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ERASMUS+ PROGRAMME: PLUSES AND MINUSES

ACCESSION LOG, ENTRY #9

Author: Aleksandar Kolekeski

ERASMUS+ PROGRAMME: PLUSES AND MINUSES

SUPPORTED BY:

ABOUT ACCESSION LOG

ACCESSION Log is the new tool, designed and applied by EUROTHINK – Centre for European Strategies, to oversee and assess track record of the Government of the Republic of Macedonia, EU-related policy making, implementation of the urgent reform priorities, and regular political dialogue between Macedonia and the European Union. In other words - Macedonia’s accession in the EU. ACCESSION Log will also attempt to analyse key events, such as: meetings of the EU Council, meetings of the European Council and other high level meetings; various documents published by the EU in relation to its enlargement policy, as well as global developments that affect EU policies and, consequently, policies in the Republic of Macedonia. Finally, ACCESSION Log will closely follow other processes, policies, documents and events related to Macedonia’s paramount priority on joining the EU and NATO.

Under individual entries, ACCESSION Log will analyse, determine benchmarks, propose policy options and advocate for particular solutions. Log entries are envisaged as brief reviews on relevant topics, based on analysis of: - data obtained from EUROMETER or field surveys conducted by other organizations; - data obtained from other research and analyses conducted by EUROTHINK or other organizations; - statements obtained as part of structured interviews with relevant interlocutors, focus group discussions, and EUROTALK sessions; - documents of the European Union, the European Commission and/or governments of EU member-states, NATO and its members, and documents of the Government of the Republic of Macedonia;- media news and reports in the Republic of Macedonia and EU member-states.

The content of this publication is the sole responsibility of the author and the grantee and do not reflect the views of the Foundation Open Society – Macedonia

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EXECUTIVE SUMMARY

Erasmus+ is the European Union programme designed for cooperation at European level in the areas of education, training, youth and sport, that aims to modernise them. Advancement in each of these areas makes a significant contribution in the overcoming of the economic and social challenges that Europe is facing. Hence, by supporting cooperation in these areas, the EU strives to achieve the set European political agenda for growth, employment, equality and social inclusion. The program refers to a period of seven years (from 2014 to 2020). Target groups are organizations in all sectors of lifelong learning, including school education, primary and secondary education, higher education, adult education and youth organizations.In the context of Erasmus+, the Republic of North Macedonia holds the status of programme country since 2014, which is the highest participation level of participation, implying equal status with EU member-states. Hence, our country is eligible for full participation in all actions under Erasmus+ on the grounds of compliance with all administrative preconditions, i.e. establishment of independent national authority accredited for decentralized management of the Erasmus+ Programme, which in our case is the National Agency for European Educational Programmes and Mobility (NAEEPM). Interest for participation in Erasmus+ among beneficiary organizations in Macedonia is significantly increased in the course of years, as witnessed by the number of applications submitted, but also in terms of increased budget allocations for the country, the number of projects approved, and the amount of funds awarded.Macedonian organizations are able to cooperate with international partners, to lead innovative projects and to share best practices and offer new opportunities for youth in collaboration with other programme countries on all grounds. In the period 2014-2020, around 35 million EUR are specifically designated for Erasmus+ projects led by organizations from North Macedonia. Only in the period 2014-2017, more than 300 Erasmus+ projects have been approved to organizations from North Macedonia, in total value of around 15 million EUR. In 2019, 6.84 million EUR are specifically designated for organizations from the Republic of North Macedonia, while in 2018 this amount was 5.288 million EUR. Funds allocated for the year 2020 are even higher. Macedonian organizations are also eligible to apply for additional funding (under the so-called centralized actions), managed by the European Commission’s Executive Agency, while schools enjoy an additional opportunity to apply for school partnerships with other national agencies across Europe.On the other hand, national policies are not conductive to programme and institutional support for adequate participation in compliance with the country’s status of programme country under Erasmus+.Data used in this document are based on the “Analysis of Macedonian Participation in Decentralized Actions under Erasmus+” developed by Eurothink, which relied on relevant research methodology for collection of necessary data that would provide baseline for development of evidence-based realistic, relevant and attainable recommendations to improve participation of Macedonian organizations in Erasmus+.

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Based on analysis of the database on Erasmus+ projects approved by NAEEPM, a total of 318projects were approved in the period 2014-2017, in total value of 15.103.707.13 EUR.

Analysed in terms of the number of projects approved per year, there is a visible trend of increase. On annual level, in the years 2015 and 2016 the number of projects approved has increased by 20% compared to the previous year, with additional increase by 4.5% in 2017. This trend continued in 2018.

In general, the scope of total funds allocated for Erasmus+ projects in North Macedonia is increasing every next year. Hence, funds awarded in 2015 implied an increase by 80% compared to 2014, while in 2016 these funds implied an increase by 20% compared to 2015. Funds awarded in 2017 are by 17% higher compared to 2016 figure. Overall increase of funds awarded in the period 2014 - 2017 accounts for staggering 114%. The average amount of grants awarded by NAEEPM is calculated in the value of 54,038 EUR.

Chart no.1: Number of projects approved, per year

PROBLEM CONTEXT AND IMPORTANCE

Significant increase of funds from year to year

This figure does not include funds for projects related to accreditations and school partnerships approved by other European states.

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2014 2015 2016 2017

62 74 89 93

Number of projects approved, per year

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By the end of 2017, around 43% of total programme funds allocated for the period 2014-2020 have been awarded, in total amount of 35 million EUR. This means that 57% of funds from the total amount of 20 million EUR should be awarded in the last three years of programme implementation. This trend is indicative of the need for continuous capacity building at NAEEPM in terms of programme and project administration.

Continuous increase of planned funds

2018, 2019 and 2020.2

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2014 2015 2016 2017

10.000.000.00

5.084.339.003.646.000.85 4.345.925.72

2.027.441.565.000.000.00

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Funds awarded, per year (in EUR)

Chart no.3: Ratio of funds awarded and budget allocations

Chart no.2: Funds awarded, per year

40.000.000.00

20.000.000.00 43%57%

Funds awarded (2014-2017) Budget allocations (2018-2020)

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Funds awarded and budget allocations by 2020

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Increased popularity among Macedonian beneficiary organizations for programme participation

Another favourable development in this regard concerns announcements by the European Commission that in 2021, as the first year of the programme’s next financial perspective (2021-2027), the initial allocations for the country will be around 20 million EUR and that this amount will be increased every next year.

Chart no.4: Number of applications submitted, per year

There is a trend of increased popularity among Macedonian beneficiary organizations for participa-tion in Erasmus+. From 320 applications submitted in the initial year 2014, their number has increased by total of 60% in 2018, and accounted for 517 applications annually. This trend is indicative of continuous increased interest among Macedonian beneficiary organizations for programme participation.

In addition to projects approved by NAEEPM, Macedonian schools can also participate in school partnership projects financed by completely different sources, i.e. by other national agencies across Europe. Funds for these projects are administered by NAEEPM and currently more than 100 such projects are approved and implemented. Another trend observed concerns the rapidly increased interest among Macedonian schools to participate in this type of projects, which imposes high risk in terms of the administrative burden for NAEEPM in the next years.

200

20182017201620152014

600

400

0

Number of applications submitted

Key actions KA-219 and KA-2293

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Utilization of EU funds represents a unique indicator about the dynamics and quality of reforms implemented in the country. In the case of Erasmus+, participation of North Macedonia in these programmes should facilitate meaningful EU integration, pursued through cooperation with EU member-states under projects whose topics and priorities, goals and results are current and relevant for citizens across Europe. However, is this actually the case?

Analysis of the country’s participation in Erasmus+ is not and should not be reduced to merely technical work on counting projects and funds awarded. Much more important are changes in the society and development of human potentials. Being the most visible and recognizable EU Programme, Erasmus+ aims to Europeanize the society and expand the European values. 2019 marks the 13th year after Macedonia’s initial participation in the Union Programmes on Education, Sport and Youth, and the 6th year of Macedonia’s full participation in Erasmus+. At EU level, negotiations are underway for the new financial perspective 2021-2027, which envisages double increase in funds made available by the EU. What are the lessons learned?

DOES THE POLICY FRAMEWORK FACILITATE INSTITUTIONAL SUPPORT FOR THE PROGRAMME?

Chart no.5: Number of projects for Erasmus+ school partnerships with Macedonian schools in Europe

201820172016

61

62

2015

School partnership projects

In the period 2007-2013, Lifelong Learning and Youth in Action existed as individual programmes, and in 2014 they were merged into single programme - Erasmus+.

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On this road, North Macedonia had its successes and challenges, especially in terms of meeting anticipated administrative preconditions concerning independent, i.e. decentralized management of EU funds. First steps in that regard were taken as early as 2007 with the adoption of the Law on Establishing NAEEPM, which was formed as independent legal entity the next year, i.e. 2008. In the first two years of its operation, the National Agency was focused on implementing preparatory measures for programme management, but due to irregularities related to performance by the first director, the European Commission suspended the country’s participation for the years 2010 and 2011. After changes made to the relevant law and to the composition of its Governing Board and after implementation of corrective measures, the country was again eligible for programme participation in 2012. Again, 2012 and 2013 were marked by implementation of preparatory measures for programme participation. Finally, in 2014 North Macedonia acquired the status of programme country and has since continuously participated in the programme on equal footing with EU member-states.

At EU level, policy framework in the context of Erasmus+ is standardized and includes: (1) objectives defined under the Europe 2020 Strategy, including the headline education targets; (2) objectives defined under the Strategic Framework for European Cooperation in Education and Training (ET 2020), including the corresponding benchmarks; (3) sustainable development of partner countries in the field of higher education; (4) overall objectives under the Renewed Framework for European Cooperation in the Youth Field; (5) objective on developing the European dimension in sport, in particular grassroots sports, in line with the EU Work Plan for Sport; and (6) promotion of European values in compliance with Article 2 of the Treaty on European Union. Based on the overview of the domestic policy framework, the key document identified concerns the Education Strategy 2018-2025. The same should establish and provide clear link between domestic and EU policies in the context of Erasmus+.

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Macedonian road under Erasmus+

EU policy framework in the context of Erasmus+

Reduce the share of early school leavers under 10% and increase youth with tertiary degrees to at least 40% by 2020The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the member states in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between men and women prevail. http://mrk.mk/wp-content/uploads/2018/10/Strategija-za-obrazovanie-MAK-WEB.pdf

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Although the chapter Vision, Goals and Objectives under the Education Strategy 2018-2025 refers to Europe 2020 Strategy, direct correlation cannot be established with this EU document and education targets defined therein. For example, dropout students are mentioned only once in the entire strategy, under paragraph 162, which reads: “Flexible forms of educa-tion and lifelong learning have been integrated by using the ICTs in the existing system”.

Application of the EU policy frame-work at national level in Erasmus+ programme countries is, to great extent, reflected in their respective national education strategies.

Absence of Erasmus+ in the National Education Strategy 2018-2025

No reference is made to other objectives under the Strategic Framework for European Cooperation in Education and Training, Higher Education, Youth and Sport. Also, no correlation could be established in regard to promotion of European values in compliance with Article 2 of the Treaty on European Union. For example, the words “pluralism”, “justice” and “solidarity” are not featured at all in the national strategy, while the words “non-discrimination” and “tolerance” are referenced only once in the entire 192-page document. The word “equality” is featured a total of 4 times.

A number of programme countries have also adopted national strategies on internationalization of education and mobility. On the other hand, the current education strategy in our country does not even recognize NAEEPM as institution holding an important role in education. Namely, NAEEPM is referred under paragraph 155 of the national strategy, i.e. the same is enlisted only in the context of “other laws regulating activities of different structures of the education system”.

Based on the review of the Education Strategy 2018-2025, there is evident lack of vision on the part of the Ministry of Education and Science in respect to internationalization of education, mobility and especially in respect to objectives under the Erasmus+ programme.

The national Education Strategy 2018-2025 does not take into account the Erasmus+ programme in regard to pre-school, primary education, high school education, secondary education and training, adult education or in regard to youth.

Ibid, p. 648

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In the period 2014-2017 and related to projects approved by NAEEPM, this agency demonstrated effective capacity for ongoing implementation of calls, organization of the project evaluation proce-dure, contracting, and generally solid financial and administrative operation in compliance with programme rules defined at EU level.

NAPEEM’s programme work in relation to Erasmus+ is significantly greater in scope compared to project management of decentralized actions covered in this analysis, in particular because such work includes:- administration of school partnership projects awarded by national agencies in other states;- mobility accreditation of higher education institutions, youth organizations and secondary educa-tion and training;- management of other European networks, such as Eurydice, Europass, Euroguidance, eTwinning, ECVET, Eurodesk, EPALE, School Education Gateway, and YouthWiki until 2018;- promotion of the Erasmus+ programme at national level, which implies the broadest range of programme beneficiaries.

NAEEPM’s current organizational setup has potential to create bottlenecks and to group large scope of tasks and duties with small number of staff members hold-ing programme responsibilities. There is a risk of workload concentration that results in reduced and rare application of systemic control mechanisms. Another risk concerns the relatively modest capacity for more rigorous monitoring of programme benefi-ciaries in different stages of project implementation.

There are opportunities to improve NAPPEM capacity in terms of programme activities, taking into account the disproportionately high number of staff members deployed to non-programme positions, i.e. auxiliary and logistic positions.

Need to improve NAEEPM’s effectiveness

Programme beneficiaries indicate to systemic barriers

As part of its research study “Analysis of Macedonian Participation in Decentralized Actions under Erasmus+”, Eurothink sent questionnaires to all beneficiary organizations awarded project funds by NAEEPM, i.e. their designated contact persons. When answering the questionnaire, survey partici-pants were allowed to propose own recommendations based on their experiences in implementing Erasmus+ projects.

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Their answers were grouped into several categories enlisted below and ordered according to frequency of proposals and recommendations:

Systemic barriers that affect implementation of Erasmus+ projects;

Proposals related to programme rules;

Administrative and financial issues;

Support for beneficiaries;

Evaluation and ranking of applications.

High number of survey participants indicated systemic barriers that emerge in terms of programme beneficiaries’ interaction with other state institutions, which are characterized by procedures that significantly complicate project implementation. In particular, this relates to:

- Ministry of Finance and the National Bank (opening treasury accounts);- Secretariat for European Affairs and Public Revenue Office (registration of projects for VAT exemption); - Ministry of Labour and Social Policy (issuance of permits for volunteer residence);- Ministry of Interior (issuance of permits for foreigner residence);- Mistry of Foreign Affairs (issuance of temporary residence visas);- Association of Local Self-Government Units (ZELS) (disbursement of project funds); and- problems related to public procurements when implementing E+ projects.

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POLICY RECOMMENDATIONS

(1) Decision makers should anticipate development in view of envisaged increase of funds under the Erasmus+ programme, should provide institutional support and developmental policy concept, instead of making changes in response to problems that emerged, as was the case with the two-year suspension in 2010 and 2011.

(2) The Government, together with the expert public, all stakeholders and other interested persons and institutions, should adopt a national developmental strategy on internationalization of education 2021-2027, which will be complementary to the EU Strategy for the new financial perspective. This effort is deemed necessary due to serious omissions under the national Education Strategy 2018-2025 in relation to understanding potentials of the Erasmus+ programme and the lack of vision to capitalize on Macedonia’s current status as programme country in the most popular EU Programme.

(3) The Government should urgently facilitate special treatment for fast-tracked and unhindered procedures for all participants in Erasmus+ projects at relevant state institutions. This is of particular importance with a view to ensure greater impact from implementation of Erasmus+ projects in terms of Europeanizing the society and modernizing the education system.

(4) Amendments should be adopted to the Law on Establishing the National Agency for European Educational Programmes and Mobility (NAEEPM) with a view:

- to introduce statutory possibilities for NAEEPM to work on capacity building for programme beneficiaries, in the wake of the trend on increasing participation of different categories of beneficiary organizations, as well as continuous increase of budget allocations from Brussels for every subsequent financial year;

- to introduce supervisory function by establishing NAPEEM’s Supervisory Board, which would be comprised of chair and four members, as follows: two members from the Ministry of Education and Science, two members from the Ministry of Finance and one member from the Agency for Youth and Sports;

- to transform composition and role of NAPEEM’s Governing Board so that the same would engage in programme coordination, as well as strengthened links with policies and needs of beneficiaries in different areas. In addition to competent institutions, composition of National Agency’s Governing Board should adequately reflect different categories of other key stakeholders, such as kindergartens, primary schools, high schools, VET schools, training centres, universities, adult education centres, civil society organizations and youth organizations.