation and European Semester 

Contact: Violeta Piculescu 

E-mail:  REGIO-B2-HEAD-OF-UNIT@ec.europa.eu 

European Commission 
B-1049 Brussels 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
EUROPEAN COMMISSION 

Ex post evaluation of Cohesion 
Policy programmes 2007-
2013, focusing on the 
European Regional 
Development Fund (ERDF) and 
the Cohesion Fund (CF) 

Work Package 9: Culture and Tourism - Podlaskie 
Regional Case Study (Poland) 

Mini Case Study: Centre for Education and Muslim 
Culture of Polish Tatars in Kruszyniany 

Contract: 2014CE16BAT034 

Directorate-General for Regional and Urban Policy 

2016 

EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
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Ex  post  evaluation  of  Cohesion  Policy  programmes  2007-2013,  focusing  on  the  European  Regional 
Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

Table of Contents 

1.  SYNTHESIS ..................................................................................... 9 

2.  PROJECT DESCRIPTION ................................................................ 11 

3.  POLITICAL AND STRATEGIC CONTEXT .......................................... 15 

4.  IMPLEMENTATION ........................................................................ 17 

4.1 

4.2 

4.3 

4.4 

4.5 

The process of project design and planning .......................................................... 17 

Management, monitoring and evaluation system of the project ............................... 18 

Governance arrangements of the project ............................................................. 19 

Innovative elements and novel approaches to implementation ............................... 19 

Key implementation obstacles and problem-solving practices ................................. 20 

5.  KEY RESULTS ................................................................................ 21 

6.  SUSTAINABILITY AND TRANSFERABILITY ................................... 23 

6.1 

6.2 

Sustainability ................................................................................................... 23 

Transferability .................................................................................................. 23 

7.  LESSONS LEARNT ......................................................................... 25 

REFERENCES ...................................................................................... 27 

October 2015 5 

Ex  post  evaluation  of  Cohesion  Policy  programmes  2007-2013,  focusing  on  the  European  Regional 
Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

The  European  Commission’s  Directorate-General  for  Regional  and  Urban  Policy  (DG 
REGIO) is undertaking an ex-post evaluation of Cohesion Policy programmes financed 
by  the  European  Regional  Development  Fund  (ERDF)  and  the  Cohesion  Fund  (CF) 
during  the  period  2007-2013  in  the  regions  covered  by  the  Convergence,  Regional 
Competitiveness & Employment and European Territorial Cooperation objectives in the 
28 member states.  

The  Consortium  IRS-CSIL-CISET-BOP  was  selected  to  undertake  the  ex  post 
evaluation  on  ‘Culture  and  Tourism’  (Work  Package  9).  An  important  element  within 
the  evaluation  is  a  series  of  case  study  analyses  of  NUTS2  regions  covering 
interventions co-financed by ERDF during the 2007-2013 programming period. 

In  addition  to  the  full  regional  case  studies  (which  look  at  the  overall  programme 
across the whole regions), the evaluation also includes two mini case studies (focused 
on  individual  projects)  for  each  regional  case  study.  As  with  the  regional  programme 
case  studies,  the  mini  case  studies  are  based  on  desk-based  research  and  semi-
structured  face-to-face  interviews  with  the  main  participants  involved  in  the  chosen 
projects.  

This  report  presents  the  results  of  the  mini  case  study:  Centre  for  Education  and 
Muslim  Culture  of  Polish  Tatars  in  Kruszyniany.  The  report  begins  with  a  brief 
synthesis of the project before moving on  to a fuller description and the presentation 
of  the  results  of  the  analysis  undertaken.  The  report  ends  with  a  review  of  the  main 
conclusions  of  the  study,  together  with  a  series  of  lessons  learnt  for  future 
policymaking. 

The  interviewees  for  the  mini  case  study  were  identified  as  part  of  the  wider  ROP 
evaluation exercise of which the mini case studies are part, and were selected as key 
actors in the design and delivery of the project. They are: 

Name of the person 

Sylwia Sapkowska 
Bolesław Talkowski 

Institution, position and role 
in the project 

Strategic adivice ECOMAT 
Muslim Religious Community in 
Kruszyniany Podlaskie 
Voivodeship, Poland Kruszyniany 
– mosque, the President. 

Contacts 

ssapkowska@dsekomat.pl 
+48601485488 

btalkowski@wp.pl 

Daniel Górski 

Director of the Department of 
Regional Development. 

The Marshal's Office of Podlaskie 
Region 

daniel.gorski@wrotapodlasia.pl 

Edyta Dąbrowska 

The Marshal's Office of Podlaskie 
Region, Department of Regional 
Development. 

edyta.dabrowska@wrotapodlasia.pl 

Beata Kudzinowska 

The Marshal's Office of Podlaskie 
Region, Department of Regional 
Development. 

beata.kudzinowska@wrotapodlasia.pl 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

1.  Synthesis  

The province of Podlaskie has a multicultural character, unique in  Poland. One  of the 
expressions of this multicultural character is the Tartar culture, concentrated mainly in 
and around the village  of Kruszyniany. This area, because of its specific character, is 
visited by a growing number of individual tourists and organised excursions. The area 
is  exceptional  and  holds  significant  potential,  both  culturally  and  for  tourists,  but  the 
current level of development is modest.  

The project “Centre for Education and Muslim Culture of Polish Tatars in Kruszyniany” 
was  realised  under  the  Priority  Axis  III  Tourism  and  culture  development, 
Measure  3.1  “Development  of  tourist  attractiveness  of  the  region”.  It  was  selected 
based on a competitive procedure (closed competition). 

The scope of the project included: 

  A  Centre  for  Education  and  Muslim  Culture  in  Kruszyniany  (where  it  will  be 
possible  to  see  historical  collections,  listen  to  and  see  a  presentation  on  the 
history  of  the  Tatars  on  Polish  territories,  and  understand  Muslim  rites  and 
customs). 

  A didactic shelter (for liturgic and tourist purposes). 
  Tourist  and 

infrastructure 

recreational 

(including  accommodation,  an 

outbuilding for bike storage, and two stalls for horses). 

  Modern tourist information. 
  A professional website. 

The  target  groups  for  the  project  consist  of  the  Polish  Muslim  community,  as  well  as 
foreign and domestic tourists more generally (especially families, those in retirement, 
active tourists, school children, and students). 

The  direct  beneficiary  of  the  project  is  the  Muslim  Religious  Community  in 
Kruszyniany.  The  indirect  beneficiaries  are  local  tourism  industry  operators;  bike 
renting  outlets;  agro-tourist  farms;  producers  of  souvenirs;  as  well  as  construction, 
repair and joinery services from the municipality of Krynki, where the project is carried 
out. 

Sources of financing of the project are: 

  ERDF funds: EUR 0.85 million (equivalent to 67.1% of the eligible costs). 
  Other  domestic  public  funds  –  subsidy  from  the  Polish  Ministry  of  Culture  and 

National Heritage: EUR 0.061 million (equivalent to 4.8% of the eligible costs). 

  Private finance: EUR 0.35 million (equivalent to 28% of the eligible costs). 

The  primary  achievement  of  the  project  is  the  modification  and  modernisation  of  the 
tourism  offer  around  Kruszyniany.  Through  this,  the  project  will  contribute  to  the 
increased competitiveness and attractiveness of the tourist sector in Podlaskie.  

The project was significantly delayed, a result of a lack of secured private finance. 

The  project  is  being  implemented  by  a  small  association,  which  is  most  probably  too 
small  to  cope  with  the  organisation  and  financial  requirements  of  the  project 
(especially  the  contribution  of  its  own  capital).  In  the  opinion  of  the  beneficiary,  the 
main problem in the realisation of the project was the unhelpful attitude of the central 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

and local authorities regarding the securing of the required own contribution. 

Table 1.1. Background information 

Country: Poland NUTS1-PL  

Region: Podlaskie Voivodeship 2.3.20 

Full  project  title:  Centre  of  Education  and  Muslim  Culture  of  Polish  Tatars  in 
Kruszyniany 

Duration  of  project:  From  02.08.2010  to  22.09.2015.  The  beneficiary  asked  for  an 
extension to the realisation of the project until September 22nd, 2015. 

Funding: 

Total budget: EUR 1.3 million. 

ERDF contribution: EUR 0.85 million. (Equivalent to 67.2% of the eligible costs).  

National  budget:  EUR  0.061  million.  (Subsidy  from  the  Polish  Ministry  of  Culture  and 
National Heritage, equivalent to 4.8 % of eligible costs). 

Regional budget: No contribution. 

Private contribution: EUR 0.35 million. (Equivalent to 28% of the eligible costs). 

ERDF Objective: 

X Convergence 

 Competitiveness 

 Territorial cooperation  

* exchange rate as of 11.06.2015: 1 EUR = 4.1297 PLN 

The motivation for the selection of the project was the unique character of the Tartar 
culture in terms of both Poland as well as Europe more generally (the Tatar population 
is  very  limited,  with  an  estimated  70,000  Tatars  living  in  Europe  in  2002);  and  the 
high  potential  for  the  development  of  tourism  in  the  region,  in  terms  of  attracting 
tourists  to  the  region  (because  of  its  distinct  culture  and  cuisine),  extending  tourists’ 
length  of  stay,  and  extending  the  tourist  season  from  the  “summer”  season  to  the 
“year-round” season. 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

2.  Project description  

The project addresses one of the main objectives of the regional strategy in tourism: 
the  development  of  tourism  in  the  region  based  on  the  valorisation  of  national  and 
cultural heritage. 

The primary rationales for the project are the: 

  Preservation of cultural heritage. 
  Support for an ethnic and religious minority.  
  Access to the tourist attractions the year-round. 
  Creation of a recreation and leisure base. 
  Development of ethnic and cultural tourism. 

Scope of the project 

The  project  included  the  construction  and  development  of  the  new  Centre,  near 
Kruszyniany  (county  of  Sokółka,  municipality  of  Krynki)  on  two  plots,  which  are  the 
property of the Muslim Religious Community in Kruszyniany. The Centre included: the 
Centre for Muslim Education and Culture, the didactic (liturgical) wind shelter, a tourist 
and  recreation  facility,  a  tourist  information  stand,  fencing,  as  well  as  a  professional 
website (as set out in Figure 3.1 and 3.2, or in Table 2.1). 

Table 2.1. Decription 

Objects 

Purpose 

Area m2/m 

The Centre for Muslim Education and 
Culture  

Museum, historical, educational and 
workshop hall -educational purpose 

The didactic (liturgical) wind shelter  

For tourist and liturgical purpose of the 
Tatar society 

The tourist and recreation facility in the 
building of the former stable  

Accommodation, outbuilding for bike 
storage, two stalls for horses 

The tourist information stand  

Information  

Fencing 

Safety 

Professional website 

Promotion/Information 

Source: Author based on data from Marshal Office 

576 

30 

109 

54 

The  project  targets  customers  from  different  groups,  including  the  Tatar  society  in 
Poland, other visitors, children, students, and others (see table 2.2). 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

Table 2.2. Targeted customers 

    Targeted customers 
Tatar society in Poland  

Visitors (mainly: families with children, 
retirement, active tourist) 
“Green schools”-children  

Students  

Universities (the Institute of History of the 
University in Białystok, Institute of 
Ethnology and Cultural Anthropology of the 
University of Warsaw) 
Conferences participants 

International tourist 
Source: Author 

    Purpose 
Liturgical, events organizing 

Period of the year 
Whole year 

Ethnic and cultural tourism 

Prolong seasonality 

School classes in nature and/or 
definite socio-cultural environment 
Students internship, intercultural 
workshops, exercises 

Science study 

Seasonality  

Whole year 

Whole year 

Conferences (result of studies will be 
presented) 
Ethnic and cultural tourism 

Whole year 

Prolong seasonality 

The  Mosque  in  Kruszyniany  attracts  15,000-16,000  tourists  annually  (2009,  Muslim 
Religious Community in Kruszyniany). The number of tickets sold in 2009 amounted to 
approx.  11,000.  Estimated  number  of  tourists  visiting  Kruszyniany  after  the 
completion of the project should increase by approximately 2,000 initially, and in the 
following years by an additional 1,000 annually. 

The project has not been finished yet. It is still in progress. 

The building work is in two stages: 

 
 

Stage I: Construction of facilities. 
Stage II: Finishing work. 

Table 2.3. Construction works planning 

Stage 

Timing 

Objectives 

Activities 

Expected results 

Resources 
 EUR mil. 

1 

02/09/2013 30/04/2015 

Attracting tourists from 
outside the region, 
including foreign 
tourists 

Internet site 
Construction of 
buildings 

Building ready for 
installation work 

0.93 

2 

31/04/2015-22/09/2015 

Prolonging the stay of 
tourists in the region 

Extending the tourist 
season, from summer 
to year-round through 
modern presentation of 
the tourism product  

Media 
connection 

Room 
equipment 

Building ready for 
operation 

0.38 

Total 
Source: Author based on information from Marshal Office 

Total EUR 1.31 million.  
ERDF contribution: EUR 0.85 million. 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

Figure  2.1.  The  centre  for  Muslim  Education  and  Culture  under  construction 
(May 2015) 

Source: photo by the author 

Beneficiary 

The direct beneficiary of the project is the investor – the Muslim Religious Community 
in Kruszyniany and in Poland (around 5,000 people). The indirect beneficiaries are the 
inhabitants  of  the  locality  of  Kruszyniany  and  of  the  entire  municipality  of  Krynki, 
especially  tourism-related  services  (catering,  accommodation,  bike  renting,  agro-
tourist  farms,  souvenir  producers);  businesses  involved  in  the  retail  grocery  trade; 
companies  producing  construction  materials;  and  construction  companies.  The  self-
governmental  authority  of  the  municipality  of  Krynki is  also  an indirect  beneficiary  of 
the project. 

The project has still to be completed. 

For  the  beneficiary,  the  primary  objective  of  the  project  is  to  protect  the  local  Tartar 
community  from  dispersion  and  loss  of  identity.  Those  in  the  Muslim  Religious 
Community  in  Kruszyniany  treat  the  project  in  highly  emotive  terms,  and  its 
completion on time is an issue of prestige. 

The expected main results from the project are to: 

  Increase  the  attractiveness  to  tourists  of  Kruszyniany,  of  the  municipality  of 
Krynki,  and  of  the  entire  region,  through  offering  the  improved  tourist  product 
“Kruszyniany – the history of Polish Tatars”. This consists of the mosque and the 
“misar” (Muslim cemetery),  as well as the historical collections (in the museum), 
listening  to  and  watching  the  presentation  on  the  history  of  Tatars  on  Polish 
territories, acknowledging the Muslim habits and customs, etc. 

  Increase the number of tourists visiting Kruszyniany and the region. 
  Prolong the visit of an average tourist in Kruszyniany from a single day to several 

days. 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

  Lengthen the tourist season through participation in holidays and rites, distributed 

over the entire year. 

  Create new jobs in Kruszyniany and in the municipality of Krynki. 
  Ensure  conditions  for  tourists  to  recognise  historical  assets,  including  those 
collected  by  the  community,  belonging  to  the  Muslim  Religious  Community  and 
those exhibited in the museums of the region. 

  Ensure  the  provision  of  tourist  information  and  the  possibility  of  booking  guide 
services related to the Centre, through the development of an active and modern 
website. 

  Development  by  the  Centre  of  at  least  one  new  tourist  product  in  each 

consecutive year, along with the updating of the existing products. 

Figure 2.2. The information table 

Source: photo by the author 

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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

3.  Political and strategic context  

Kruszyniany  is  a  small  village  in  Poland  inhabited  by  160  people  (2006),  including 
several  Tatar  families.  It  is  located  in  the  province  of  Podlaskie  (Figure  4.1),  in  the 
county  of  Sokółka,  municipality  of  Krynki,  close  to  the  boundary  with  Belarus.  The 
distance from Kruszyniany to Warsaw is 251 km, and from Kruszyniany to Bialystok 59 
km. 

The  municipality  of  Krynki  is  a  small  administrative  unit,  having  a  low  population 
density. In 2013 it was inhabited by 3,300 people (20 persons per sq. km). Long-term 
emigration  has  changed  the  demographic  structure.  There  are  more  than  300 
registered unemployed, with an unemployment rate of over 15%. This rate is notably 
higher  than  the  average  in  the  region.  The  residents  of  the  municipality  also  have  a 
low  standard  of  living.  Nearly  16%  of  the  population  receive  government  social 
support.  The  main  employers  are  public  administration  and  services,  as  well  as  a 
couple of private tanneries.  

Given  that  the  province  of  Podlaskie  is  among  the  poorest  regions  in  the  European 
Union, it is imperative and necessary to accelerate the development of the economy in 
this province, including the direct and indirect creation of jobs.  

In this context, investment in cultural tourism is an opportunity which would capitalise 
on  the  unique  qualities  of  the  municipality,  especially  its  cultural  diversity,  including 
the  cultivated  traditions  of  Polish  Tatars,  and  the  monuments  associated  with  these 
traditions.  

The Tatars have been an important part of the area for centuries.  In 1679 Polish king 
Jan III Sobieski granted the Tatars several villages in the area, including Kryszyniany. 
The  Lipki  Tatars  settled  here,  and  fought  on  the  Polish  side  during  the  wars  with 
Turkey.  For  many  years,  the  village  constituted  an  important  Muslim  centre.  By  the 
end of the 20th century however, the village was inhabited by less than 300 people, of 
whom only some 10% were Muslims. There is a wooden mosque from the end of the 
17th  century  in  the  village  (Figure  4.2).  Behind  the  mosque,  the  Muslim  cemetery  is 
located (“misar”), with the oldest tombstones dating from the end of the 18th century. 
Around 37km from Kruszyniany, there is a second Mosque in Bohoniki. 

The Muslim Religious Community in Kruszyniany is represented by 120 members and 
around 1,000 supporters. They are not currently an important employer. They have a 
well-recognised  tourist  product,  which  may  significantly  increase  the  revenue  from 
tourism  in  the  municipality  of  Krynki  (for  example,  through  ensuring  a  package  of 
accompanying services for visitors, including catering, accommodation, parking places, 
etc.).  The  tourist  attractions  in  the  neighbourhood  include:  a)  the  ecumenical  tourist 
route  around  the  reservoir  of  Ozierany;  b)  the  nature  reserve  Nietupa;  c)  numerous 
vantage points, like, e.g. Kosmata Góra. 

In  order  to  ensure  the  high  quality  of  the  services  offered,  the  Religious  Community 
introduced  a  system  of  certification  (referencing)  for  facilities  offering  hospitality 
services, tourist products, souvenirs, etc. within the framework of the project. 

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Figure 3.1. Kruszyniany location 

Source: http://bi.gazeta.pl/im/0/2452/m2452980.jpg 

Figure 3.2. Kruszyniany wooden Mosque 

Photo by the author  

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4.  Implementation  

4.1  The process of project design and planning 

The  project  can  be  broken  down  into  six  phases:  1)  Preparation  of  the  prerequisites 
for  the  project  and  the  feasibility  study  for  the  purposes  of  the  application  to  the 
European Regional Development Fund (ERDF); 2) Filing of the required documentation 
for  evaluation;  3)  Signing  of  the  contract  for  the  financing  of  the  project;  4) 
Realisation  of  the  project,  together  with  final  financial  clearing;  5)  Finalisation  of  the 
project,  along  with  filing  of  the  final  payment  application;  6)  project  persistence 
phase. 

The  project  was  initiated  by  the  applicant  –  the  Muslim  Religious  Community  in 
Kruszyniany.  The  investment  was  proposed  as  a  response  to  a  market-generated 
need. A growing tourist traffic is observed in Kruszyniany, related to the existing, and 
functioning,  mosque  and  Muslim  cemetery.  The  Centre  was  proposed  to  capitalise  on 
this demand.  

The  project  was  also  a  response  to  the  particular  context  in  the  region,  including,  in 
particular: a) limited tourist infrastructure, b) poor state of the existing infrastructure, 
c)  weakly  developed  technical  and  social  infrastructure  within  the  rural  areas  of  the 
region. 

The decision to realise the project was taken as the possibility of taking advantage of 
the European funds arose. The conceptual work on the project  was  started  alongside 
the  announcement  of  the  Regional  Operational  Program  for  the  Province  of  Podlaskie 
for  the  years  2007-2013  (including  the  measure  3.1  “Development  of  tourist 
attractiveness  of  the  region”,  into  which  the  idea  of  the  Centre  in  Kruszyniany  fitted 
well). 

Selection process 

The  choice  of  the  project  for  realisation  was  through  a  competitive  procedure  (Table 
4.1). The calls were announced by the Government of the Region of Podlaskie for the 
particular  Measurement  of  the  Regional  Operational  Program  2007-2013.  The  Project 
was  selected  through  the  competition  procedure  ”closed  competition”  (applications 
could be filed within a strictly defined period of time and within a well-defined amount 
of  money).  Applications,  which  were  formally  correct,  passed  over  to  the  substantive 
evaluation stage, carried out by the Committee for Project Evaluation. Resulting from 
the  work  of  this  Committee  was  a  list  of  projects  recommended  for  financing.  The 
decision  on  the  choice  of  the  projects  was  then  taken  by  the  Government  of  the 
Region in a special motion. Potential beneficiaries who were unsuccessful could file an 
appeal, if required. 

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Table 4.1 The application evaluation process for financial support 

Evaluation stage 

Evaluation criteria 

Nature of the 
evaluation 

Evaluating 
body 

Entitlement of the 
applicant during the 
evaluation process 

Formal 

Substantive 

Administrative 
compliance 
Compliance with rules 
of action/ competition 
Technical 
general allowing 
Technical 
special allowing 
Technical detailed 
(differentating criteria) 

Yes/no/not 
applicable 

Grading points 

Employees of 
the Managing 
Authority (MA) 

Possibility to improve 
and complete the 
application to call MA 

Project 
evaluation 
committee 
(PEC) 

Possibility to provide 
explanations to the call 
of PEC 

Source: Marshall Office, 2015 

The evaluation of the application concerned, in particular, the following issues: 

 

 

 

 

 

 

Assessment  of  the  importance  of  the  project:  i.e.  the  scope  of  impact  of  the 
project. 
Assessment  of  demand:  i.e.  the  correctness  and  likelihood  of  the  results  from 
the analyses of the current and (first of all) future demand for service offered by 
the institution in question.  
Assessment  of  the  economic  and  financial  analysis:  i.e.  the  demonstration  in 
quantitative terms (with the use of indicators of economic analysis), as well as in 
qualitative  terms,  of  the  benefits  and  costs  of  a  socio-economic  character, 
generated  by  the  project.  The  indicators  of  economic  analysis,  provided  by  the 
beneficiary,  showed  the  values  that  constituted  the  evidence  for  the  positive 
impact of the project from a socio-economic standpoint.  
Assessment  of  the  option  analysis:  i.e.  the  options  of  realisation  of  the  project, 
which  were  analysed  in  the  document,  including  the  abandonment  option,  the 
“minimum”  option,  and  two  alternative  investment  options.  The  beneficiary 
demonstrated that the project was the best among in terms of feasible solutions. 
Assessment  of  sustainability  of  the  project:  i.e.  functioning  of  the  project  after 
termination. 
Assessment  of  the  owners`  experience  and  skills  for  the  realisation  of  the 
project. 

The project would not have been established without the support from the EU. 

4.2  Management, monitoring and evaluation system of the project 

The  project  is  managed  by  the  Chairman  of  the  Muslim  Religious  Community  in 
Kruszyniany.  All  important  decisions  are  made  by  the  Board  of  the  Muslim  Religious 
Community  in  Kruszyniany.  The  standard  of  the  construction  works  is  controlled  by 
the  construction  supervision  inspector.  The  Steering  Committee  is  organised  by  the 
Board  of  the  Muslim  Religious  Community  in  Kruszyniany,  composed  of  five  persons. 
During  the  implementation  of  the  project,  systematic  meetings  are  being  organised 
every week.  

The  Steering  Committee  of  the  project  will  be  functioning  over  the  period  of  the 
project and for five years after the project is complete.  

The  construction  was  facilitated  by  the  present  Head  of  the  Muslim  Religious 
Community  in  Kruszyniany,  who  had  worked  before  as  the  Chairman  of  a  large 
Housing  Cooperative  in  Białystok,  and  so  had  similar  expertise  in  construction 

October 2015 18 

 
 
 
 
 
 
 
Ex  post  evaluation  of  Cohesion  Policy  programmes  2007-2013,  focusing  on  the  European  Regional 
Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

management. 

The management  of the  project, including the financial  control and its supervision, is 
carried out with full observation of the stipulations contained in the signed contract on 
financing  and  the  “Instruction  on  the  eligibility  of  the  expenses  in  the  framework  of 
the  Regional  Operational  Program  of  the  Province  of  Podlaskie  for  the  years  2007-
2013”. 

For  the  duration  of  the  construction  works  during  which  construction  supervision 
inspectors are employed, systematic meetings are held, at which current decisions are 
being  taken  and  which  are  meant  to  ensure  the  effective  course  of  the  project 
realisation. 

Monitoring 

The project is monitored at various levels, including by the Marshal's Office in the form  
of  accounting  and  finance  in  payment  applications,  the  Superintendent  of  Investor  in 
the range of material and financial scope and by the Board of Community in the form 
of construction site - the material scope.  

Evaluation 

The  progress  of  work  has  been  monitored  by  representatives  of  the  Board  of  the 
Muslim community on a weekly basis. The approved schedule, expenditures and work 
quality are also analysed.  

After the completion of the project, the indicators of project results will be monitored 
on a quarterly basis. The direction and the effects of this monitoring will be presented 
in the reports on the realisation of the project. The project will be evaluated from the 
point of view of the fulfilment of its functions. Tourist traffic will be observed, as well 
as the appearance of the new products.  

Relevant targets were set during the document preparation for the project acceptance.  

Funds 

The total budget of the project amount is EUR 1.3 million, with an ERDF contribution 
of  EUR  0.85  million  (67%),  a  national  budget  contribution  of  EUR  0,061  million  from 
the Polish Ministry of Culture and National Heritage (4,8%), and private contributions 
of EUR 0.35 million (28%). 

4.3  Governance arrangements of the project  

No partners are involved in the  project.  The beneficiary is responsible for the correct 
realisation  of  the  project,  from  the  stage  of  applying  for  the  ERDF  grant,  to  the 
realisation of the project, to its financial clearing and auditing, as well as in the phase 
of securing the sustainability of the project outcomes. 

4.4  Innovative elements and novel approaches to implementation 

The means for realisation of this project were sought outside of Poland. A subsidy was 
sought in the Arab countries, and some funding was obtained from the government of 
Kuwait. 

October 2015 19 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Ex  post  evaluation  of  Cohesion  Policy  programmes  2007-2013,  focusing  on  the  European  Regional 
Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

4.5  Key implementation obstacles and problem-solving practices 

The  project  started  with  a  significant  delay  against the  dates  of  realisation  set  out in 
the contract for financing support. The beneficiary could not start delivery on time, as 
they  had  not  secured  their  own  financial  contribution  for  the  project.  The  beneficiary 
therefore asked for an extension to the realisation of the project until September 22nd, 
2015.  The  Managing  Institution  of  the  Regional  Operational  Programme  for  the 
Province of Podlaskie acknowledged the explanations provided by the beneficiary, and 
consented  to  this  extension.  After  significant  effort,  the  first  tranche  of  external 
support from the Government of Kuwait was obtained. 

In  the  opinion  of  the  beneficiary,  the  main  problem  in  the  realisation  of  the  project 
was  the  unhelpful  attitude  of  the  central  authorities  regarding  the  securing  of  the 
required national contribution. Competitions were organised by the Ministry of Culture, 
meant  to  select  projects  for  supporting  this  contribution.  The  Muslim  Community  in 
Kruszyniany  has  lost  three  times  in  these  competitions,  mainly  to  the  advantage  of 
large projects from other, wealthier parts of the country. It was necessary to score 70 
points  (out  of  a  total  of  100)  in  order  to  gain  the  support.  In  one  of  the  attempts  of 
obtaining this financial support, the Muslim Community obtained 69.8 points. 

In addition, as of today, the Government of Kuwait has not yet transferred the entire 
amount  of  the  financial  contribution,  which  they  are  under  obligation  to  provide.  The 
beneficiary  remains  in  constant  contact  with  the  Embassy  of  Kuwait  in  Warsaw,  and 
cultural  differences  are  believed  to  be  obscuring  the  correct  way  to  proceed,  and 
different cultural emphasis placed on deadlines.  

October 2015 20 

 
 
 
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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

5.  Key results  

The following indicators will be achieved in the project: 

Table 5.1. Targets 

Indicators 

Product indicator 

The number of constructed tourist and recreation facilities 

Result indicator 

The number of people using the tourist products 

The number of foreign tourists visiting the region 

The number of created/developed tourist products 

The number of jobs created (FTE) 

Measure 
number/year 

1 

14,180 

993 

6 

2 

Source: data from Regional Operational Program, Managing Institution 

The planned system for booking guide services (including foreign language guides) via 
the established active website of the Centre for Muslim Education and Culture of Polish 
Tatars in Kruszyniany has been established. This system, through the verified sales of 
tickets, along with guide reservations, will allow for precise assessment of the tourist 
traffic  in  Kruszyniany,  with  classification  into  domestic  and  foreign  tourists.  The 
number  and  make  up  of  tourists  participating  in  cultural  events  associated  with 
religious  feasts  or  other  traditional  occasions,  will  however  only  be  possible  to  be 
estimated, as the Centre does not intend to introduce tickets for this kind of events. 

The primary success of the project is the modification and significant modernisation of 
the  tourist  offer  in  the  locality  of  Kruszyniany.  Thereby,  the  project  will  contribute  to 
an increase in competitiveness and attractiveness of the tourist sector in the province 
of Podlaskie as a whole. 

Since  the  project  is  still  being  realised  it  cannot  yet  be  stated  whether  it  was  cost-
effective.  

October 2015 21 

 
 
 
 
 
 
 
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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

6.  Sustainability and transferability  

6.1  Sustainability  

Without the contribution of means from the ERDF and other public means, the project 
would  not  have  been  realised.  It  may  have  been  realised  or  extended  with  support 
from  means  provided  by  alternative  or  additional  source  –  for  instance  from  Muslim 
countries, in the form of subsidies or donations. 

The  Center  will  be  a  non-profit  institution,  and  the  means  to  guarantee  the  financial 
stability of the project from the start of its functioning, shall be secured by the Muslim 
Religious Community in Kruszyniany itself. 

6.2  Transferability  

The potential of the project is clearly high,  and the assessment of this project, based 
on  a  number  of  highly  differentiated  criteria,  is  very  positive.  The  costs  of  its 
realisation  are  relatively  low,  and  the  project  ought  to  obtain  sufficient  financial  and 
personnel support at the regional, or even national level.  

However, leaving the implementation of a complex project to a small group of people 
inexperienced  in  this  domain,  acting  alone,  may  give  rise  to  significant  difficulties  in 
the realisation of the project and discourage others from undertaking new initiatives. 

In order to secure a high quality of the services, a system of certification (referencing) 
for facilities offering hospitality services, tourist products, souvenirs has been created, 
which represents an appropriate and innovative initiative. 

Endowing  the  facilities  with  a  multi-functional  character  is  likely  to  ensure  their 
economic sustainability, as it enables full use of the facility over the entire year. 

Attention ought also to be paid to the possibility of a broadening of the target groups 
(tourists,  scientists,  students,  children  –  “the  green  schools”,  faithful  of  definite 
religious denominations) to capitalise on this use. 

October 2015 23 

 
 
 
 
 
 
 
 
 
Ex  post  evaluation  of  Cohesion  Policy  programmes  2007-2013,  focusing  on  the  European  Regional 
Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

7.  Lessons learnt  

The project is being implemented by a small association,  which is probably too small 
to  cope  with  the  required  levels  of  organisation  and  financial  requirements  (e.g. 
contribution  of  their  own  capital).  This  is  the  key  source  of  problems  resulting  in 
delays, even though the project has not given rise to controversies. 
In  the  future,  in  similar  situations,  the  Managing  Institution  (in  this  case  –  the 
Province Marshall’s Office) should be able to predict the problems with the fulfilment of 
the  schedule,  and  act  so  as  to  prevent  such  failures.  An  effective  mechanism  of 
support  for  such  initiatives,  functioning  on  the  national level, was lacking. In spite  of 
the  relatively  small  overall  costs,  there  have  been  persistent  problems  with  the 
beneficiary’s  own  contribution.  The  Ministry  of  Culture  and  National  Heritage  granted 
the tranches of support annually, so funds would not be available after December 31st, 
and  the  beneficiary  would  have  to  reapply.  There  was  no  support  from  the  province, 
which  was  the  consequence  of  tight  financial  constraints  (more  so  than  in  other 
regions of Poland).  

In  effect,  the  beneficiary’s  own  contribution  is  covered  by  foreign  sources.  Before 
support  from  Kuwait  was  obtained,  one  of  the  potential  forms  of  support  from  the 
Middle East was put to question by the Polish Foreign Office. 

The project has a unique character, linking religious elements with economic aspects. 
At the same time, it is a difficult project, because it is being implemented authentically 
by  the  local  ethnic-religious  community,  which  has  limited  financial  and  staff 
capacities. 

The  key  lesson  associated  with  this  project  is  therefore  a  need  for  greater  flexibility 
around the contribution of project beneficiaries, in order to allow for bottom-up/grass 
roots projects such as this to be able to benefit from the fund. Projects, which aim at 
the  protection  of  local  cultural  heritage,  and  whose  beneficiaries  are  small  local 
associations and communities, of a non-profit character, should not be treated  in this 
respect in the same manner as larger entities, especially commercial ones (e.g. hotel 
owners). The high value of the own contribution which is required significantly reduces 
the chances of being able to secure ERDF funding for such smaller non-profit entities. 
In the opinion of the beneficiary, the condition for the success of similar projects in the 
future is, alternatively: 

 
 

To decrease the required own contribution, or 
To establish a special financial support mechanism at the national level. 

October 2015 25 

 
 
 
 
 
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Development Fund (ERDF) and Cohesion Fund (CF) – Work Package nine: Culture and Tourism 

References 

  Truskolaski  T.  (red)  Środki  Unijne 

jako 

instrument  rozwoju  województwa 

podlaskiego w latach 2007-2013, Białystok 2008. 

  Wykorzystanie  środków  UE  w  ramach  Narodowej  Strategii  Spójności  2007-2013, 

Ministerstwo Infrastruktury i Rozwoju kwiecień 2015. 

  Czarnecki  Witold  Wybrane  problemy  gospodarki  przestrzennej  Podlasia  studia  i 

rozprawy, rozprawy naukowe seria no5, Białystok 2007. 

  Kondratiuk-Nierodzińska  M.,  Gardocka-Jałowiec  A.,  2011,  Stan  innowacyjności  i 

konkurencyjności województwa podlaskiego, Białystok. 

  Plan zagospodarowania przestrzennego województwa podlaskiego, 2003, Białystok 

  Strategia  rozwoju  województwa  podlaskiego  do  roku  2020,  2006,  Urząd 

Marszałkowski Województwa Podlaskiego (wersja z roku 2006). 

  Strategia  rozwoju  województwa  podlaskiego  do  roku  2020,  2013,  Urząd 

Marszałkowski Województwa Podlaskiego (wersja zaktualizowana z roku 2013). 

  Szczepanowski A., walory i atrakcje turystyczne województwa podlaskiego, t 1, t 2 

Białystok 2011. 

  Dziemianowicz W., Nowica P., Peszta K., 2012, Diagnoza strategiczna województwa 
podlaskiego,  opracowanie  wykonane  na  zlecenie  Urzędu  marszałkowskiego 
Województwa Podlaskiego. 

  E.  Szymańska  (red.),  Wpływ  projektów  z  zakresu  turystyki  i  kultury  na  rozwókj 
społeczno  -  gospodarczy  regionu.  Tom  II  Pozycja  turystyki  województwa 
podlaskiego  na  tle  kraju  i  Europy,  Urząd  Marszałkowski  Województwa  Podlaskiego 
Departament Rozwoju Regionalnego, Białystok 2015. 

October 2015 27 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
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  doi: 10.2776/395431