Annexes to COM(2017)130 - First Annual Report on the Facility for Refugees in Turkey - Main contents
Please note
This page contains a limited version of this dossier in the EU Monitor.
| dossier | COM(2017)130 - First Annual Report on the Facility for Refugees in Turkey. |
|---|---|
| document | COM(2017)130  |
| date | March 2, 2017 |
Regulation (EU) No 233/2014 of the European Parliament and of the Council establishing a financing instrument for development cooperation, OJ L 77, 15.3.2014, p. 44.
Regulation (EU) No 231/2014 of the European Parliament and of the Council establishing an Instrument for Pre-accession Assistance, OJ L 77, 15.3.2014, p. 11.
Regulation (EU) No 230/2014 of the European Parliament and of the Council establishing an instrument contributing to stability and peace, OJ L 77, 15.3.2014, p. 1.
18
19
20
https://ec.europa.eu/neighbourhood-enlargement/neighbourhood/countries/syria/madad_en
The
total distribution
of Member States'
contribution is available at
to the
21
has been disbursed; of which EUR 292 (HUMA)22.
million under
IPA and EUR 283
million under
ECHO
There is so far a satisfactory match between, on the one hand, the pace of Member States' payments of their contributions into the Facility and, on the other hand, the pace of disbursements financed by those contributions from the Facility.
The distribution of Member States' payments to the Facility is the following23:
| Member States' payments to the Facility (in million €) | ||||
| 2016 (paid) | 2017 | 2018 | 2019 | Total 2016-2019 |
| 678 | 846 | 396 | 80 | 2000 |
At the end of 2016, the deadline for final payments under the Facility was extended from the end of 2019 to the end of 2021 for technical reasons to allow for the signing of some longerterm contracts foreseen in the Special Measure adopted in July 2016. For example, for infrastructure works, the final payment can only be made after formal reception of works which requires a longer deadline. Further to discussions in the fourth Steering Committee and in Coreper24, modified letters of acknowledgement of receipt were issued in December 201625. This extension will have no negative impact on the speed of contracting nor with regards to the implementation of the activities concerned, and will not impact the timing of the payments of the Member States nor of the Commission into the Facility.
4. Implementation of the Facility
The Facility is implemented as humanitarian and non-humanitarian assistance, with EUR 1.4 billion and EUR 1.6 billion indicatively allocated to the respective strands.
EUR 1.4 billion
EUR 1.6 billion
Humanitarian assistance
Non-humanitarian assistance
Humanitarian assistance supports the most vulnerable refugees (and other persons of concern) through predictable and dignified support addressing basic needs and protection.
22
Being
external assigned revenue, the contributions not implemented in a given year are automatically carried
Including voluntary advance payments from three Member States
26 October 2016.
Article 2(1) of the amended letters now reads: “The Commission may only enter into legal commitments until
Non-humanitarian assistance supports the longer-term livelihoods, socio-economic and educational perspectives of refugees. It aims to help children with access to primary and secondary education and improvements to educational infrastructure, including school buildings and learning materials. It also focuses on exposed groups, e.g. by protecting women against sexual and gender based violence and improving access to sexual and reproductive health care.
The January 2017 Steering Committee meeting recognised, based on the 4th report on progress made in the implementation of the EU-Turkey Statement26, that the EU-Turkey Statement – albeit fragile – continued to deliver and acknowledged that there was continued good progress in the implementation of the Facility.
By the end of February 2017, the total amount allocated under the Facility to both humanitarian and non-humanitarian assistance had reached EUR 2.2 billion27. Out of the total allocated, 39 projects had been contracted for a total of EUR 1.5 billion, or half the Facility envelope. Out of the total contracted, EUR 750 million28 had been disbursed, which is testimony to the swift and efficient implementation of the Facility. Facility funding continues to have a direct impact on the ground, for refugees and host communities29.
Most Facility implementation takes place out-of-camp, mainly in the ten most affected provinces: Sanliurfa, Hatay, Gaziantep, Adana, Mersin, Kilis, Mardin, Kahramanmaras, Osmaniye and Istanbul.
4.1 Humanitarian assistance
EU humanitarian aid is guided by the European Consensus on Humanitarian Aid of 200730, which notably provides that the EU as a humanitarian actor adheres to the humanitarian principles of humanity, neutrality, impartiality, and independence. The Lisbon Treaty established a specific legal base for humanitarian aid (Article 214 TFEU), while the Humanitarian Aid Regulation (HAR; No. 1257/96)31 lays down the operational framework for EU humanitarian aid. The European Commission's humanitarian aid is based on annual country-specific Humanitarian Implementation Plans (HIPs). The framework for cooperation between the Commission and its partners in the area of humanitarian aid is established by the Commission's Financial and Administrative Framework Agreements (FAFA) with international organisations and Framework Partnership Agreements (FPAs) with nongovernmental organisations.
From the EUR 1.4 billion mobilised under the humanitarian strand of the Facility, EUR 595 million has been allocated to date. Of this, EUR 551 million has been contracted, through 28 humanitarian projects with 19 partners, covering the response to basic needs, protection, education and health. Out of the EUR 551 million contracted, EUR 411 million has been
26 COM(2016) 792 final, Communication from the Commission to the European Parliament, the European Council and the Council, fourth report on the progress made in the implementation of the EU-TR Statement, 8/12/2016.
27 This figure includes amounts for which the Commission has adopted a financing decision, but for which a budgetary commitment has not yet been made. Budgetary commitments to date amount to EUR 1.58 billion.
28 This figure includes also disbursements under projects implemented by the EU Regional Trust Fund in response to the Syrian crisis, but not yet charged to the EU budget.
29 Details on Facility projects available at: https://ec.europa.eu/neighbourhood-enlargement/news_corner/migration_en
30 Joint Statement by the Council and the Representatives of the Governments of the Member States meeting within the Council, the European Parliament and the European Commission (OJ C 25, 30.1.2008).
disbursed to date.
The
following contracts have been signed within the framework of the
Facility.
In March 2016, the EU awarded the World Food Programme (WFP) EUR 40 million to help provide 585 000 refugees living outside of camps and 150 000 refugees living in refugee camps with e-cards which can be redeemed for food at designated shops. The WFP is working closely with the Turkish Red Crescent for the efficient delivery of the assistance. The refugees currently benefitting from the e-cards will gradually be transferred to the Emergency Social Safety Net (see below).
By 15 April 2016 a further EUR 50 million were contracted in humanitarian aid to address the immediate needs of
refugees
Examples of EU support on health
Specific services in the health sector covering primary health care assistance, physical
rehabilitation/post-operative care for war wounded people, assistance to people living with disabilities, mental health services and reproductive health are being supported.
517 864 health care consultations have been conducted.
276 Syrian doctors and 175 Syrian nurses received training.
Seven migrant health centres have opened and started delivering practical training for Syrian health professionals.
Education in Emergencies
Education in Emergencies has also been identified as one of the priority areas for
humanitarian aid. This is done through support to non-formal education and school
transportation.
9 380 children are being
provided with school
transportation.
In addition, the Commission is working to provide Education assistance through the ESSN, aimed at increasing enrolment and improving attendance for the most vulnerable children.
Turkey. The 15 humanitarian organisations funded under this allocation include the Danish Refugee Council, the International Organization for Migration (IOM), the International Medical Corps UK and the International Federation of Red Cross and Red Crescent Societies (IFCR), who are working in close cooperation with Turkish partner organisations. The projects address all major humanitarian concerns, providing food assistance, help in the form of cash and vouchers, specialised assistance for winter, access to health services, education for refugee children, protection, information management, and specialised help for persons with disabilities, as well as mental health and psychosocial support.
In June 2016, the Commission published the Humanitarian Implementation Plan for Turkey (HIP)32, for a total amount of EUR 505.65 million.
In July 2016, EUR 74 million was contracted under the HIP for projects in the sectors of primary health care, non-formal education, preparations for the upcoming winter and protection.
On 26 September 2016, the Commission launched the flagship of the humanitarian component of the Facility – the Emergency Social Safety Net (ESSN) – together with the Turkish authorities and the partner organisations implementing the scheme. It is the EU's largest-ever humanitarian programme, with an initial budget of EUR 348 million33, and aims at providing the most vulnerable refugees with monthly cash transfers onto an electronic debit card to help them cover their basic needs. A monthly cash grant is electronically uploaded on
32 Available at http://ec.europa.eu/echo/sites/echo-site/files/hip_turkey_2016.pdf
33 Contracted to the World Food Programme and its implementing partner the Turkish Red Crescent that works in close coordination with the Ministry of Social and Family Policy and AFAD (Disaster and Emergency Management Presidency), which reports directly to the Prime Minister and coordinates Turkey's response to the
The Emergency Social Safety Net (ESSN)
The registration of beneficiaries started on 28 November, and the first cash distributions started at the end of December 2016. At the end of February 2017, a total of over 250 000 refugees have already received support through the ESSN programme. The ESSN aims at progressively covering one million of the most vulnerable refugees in the course of 2017.
cards allowing people to pay for what they need the most, providing them with the dignity of choice. This electronic cash transfer system is not only a very efficient way of providing humanitarian assistance but also stimulates the local economy.
In December 2016, a contract of EUR 5 million was signed with Mercy Corps in the area of
protection. The project aims at improving the protective environment for 50 000 refugees by
enhancing their capacities (self-protection) and building community safety nets to facilitate
safe access to services such as health,
documentation, income support (e.g. ESSN),
legal advice, education, translation, and
transport.
A EUR 34 million contract was recently signed with UNICEF on Conditional Cash Transfer for Education (CCTE). This project will be linked to the ESSN, and will contribute to increasing enrolment and improving attendance for the most
vulnerable children.
Before 1 April 2017, EUR 41.65 million of the remaining amount under the HIP will be contracted for projects focusing on protection and health.
In spring the Commission will publish the 2017 Humanitarian Implementation Plan (HIP) for Turkey. The first contracts and payments under the 2017 HIP are expected in the second quarter of 2017. They will focus on the continuation of the humanitarian strategy, covering protection, health and education as well as a second tranche for the ESSN, which will continue to account for the majority of the available funding.
4.2 Non-humanitarian assistance
The EUR 1.6 billion mobilised under the non-humanitarian strand of the Facility has been almost entirely allocated. EUR 944 million has been contracted and EUR 339 million has been disbursed34. The breakdown of allocations per priority area is as follows:
This
figure includes also disbursements under projects implemented by the
EU Regional Trust Fund
34
in
Article 2(1) of the Common Implementing Re gulation35 (CIR) applicable to IPA II allows the Commission to adopt Special Measures in duly justified cases. Special Measures are adopted with a favourable opinion of the IPA II Committee and communicated to the European Parliament and the Member States.
To date, three Special Measures have been adopted within the framework of the Facility, as follows:
• Special Measure on a contribution to the EU Regional Trust Fund in Response to the Syrian Crisis (EUTF) for EUR 55 million in March 201636;
• Special Measure on migrants returned to Turkey for EUR 60 million in April 201637;
• Special Measure on education, health, municipal infrastructure and socio-economic support for EUR 1.415 billion in July 201638.
In accordance with Article 4(1) of the CIR, financial assistance may be provided through the following types of financing a) grants; b) procurement contracts for services, supplies or works; c) general or sector budget support ; d) contributions to trust funds and financial instruments. For the purpose of the IPA II Facility funds, Article 4(7) also gives the possibility to the Commission to implement the funds indirectly through e.g. international organisations, Mem ber State bod ies o r I nternati on al Financial Institutions (IFIs).
IPA II funds under the Facility are managed in accordance with the rules for external action contained in Title IV of part two of the Financial Regulation and its Rules of Application. Interventions can finance the reimbursement of pre-agreed, actually incurred and verifiable costs relating to precisely defined tasks. This also applies to third parties, including IFIs. Costs involved in the mobilisation of intermediaries — if and where appropriate — have been kept to an absolute minimum. Schemes and initiatives financed by resources coordinated under the Facility performing satisfactorily could be scaled up and rolled out in accordance with EU financial rules and the requirements of the respective basic act, subject, where appropriate, to the relevant comitology comm ittee.
Grants are given to implement specific actions. Payments under grants are made based on reported incurred costs in accordance with the general conditions of the individual grant contract. These costs are verified by external auditors before further pre -financ ing or final payment takes place. Should any irregularities be detected or costs declared ineligible, the Commission can recover funds or impose penalties.
The Commissions cooperation with the IFIs takes place within the framework of indirect management (Financial Regulation Articles 60 & 61) where the Commission entrusts the management of the implementation to the IFI concerned. The Commission can delegate implementation responsibilities to IFIs that have passed a so-called pillar assessment. The purpose of such pillar assessment is to confirm compliance of the IFIs systems with requirements under the EU Financial Regulation. In one specific case, cooperation takes place
35 Regulation (EU) No 236/2014 of the European Parliament and of the Council of 11 March 2014.
36 C(2016) 1489 COMMISSION IMPLEMENTING DECISION of 7.3.2016 adopting a Special Measure on the contribution to the European Union Regional Trust Fund in response to the Syrian crisis, to be financed from the general budget of the European Union.
37 C(2016) 2435 COMMISSION IMPLEMENTING DECISION of 19.4.2016 adopting a Special Measure on migrants returned to Turkey, to be financed from the general budget of the European Union.
38 C(2016) 4999 COMMISSION IMPLEMENTING DECISION of 28.7.2016 adopting a Special Measure on education, health, municipal infrastructure and socio-economic support to refugees in Turkey, to be financed from the General Budget of the European Union for the years 2016 and 2017
within the framework of direct management in the form of a direct grant where the IFI itself is implementing funds under the Facility40.
The first Special Measure under the Facility was adopted in March 2016 and contributed EUR 55 million to the EUTF. Contracts for the first Facility-funded projects were signed on 4 March 201641. On non-humanitarian aid, it consists of one project on education, worth EUR 37 million, and implemented by UNICEF. Its results achieved so far are presented in the box for illustration purposes42.
The Facility has continued to support a series of bottom-up measures to help refugees in Turkey. To date five projects, for a total of EUR 64.4 million have been contracted through the EUTF, mainly on socio-economic support, education and higher education. An additional package of EUTF projects is under preparation.
In April 2016, EUR 60 million was mobilised under a second Special Measure, which provides support to cover the costs incurred in receiving and hosting migrants who have been returned from Greece to Turkey under the EU-Turkey Statement of 18 March 2016. The Special Measure is implemented through a direct grant to the Turkish Directorate General for Migration Management (DGMM) and eligible expenditure is based on actual costs incurred and paid, effective as from 4 April 2016.
A contract of EUR 20 million financed under the IcSP was signed in August with the International Organisation for Migration (IOM) to develop the capacities of the Turkish Coast Guard for search and rescue operations.
Further to discussions at the second Steering Committee of the Facility and approval by the IPA Management Committee, the Commission adopted the third Special Measure on education, health, municipal infrastructure and socio-economic support with a budget of EUR 1.4 billion on 28 July 2016.
Under the third Special Measure two direct grants were signed in September for a duration of two years. Under the first contract – for EUR 300 million – with the Turkish Ministry of National Education, 500 000 Syrian children will get access to formal education, and receive stationary, course books and school uniforms. From these students, 360 000 will receive Turkish language training; 40 000 Arabic language training; 10 000 catch-up, 20 000 additional back-up training and 40 000 will be transported to
Example of results achieved with UNICEF
60 000 children benefiting from educational materials
7 950 Syrian teachers and other education personnel receiving incentives
2 081 teachers and other education personnel trained
10 392 children benefiting from psychosocial and social cohesion programmes
44 337 children benefited from peer information and support sessions from youth leaders
6 adolescents and youth spaces established
9 NGOs capacitated on implementing social cohesion and peacebuilding activities
9 888 adolescent and youth benefiting from awareness raising activities
3 child protection units established
school.
40 The third Special Measure of July 2016 foresees a direct grant to International Finance Corporation (IFC) worth EUR 5 million.
http://europa.eu/rapid/press-release_IP-16-584_en.htm
42 EUTF/ UNICEF project (Ref. SC150526) "Generation Found"; Results achieved and presented in the box are reported against the logframe of the UNICEF's project (action-level reporting). However, the Facility-level reporting on the achievements of results will be based on the agreed Facility Results Framework that captures
Training under the direct grant on education
Since October 2016, 5 200 Turkish language teachers have been recruited and trained. 1800 school principals have received training on the integration of Syrian students into the school system.
The second contract – also of EUR 300 million – with the Ministry of Health will provide around two million refugees with access to primary healthcare services through the creation and operationalisation of healthcare facilities, and will make rehabilitative mental health services available for up to one million refugees in Turkey. In addition, family planning, prevention of communicable diseases, recruitment and training of healthcare staff and
outreach activities will be provided.
In addition to these grants two contracts for a total of EUR 200 million were signed with KfW and the World Bank in December 2016. These contracts provide for the construction and equipment of 70 new schools in provinces with a high concentration of Syrian refugees. The construction and equipping of these schools should benefit 50 000 Syrian children. The
contracts should also increase the implementation and management capacity of the Ministry
of National Education43.
Additional Facility interventions in the area of socio-economic support, municipal and health-related infrastructure should be signed during the first half of 2017. Relevant contracts should be implemented with the help of International Financial Institutions.
The third Special Measure of July 2016 also provided for a project preparation facility (PPF). The objective of PPF, which has a maximum budget of EUR 25 million, is to help identify and articulate future investment projects in priority areas – health, education and municipal infrastructure – in the target provinces in Turkey. The Commission is currently reviewing applications submitted to the PPF and should follow-up with the IFIs concerned in consultation with the Turkish authorities. The aim is to sign contracts by spring 2017. Selected interventions should develop into a solid pipeline of investment projects that should be ready for contracting and implementation by early 2018.
5. Monitoring & evaluation and audit
5.1 Monitoring & evaluation
As a coordinating mechanism, the Facility provides for the funding of a variety of actions in a variety of priority areas, which are implemented via different EU instruments, with the help of a variety of partners. This key characteristic of the Facility has determined the set-up of the Facility's monitoring and evaluation (M&E). The Facility requires a framework that is able to measure the results achieved by Facility-funded interventions irrespective of the instrument mobilised. The Facility Results Framework is designed as a management and accountability tool to allow reporting on progress both at Facility and priority area level. It allows for the review of performance vis-à-vis intended results, for programme adjustments where necessary, and produces tailored information in response to information requests.
The draft Results Framework was discussed at the Steering Committee meeting of 12 January 2017. The Results Framework is expected to be finalised in March 2017. The Framework is a dynamic document that should allow for continuous review of both relevance and impact of Facility funded interventions.
43 The contracts complement a similar project with KfW funded under the EUTF worth EUR 70 million, which
For the monitoring system to become operational, an on-line monitoring platform is foreseen. This should facilitate data generation, aggregation and analysis, and enable the visualisation of progress on ongoing actions at regular intervals. It should provide dashboards representing current key figures and analysis of performance vis-à-vis targets under various angles of inquiry. Monitoring data should be disaggregated by gender, age and disability, where possible and appropriate. As an information portal, the platform should act as a one-stop shop for information needs of Facility stakeholders.
Technical assistance should be mobilised in support of the integration of different components of the monitoring mechanism so as to achieve an all-inclusive Facility-wide M&E system. This should include a variety of tasks, including technical encoding and operation of the online monitoring platform, the development of monitoring guidelines and monitoring tool, the provision of the third-party monitoring for actions funded by through IPA and the IcSP, and the contracting of evaluation. The system should be fully operational by the second half of 2017, while transitional measures are progressively foreseen in the meantime.
5.2 Audit
Funding under the Facility has been set aside to ensure that contracts signed under the Facility are subject to effective audit and where needed expenditure verification. In addition, the Facility will be subject to audits and controls by the Commission's Internal Audit Service as well as by the European Court of Auditors in line with regular procedures. The European Parliament and the Council also exercise financial supervision of the Facility as integral part of the General Budget of the European Union.
6. Communication and visibility
From the start Facility visibility and communication have been given high priority in conveying the message of the EU's strong support to refugees in Turkey. In September 2016, an interactive map was created on the dedicated Facility webpage44 allowing for the visualisation of Facility mobilisation in Turkey. The map allows for the location of ongoing Facility projects and provides detail on their intended results. The interactive map is managed by the Commission and has had considerable impact on social media, including Twitter and Facebook.
As part of the Facility's social media communication, infocards have been created to provide a visual description of the Facility mechanism and examples of Facility projects. The infocards tell the story of the Facility by putting a human face to EU support to refugees in Turkey. The infocards have been published on all EU social media channels, including Twitter and Facebook with a considerable number of hits, likes and shares.
Events organised to highlight the Facility's impact on the ground include the large media event in Ankara in September 2016 to launch the Emergency Social Safety Net. The event received considerable media coverage, both on EU, Turkish and international media, and featured a new video produced and a special ESSN infographic.
The EU Delegation in Turkey has distributed information through the network of EU Information Centres and organised high-level visits to projects financed by the Facility. In addition, it organised events for refugees and host communities on World Refugee Day, as well as a photo campaign on social media. These activities reached around 12 million people in Turkey. In November 2016, two videos were created in collaboration with the European Social Network to showcase projects in the area of health and education, including child
protection and primary healthcare provided to refugees, migrants and host communities in Turkey.
A Communication Strategy has been prepared to ensure a comprehensive and coherent approach to Facility-related communication by the Commission and other stakeholders. The strategy provides for an overall framework for communication and information activities under the Facility, aims to enhance Facility visibility, and raises the profile of the EU as delivering on its commitment to assist Turkey in hosting the largest refugee population in the world. Target audiences include refugees and host communities, Turkish citizens and the Turkey government, EU citizens and Member States and the international community. Communication activities foreseen should progressively integrate and focus on the results of Facility implementation on the ground.
7. Conclusion and next steps
Im ple mentation of the Facility is progressing well. The next steps are the following:
• Swift contracting of all actions that have been programmed - including the remaining amount of the 2016 Humanitarian Implementation Plan - and their effective implementation in line with the principles of sound financial management.
• Implementation of the Fa ci lity Project Pre paratio n Facility in spr ing 2017.
• Publication of the 2017 Humanitarian Implementation Plan in spring and conclusion of first contracts in the second quarter of 201 7.
• Operationalisation of the Facility monitoring and evaluation system by summer 2017.
• Roll-out of Facility com munication activities.
• Holding of Steering Com mittees at re gular interval. Next meeting is planned for 31 March 2017.