12 EXECUTIVE SUMMARY
STRENGTHENING GOVERN ANCE OF EU FUNDS UNDER COHESION POLICY © OECD 2020
a lack of formalisation around job profiles and roles, and poor anticipation of skills needs
and workforce planning.
There is a widespread desire for more training, but learning and development
modules lack a strategic vision and are under-utilised. Most MAs have training modules
designed to keep staff up to date with legislative and regulatory developments. Beyond
these core modules, training is not perceived by staff as useful to their career development.
Competences for ESIF administration have rarely been defined, and as such, learning and
development is not systematically aligned with core competency development.
MAs need to be able to recruit and retain top talent, but feel constrained in their
options for addressing this. Managing ESIF requires deploying a range of skills and
technical knowledge, but many MAs lack the flexibility and agility to do so. MAs face
competition in terms of attracting necessary skills, and existing human resource
management policies are often rigid and slow. Opportunities for mobility is often limited,
with many staff sitting in flat hierarchies with little chance of meaningful career
progression. Over time, employee engagement can be affected, and in some MAs, turn-
over is high.
Challenge area 2: Strategic implementation of Operational Programmes
MAs face common challenges in their strategic approach to Operational Programme
implementation and the ESIF investment cycle, which affect spending effectiveness.
Regardless of country contexts and degree of experience with ESIF financing, there is
generally room to enhance capacity in strategic Operational Programme (OP) design,
priority setting, information and knowledge sharing, and performance measurement. Doing
so could help MAs better capture synergies within their OPs and across Priority Axes,
create more integrated investment processes, optimise OP implementation processes
throughout the investment cycle, and eventually enhance investment impact.
There is room to build stronger partnerships among Operational Programme
stakeholders, particularly with beneficiaries, including through more customised
approaches. MAs are fundamental partners in ensuring the effective use of ESIF as a
means to attain Cohesion Policy and national development goals. Intermediate Bodies (IBs)
and especially beneficiaries, as the final recipients of EU funds, play a decisive role in the
ESIF investment process. There is room to better support the capacity of these two groups
– and especially that of beneficiaries – to manage and undertake ESIF financed projects
throughout the OP investment cycle. Tailoring communication and capacity-building to
their needs is one approach. This additional consideration can be fundamental to
establishing and maintaining constructive partnerships with OP stakeholders, particularly
beneficiaries.
Challenge area 3: Framework conditions
Framework conditions exert significant pressure on Operational Programme
implementation, ultimately affecting absorption capacity. Framework conditions are
generally outside an MA’s direct control, however, they strongly affect the capacity of MAs
to smoothly manage OP investment. Frequent changes to regulatory and legal frameworks
(both national and European-level), “one-size-fits all” approaches to OP implementation,
inconsistent interpretations in control, verification and audit processes, and complex and/or
opaque procurement laws all contribute to generating administrative burden and high
transaction costs. This can result in implementation delays, financial corrections, mistrust
in the system and, at an extreme, a disincentive among beneficiaries to use ESIF. MAs and