EX-POST EVALUATION REPORT ON THE RESULTS AND IMPACTS OF ACTIONS. (Report set out in Article 52(2) (b) of Decision No 574/2007/EC)

Transcription

1 EX-POST EVALUATION REPORT ON THE RESULTS AND IMPACTS OF ACTIONS CO-FINANCED BY THE EXTERNAL BORDERS FUND ANNUAL PROGRAMMES 2007 TO (Report set out in Article 52(2) (b) of Decision No 574/2007/EC)

2 EX-POST EVALUATION REPORT ON THE RESULTS AND IMPACTS OF ACTIONS CO-FINANCED BY THE EXTERNAL BORDERS FUND ANNUAL PROGRAMMES 2007 TO (Report set out in Article 52(2) (b) of Decision No 574/2007/EC) Report submitted by the Responsible Authority of: Republic of Poland Date: 28 January 2013 Name, Signature (authorised representative of the Responsible Authority):... Grzegorz Polak, Director Department for International Cooperation and European Funds, Ministry of Interior Name of the contact person (and contact details) for this report in the Member State: Łucja Chrobot Unit for EU Funds and Border Management Department for International Cooperation and European Fund, Ministry of Interior Phone: Karolina Chrzanowska Unit for EU Funds and Border Management Department for International Cooperation and European Funds, Ministry of Interior Phone:

3 Important remark This evaluation is to be performed by 1. staff with evaluation expertise within the Responsible or Delegated Authorities 2. a dedicated evaluation department within the national administration 3. external evaluation expert 4. or a combination thereof. OR This evaluation is to be carried out by the Responsible or Delegated Authority and then reviewed by 1. a dedicated evaluation department within the national administration 2. external evaluation expert 3. or a combination thereof. All options can be supported by the technical assistance. 3

4 GENERAL INFORMATION TO BE PROVIDED BY THE RESPONSIBLE AUTHORITY ON EVALUATION EXPERTISE AND ON METHODOLOGY Yes - Did you have recourse to evaluation expertise to prepare this report? - If yes, for what part(s) of this report? Part IV with appendix 2 - Please explain what kind of evaluation expertise you had recourse to: * In-house evaluation expertise (for instance, Evaluation department of the Ministry, etc.): n/a * External evaluation expertise: External experts chosen in the open concur. Important remark Any evaluation expert must be obliged by the Responsible Authority to: - use this template, exclusively - fully comply with any instructions, methodological note, maximum length, etc. set out as annex to this template. 4

5 EX-POST EVALUATION REPORT ON THE RESULTS AND IMPACTS OF ACTIONS CO-FINANCED BY THE EXTERNAL BORDERS FUND ANNUAL PROGRAMMES 2008 TO CONTENTS INTRODUCTION - DATA COLLECTION AND EVALUATION FRAMEWORK PUT IN PLACE IN YOUR COUNTRY... 6 PART I NATIONAL CONTEXT IN WHICH THE FUND WAS IMPLEMENTED SECURING CO-FINANCING AND INVESTMENTS IN THE FIELD... 9 PART II REPORTING ON IMPLEMENTATION IMPLEMENTATION OF THE PROGRAMMES IN THE AWARDING BODY METHOD (IF APPLICABLE) IMPLEMENTATION OF THE PROGRAMMES IN THE EXECUTING BODY METHOD PROGRAMME REVISIONS USE OF TECHNICAL ASSISTANCE (TA) QUALITATIVE OPINION ON THE OVERALL IMPLEMENTATION SET-UP PART III REPORTING ON ACHIEVEMENTS BORDER MANAGEMENT THE FOLLOWING OPERATIONAL OBJECTIVES, WHICH HAVE TO BE ACHIEVED IN ORDER TO MEET THE REQUIREMENTS, WERE DEFINED FOR THE PRIORITY 1 AND 2: VISA POLICY AND MANAGEMENT OF MIGRATION FLOWS ABROAD THE FOLLOWING OPERATIONAL OBJECTIVES, WHICH HAVE TO BE ACHIEVED IN ORDER TO MEET THE REQUIREMENTS, WERE DEFINED FOR THE PRIORITY 3: DEVELOPMENT OF IT SYSTEMS SUPPORTING BORDER MANAGEMENT AND MANAGEMENT OF MIGRATION FLOWS THE FOLLOWING OPERATIONAL OBJECTIVES, WHICH HAVE TO BE ACHIEVED IN ORDER TO MEET THE REQUIREMENTS, WERE DEFINED FOR THE PRIORITY 4: TRAINING, RISK ANALYSIS AND STRATEGY SUPPORT THE FOLLOWING OPERATIONAL OBJECTIVES, WHICH HAVE TO BE ACHIEVED IN ORDER TO MEET THE REQUIREMENTS, WERE DEFINED FOR THE PRIORITY 5: OVERALL RESULTS ACHIEVED WITH THE FUND'S INTERVENTION CASE STUDIES/BEST PRACTICES PRINCIPLE OF PARTNERSHIP AND TRANSPARENCY IS IMPLEMENTED BY INVOLVING IN FUND S IMPLEMENTATION THE MEMBERS OF THE ABOVE MENTIONED INTER-MINISTRY TEAM FOR THE SCHENGEN FUND, NORWEGIAN FINANCIAL MECHANISM, EUROPEAN REFUGEE FUND, EXTERNAL BORDERS FUND AND EUROPEAN RETURN FUND, WHO REPRESENTS THE MAJOR POLISH MINISTRIES AND SERVICES LESSONS LEARNED PART IV OVERALL ASSESSMENT - IMPACT AND LOOKING TO THE FUTURE ANALYSIS ON THE DEVELOPMENTS IN THE MIGRATION FLOWS ADDED VALUE AND IMPACT RELEVANCE OF THE PROGRAMMES' PRIORITIES AND ACTIONS TO THE NATIONAL SITUATION EFFECTIVENESS OF THE PROGRAMME EFFICIENCY OF THE PROGRAMME COMPLEMENTARITY

6 INTRODUCTION - DATA COLLECTION AND EVALUATION FRAMEWORK PUT IN PLACE IN YOUR COUNTRY 0.1. Please present an overview of the evaluation system set up as part of the implementation of the External Borders Fund. What information is required from the final beneficiaries on the progress and final results of the project and how is it assessed? The Fund evaluation system has been described in detail in the description of Management and Control System. The Responsible Authority (RA) is in charge of the Fund evaluation within the deadlines laid down in the relevant decisions and ensures the quality standards agreed between the Commission and a Member State. The evaluation task has been mandated to the Delegated Authority (DA) which may outsource the evaluation or may carry it out jointly with the RA. The evaluation report has been drawn down by the RA in cooperation with the DA which appointed an external expert. In order to use the available funds as effectively as possible a system has been established for systematic collection and analysis of quantitative and qualitative data concerning the financial and material aspects of the implemented projects the system is intended to ensure compliance of the project implementation with the assumptions and objectives of Annual Programmes. Reporting is one of the main tools for a permanent and continuous monitoring of the Annual Programme and particular projects implementation progress. Reporting includes the reports submitted to RA on the project implementation in compliance with the financial memoranda provisions. The aim of project implementation reports consists in implementation progress monitoring and also allows early detection of irregularities. There are the following substantive project implementation reports: Quarterly Report submitted to RA once per three months; Final Report submitted to RA after the project is completed. The partners include in the reports the following elements: description of the activities implemented; clarification of discrepancies, if any; risks to the project implementation; budget execution data and available financial resources used for the execution thereof; the extent to which the intended project results have been achieved by the report submission deadline; description of the problems encountered during project implementation; 6

7 description of the way the co-financing visibility under the Fund has been ensured, including the examples of promotional materials and description of the visualisation of project co-financing under the EBF. Information provided in the a/m reports are reviewed by the project officers and the partners are requested to provide additional clarifications or to correct the documents. Should the partners fail to achieve assumed indicators, they must explain the situation and present the remedies undertaken to prevent such situation. Should the clarifications be not accepted, the co-financing may reduced. The substantive report review process has been formalised using a check-list which is filled in by the project officer and approved by his/her superior. The Final Report on the Annual Programme implementation is drawn down based on the project implementation quarterly and final reports and on the financial statements. The substantive reports are made by the partners and reviewed by the RA. The substantive reports approved by the RA are submitted to the DA for information and use. Annual Programme Report is subject to approval of the Secretary of State in the Ministry of Interior (RA) whereas the evaluation report has to be approved by the Director of the Department of European Union and International Cooperation, Ministry of Interior (RA). Both documents are subsequently submitted to the European Commission. During the project implementation substantive and financial monitoring is carried out to obtain data showing the quantitative and qualitative progress of project implementation. The project monitoring system allows evaluating their implementation in the context of assumed objectives and provides data on the financial aspects of project implementation. It is assumed to monitor each project on site at least once during its implementation. Based on information collected under the monitoring systems the irregularities of project implementation may be identified and, therefore, prevented and remediated. Monitoring system data are a major source of information needed for evaluation of Fund and projects Please provide also information on any specific / additional data collection methodology used for this report. The evaluation report has been drawn up with the participation of the RA Representatives (Parts I-III, Annex 1), and an external expert appointed on a contest basis (Part IV, Annex 2). In order to prepare the report the RA reviewed the Multiannual Programme 2013, Annual Programmes, Annual Programme Reports, Project Fiches, final reports and quarterly reports from the project implementation and national programme documents via desk research. 7

8 Furthermore, the RA requested the partners to prepare and deliver the substantive input and numeric data that were needed for the relevant information preparation for reporting purposes. A statistical analysis of the quantitative survey data was carried out and the data were compiled using Ms Excel application. The aggregated data are presented in a tabular and descriptive form. Besides, a meeting with the partners' representatives was convened to hold a discussion on brainstorming basis in order to clarify the problems encountered during acquisition of necessary data at a given project level. The external expert who was appointed for the purpose of the survey Evaluation of the results and impact of measures co-financed under the External Border Fund in programming period 2007 has compiled the data necessary to supplement Part IV and Annex 2. The desk-research analysis covered documents, important from the point of view of achieving evaluation s objectives, including: Multiannual Programme 2013, Annual Programmes (), Project Fiches, a mid-term report , as well as final reports and/or quarterly reports from the project implementation. The external expert carried out individual in-depth interviews (Individual in-depth Interview) with the RA and DA representatives. Furthermore, for the purpose of survey a sample was selected, i.e. the partners whose expenditure under Annual Programmes had been certified by 30 June 2012 were selected. The partners were obliged to participate in the survey PAPI (Paper And Pencil Interview) and the results of the survey were reviewed by the external expert. Totally 37 projects were evaluated, which were implemented by 12 partners, including: General Headquarters of the Border Guard, General Headquarters of the Police, the Ministry of Foreign Affairs, the Ministry of Finance, Office for Foreigners, Podkarpacki Voivode, Mazowiecki Voivode, Lubelski Voivode, and Podlaski Voivode Office, Border Guard Training Centers, and Bieszczadzki Unit of the Border Guard. The evaluation report was drawn down in the Polish and English language using the report form provided by the European Commission. When working on the report an established format and instruction provided with the report form were was applied. 8

9 PART I NATIONAL CONTEXT IN WHICH THE FUND WAS IMPLEMENTED 1.1. SECURING CO-FINANCING AND INVESTMENTS IN THE FIELD Within the national budgetary framework, how do you secure the national resources available for national and private co-financing for the Fund? What was the approach for the annual programmes? Do you envisage changes for the future? Implementation of the projects under the EBF is based on the national budget prefinancing principle. It should be noted that the EBF beneficiaries are state budgetary units. When a partner is not capable to secure the funds in its own budget for the project implementation, the relevant funds are provided from the target reserve of the state budget governed by the Minister of Finance in accordance with the financial flow principles adopted in Poland. Both the EU and national co-financing committed for the project implementation is usually raised by the partners from the state budget target reserve. The existing practice shows that during the first few months of the year partners spend funds from its own budget. This is due to the fact that there is no possibility to raise funds form the state budget target reserve for formal reasons What investments did you undertake at national level in the field of external borders Border Management Table n 1: Year management and visa policy? (Please mention under which field(s) and expenditure category/ies the costs for the VIS roll-out are included). Infrastructure and equipment [EUR] Staff [EUR] Other [EUR] Total [EUR] 2007 total total total total total total (as planned) total for first half year

10 Visa Policy Table n 2: Infrastructure and equipment at visa sections [EUR] Staff at visa sections and headquarters [EUR] Other [EUR] Total [EUR] 2007 total total total total total total (as planned) 2012 total for first half year IT Systems Table n 3: VIS (total investments/all authorities) [EUR] SIS (total investments/all authorities) [EUR] Total Year [EUR] total total total total total total (as planned) total for first half year *Figures have been calculated in PLN and converted into EUR in accordance with the ECB exchange rate suitable for January 2013 (1 EUR = 4,0908 PLN) Other, if applicable: n/a 10

11 Do the above tables include all your expenditure in the field of borders, visa and IT systems? If not, what is excluded / not properly taken into account? The above tables shows expenditure of the Fund beneficiaries. Overall data in the surveyed areas cannot be collected due to a large number of the institutions involved Please indicate an estimate of the share of the contribution from the Fund (% of all) in relationship to the total national expenditure in the area of intervention by field (border management, visa policy, IT systems) and the total. Border Management Total national expenditure Contribution from the EBF (EC) [EUR] Share of the ECcontribution (%) ,64% Visa Policy Total national expenditure Contribution from the EBF (EC) [EUR] Share of the EC contribution VIS/SIS SIS i VIS (total investments/all authorities) Contribution from the EBF (EC) [EUR] Share of the EC contribution (%) ,36% *Figures have been calculated in PLN and converted into EUR in accordance with the ECB exchange rate suitable for January 2013 (1 EUR = 4,0908 PLN) Please outline briefly any important national developments in border and visa management since the approval of the multi-annual programme which are having an impact on the operations undertaken by authorities receiving funding under the EBF Borders Fund (including legislative changes, administrative and operational measures, changes in the institutional set-up, changes in response to changes in the size of the flows to be managed, the number of border crossing points or consulates etc). See also section 4.0 on the flows. 11

12 Migration in Poland Along with the accession of Poland to the European Union our country has become an attractive target among the foreigners not only as a transit area but also as a education, employment and living place. An increased interest in staying in Poland among the foreigners was observed in Thus, according to the data available on 31 December 2011 there were foreigners with valid residence cards (3,218 more than in and 7,724 more than in 2009) with the largest number of cards (as much as 30%) issued to the Ukraine citizens. In 2011, 40,808 foreigners were granted a permit to work in Poland, i.e. 3,687 persons more compared to. The number of registered declarations of employers with the intention to employ citizens of the countries covered by a simplified system amounted to 259,777 in 2011 (180,073 in ). Besides, 209,577 work visas were issued where 93% of such visas were granted to the citizens of Ukraine, Byelorussia and Russia. In 2011, 6,887 persons applied for refugee status in Poland as compared to 6,534 persons in (an increase by 5%, however, these are still considerably lower numbers than those in the years 2007, 2008, 2009). It should be emphasised that the refugee flow does not depend on the target or transit migration country almost at all. It is worth noting that the above cited figures show a clear and strong dichotomy migrants who come to Poland are, on the one hand, citizens of less developed countries, or EU and USA citizens (with Polish background), on the other hand. The above figures show that Poland has not become a net immigration country and with the scale of emigration it will not become one in the foreseeable future. 1 Borders On 21 December 2007 Poland undertook to implement the Schengen Agreement in full. The Border Guards terminated border controls on all crossing points located along the borders with Germany, Czech Republic, Slovakia and Lithuania. As of 31 December 2007 the 71 crossing points were available for external border traffic including: 16 road crossing points, 14 railway crossing points, 20 sea crossing points, 1 river crossing point and 20 air crossing points. At the border with Russia, Byelorussia, Ukraine there were 6, 13 and 12 crossing points, respectively, and 20 sea and 20 air border crossing points. In 2007, million border checks (passport and LBT) of persons were made, including 50 million at the external border and million checks at the internal border. 1 POLITYKA MIGRACYJNA POLSKI stan obecny i postulowane działania - Dokument przyjęty przez Radę Ministrów w dniu 31 lipca 2012 r., Opracowanie: Zespół do Spraw Migracji. 12

13 As of 31 December 2011 the following 69 crossing points were available for border traffic: 17 road crossing points, 14 railway crossing points, 18 sea crossing points, 1 river crossing point and 19 air crossing points. At the border with Russia, Byelorussia, Ukraine there were 7, 13 and 12 crossing points, respectively, and 18 sea and 19 air border crossing points million checks of persons were carried out. Number of persons crossing the borders of the Republic of Poland YEAR Land border Sea border Airports Total Source: Data provided by the Border Guard Approach to the Border Guards (main beneficiary of the EBF) functioning over the period in the following areas: Continuation of transformation: building a modern border/immigration control service of police nature; Increasing or (at least) maintaining the existing effectiveness of the BG service in terms of external border protection; Transformation of the BG into a leading immigration service: more intensive activity in the area of illegal migration prevention on the Polish territory; Withdrawal of the BG from the internal border line; Adjustment of the BG infrastructure on the Polish territory to the tasks performed following the Schengen zone accession of Poland. For the years the approach assumes the following: Increasing or (at least) maintaining the existing effectiveness of the BG service in the area of border crossing traffic and protection of the sections of Polish state border which form the EU/Schengen external border; Transformation of the BG into a leading immigration service: more intensive activity in the area of illegal migration prevention on the Polish territory (reconnaissance, control of legality of foreigners residence, work and employment, targeted actions for protection of the communication routes of particular international significance); Withdrawal of the BG from the EU/Schengen internal border line deep into the country territory consisting in successive and planned reduction of the number of BG posts located at the Polish 13

14 border sections which coincide with the EU/Schengen internal borders; successive stepping up the activities of the BG across the territory of the country; adjustment of the BG infrastructure on the territory of Poland to their tasks carried out after the accession of Poland to the Schengen Agreement, taking into account the possibility of using the infrastructure jointly with of other public order agencies (Police, Customs). Organizational modifications and new rights: Liquidation of the border crossing points and selected BG posts at the internal border and establishment of the new posts inside the country; Establishment of 1 new unit instead of three units at the internal border (2009); Amendment of the Law on foreigners and other laws (as of January 2009) so as to allow: Autonomous control of employment legality; interviews within the local communities and checks on the place of residence of the foreigners; annulment of a visa on the territory of the country (important for the control of fraud in the labour market liberalisation for the workers from the neighbouring third countries); Appointment of the BG liaison officers in the Voivode offices; New guarded centres for foreigners and detention facilities. The EU funds ensure strengthening of the capability in the area of border control activities that consists in modernisation of infrastructure and equipment, training courses, upgrading of the IT and radiocommunication systems. Recently, the EU projects have dealt with construction and modernisation of the BG facilities; language courses for the BG officers; aircraft handling training courses; additional supply of the means of transport, including dedicated means of transport; extension of the Central Telecommunication Unit; modernisation of the BG radio communication systems; replacement of the equipment and software needed for border control and protection, building an automatic radar system for the Polish maritime areas. Visas Number of consular posts in accordance with the Visa Code Year Number Source: Data provided by the Ministry of Foreign Affairs 14

15 Number of visas issued annually (2011): Year Number Source: Data provided by the Ministry of Foreign Affairs Main services implementing border control and visa policy The Border Guard service carries out controls of the border traffic, including control on persons and controls of security in accordance with the Act on Border Guard, Act on the Protection of State Border and Schengen Border Code. Moreover, this service also prevents the transportation across the state border, without appropriate permits, of waste, harmful chemical substances and nuclear and radioactive materials; contamination of border waters, as well as transportation of drugs, psychotropic substances, weapons, ammunition and explosives across the state border without permits. In accordance with Article 85 (1) of the Act of 13 June 2003 on Foreigners (OJ 2006, No 234, item 1694, as amended), the BG is also a competent body in carrying out the checks of the legality of residence. The Ministry of Foreign Affairs is the main body of the central administration responsible for foreign affairs, including those relating to the operation of consular services. The Customs Service carries out customs control of trade turnover with third countries and turnover with excise goods on the basis of EU legislation (Community Customs Code) and national law (inter alia, Act on Customs Service and Act on Excise Duty) and combats crime in this respect. It provides protection of the intellectual property rights and protection against terrorist threats. It also prevents the introduction into the territory of the European Union of goods covered by prohibitions or limitations (weapons, explosives, radioactive materials, drugs, waste). The Customs Service also has competences in the area of controls on persons. In accordance with Article 85 (1) of the Act of 13 June 2003 on Foreigners, the Customs Service is also a competent body in carrying out the checks of the legality of residence. The Customs Service organisational structure was thoroughly reformed in As a result of the reorganisation, the Central Customs Office operating as the second instance authority was closed down. The structure of the Customs Service is currently based on the functioning of customs chambers as second instance authorities and their subordinate customs offices and customs branches. The territorial structure of the customs administration is supervised by the Minister of Finance, on behalf of whom the Head of 15

16 Customs Service performs the tasks and supervisory functions with the help of Departments within the Ministry of Finance structure. The Veterinary Inspection service conducts veterinary border control aimed at protecting the territory of Poland and other Member States against infectious diseases of animals and any harmful (microbiological, chemical and other) factors constituting threat to public health and animal health. The Plant Health and Seed Inspection service carries out phytosanitary controls of plants, plant products and objects brought into the territory of the Republic of Poland (and other Member States) from third countries, as well as means of transport used for their transportation. The aim of the control is to prevent the entry into the territory of Poland and the European Union of harmful organisms that could bring about economic losses in agricultural, horticultural, glasshouse and forestry crops. The Agricultural and Food Quality Inspection service carries out controls of trade quality of agri-food products imported from abroad. The State Sanitary Inspection service carries out border sanitary controls aimed at maintaining the sanitary and epidemiological barrier of Poland by preventing the introduction to Poland of food and materials and articles intended to come into contact with food, whose health quality fails to meet the regulations in force and may result in a threat to human life. Voivodes, in accordance with Article 17 of the Act of 12 October 1990 on the Protection of State Border and the Ordinance of the Council of Ministers of 13 December 2005, are responsible for the planning and realisation of investments in border crossings, in particular of cubature premises, technical infrastructure and the purchase of appliances and equipment used for control. Voivodes are, inter alia, first instance bodies in numerous cases related to the stay of foreigners in Poland (concerning temporary and permanent residence permits, deportations and issuing, in specified cases, tolerated stay consents). The Voivodships: Warmińsko-Mazurskie, Podlaskie, Lubelskie and Podkarpackie, which border Russia, Belarus and Ukraine are of a special meaning due to the fact that they are situated at the EU external border. The Office for Foreigners is the main body of the central government competent for the entry of foreigners into the territory of the Republic of Poland, transit through this territory, stay in it and leaving it, granting of refugee status, provision of asylum to foreigners, consenting to tolerated stay and provision of temporary protection. Moreover, the Office provides persons applying for refugee status with social benefits allowing for, among others, accommodation, food and free health care services during the time of conducted procedures. The Police focus their activities on combating cross-border crime and organised crime and cooperation with the following services: the Border Guard, services subject to the Ministry of Finance, including the Customs Service and Treasury bodies, as well as with international partners, in accordance with internal provisions and appropriate international agreements. The Police play an important role in the process of controlling the legality of foreigners stays in the territory of the Republic of Poland. The structures of the Polish Police contain the Central Node of the Polish SIS and VIS Component, the SIRENE office and the National AFIS Network. The areas under the responsibility of poviat police headquarters neighbouring 16

17 directly on the state border have a different service organisation system than in other places, taking into account the characteristics of cross-border crime. On the list of threats, possible violations of state border and other crimes related to them occupy the starting positions. In accordance with Article 85 (1) of the Act of 13 June 2003 on Foreigners, the Police is also a competent body in carrying out the checks of the legality of residence. The Police operate on the basis of the Act of 6 April 1990 on the Police (consolidated text, OJ of 2007 No 43, item 227, No 57, item 390). The State Fire Service takes no immediate actions related to the protection of border or border controls, but contributes to a significant extent to the protection of the eastern border of the European Union from environmental pollution, as well as to the removal of results of serious failures that could result in threatening the lives of European Union citizens. PART II REPORTING ON IMPLEMENTATION 2.1. IMPLEMENTATION OF THE PROGRAMMES IN THE AWARDING BODY METHOD (IF APPLICABLE) Overview of calls for proposals for the programmes According to what logic do you organise the launching of calls for proposals? n/a If you also select projects without a call, what are the reasons for using both such methods? n/a Overview of project proposals received, selected and funded after calls for proposals under the awarding body method Table n 5 Number of Proposals received Projects selected Projects funded Including multiannual projects Out of which multiannual projects Programme Programme Programme Programme TOTAL n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a 17

18 If not all projects were selected for funding after the calls for proposals, please explain the reasons why, per annual programme, where applicable: Annual programme 2007: n/a Annual Programme 2008: n/a Annual Programme 2009: n/a Annual Programme : n/a Overview of projects funded in the awarding body method without a call for Table n 6 proposals Number of Programme 2007 Programme 2008 Programme 2009 Programme TOTAL Projects funded n/a n/a n/a n/a n/a Out of which n/a n/a n/a n/a n/a multiannual Total number of projects funded in the awarding body method under the programmes 2007, 2008, 2009 and Table n 7 Number of Projects funded after calls for proposals (total "projects funded" table 5) Projects funded without such calls (total "projects funded" table 6) TOTAL Projects funded in the awarding body method (including multiannual projects) Programme 2007 Programme 2008 Programme 2009 Programme TOTAL n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a n/a Co-financing Please describe the process of verifying and ensuring beneficiaries whose projects were selected. n/a the presence of co-financing by the final 18

19 2.2. IMPLEMENTATION OF THE PROGRAMMES IN THE EXECUTING BODY METHOD Description of the selection process under the "executing body method" According to what logic do you organise the selection process under the executing body method? If you also select projects without a call for expression of interest or similar method, what are the reasons for using both such methods? Due to the specific character of the activities qualified for realisation under the EBF, projects are selected through a closed call, without the procedure to submit an official announcement of the call in newspapers / on the web page. In case of the EBF, the RA acts as an executing body. First there has been the call for interest. The invitation to submit calls for interest for the realisation of the projects (call for interest) has been addressed by the RA to the closed group of potential beneficiaries / partners (The Ministry of Foreign Affairs, The Border Guard, The Police, The Office for Foreigners, Custom Services, Voivodes). The Multiannual Programme as well as the Annual Programmes shall be prepared based on the project proposals received. The annual programme indicates the projects, which will be financed within the allocation. Following the final opinion to the Annual Programme given by the Interdisciplinary Team for the Schengen Fund, Norwegian Financial Mechanism, European Refugee Fund, External Borders Fund and Return Fund, and its submission to the European Commission, the RA sends letters to the beneficiaries notifying them on the opening of the procedure for the call for applications and specification of the form, time and place for their submission. The application includes information which enables to evaluate the possibility of realisation of the project financing including reference to the minimum criteria in accordance with Art. 16 (5) of the Decision establishing the EBF. Applications are received by the DA, where they are formally verified. Following a completion of the formal verification, the DA hands over the applications with the check list to the RA. Verification of the content of the applications is carried out by representatives of the RA, and on the request of the RA, also by representatives of the DA. The Interdisciplinary Team for the Schengen Fund, Norwegian Financial Mechanism, European Refugee Fund, External Borders Fund and Return Fund obtains verification results of the applications from the RA and takes a final opinion on the projects financing. 19

20 The RA acts as the authority indirectly implementing the projects. A financial agreement is signed with a partner who completes the project and who is, in fact, the competent authority with whom the RA implements the project within the meaning of Article 6(3) of the Implementing Rules, i.e. the Border Guard, the Ministry of Foreign Affairs, Customs Service, Office for Foreigners, Voivodes. The financial agreement provides details on the project implementation principles and shall specify the obligations of the partners of the RA. Financial agreements include precise information related to, inter alia, activities carried out by the partners, timetable, budget, results, indicators, information on qualification of the expenses, individuals responsible for the project completion on the partner s side, information on promotion, reporting obligation, uniform formats for the documents used. They comply with the requirements of Article 8(4) and 10(1) of the Implementing Rules for the EBF Proposals received, selected and funded after calls for expression of interest or similar selection method in the executing body method Table n 8 Number of Programme 2007 Programme 2008 Programme 2009 Programme TOTAL Proposals received Project selected Projects funded Out of which multiannual projects If not all projects were selected for funding after the calls, please explain the reasons why, per annual programme, where applicable: Annual Programme 2007: Annual Programme 2008: Annual Programme 2009: Annual Programme : not applicable not applicable not applicable not applicable Projects funded in the executing body method without a call for expression of interest or similar selection method 20

21 Table n 9 Number of Programme 2007 Programme 2008 Programme 2009 Programme TOTAL Projects funded Out of which multiannual Total number of projects funded in the executing body method in the programmes 2007, Table n , 2009 and Number of Projects funded after calls for expression of interest, or similar selection method (see table 8) Projects funded without such calls (see table 9) TOTAL Projects funded in the executing body method (including multiannual) Programme Programme Programme Programme TOTAL Co-financing Please describe the procedures for verifying and ensuring the presence of co-financing by the final beneficiaries whose projects were selected. The RA acts as the authority indirectly implementing the projects. A financial agreement is signed with a partner who completes the project. All the financial information including co-financing proportion is included in project application. 21

22 Mainly, partners apply to Minister of Finance for projects pre-financing. Those applications for national funds are verified by the RA PROGRAMME REVISIONS Overview of revisions for annual programmes Table n 11 Was a revision concerning a Percentage of AP EU contribution allocated change of more than 10% of the allocation allocation concerned by the revision, if a revision was needed? (Y/N) needed AP ,28 Y 24% AP ,93 Y 18% AP ,00 Y 65% AP ,00 Y 86% 22

23 In case a programme revision was necessary, please provide the main reasons. Please select one or more from the list below and provide a brief explanation, for the annual programme concerned Annual programme 2007 Financial change beyond 10% Changes in the substance/nature of the actions New action(s) needed Other (please explain) Explanation/elaboration: The scope of the projects has been extended and modified. Annual programme 2008 Financial change beyond 10% Changes in the substance/nature of the actions New action(s) needed Other (please explain) Explanation/elaboration: The main reason of the Annual Programmes revisions is the significant change of the exchange rate of PLN to EUR. Since the financial plan of the Annual Programmes is now based on the EUR it is possible to co-finance additional projects within the same amount of funds (in EUR) if the EUR rate is higher than planned. The additional invitations to submit calls for interest for the projects implementation (call for interest) are addressed to the partners of the Fund and this is the best way to consume maximum of the allocation. Annual programme 2009 Financial change beyond 10% Changes in the substance/nature of the actions New action(s) needed Other (please explain) Explanation/elaboration: The main reason of the Annual Programmes revisions is the significant change of the exchange rate of PLN to EUR. Since the financial plan of the Annual Programmes is now based on the EUR it is possible 23

24 to co-finance additional projects within the same amount of funds (in EUR) if the EUR rate is higher than planned. The additional invitations to submit calls for interest for the projects implementation (call for interest) are addressed to the partners of the Fund and this is the best way to consume maximum of the allocation. Annual programme Financial change beyond 10% Changes in the substance/nature of the actions New action(s) needed All/part of the above Other (please explain) Explanation/elaboration: The main reason of the Annual Programmes revisions is the significant change of the exchange rate of PLN to EUR. Since the financial plan of the Annual Programmes is now based on the EUR it is possible to co-finance additional projects within the same amount of funds (in EUR) if the EUR rate is higher than planned. The additional invitations to submit calls for interest for the projects implementation (call for interest) are addressed to the partners of the Fund and this is the best way to consume maximum of the allocation. The scope of the projects has been modified In case you revised the annual programme, was the revision useful? To what extent did it lead to a better consumption of the allocation? The main reason of the Annual Programmes revisions is the significant change of the exchange rate of PLN to EUR. Since the financial plan of the Annual Programmes is now based on the EUR it is possible to co-finance additional projects within the same amount of funds (in EUR) if the EUR rate is higher than planned. Also as the partners of the Fund usually apply procedure of Public Procurement Law there are some savings under particular projects to be reallocated within the same allocation. The additional invitations to submit calls for interest for the projects implementation (call for interest) are addressed to the partners of the Fund and this is the best way to consume maximum of the allocation. 24

25 2.4. USE OF TECHNICAL ASSISTANCE (TA) Allocation and consumption Table n 12 AP TA allocated ( ) TA consumed ( ) Total Table n 13 AP/Use Staff within IT and Office/ Travelling/ Monitoring, Reporting, Total of TA ( ) the RA, CA, AA (n / ) equipment consumables events project management translation Did the TA support prove to be useful? For what was it most helpful? Would you have preferred that the TA allows for other elements to be funded as well and if so which ones? The technical assistance (TA) funds were necessary for the proper and effective implementation of the EBF. The financial support allowed to purchase IT equipment necessary for the persons involved in the Fund implementation and for improvement of their office standards. The availability of TA funds also provides an opportunity to improve foreign language and technical abilities of the Fund managing persons who may participate in dedicated training courses, workshops, conferences and language classes. Technical training courses for the partners constitute a very important aspect of the use of TA funds as they could not be delivered without the EU financial support. Additionally, the TA funds allow technical and financial monitoring of the projects to be carried out and faster detection of irregularities, if any, and remedies application. 25

26 2.5. QUALITATIVE OPINION ON THE OVERALL IMPLEMENTATION SET-UP Has there been a review of the management and control systems at national level during the reporting period? In case any changes occurred, please briefly mention why they were needed and what they consisted of. The first version of the description of Management and Control System was approved by the European Commission in In the Management and Control System approved by the European Commission following changes were introduced: Audit Authority function of the Audit Authority has been delegated to the General Inspector for Treasury Control served by the Department for Protection of EU Financial Interests, Ministry of Finance together with 16 Regional Treasury Control Offices. Financial agreements financial agreements are signed only by the Director of the Department of European Union and International Cooperation, Ministry of Interior and Administration instead Undersecretary of State in Ministry of Interior and Administration and the Director of the above mentioned Department. The Office for Administration and Finance at the Ministry of Interior and Administration was involved into Management and Control System. The Office keeps records in respect of the technical assistance for the RA. The amended version was accepted by the Commission in August Due to the institutional change of December 2011, which consisted in dividing the Ministry of Interior and Administration into two independent units: the Ministry of Interior and the Ministry of Administration and Digitization, the management and control system also undergoes appropriate changes To what extent were you legally or financially dependent on the approval of the Commission Decisions for launching the implementation of the annual programme? The call for proposals is launched by the RA only following the Commission Decision on the approval of Annual Programme. Projects fiches are verified also for compliance with the Annual Programme provisions. 26

27 What was the implementation rate by priority? (how much did you spend out of the amount you actually allocated?) Implementation rates were calculated based only on allocations , which were already closed by the RA. The amounts spent within the allocation 2009 were based on the data from final reports on the implementation of Annual Programmes. In case of Annual Programme financial data valid for 30 June 2012 were calculated by the DA. Priority 1 Priority 2 Priority 3 Priority 4 Priority 5 Total Total budget (EU and Total budget (EU and Total budget (EU and Total budget (EU and Total budget (EU and national) EU cofin national) EU cofin national) EU cofin national) EU cofin national) EU cofin EU cofin Total budget (EU and national) AP ,38% 88,38% 0,00% 0,00% 97,54% 97,54% 72,24% 72,24% 93,81% 375,25% 83,58% 84,51% AP ,79% 91,82% 0,00% 0,00% 150,93% 150,93% 66,62% 66,62% 95,37% 95,37% 93,02% 92,44% AP ,55% 93,84% 99,27% 99,27% 95,45% 95,45% 94,43% 96,05% 85,97% 85,97% 93,35% 94,05% AP % 91,82% 91,69% 99,27% 99,27% 125,60% 125,60% 77,29% 79,51% 89,28% 96,21% 90,27% 90,81% * Implementation rates in Priority 3 and 4 result from reallocation of the funds under allocation between projects (Ministry of Foreign Affairs) and (General Headquarters of the Police) which was made after submission of the final version of AP 2008 to the EC. Project was a multiannual one and was implemented under allocations: 2007, 2008, 2009 and. Project was initially planned to be implemented under allocation 2008 but due to some delays with spending money within eligibility period for allocation 2008, the decision on extending of implementation of this project also under allocation 2009 was made Please fill in Annex 2 to this report In light of Annex 2, what is your overall assessment of the implementation of the External Borders Fund allocations in your Member State from 2007 to? Please choose among the options below: Not satisfactory Satisfactory Good Very good 27

28 Please explain your choice in relation to question Despite some difficulties appeared during project s implementation the realization of the fund is evaluated as good. The initially planned results (expressed by indicators) should be achieved in majority. Some indicators have been modified and new one were introduced as well. Due to savings occurred because of changing EURO rate there were additional projects accepted under allocations. The process of certification of the projects expenditures is ongoing. However it is necessary to stress that due to some irregularities found by the Polish institutions expenditures within some projects are ineligible and budgets of some other projects were cut down according to Guidelines for determining financial corrections to be made to expenditure co-financed by the SOLID Funds for non-compliance with the rules on public procurement accepted by Poland in January These corrections made within the projects have no negative influence on the implementation of the operational objectives stated in the Multiannual Programme. 28

29 PART III REPORTING ON ACHIEVEMENTS 3.1. BORDER MANAGEMENT Priority 1 - Support for the further gradual establishment of the common integrated border management system as regards the checks on persons at and the surveillance of the external borders Priority 2 - Support for the development and implementation of the national components of European Surveillance System for the external Borders and of a permanent European Patrol network at the southern maritime borders of the EU Member States What were the results achieved through the projects implemented at the level of these priorities, grouped by action? Prioryty1 and 2 Category Indicators OUTPUT RESULTS Number of means of Number of patrol % of the fleet Average intervention transport acquired or missions performed modernised out of the time (time between upgraded total the alert and arrival 1. Means of on the spot) transport Achiev Basel Overall Achi Base Overa After the intervention Achiev Baseli Over ed ine at eved line ll at through the Fund ed ne all at throug nationa throu natio throug natio h APs l gh nal h APs nal

30 4. Operating equipment for border checks Total 5. Border infrastructu re 908 9, ,5 11,7 25,62 2% 5% % Number of Border Number of other Number of places in Crossing Points infrastructures detention facilities at developed or upgraded developed or external borders upgraded level Average waiting time for travellers at borders Actual ly achiev ed throug h APs Basel ine Overall at nationa l level covered with a traveller's entry modernised equipment Achi Base Overa Achieve Bas Overa eved line ll at d elin ll at throu natio through e nation gh nal APs al APs level level Number of staff % of Border Crossing working in Points's modernised new/upgraded out of the total number infrastructures of Border Crossing level APs level Total , ,77% Number of equipment % of Border Average time spent acquired or upgraded Crossing Points with the verification of 30

31 Points Achiev Basel Overall Achiev Base Overal Ac Bas Ove Achi Base Overa Achieve Base Over Achiev Baseli Over ed ine at ed line l at hie elin rall eved line ll at d line all at ed ne all at throug nationa throug nation ved e at throu natio through natio throug natio h APs l h APs al thr nati gh nal APs nal h APs nal level level ou onal APs level level level gh level AP s Total 8 2,06 % % 1% 7% Number of equipment % of equipment Average intervention Length of the external acquired or upgraded renewed out of the time (time between the borders covered (km) 3. Operating total equipment alert and arrival on the equipment spot) for border Achiev Baseli Overall Achi Base Overa Achieve Bas Overa Achiev Baseli Over surveillance ed ne at eved line ll at d elin ll at ed ne all at throug nationa throu natio through e nation throug natio h APs l gh nal APs al h APs nal 31

32 level APs level level level ,7 25% 59,18 5% % To what extent are the achievements of the annual programmes consistent with the initially set objectives in the multi-annual programme and in the annual programme in question? (Please detail) Multiannual Programme outlines a general situation of the country with regard to goals achieved which could be to a large extend covered by the Fund. In spite of serious undertakings financed from both national resources and foreign aid, which were described in the chapter 1.2 and 1.3 of the Multiannual Programme, the needs within the scope were still considerable. The following operational objectives, which have to be achieved in order to meet the requirements, were defined for the Priority 1 and 2: Need 1 Modernisation and development of the border infrastructure Operational objective 1 Adjusting border infrastructure facilities to the European Union standards Priority 1 Support for the further gradual establishment of the common integrated border management system as regards the checks on persons at and the surveillance of 32

33 Need 2 Development of the ICT systems necessary for the border traffic control the external borders Need 3 Development of the ICT systems necessary for the surveillance of the external EU border Need 4 Modernisation consisting in the introduction of special technique equipment and transport equipment of the best and most adequate technical and operating parameters Operational objective 2 Maintenance of a high standard of control and effective protection of the European Union external border and ensuring safety in the Schengen Zone Need 5 Development of surveillance systems at the European Union external border Operational objective 3 Development of surveillance systems at the European Union external border Priority 2 Support for the development and implementation of the national components of a European Surveillance System for the external borders and of a permanent European Patrol Network at the southern maritime borders of the EU Members States AP 2007 All actions implemented under allocation 2007 were planned within the Multiannual Programme. 7 projects were implemented under Priority 1. The Annual Programme 2007 aimed at implementation of the following operational objectives within Priority 1: 1. Adjusting border infrastructure facilities to the European Union standards; 33

34 2. Maintenance of a high standard of control and effective protection of the European Union external border and ensuring safety in the Schengen Zone. AP 2008 All actions implemented under allocation 2008 were planned within the Multiannual Programme apart from action Modernisation of the Authorised Interception System for purposes of implementation of Border Guards statutory tasks in the area of exchanging criminal information with the Police which was financed from savings in allocation Five projects were implemented under Priority 1. The Annual Programme 2008 aimed at implementation of the following operational objectives stated in the Multiannual Programme: 1. Adjusting border infrastructure facilities to the European Union standards; 2. Maintenance of a high standard of control and effective protection of the European Union external border and ensuring safety in the Schengen Zone. AP 2009 All actions implemented under allocation 2009 were planned within Multiannual Programme, however the title of the action Equipping of the Services Completing the Schengen Zone Border Protection Tasks with new modern Means of Transport was updated to extend the scope of it to: Equipping of the Services Completing the Schengen Zone Border Protection Tasks. The Annual Programme 2009 covered activities from all Priorities. 9 projects were implemented under Priority 1. One project were implemented under Priority 2. The Annual Programme 2009 aimed at implementation of the following operational objectives stated in the Multiannual Programme: 1. Adjusting border infrastructure facilities to the European Union standards, 2. Maintenance of a high standard of control and effective protection of the European Union external border and ensuring safety in the Schengen Zone; 3. Development of surveillance systems at the European Union external border. The outcomes of the projects implemented under allocation 2007, 2008 and 2009 show that the planned results (expressed by indicators) have been achieved in majority. Due to some irregularities budgets of some projects were cut down according to Guidelines for determining financial corrections to be made to 34

35 expenditure co-financed by the SOLID Funds for non-compliance with the rules on public procurement. These corrections made within the projects have no negative influence on the implementation of the operational objectives stated in the Multiannual Programme. The measures undertaken by national institutions within the scope covered by the Fund s objectives, i.e. external border control as regards persons, migration flows are financed above all from the national budget. However, activities proposed under the EBF meet Polish expectations and constitute added value in comparison with existing national programmes at national level, and in relation to the national budget in the area of intervention of the EBF. The Annual Programme's objectives are in accordance with national needs identified in the Integrated Border Management Programme Following Poland s entry in the Schengen Zone, protection of the external borders is a responsible task for Polish border services. Projects implemented under the EBF not only support target groups identified on the national level but also all the EU Member States. Comparing implementation of the Annual Programme 2007, progress of Annual Programmes 2008 and 2009 has been made, this includes: process of signing contracts with Partners and certification of the expenditures. Due to the seminars organised, Partners were able to prepare payment requests and attached documents in more proper way than for Annual Programme 2007 projects. AP The process of certification of the projects expenditures is ongoing To what extent did the projects and the actions, through their results, contribute to improving overall border management in your country? In answering, please refer to the outputs and results at section above. Effective protection system for the external borders of the European Union means a necessity to continue modernisation and development of border facilities used by the BG. The increasing cross-border traffic, in particular at the external borders, requires suitable facilities, i.e. sufficient number of border crossings and further modernisation and development of border crossing facilities in order to enable installation of modern equipment for fast, smooth and thorough border control, as well as improved security at external border. 35

36 Within the framework of adjustment of the BG border infrastructure to a new organisational structure of the BG and the EU standards, the development and modernisation of existing premises and the construction of new BG posts were planned. The size and standard of new premises corresponded to current needs with regard to staff and technical requirements. The realisation of construction goals and the construction of administrative buildings contributed to appropriate working and service conditions with regard to work organisation, safety and health conditions. The best possible conditions for storage of the highly specialised equipment influenced its proper functioning and contributed to the rise of mobility of border services and, as a result, to a smooth control and surveillance of individual state border sections. Modernisation of the Border Guard s ICT system which is its main instrument, keeps it efficient, as well as keeps the data communications equipment work uninterruptedly. Due to rapid development of data processing systems used in EU countries including creation of new databases, the BG is obliged to use additional controlling instruments for border clearance. With successive development of the documents equipped with biometric data carriers, it becomes necessary to equip officers performing controlling activities with devices enabling a mobile access to data resources within the scope of border crossings. The BG had to purchase necessary access devices enabling a quick access to the BG central database. The development of the IT platform and its extension by a subsystem of mobile access to data resources enabled the increase in capacity of border crossings, which led to the achievement of the operating objective, i.e. maintaining a high standard of control on the EU external border. In order to complete the statutory tasks the BG uses teleinformation system within the scope of all organisational locations. Central Information and Communication Node of the Border Guard (CICN BG) is the main part of the system. Its technical equipment assures reliable operation of main applications of control and surveillance of cross-border traffic and internal data processing. Due to the works extension on the computer application BG checking in it was necessary to develop the servers by the additional processors and operating memory RAM to increase the calculation power of the main servers of CICN BG. All BG officers and organisational units will exploit the increased CICN capacity and efficiency. Supplying the BG with the special vehicles and accompanying road-patrolling vehicles equipped with adequate number of communication and surveillance devices for checking people allowed to implement statutory tasks of BG in the frontier zone. 36

37 Modernization of the Authorised Interception System (AIS), which is used by the services of the Police and Border Guard officers to improve public safety and security of the EU external borders. Modernized AIS provides enhanced safety of data collected in it and shortens time for access to such information, which clearly improves safety at the EU external border by reducing response time and improve joint operations of the Police and BG. AIS is a system for the Police and BG enabling to conduct classified operational control involving the use of technical means to obtain secret information and evidence and preserving them in accordance with Art. 19 (6) of the Act on Police of , and Article 9 of the Act on the Border Guard. The system is used by the BG to control the people crossing the border, if there is a reasonable likelihood that they may commit, or committed a crime in accordance with the directory (Article 19 of the Police Act, Article 9 BG Act). Modernisation of existing the BG radio communication system aims to strengthen the surveillance and protection of state border throughout improving night-time safety of flight operations, increasing possibilities of using aviation in case of having a rapid response to acts that threaten the security of the EU external border and extending the scope of the tasks related to the protection of EU external borders performed inter alia within the framework of cooperation and implementation of activities coordinated by FRONTEX Agency. 37

38 3.2. VISA POLICY AND MANAGEMENT OF MIGRATION FLOWS ABROAD Priority 3 Support for issuing of visas and tackling of illegal immigration, including the detection of false or falsified documents by enhancing the activities organised by the consular and other services of the Member States in third countries What were the results achieved through the projects implemented at the level of this priority, grouped by action? Priorytet 3 Number of equipment Number of Average waiting acquired or upgraded destinations of the time for visa issuing Actual Baseli Overall equipment acquired Achi Baseline 11. ly ne at or upgraded eved Operating achiev nationa throu equipment ed l gh for visa throug level APs issuing h APs days 8 days 38

39 To what extent are the achievements of the annual programmes consistent with the initially set objectives in the multi-annual programme and in the annual programme in question? Multiannual Programme outlines a general situation of the country with regard to goals achieved which could be to a large extend covered by the Fund. In spite of serious undertakings financed from both national resources and foreign aid, which were described in the chapter 1.2 and 1.3 of the Programme, the needs within the scope were still considerable. The following operational objectives, which have to be achieved in order to meet the requirements, were defined for the Priority 3: Need 6 Development of a backup centre for the system supporting visa issuance Operational objective 4 Increasing functionality of the ICT infrastructure of the Ministry of Foreign Affairs Operational objective 5 Support for biometric infrastructure of consular offices and improvement of data transfer in the visa issuance process Priority 3 Support for the issuing of visas and combating illegal immigration, including the detection of false or falsified documents by enhancing the activities organized by the consular and other services of the member States in third countries AP 2007 All actions implemented under allocation 2007 were planned within Multiannual Programme. Three projects were implemented under priority 3. The Programme 2007 aimed at implementation of the following operational objectives stated in the multiannual programme: 1. Increasing functionality of the ICT infrastructure of the Ministry of Foreign Affairs; 2. Support for biometric infrastructure of consular offices and improvement of data transfer in the visa issuance process. 39

40 AP 2008 All actions implemented under allocation 2008 were planned within multiannual programme. Three projects were implemented under Priority 3. The Programme 2008 aimed at implementation of the following operational objectives stated in the multiannual programme: 1. Increasing functionality of the ICT infrastructure of the Ministry of Foreign Affairs; 2. Support for biometric infrastructure of consular offices and improvement of data transfer in the visa issuance process. AP 2009 One project were implemented under priority 3. The Annual Programme 2009 aimed at implementation of the following operational objective stated in the Multiannual Programme: Increasing functionality of the ICT infrastructure of the Ministry of Foreign Affairs. AP One project were implemented under priority 3. The Annual Programme aimed at implementation of the following operational objective stated in the Multiannual Programme: Increasing functionality of the ICT infrastructure of the Ministry of Foreign Affairs. The outcomes of the projects implemented under allocation 2007, 2008 and 2009 show that the planned results (expressed by indicators) have been achieved in majority. Comparing implementation of the previous Annual Programme 2007, progress of Annual Programme 2008 and 2009 has been made, this includes: process of signing contracts with Partners and certification of the expenditures To what extent did the projects and the actions, through their results, contribute to improving visa issuing and preventing irregular entry into the EU? In answering, please refer to the outputs and results at section above. The construction of the backup centre enabled improving data storage safety and data sharing safety, as well as provides greater reliability and accessibility of the IT system supporting visa issuance. The application of modern appliances enables the processing and storing of the increasing bulk of information, which is related to the necessity of obtaining biometric data of persons applying for various documents (including visas and passports). Construction of a modern and efficient backup centre is an indispensable and one of the essential condition of a properly functioning IT system. 40

41 The main purpose of the action was to provide consular offices issuing visas outside the Schengen Zone with the equipment for the collection of biometric data. The action includes the purchase and installation of software and devices for the collection of biometric features in consular offices. The action contributes to the improvement of the visa project security, and as a result, to the security of the Member States. The completion of these tasks fully depends on equipping consular offices with hardware and software for the collection of fingerprints. The action concerned building the infrastructure of safe connection between the internal networks of diplomatic and consular posts and the Ministry of Foreign Affairs Headquarters, which will create conditions for further integration of the Ministry of Foreign Affairs with external national and foreign Partners. The objective of the activity is to build the communication system of a global range that needs to take into consideration the most diversified technical conditions and the degree of advancement of telecommunication infrastructure of those states, in which Polish diplomatic and consular posts have been set up DEVELOPMENT OF IT SYSTEMS SUPPORTING BORDER MANAGEMENT AND MANAGEMENT OF MIGRATION FLOWS Priority 4 Support for the establishment of IT systems required for the implementation of EU legal instruments in the field of external borders and visas What were the results achieved through the projects implemented at the level of this priority, grouped by action? Priorytet 4 % of EBF contribution to % of successful Compliance Test Number of institutional 6. SIS total investment undertaken to support connection tests Extended applicable) (where stakeholders involved development of SIS YES NO NA 41

42 total 0,69% * 10 % of EBF contribution Number of Number of border Number of other to total investment consulates crossing points stakeholders connected 7. VIS undertaken to support development of VIS connected to VIS connected to VIS total 13,78%* 7 2 Number of other ICT Number of systems developed or upgraded institutional stakeholders involved Achiev Basel Overall Achi Bas Overa 8. Other ed ine at eved elin ll at ICT systems throug nationa throu e nation h APs l gh al level APs level Total 3 0, ,7 22 Improvement in average time consultations/number of consultations (Yes/No) 42

43 To what extent are the achievements of the annual programmes consistent with the initially set objectives in the multi-annual programme and in the annual programme in question? (Please detail) Multiannual Programme outlines a general situation of the country with regard to goals achieved which could be to a large extend covered by the Fund. In spite of serious undertakings financed from both national resources and foreign aid, which were described in the chapter 1.2 and 1.3 of the Programme, the needs within the scope were still considerable. The following operational objectives, which have to be achieved in order to meet the requirements, were defined for the Priority 4: 43

44 Need 7 Development of ICT systems for foreigners (third country nationals). Need 8 Development of systems of safe communication infrastructure of the head office with consular offices, taking into account needs related to an increased movement resulting from, inter alia, the implementation of biometric systems. Need 9 Improvement of the office infrastructure in order to introduce biometric technology (transfer of the visa applicants' photographs and their fingerprints to the Schengen systems) Need 10 Purchase of proper equipment for biometric measurements and training of staff operating these devices in the consular offices Operational objective 6 Effective management of the visa traffic and foreigner issues Operational objective 7 Support for the establishment of IT and communication systems required for full implementation of the Community legal instruments in the field of external borders security Priority 4 Support for the establishment of ICT systems required for implementation of the Community legal instruments in the field of external borders and visas Need 11 Making the Police IT systems which gather and process biometric data fully accessible to Border Guard units and modernization of those systems 44

45 AP 2007 Two projects were implemented under priority 4. The Annual Programme 2007 aimed at implementation of the following operational objective stated in the Multiannual Programme: Support for the establishment of IT and communication systems required for full implementation of the Community legal instruments in the field of external borders security. AP 2008 All actions implemented under allocation 2008 were planned within Multiannual Programme. Three projects were implemented under priority 4. The Annual Programme 2008 aimed at implementation of the following operational objectives stated in the Multiannual Programme: 1. Effective management of the visa traffic and foreigner issues; 2. Support for the establishment of IT and communication systems required for full implementation of the Community legal instruments in the field of external borders security. AP 2009 All actions implemented under allocation 2009 were planned within Multiannual Programme. Five projects were implemented under priority 4. The Annual Programme 2009 aimed at implementation of the following operational objectives stated in the Multiannual Programme: 1. Support for the establishment of IT and communication systems required for full implementation of the Community legal instruments in the field of external borders security; 2. Effective management of the visa traffic and foreigner issues. The outcomes of the projects implemented under allocation 2007, 2008 and 2009 show that the planned results (expressed by indicators) have been achieved in majority. The measures undertaken by national institutions within the scope covered by the Fund s objectives, i.e. external border control as regards persons, migration flows are financed above all from the national budget. However, activities proposed under the EBF meet Polish expectations and constitute added value in comparison with existing national programmes at national level, and in relation to the national budget in the area of intervention of the EBF. 45

46 The Annual Programme's objectives are in accordance with national needs identified in the Integrated Border Management Programme Following Poland s entry in the Schengen Zone, protection of the external borders is a responsible task for Polish border services. Projects implemented under the EBF not only support target groups identified on the national level but also all the EU Member States. Comparing implementation of the previous Annual Programme 2007, progress of Annual Programme 2008 and 2009 has been made, this includes: process of signing contracts with Partners and certification of the expenditures. Due to the seminars organised, Partners were able to prepare payment requests and attached documents in more proper way than for Annual Programmes 2007 projects. AP The process of certification of the projects expenditures is ongoing To what extent did the projects and the actions, through their results, contribute to the development of the IT systems necessary for the implementation of EU instruments in the field of external borders and visas? Please breakdown for SIS, VIS and, where applicable, other IT systems. In answering, please refer to the outputs and results at section above. As a way of improving the EU borders integrated management, in order to increase the security level both on the EU borders and on the Schengen Zone, it was decided to establish a visa information system as a system enabling the exchange of data relating to short-term visas between member states. The use of the VIS system is of fundamental importance for border control on the external borders. VIS processes biometric data (fingerprints) to verify or identify individuals applying for a visa and crossing the EU external border or staying on the territory of Member States on the basis of the above mentioned visa. Biometric control is the only way to assure that a given individual intending to enter the Schengen Zone is the same individual, for whom the visa was issued. Consequently, all individuals with visas should be subject to systematic verification by means of VIS including biometric control. Until 2012 VIS shall achieve its full functionality all consulates will have started with issuing so-called biometric visas. At this date, control authorities should verify data of foreigners, from whom a visa is required, including biometric data in VIS. It is recommended to equip all border crossings with relevant devices at the same time and to perform verification in VIS, because otherwise foreigners would use border crossings which do not control biometric data. 46

47 The action undertaken under AP2007 assumed the installation of a new application version supporting AFIS in the system central unit, located in the Department of Fingerprints of the Central Criminal Laboratory of the Police Headquarters together with modernization of part of IT equipment supporting the central unit. The action implemented under AP2008 shall cover further modernization of AFIS equipment (the replacement of full-function workstations and local workflow). The action provides for designing, preparing and implementing a modernized national registers and records on foreigners, called the POBYT System ( Stay System ), based on the equipment planned to be purchased within the framework of undertaken activities. The purpose of the action is to improve the process of decision-making by the authorized users of the ICT system in the field of entering, crossing and residing in the territory of the Republic of Poland and departing from the territory by foreigners. The modernization of the POBYT System will shorten time of the administrative procedures connected to the movement of third country nationals through the implementation of the IT solutions to support such procedures. Undertaken activities provided Voivod services with ICT equipment to enable access to the systems: Pobyt, SIS, VIS as well as enabling implementing new technologies in residence cards for foreigners. According to the Polish law Voivod is the first instance authority with regard to motions of the BG regarding expulsion from the territory of Poland and the Schengen of foreigners detained during border control or inside the territory of the Republic of Poland. Voivod is also the second instance authority in relation to decisions taken by the BG on the commitment of foreigners to leave the territory of Poland and the Schengen area. 47

48 3.4. TRAINING, RISK ANALYSIS AND STRATEGY SUPPORT Priority 5 Support for effective and efficient application of relevant EU legal instruments in the field of external borders and visas, in particular What were the results achieved through the projects implemented at the level of this priority, grouped by action? Priorytet Training and risk analysis Number of Number of reports practices/tools issued Number of persons developed or trained upgraded (software, statistics) Total , % Share of staff trained (compared to total) Achieved through APs Actual ly achiev ed throug h APs Baseli ne Overall at nationa l level Actual ly achiev ed throug h APs Base line Overal l at nation al level Actu ally achie ved throu gh APs Base Overa line ll at natio nal level Number of institutional collaborations on risk analysis developed Achiev Baseli Over ed ne all at throug natio h APs nal level

49 To what extent are the achievements of the annual programmes consistent with the initially set objectives in the multi-annual programme and in the annual programme in question? (Please detail) Multiannual Programme outlines a general situation of the country with regard to goals achieved which could be to a large extend covered by the Fund. In spite of serious undertakings financed from both national resources and foreign aid, which were described in the chapter 1.2 and 1.3 of the Programme, the needs within the scope were still considerable. The following operational objectives, which have to be achieved in order to meet the requirements, were defined for the Priority 5: Need 12 Trainings for Services dealing with surveillance of the border and Schengen Zone Need 13 Training of the aircrews in order to provide effective protection of the EU external border Need 14 Development and implementation of a training system for consular office employees both in the headquarters and in the missions in connection with the development of Schengen systems Operational objective 8 Increasing the qualifications of the services performing tasks in connection with the protection of the border, Schengen Zone, as well as of the consular services in the field of external borders and visas, in particular the Schengen Border Code and the European visa code Priority 5 Support for effective and efficient application of relevant Community legal instruments in the field of external borders and visas, in particular for the Border Guard services and the consular staff 49

50 AP 2007 Four projects were implemented under priority 5. The Annual Programme 2007 aimed at implementation of the following operational objective stated in the Multiannual Programme: Increasing the qualifications of the services performing tasks in connection with the protection of the border, Schengen Zone, as well as of the consular services in the field of external borders and visas, in particular the Schengen Border Code and the European visa code. AP 2008 Four projects were implemented under priority 5. The Annual Programme 2008 aimed at implementation of the following operational objective stated in the Multiannual Programme: Increasing the qualifications of the services performing tasks in connection with the protection of the border, Schengen Zone, as well as of the consular services in the field of external borders and visas, in particular the Schengen Border Code and the European visa code. AP 2009 Six projects were implemented under priority 5. The Annual Programme 2009 aimed at implementation of the following operational objectives stated in the Multiannual Programme: Increasing the qualifications of the services performing tasks in connection with the protection of the border, Schengen Zone, as well as of the consular services in the field of external borders and visas, in particular the Schengen Border Code and the European visa code. AP - The process of certification of the projects expenditures is ongoing. The outcomes of the projects implemented under allocation 2007, 2008 and 2009 show that the planned results (expressed by indicators) have been achieved in majority. However, it is necessary to stress that according to the the Partner Ministry of Foreign Affairs realization of projects which were supposed to be implemented within following key actions initial planned within Multiannual Programme were not launched: 1. Exchange of experiences with personnel of consular offices of other Schengen Zone countries; 2. Joint training workshops for the services in the context of requirements of a situation on border. Comparing implementation of the previous Annual Programme 2007, progress of Annual Programme 2008 and 2009 has been made, this includes: process of 50

51 signing contracts with Partners and certification of the expenditures. Due to the seminars organised, Partners were able to prepare payment requests and attached documents in more proper way than for Annual Programmes 2007 projects To what extent did the projects and the actions, through their results, contribute to improving the application of the EU standards in the field of external borders and visas in your country and supporting overall strategy development by your administration in this area, including risk assessment? In answering, please refer to the outputs and results at section above. The action includes: language training for the BG officers, training for aviation services, training for policemen on the execution of the Schengen legal regulations and on the use of the SIS, training for Voivod staff, training for customs officers on the use and operation of the SIS and VIS system. Increased effectiveness of operations of the services (e.g. the BG, Customs Service, Police, Voivod) performing tasks related to protection of both the border and the entire Schengen area, as well as improvement in border control, requires complex development of the services human resources. Language training for the BG officers is aimed at making them familiar with vocabulary and expressions useful while communicating with counterpart services of EU Member States as well as with specialised terminology related to their services which enables to communicate with people crossing the Polish border in a more efficient way. Aviation services of the BG implemented personnel trainings to enable them to work on all aircraft types used by the BG and training for personnel without qualifications to take actions in aircrafts. Accomplishing the training of pilots for the professional helicopter pilot licence will complete the staffing of the BG Aviation Bureau and thus enable a more effective participation of the BG air force in operational activities of the unit and in national border protection. Additionally, a full staffing will enable permanent air patrols (24h/day) in standby to start within 15 minutes after receiving a signal that it is necessary to use aircraft. The purpose of the joint training sessions of the Police and the BG is the preparation of Police and BG units, as well as other units and public services, to respond to emergency situations on the external border. 51

52 In relation to Poland s entry to the Schengen are, it is essential to train the Customs Service employees on new provisions such as the Schengen Border Code, on skills and possibilities of using the Schengen Information System or the procedures concerning cooperation with the SIRENE bureau and other border services Overall results achieved with the Fund's intervention Please insert an overview table presenting the overall achievements through the Fund's intervention. Table n 19: Overall EBF results following aggregation by priorities PRIORITY 1 Category Indicators RESULTS Number of patrol % of the fleet Average intervention time (time between the alert missions performed modernised out of the and arrival on the spot) 1. Means of total transport Achi Base Overa After the intervention Achiev Baseli Overall at eved line ll at through the Fund ed ne national throu natio throug level 52

53 4. Operating equipment for border checks Total 5. Border infrastructure covered with a traveller's entry modernised equipment working in new/upgraded h APs Average waiting time for travellers at borders Achi eved throu gh APs Base line Overa ll at natio nal level 18,5 11,7 25,62 2% % % Number of staff Achieve d through APs Bas elin e Overa ll at nation al level % of Border Crossing Points's modernised out of the total number of gh APs nal level Total 11,77% % of Border Average time spent Crossing Points with the verification of 53

54 infrastructures Border Crossing Points Achi Base Overa Achieve Base Over Achiev Baseli Overall at eved line ll at d line all at ed ne national throu natio through natio throug level gh nal APs nal h APs APs level level Total: % 1% 7% PRIORITY 2 % of equipment Average intervention Length of the external borders covered (km) renewed out of the time (time between total equipment the alert and arrival 3. Operating on the spot) equipment Achi Base Overa Achieve Bas Overa Achiev Baseli Overall at for border eved line ll at d elin ll at ed ne national surveillance throu natio through e nation throug level gh nal APs al h APs APs level level

55 - Total: 55,7 5% 25% 59,18 % PRIORITY 3 Achi eved throu gh APs days Baseline 8 days PRIORITY 4 % of successful Compliance Test Number of institutional stakeholders involved 6. SIS connection tests Extended (where applicable) 55

56 7. VIS 8. Other ICT systems YES NO NA Total: 10 Number of Number of border Number of other stakeholders connected consulates crossing points connected to VIS connected to VIS Total: 7 2 Number of Improvement in institutional average time stakeholders consultations/number involved of consultations (Yes/No) Achi Bas Overa eved elin ll at throu e nation gh al APs Level Total 22 5,7 22 PRIORITY 5 56

57 Number of reports issued Share of staff trained (compared to total) Actu Base Overa Achieved through APs ally line ll at achie natio 12. Training ved nal and risk throu level analysis gh APs Total % Number of institutional collaborations on risk analysis developed Achiev Baseli Overall at ed ne national throug level h APs How do you assess the results of section in the national context of implementation of the External Borders Fund? Neutral Positive Very positive Excellent 57

58 Please comment on the overall results achieved (as presented in Table n 16) in relation to your initially set expectations as stated in the annual programmes. The results of 2007, 2008, 2009 and projects show that the planned results (expressed by indicators) should be achieved in majority. Some indicators have been modified and new one were introduced as well. The process of certification of the projects expenditures for allocation is ongoing CASE STUDIES/BEST PRACTICES Important /successful projects funded in the annual programmes 2007, 2008, 2009 and The border with the Russian Federation (232 km), the Republic of Belarus (418 km) and the Ukraine (535 km), as well as territorial sea external border (440 km) and international airports, became on 1 May 2004 external borders of the European Union. The border between Poland and Ukraine is the longest one. Fundamental needs related to the external border infrastructure were identified in the Polish-Ukrainian Border Infrastructure Development Programme 2013 adopted by the Council of Ministries on 26 January. The document presents an analysis which has helped to specify priorities under which national needs that demand further financing have been indicated. Programme identifies 3 specific goals: - improve safety on the Polish - Ukrainian border; - increase in throughput of border crossings; - improve the conditions for travelers waiting for border control. In compliance with on the Regulation of the Council of Ministers of 13 December 2005 on the Voivode s obligations as regards financing and maintenance of border crossings, tourist crossings, places of border crossing on tourist routes and points of nightly stay on border rivers, their equipment and authorities competent for placing and maintenance of border markings on internal sea waters (Journal of Laws No. 256, Item 2145), the Voivode shall be obliged to provide border 58

59 services with a relevant premises basis as well as technical equipment and devices necessary to conduct effective and efficient control. The scope of Voivode s duties shall also include planning and completion of the investments on the border crossing including construction of the new crossings infrastructure. The costs related to construction, modernisation and maintenance of border crossings shall be covered with the budget funds of local competent Voivodes. On Polish Ukrainian border 12 border crossings is created. Taking the above into consideration the projects implemented by the Podkarpacki and Lubelski Voivode constitute a particular value in the light of the multiannual strategy and national requirements. AP Development of road infrastructure and purchase of equipment for border control on the Road Border Crossing Krościenko - Smolnica The project assumes completion of the following activities: - Conversion of islets; - Creation of additional lane of the motorway; - Building a parking lot for the order service and travelers; - Purchase of passport scanners; - Purchase of thermo-visual cameras enabling observation of vehicles awaiting the crossing, as an aim to secure travellers. The project completion contributed to effective organisation of external border control comprising tasks both related to clearance and protection. Reconstruction of road isles and construction of an additional traffic lane led to the increase in capacity of the border crossing. Construction of parking space for cars of border service and travellers shall lead to efficient organisation and good car traffic management on the border crossing. Providing lacking equipment and devices led to effective organisation of external border control comprising tasks both related to clearance and protection, and at the same time, more efficient crossing of the external border according to the Schengen acquis. 59

60 2. Modernisation of the main building including construction of a waiting room for travellers on the Railway Border Crossing Przemyśl Mościska (part for persons) and purchase of specialist equipment The project assumed the construction of fencing separating a personal border crossing for travellers who cross the border from the platform for travellers who do not cross the state border and the above equipment for identification of forgeries. The project completion led to effective EU external border control comprising tasks both related to clearance and protection. The objective for the construction of fencing and providing border services with necessary equipment for clearance led to effective EU external border control comprising tasks both related to clearance and protection, and at the same time, more efficient crossing of the external border according to the Schengen acquis. The objective for the modernisation of the main building was to improve the conditions for travellers waiting for clearance as well as improve work conditions for border services. 3. Construction of a building for clearance for travellers on the Road Border Crossing Medyka Szeginie Within the project it was planned to construct a building for clearance for travellers in the pedestrian zone before the border line with Ukraine. The project completion shall lead to effective EU external border control comprising tasks both related to clearance and protection, and at the same time, more efficient crossing of the external border according to the Schengen acquis. The main aim of actions is strengthening the control of individuals in the pedestrian movement. The project implementation contributed to an effective control of the external border and will increase the travellers security. The reason behind the construction of a building for clearance for pedestrians is also improvement of conditions for travellers waiting for clearance as well as improvement of work conditions for border services. The project assumed the construction of construction of a building for control with necessary connections (water and sewage, electricity) and equipping building with office and accommodation equipment, like computers, cameras, file cabinets, air conditioners, desks for control etc. 60

61 AP Development of the Road Infrastructure and Procurement of the Equipment for the Cross Border Checks at Medyka - Szeginie Crossing The Project contributed to effective and better organisation of performing persons control at the external border of EU. It was planned to increase the capacity of the border crossing point as well as improvement of quality and conditions of persons clearances at the external border of EU. The purchased equipment improved and speeded up clearance and control of persons procedures. Efficient border control contributed to increasing security at the external border of EU as well as on the EU territory. The following activities were planned under the project: - performing the pavement of the entire area of the border crossing; - extending the slip road to the border crossings by additional lanes for cars; - providing lacking equipment and devices required for more efficient cross-border control (such as passport readers). AP Reconstruction of the building for detailed control at the entry and construction of the building for detailed control at the exit of the Road Border Crossing Medyka Szeginie Within the project, it was planned to reconstruct the building for control at the entry of the border crossing and to construct the building for control at the exit of the border crossing. Buildings will be used for the control conducted by as well the Border Guard as Customs Officers. As it was indicated in Multiannual Programme both services: the Border Guard and Custom Service are responsible for controlling people on the borders. Also, pursuant to Art of the Act of 13 June 2003 on Foreigners (OJ No. 231 item 1694 as amended), the Customs Services, as well as the Border Guard, is entitled to inspecting documents and permits allowing foreigners to stay in the Republic of Poland and the Community. The Border Guard and Customs Officers use the buildings for detailed control to complete their statutory tasks in scope of external border protection. Therefore the construction of such building for the Border Guard and separately for the Customs Officer is not justified. The project completion shall lead to more efficient crossing of the external border according to the Schengen acquis. It is also planned to increase crossing capacity as well as effective EU external border control and protection. 61

62 Description of best practices derived from the implementation of the External Borders Fund Please describe a few best practices you consider you have acquired through implementation of the External Borders Fund in terms of tools for administrative management and cooperation at national level or with other Member States. 1. Pre financing system In accordance with the national regulation, resources of individual funds are received from the European Commission to the separate interested bearing bank accounts in the Ministry of Finance. Money are remitted from the mentioned accounts to state budget account as reimbursement for already prefinanced expenditures. The Polish government provides a pre-financing from the budgetary state reserve. This system allows continuous realization of projects. 2. Maximum use of allocation system System of monthly updating exchange rate of PLN to EUR by the RA allows to reallocate savings to new/modified projects and to use maximum of the allocation. 3. Creation of the Interdisciplinary Team for the Schengen Fund, Norwegian Financial Mechanism, European Refugee Fund, External Borders Fund and Return Fund Principle of partnership and transparency is implemented by involving in fund s implementation the members of the above mentioned Inter-Ministry Team for the Schengen Fund, Norwegian Financial Mechanism, European Refugee Fund, External Borders Fund and European Return Fund, who represents the major Polish Ministries and services. 4. EBF working group net of informal contacts Taking into account many issues appearing during fund implementation which can be discussed on the working level, the EBF working group has been established. This forum enables quick and fruitful exchange of opinions between MS. Exchange of best practices and experiences is possible during bilateral meetings on MS expert level. 62

63 5. Direct and informal contact with representatives of the European Commission It is particularly important that the rules governing the implementation of the Fund are clear to and understood by all Member States. Hence the important role played by direct contact with representatives of the European Commission, as well as any instructions or guidelines by the European Commission prepared to clarify doubts. The possibility of working informal contacts undoubtedly contributes to the clarification of unclear issues LESSONS LEARNED Description of 3 less successful projects, among the projects funded in the annual programmes 2007 to It is not possible to indicate the less successful projects among the projects funded in the Annual Programmes The outcomes of the projects implemented under Annual Programmes s show that the planned results have been achieved in majority. However it is necessary to stress that due to some irregularities found by the Polish institutions expenditures within some projects are ineligible and budgets of some other projects were cut down according to Guidelines for determining financial corrections to be made to expenditure co-financed by the SOLID Funds for non-compliance with the rules on public procurement accepted by Poland in January These corrections made within the projects have no negative influence on the implementation of the operational objectives stated in the Multiannual Programme Lessons learned Please describe what are the lessons learned and practices developed for the future both in terms of Fund/project management and in terms of practices developed for the management of border/visa Following recommendations results from the lesson learned: 1. Closer cooperation between institutions involved into management of the fund and project s Partners. 2. Introducing of the Ex-ante control of projects. 63

64 3. Simplification of the cost eligibility rules and procedures. 4. Increasing of the awareness of the EC in terms of MS specific national rules. 5. Simplification of the project s documentation to be fulfilled by the project s Partners. 6. Implementation of the continuous training program for the project s Partners. 7. Increasing of the responsibility for the project implementation of the lower management representatives within Partner s institution. 8. Increasing of the awareness of the higher management in terms of fund s possibilities. 9. Reinforcing of the cooperation between internal units (financial/administrative) of Partner s institution. 10. Reducing of tasks duplication by the institutions involved into fund s management Were you already able to integrate some of these practices in the management of the projects? All practices described in the point are already integrated in the management of the projects. PART IV OVERALL ASSESSMENT - IMPACT AND LOOKING TO THE FUTURE 4.0. ANALYSIS ON THE DEVELOPMENTS IN THE MIGRATION FLOWS Please present a short overview on the trends in migration flows to your country during the period 2006 to end 2011 and analyse them in light of the developments influencing them (legislative, policy, etc.). Please start from the background provided in the multi-annual programme, outlining any changes that appeared during the reporting period. When doing so, please refer to relevant data / statistics concerning passenger flows, irregular attempts for entry, visa applications and visas issued for the years 2006, 2009, (These reference years are considered relevant milestones as they represent the start, mid-term and (almost at the) end of the intervention period analysed). 64

65 According to the Multiannual Programme 2013 provisions, main regions generating a so called migration flow which crosses Poland, were countries of the former Soviet Union, Southern Asia, and South-Eastern Asia. Among the persons detained for irregular crossing of the border, there were in the majority citizens of: Ukraine, Russia, Moldova, Vietnam, Belarus, Armenia, Georgia, China, and Pakistan. Frontex analysis cited in the Multiannual Programme 2013 did not show Polish borders as the most important routes of illegal migration into the EU, it stressed nevertheless that there was a significant migration pressing, directed from the EU outside towards the Schengen Zone. This meant that Poland was in most cases treated as a transit country by immigrants. An increased interest in staying in Poland among the foreigners was observed in Thus, according to the data available on 31 December 2011 there were foreigners with valid residence cards (3,218 more than in and 7,724 more than in 2009) with the largest number of cards (as much as 30%) issued to the Ukraine citizens. In 2011, 40,808 foreigners were granted a permit to work in Poland, i.e. 3,687 persons more compared to. The number of registered declarations of employers with the intention to employ citizens of the countries covered by a simplified system amounted to 259,777 in 2011 (180,073 in ). Besides, 209,577 work visas were issued where 93% of such visas were granted to the citizens of Ukraine, Byelorussia and Russia. In 2011, 6,887 persons applied for refugee status in Poland as compared to 6,534 persons in (an increase by 5%, however, these are still considerably lower numbers than those in the years 2007, 2008, 2009). It should be emphasised that the refugee flow does not depend on the target or transit migration country almost at all. It is worth noting that the above cited figures show a clear and strong dichotomy migrants who come to Poland are, on the one hand, citizens of less developed countries, or EU and USA citizens (with Polish background), on the other hand. The above figures show that Poland has not become a net immigration country and with the scale of emigration it will not become one in the foreseeable future. 2 Most visas, invariably since a couple of years, were issued by consular offices at the Eastern Polish border, in Ukraine, Belarus and in Russia. Total number of issued visas in these three countries only totalled 1,085,737, which makes as much as 92.5 % of all visas issued in Polish consular offices worldwide in This is an effect of a liberalisation of the visa process in the East and an introduction of a simplification of the visa procedure for incomers to Poland. One of the most important activities in this regard was the decision of the Minister of Foreign Affairs on 1 March 2011 to reduce the charge from 35 to 20 euro for processing by Polish consuls Ukraine visa applications. At the same time since September 2011 the catalogue of complementary documents in Ukraine, Belarus and Russia has been simplified. Reducing of the amount of required documentation shortened time to service one client. 2 POLITYKA MIGRACYJNA POLSKI stan obecny i postulowane działania - Dokument przyjęty przez Radę Ministrów w dniu 31 lipca 2012 r., Opracowanie: Zespół do Spraw Migracji. 65

66 Main reasons of rejections were not fulfilling legal requirements, including entering conditions defined in the Schengen Borders Code, and lack of justification for the reason of the planned stay. The following table shows the trends in migration flows in the years Table n 20 Number of Passenger crossings at external Total number of Total number of Total number of borders passengers: , including passengers: , including passengers: , Polish Polish including citizens and citizens and Polish citizens and foreigners foreigners foreigners passengers passengers to Poland to Poland passengers passengers Poland to from Poland passengers from passengers from Poland Poland. Third country nationals refused (including sea (including Data not available entry at the external borders and air borders) sea and air borders) Third country nationals 1464 (including sea 1561 (including sea 1175 (including sea 66

67 apprehended after having and air borders) and air borders) and air borders) crossed the external border illegally, including persons apprehended at sea Visas issued* Data not available Source: Data provided by the Border Guard *Source: Report of the Polish Consular Service for the year 2011, the Ministry of Foreign Affairs, Department of Consular Affairs, April Please specify whether, in your opinion, the intervention through the Fund contributed to changes in migration trends in your country and if so, explain the reasons. Polish borders with Russian Federation, Republic of Belarus, and Ukraine, as well as external border on Baltic Sea and international airports have had, since the 1 st May 2004, an external EU border status. Its total length amounts to ca km. With the accession of the Republic of Poland to the Schengen Zone, crossing that border enabled moving to other EU countries without any further border controls. As a result, the necessity to protect external EU borders became an extremely important task, guaranteeing safety of all Member States against threats coming from persons and goods unwanted in the EU territory. Although the Frontex analysis cited in the Multiannual Programme 2013 did not show Polish borders as the most important routes of illegal migration into the EU, it stressed nevertheless that there was a significant migration pressing, directed from the EU outside towards the Schengen Zone. This meant that Poland was in most cases treated as a transit country by immigrants. According to the Multiannual Programme 2013 provisions, main regions generating a so called migration flow which crosses Poland, were countries of the former Soviet Union, Southern Asia, and South-Eastern Asia. Among the persons detained for irregular crossing of the border, there were in the majority citizens of: Ukraine, Russia, Moldova, Vietnam, Belarus, Armenia, Georgia, China, and Pakistan. Between the 28 th of August to the 17 th of September 2012 an evaluation was carried out by the external expert and entitled Evaluation of results and impact of measures co-financed from the EBF in the 2007 programming period. 67

68 The aforementioned evaluation covered an analysis of projects, accepted for implementation within the 2007 allocation, which were implemented and settled until the end of June Totally 37 projects were evaluated, which were implemented by 12 Partners, including: General Headquarters of the Border Guard, General Headquarters of the Police, the Ministry of Foreign Affairs, the Ministry of Finance, Office for Foreigners, Podkarpacki Voivod, Mazowiecki Voivod, Lubelski Voivod, and Podlaski Voivod Office, Border Guard Training Centres, and Bieszczadzki Unit of the Border Guard. The methodology of the evaluation consisted of a desk-research analysis of programme documents, individual In-Depth Interviews (IDI), and Paper-and-Pencil Interviewing (PAPI) surveys. The desk-research analysis covered documents, important from the point of view of achieving evaluation s objectives, including: Multiannual Programme 2013, Annual Programmes (), the project documentation (Project Fiches PR 2007 together with attachments), a mid-term report , as well as final reports and/or quarterly reports from the project implementation. The IDI were carried out with representatives of the RA (EU and International Co-operation Department of the Ministry of the Interior DUEWM MSW) and with representatives of the DA (European Programmes Implementing Authority WWPE). The PAPI surveys were carried out with partners of the EBF and persons, who are responsible for direct implementation of projects. Totally, 23 surveys were done among persons, responsible for 37 projects covered by the evaluation. Results of the quantitative research showed that 26 % of the evaluation population noticed a direct impact of the implementation of their projects to migration trends. Nearly 74% of the evaluation population answered that the scope of the project was not oriented to contribute to changes in migration trends. It results from their specificity and assumed objectives. It is worth mentioning that no one answered in a way that excludes any impact in the area concerned. 68

69 Chart 1 Source: Own study based on the results of the quantitative research As much as 17 out of 23 (which makes nearly 74% of the evaluation population) answered that the scope of the project was not oriented to contribute to changes in migration trends. It is however worth mentioning that no one answered in a way that excludes any impact in the area concerned. At the same time, a part of respondents (6 persons) notice a direct translation of the implementation of their projects to migration trends and indicate following reasons: an increase of safety of immigrants crossing the border; an exclusion of possibility to invigilate officers doing their tasks in relation to direct protection of the EU external border. There is a noticeable change in the behaviour of criminal groups organising human transfers, as the project became a major barrier for their actions; an increase of the number of patrols, and as a result intensifying of border control and observation actions, which brings tightness of borders; strengthening the protection and supervision by increasing the number of aerial patrols. Round-the-clock aviation duties, an increase of safety and 69

70 effectiveness of night patrols, which also significantly influences further tightness of borders. Effects of projects, indicated by respondents, which contribute to an increase of tightness of borders, are a frequent reason of refraining from irregular crossing and drive people to find an another way to enter the EU. Moreover, an extension of existing systems and an introduction of new IT solutions improved work of consular personnel and its performance, resulting in an easier and faster service for customers. One of the main platforms of modernisation of consular services was preparation and implementation of Visa Information System (VIS). VIS is the common database of visa information in the Schengen Zone, launched in Using this new tool required introducing significant systemic changes, additional equipping units, modernisation of reception desks, and training personnel. According to provisions of Report of Polish Consular Service for 2011 (Ministry of Foreign Affairs, Consular Department, April 2012), in the end of 2011, the VIS system was functioning in 7 consular offices and was ready to operate in next 10 offices. In 2011 consular offices issued a total of visas, which makes for an increase by 30.6 % compared with the previous year. Most visas in 2011 (invariably since a couple of years) were issued by consular offices at the Eastern Polish border: Ukraine 572,037 visas (increase by 26 %), Belarus 299,665 visas (increase by 48 %), and in Russia 214,035 visas (increase by 24 %). Total number of issued visas in these three countries only totalled 1,085,737, which makes as much as 92.5 % of all visas issued in Polish consular offices worldwide in This is an effect of a liberalisation of the visa process in the East and an introduction of a simplification of the visa procedure for incomers to Poland (source: Report of Polish Consular Service for 2011, Ministry of Foreign Affairs, Consular Department, April 2012) visas were rejected to foreigners, which makes for 2.2 % of the total number of 1,200,872 applications submitted in Main reasons of rejections were not fulfilling legal requirements, including entering conditions defined in the Schengen Borders Code, and lack of justification for the reason of the planned stay. The greatest shares of rejections were noted in case of so-called high migration risk countries: Kenya 31.0 %, Nigeria 26.9 %, Morocco 21.9 %, Pakistan 21.5 %, Syria 20.3 %, Egypt 19.6 %, Algeria 12.3 %, and India 9.9 %. (source: Report of Polish Consular Service for 2011, Ministry of Foreign Affairs, Consular Department, April 2012). 70

71 Chart Source: Report of Polish Consular Service for 2011, Ministry of Foreign Affairs, Consular Department, April Please specify to what extent migration flows influenced decisions on the intervention of the Fund? Did you (re)shape the programming through the Fund in order to meet any (new/ unforeseen) specific needs within the migratory context at national level? If, why? At the stage of preparing the Multiannual Programme for the EBF 2013, the situation in Poland and migration flows influencing the aforementioned situation were defined and thoroughly analysed. The main objective of the Multiannual Programme was therefore giving freedom and smoothness of the legal flow of people and goods through the state border with reservation of a high level of safety and cohesion of a social community through protection of the border against threats for the national safety, national economy, public health, and against irregular crossing the border. 71

72 There was no necessity of remodelling of priorities and assumptions of the Fund in order to take new or unpredicted needs in the context of domestic migrations into account ADDED VALUE AND IMPACT Volume effects: Taking into account the information in part I, how and where in particular did the Fund's intervention contribute most significantly to the overall range of activities in support to border management (checks and surveillance) in your country? Border Management Within the concept of operation of the BG described in section and the objectives of border management in Poland, it should be noted that the Fund has contributed significantly to the achievement of the designed objectives. Achievement of its strategic objectives has been possible due to the following activities: increasing the number of BG facilities to install modern equipment to allow for quick and efficient control and surveillance; increasing the number of premises corresponding to the European standards in the field conditions and the organization of work of employees and officers of the BG; purchase of new and replacement of equipment exploited; training staff. These measures, in turn, translated into a specific realization of the operational objectives, such as: increasing the number of border crossing facilities that meet EU standards; reducing waiting times at border checks; 72

73 increasing security at the external border; increasing the efficiency of cross-border control; sealing the border protection system; increasing the efficiency and mobility of the services; improving the coordination and deployment of the forces and means of the services; improvement of knowledge of the officers / staff. Strengthening of the capacity within the implementation of the border activities thanks to projects funded by the EBF is possible through modernization of infrastructure, equipment, training, modernization of IT and radiocommunication systems. As for the extent to which the Fund has contributed to the achievement of its objectives, it is necessary to refer to the financial information set out in paragraph These statistics show that the share of EBF in financing expenses related to the protection of the external borders of our country is at a level of about 3%. Only domestic expenditure related to infrastructure and equipment in the area of border management were taken into account in the analysis of the statistical data, because only such a comparison to expenditure of the EBF is the most appropriate. While, on an annual basis was as follows: in %, %, % and in the first half of 2012, up 16.18%. Despite the fact that the overall statistics show that the total value of the contribution FGZ is a little over 3% of the national measures in the area of border management, it should be noted that the financial data do not reflect the value of the overall impact of the Fund in the area of border management. This is due to the fact that within the EBF also soft training projects are implemented, whose financial value is relatively low, but the results are priceless. It should be emphasized that the importance of training projects is very high for the achievement of its objectives, such as quality of service and efficiency of passengers traffic or detection of illegal crossings. It should also be noted that in most cases, funding of the training project from the national sources is very difficult. 73

74 Chart 3 Source: Own elaboration based on the data submitted by the EBF Beneficiaries Taking into account the information in part I, how and where in particular did the Fund's intervention contribute most significantly to the overall range of activities in support to visa issuing in your country? Visa Policy The EBF financed the following activities, which had a positive impact on the development and achievement of the objectives set in the visa policy: appropriate equipment of units; creating a system of communication and exchange of information between units involved in the process of visas issuing; trainings within the visa policy. 74

75 It should be noted that the assessment of the impact of the Fund only in terms of financial value would not be adequate, because looking at the indicators presented in the tables section. 3.2, it is noted that the expected results in this area have been achieved to a large extent. An example of this is the indicator of the number of purchased or upgraded equipment associated with the process of issuing visas, where the value of the index at the national level was 241 units, of which 174 pieces of equipment in question was funded by the EBF, which represents more than 72%. The actions undertaken by national institutions in the field of visa policy are primarily financed from the state budget. Available domestic funds are not sufficient, and the activities carried out under the EBF stand for the valuable support, necessary to fulfil the existing gap. Without the support FGZ achievement of the following results at satisfactory level would not be possible: support of biometric infrastructure in consular offices, data transferring in the process of issuing visas and extension of communication routes; efficient handling visas and foreigners issues; adapting information and communication systems for the full implementation of the Community legal instruments for the protection of the external borders of the EU; improving the qualifications of staff performing tasks related to the protection of the border, the Schengen area, and consular services in the field of external borders and visas, in particular the Schengen Borders Code and the European Code on Visas. Undoubtedly, in the question of a positive impact on simplification in procedures of obtaining a Polish visa, following projects, co-financed from the EBF, should be pointed out: FGZ Training for customs officers on the use and operation of the SIS and VIS system. FGZ Implementation of adjustment and construction works in the premises of the backup centre and IT equipment providing. FGZ Providing consular offices with equipment and software for the collection of biometric data. FGZ Environmental analysis including development of the connection of public networks of offices abroad with LAN public network in the headquarters of the Ministry of Foreign Affairs. FGZ Extension of the Connection of the Network of Open Foreign Posts with Open LAN Network at the Ministry of Foreign Affairs. 75

76 FGZ Providing Lubelski Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry. FGZ Providing Mazowiecki Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry Taking into account the information in part I, how important was the support of the External Borders Fund to the national efforts in developing the IT systems VIS and SIS? IT Systems The quality of functioning of the services depends considerably on improving communication systems and extending the telecommunication infrastructure. For example, The Border Guard uses telecommunication systems that allow for round-the-clock clearance of travellers, consisting, among others, of checking available domestic databases for objections against persons crossing the border. The border Guard secures a part of the external EU border and does border controls using central EU SIS database. That is why the extension of telecommunication infrastructure, creating new, specialist software, indispensable during the border control process, and supporting the management of border control processes is important when it comes to ensuring the protection of border safety. The next priority investments related to the improvement of communication systems is for example project FGZ The construction of a backup centre for the AFIS National Network project, implemented by the Police. Stage I Purchase and supply of the hardware components and software licences for the construction of the backup centre for the AFIS National Network. Subjects authorised to collect and process fingerprinting data use the AFIS System. In the case of a failure, the system becomes unavailable. The construction of the Supplementary Centre of the National AFIS Network was meant to eliminate this threat. The Fund contributed in particular to extending the Central Telecommunication Node of the Border Guard, covering purchase of the necessary equipment and software, but also extending the AFIS system, allowing for identifying persons through a verification of biometrical data. 76

77 According to the data presented in the section EBF financial contribution of national financing related to development and modernization of IT systems is significant. Results of carried out qualitative research show unanimously that the majority of aforementioned undertakings, in case of no EBF would have no chance to be realised or would be implemented but later and to a much smaller extent. The Fund contributed particularly to extending the Central Telecommunication Node of the BG covering purchasing necessary equipment and software, but also extending the AFIS system, allowing for the identification of persons through verifying biometrical data To what extent did the Fund contribute to strengthening the image of having secure borders in your society? Strengthening an image of safe borders in the Polish society, as well as in the wider context (also among institutions responsible for border safety and officers realizing tasks in relation to direct protection of the EU external border) would not be possible without the EBF. An efficient system of protecting the external EU border is bound with the necessity to modernise and extend the border infrastructure used by the Border Guard. A growing crossborder flow, particularly at external borders, requires an appropriate infrastructure, i.e. providing sufficient number of border crossings points and further modernisation and extension of premises for fast, efficient, and thorough border control and improvement of external border safety. Within EBF, 37 projects were implemented, which undoubtedly had a positive impact on border tightness (including infrastructure projects), obtaining visas to Poland, as well as improving communication systems and an extension of the telecommunication infrastructure. 77

78 Chart 4 Source: Own study based on the results of the quantitative research More than the half of the persons covered by the research (12 persons) indicated that implemented projects would be realised even in the case of no co-funding from the EBF sources. However, it must be stressed that all researched persons underlined that in such case, projects would be implemented in limited scope and far later. In addition to that, some projects required very urgent realisation, and the value of the investment exceeded financial capabilities of partners in funding projects from own sources. At the same time almost the half of respondents namely 11 indicated that without financial support of the EBF, realisation of the project would become impossible. The reasons for that situation were above all: lack of financial sources, too high project budget, disqualifying possibility to realise it with such a scope from budget fund; other important tasks covering available funds; 78

79 in the case of training projects for Border Guard officers, every year funds for that are more and more limited and without the EBF funding, training so many officers would not be possible. Taking results of the research into account, it is worth stressing that achieving following results that strengthen the image of safe borders, would be impossible without: an increase of the number of Border Guard premises allowing for installing modern equipment for fast and efficient control and supervision; an increase of the number of premises complying with EU standards concerning conditions and organisation of work of Border Guard employees and officers; an increase of the number of border crossing premises complying with EU standards; shortening of waiting time for the border control; an increase of safety at the external border; an increase of efficiency of the border flow control; tightening of the border protection system; an exchange of worn out equipment; an increase of efficiency and mobility of services; an improvement of co-ordination and distribution of services resources; an increase of knowledge of officers and personnel. Installing information boards increases the status of the investment and its visibility throughout the society. The Fund did not cover stricte promotional and informational projects, yet within each project there were some promotional obligations to inform the society about carried out investments and about financing of these investment from EU funds. These obligations were realised by installing informational boards, marking equipment purchased within the project and preparing promotional materials. The visualisation of carried out investments together with an information about the source of financing also positively impacts the way they are received by the society that is aware that these systems are constantly extended and modernised. 79

80 Also an improvement of work of border protection services influences positively the reception by the society. It is done by using modern equipment (portable devices for passport control), which influences accuracy of verification, increase of comfort of verified persons, and shortening the waiting time. It is also worth noting that in September 2011, the company TNS OBOP (working for more than 50 years. Since 1998 belongs to the international research group TNS, which is one of the largest organizations in the world, dealing with marketing communications) conducted a survey on public institutions, which enjoy the highest trust of Poles. These study confirms the existence of a good image of the BG in Polish society. Asked about the attitude of Poles to 35 institutions of various profiles. It turns out that the most trusted institutions that Poles enjoy are those who ensure the safety of them, among them is the BG, which has high ratings and enjoys high credibility among Poles - 59% of respondents expressed the opinion that they tend to trust How do you perceive the programmes' added value in comparison with existing national programmes/policies at national, regional and local level, and in relation to the national budget in the area of intervention of the External Borders Fund? Measures carried out by national institutions within the scope covered by Fund s objectives, are in the majority financed by the state budget. It is worth mentioning that funds, available in this area, which respondents noted, are to a large extent insufficient. In opinion of respondents, available state budget is utilised for other, equally important tasks. As mentioned before, more than a half of researched persons underlined that in case of no support from the EBF, implementation of their projects would be impossible. That is why actions proposed within the EBF fully comply with partners expectations, because they give opportunity to prepare and realise projects, which in the majority of cases would have no chance to be implemented because of no funds or would be completed later and to limited extend. It is also worth mentioning that implemented projects are in most of cases connected with other partners investments, which shows the added value of individual Annual Programmes, as thanks to these funds it is possible to supplement and complete wider undertakings. As many as 21 respondents, constituting 91% of the 80

81 research population, indicated that projects co-financed within the EBF, implemented by their institutions, were essentially connected with other investments, performed by their units. Chart 5 Were implemented projects, financed from the EBF, substantially bound with other undertakings, realised by your unit? Source: Own study based on the results of the quantitative research Taking aforementioned information into account, it is clear that the financial support of the EBF became an added value compared with existing national programmes and in relation to state budget available in regard to the EBF intervention area. 81

82 Chart 6 Source: Annual Programmes Both objectives and priorities of the Multinational Programme as well as actions carried out within the individual Annual Programmes are compliant with national needs set in the Integrated Border Management Programme 2013, adopted by the Polish government on the 11 th of September In 2009, apart from own budgets, institutions benefiting from the EBF could use special funds of the state budget given in a form of an act within the Programme of modernisation of Police, Border Guard, National Fire Brigade, and Government Protection Bureau in This programme aimed at creating conditions for full implementation of statutory tasks by units responsible for safety and social order, as well as significant improvement of effectiveness of those units, being a prerequisite of state and citizen security. 82

83 It is worth remembering that also other support played an important role in the proper preparation of services aimed at implementing tasks concerning border and Schengen Zone safety. It was support from pre-accession funds, like Phare and Transition Facility, and from other programmes, like the Schengen Fund and the Norwegian Financial Mechanism (with national co-financing). In addition to that, actions undertaken within the EBF follow up and supplement actions carried out within aforementioned EU funds and the Norwegian Financial Mechanism. However, despite numerous important ventures financed both from national and aforementioned foreign sources, needs regarding freedom and smoothness of legal flow of people and goods through the border while maintaining a high level of safety and cohesion of social community through protection of the border against threats for the national safety, national economy, and public health, are still significant. Only support, available within the EBF, fills that gap. Without the EBF intervention, achieving such a satisfactory level of following results would not be possible: adjusting border infrastructure to EU standards; keeping the high standard of control and efficient protection of the external EU border and safety for the Schengen Zone; developing supervision systems of the external EU border; increasing functionality of telecommunication infrastructure of the Ministry of Foreign Affairs; supporting biometrical infrastructure of consular offices and transferring data in visa-issuing, as well as extending communication paths; a smooth visa and foreigner affairs service; adjusting information and communication systems to a full implementation of community legal instruments concerning protection of the external EU border; improving qualifications of services that carry tasks related to border, Schengen Zone, and consular services protection, in regard to external borders and visas, particularly Schengen Border Code and European Visa Code. Moreover, it is worth recalling the results of the PAPI survey, which show that respondents indicate several additional positive effects, achieved due to implemented projects, apart from those expected. The added value of the projects, implemented with EBF support, is achieving additional results than the ones 83

84 achieved within former measures, done without EBF support, which are measurable, and proving that there is a connection between those results and additional EBF support. Almost 61% of researched people confirm the existence of advantages, being an added value of realised projects. These were, among other: realisation of the EBF project began a series of actions aiming at building a centre of mining and pyrotechnical training in the Training Centre of the Border Guard in Kętrzyn. Since the beginning of its realisation up until now, extensive works have been carried out. At the moment the school in Kętrzyn has a permission from the Voivode for such an activity and systematically conducts courses on that topic; as a result of training offered within implemented projects, BG officers, became active in other EU undertakings; tighter co-operation between the BG and the Police; a possibility to expand the project, to implement additional actions, and to stimulate another investments; interest of other Offices in realising similar projects and exchanging good practice in this matter; increasing professional qualifications of people involved in project implementation, and users being beneficiaries of project results; creating a permanent unit for acquiring and settling EU funds; continuation of training from budget funds stemming from an increase of awareness of the necessity of training; becoming acquainted with new procedures, gaining new experience; improving qualifications of the personnel regarding project management; an increase of experience of project technical staff. During the evaluation, respondents were asked if they achieved additional benefits because of project s implementation, e.g. an improvement of staff qualifications in project management (21 indications), broadening of staff experience in terms of implementation of EU funds (20 indications), or stimulating further investments (6 indications). Only in one case, the respondent answered that there are no noticeable additional benefits, apart from those initially expected. Taking all aforementioned information into account, it must be said that the added value of the EBF, in regard to existing national programmes and national budget sources, is very high. 84

85 How did the Fund enhance your response capacity in relation to detecting irregular crossings and apprehending irregularly entering thirdcountry nationals? When applicable, please illustrate by referring to specific actions and/or projects. According to statistical data, prepared by the BG, the number of citizens of the third countries, detained as a result of illegal crossing of the border amounted in 2006, 2009, and 2011 to 1464, 1561, and 1175 persons accordingly. Above data show that the number of apprehended citizens increased in 2009, as compared with 2006, by over 6% (nearly 100 persons). However, in 2011 it was lower by more than 25% (386 persons) compared with It does not mean that the capacity of officers to detect illegal crossings and detentions dropped down. The number of detected illegal crossings depends on a number of conditions such as e.g. a decrease in the number of attempts of illegal border crossings resulting from border tightness or looking for new paths of illegal human transfer. Chart 7 Number of third country nationals apprehended as a result of illegal crossing of the external border Source: Data provided by the Border Guard

86 It is worth noticing that organised international crime groups dealing with an illegal transfer of immigrants are equipped with best equipment and means of transport. Moreover, these are highly organised groups, dealing with other illegal activities, like transferring drugs or radioactive materials. That is why, to guarantee safety of the border with an increasing cross-border flow, (particularly between external borders) it was necessary to begin with implementing border crossings infrastructure and modern equipment for fast, smooth, and thorough border control. An important element was also an implementation and modernisation of telecommunication systems, allowing for a round-the-clock service for travellers, also allowing to check information about persons crossing the border, in available national databases. That is why many projects were realised to extend the telecommunication infrastructure, creating new, specialist software indispensable during the border control process, and supporting the management of border control processes. Worn out end stations were exchanged and the safety system of telecommunication network strengthened. The aforementioned actions allowed for continuous and proper work of the telecommunication system of the BG, being a main working tool of the whole formation, and assured uninterrupted work of the equipment. Another important element in the process of detection of irregular crossings and detaining persons from the third countries was purchasing modern means of transport for tasks related to border and border zone safety. It allowed for introduction of mobile patrols of the BG, which resulted in not only patrolling of areas selected on the basis of risk analysis and results of reconnaissance, but also examining identity papers (searches, realisation of delegated tasks, establishing perpetrators and witnesses of crimes and infringements). Purchasing modern means of transport allows also for systematic, periodical control of public places in the border area, where citizens of the third countries gather. During the evaluation, respondents were asked if projects, implemented within the EBF, enhance the level of illegal border crossings detection and the number of detained persons from the third countries. The majority of respondents, namely as many as 20 (almost 87%) answered positively. Only three persons answered differently, saying, I do not have opinion on that (1) or rather not (2). It resulted from the specificity of projects and assumed objectives (Training for customs officers on the use and operation of the SIS and VIS system, Providing Lubelski Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry, Carrying out substantial trainings for the Lublin Voivode s services which perform tasks related to the protection of the border and the Schengen area, Conducting trainings for the officers and employees of the Customs Service and Border Guard). Chart 8 86

87 Source: Own study based on the results of the quantitative research The analysis of evaluated projects showed that among actions, which seem to influence the increase of the competence for detection of irregular border crossings and detentions of persons to the biggest degree, the following should be indicated: Actions of the Border Guard Extending and preserving the IT platform and modernising radio communication systems of the Border Guard. Language training for employees of the Border Guard. Improving qualifications of services that realise tasks related to border protection with the use of aircrafts, as well as purchasing equipment for Border Guard aerial units crews performing patrolling flights to protect the external EU border. Purchasing specialist means of transport for the Border Guard. Actions of the Ministry of Foreign Affairs Implementation of adjustment and construction works in the premises of the backup centre and IT equipment providing. Providing consular offices with equipment and software for biometric data collection. 87

88 Environmental analysis including development of the connection of public networks of offices abroad with LAN public network in the headquarters of the Ministry of Foreign Affairs. Extension of the Connection of the Network of Open Foreign Posts with Open LAN Network at the Ministry of Foreign Affairs. Actions of the Police The construction of a backup centre for the AFIS National Network Purchase and supply of the hardware components and software licences for the construction of the backup centre for the AFIS National Network. Training for policemen, in particular as regards the execution of the Schengen legal regulations as well as exchange of information and use of the Schengen Information System. Modernisation of the Authorised Interception System for purposes of implementation of Border Guards statutory tasks in the area of exchanging criminal information with the Police. DAKTYL III Index Roll Out. Actions of the Podkarpacki Voivodeship Office Development of road infrastructure and purchase of equipment for border control on the Road Border Crossing Krościenko - Smolnica. Construction of a building for clearance for travellers on the Road Border Crossing Medyka Szeginie. Modernisation of the main building including construction of a waiting room for travellers on the Railway Border Crossing Przemyśl Mościska (part for persons) and purchase of specialist equipment. Development of the road infrastructure and procurement of the equipment for the Cross Border Checks at Medyka - Szeginie Crossing. Reconstruction of the building for detailed control at the entry to country in the Road Border Crossing Medyka Szeginie. Actions of the Lubelski Voivodeship Office Construction of a landing site for helicopters on the Road Border Crossing in Hrebenne. Expansion of the Road Border Crossing w Zosin designing. Completing equipment of the Road Border Crossing in Hrebenne. Providing Lubelski Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry. Carrying out substantial trainings for the Lublin Voivode s services which perform tasks related to the protection of the border and the Schengen area. 88

89 Actions of the Ministry of Finance Training for customs officers on the use and operation of the SIS and VIS system. Conducting trainings for the officers and employees of the Customs Service and Border Guard. Actions of the Mazowiecki Voivodeship Office Providing Mazowiecki Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry. Actions of the Office for Foreigners Improvement of procedures for entry, transit, residence and departure of foreigners in the territory of the Republic of Poland by modernising the ICT system for set of records, files and register of foreigners. Actions of the Training Centre of the Border Guard in Koszalin Training concerning international migrations for Border Guard. Actions of the Bieszczadzki Unit of the Border Guard Expansion of the Border Guard's post in the village Horyniec-Zdrój. An analysis of researched projects shows that they have a great impact on the increase of effectiveness of protecting the external EU border, not only in terms of detection of irregular crossing of the border and detaining persons from the third countries, but also in regard to preventing other illegal crossings. An increase of the number of illegal crossings in 2011 supports this opinion To what extent did the Fund contribute in particular to preparing your country for the introduction of the integrated, interoperable European system of surveillance, e.g. EUROSUR? According to assumptions set in the Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Examining the creation of a European Border Surveillance System (EUROSUR). COM(2008) 068, undertaking actions allowing for creating a system able to co-operate with other systems of the EU member states within the European System of Border Guards aims at improving supervision of the border, giving better coordination of distributing forces and means of services during extraordinary and critical situations. 89

90 EUROSUR should guarantee a common technical framework that enables enhancing of everyday co-operation and communication among authorities of member states and facilitating the use of advanced border protection technologies. The main operational objective should be an exchange of information among national systems and the EU system, excluding personal data. The objective of the system is to support member states in their efforts towards limiting the number of citizens of the third countries illegally crossing the EU border, through enhancement of situation at their external borders and increase of reaction ability of their surveillance services and border control. As part of the adopted Multiannual Programme, there are two Priorities, which were the most active in this regard. Priority 1, relating to Support for further progress in the process of gradual creation of a common, integrated border-management system in regard to the control of persons at external borders and supervision over these borders. Main implemented actions within this Priority, were: FGZ Development and maintenance of the teleinformation platform for the Border Guard designing and launching WLAN; FGZ Development and Maintenance of the Central Information and Communication Node of the Border Guard; FGZ Equipping Border Guard with the Specialist Means of Transport; FGZ Modernisation of the Authorised Interception System for purposes of implementation of Border Guards statutory tasks in the area of exchanging criminal information with the Police; FGZ Equipping trainers of Border Guard Training Centre responsible for specialist training in the field of pyrotechnics sapper received by the officers carrying out tasks in the direct protection of state border; FGZ Modernisation of radio communication systems of Border Guard; FGZ Development and maintenance of the teleinformation platform for the Border Guard Schengen bus equipping. Priority 2, relating to Support for preparing and implementation of national elements of European supervision system over external borders and constant European Patrolling Network on the southern sea borders of the EU countries. Key actions within this Priority anticipate extending systems of technical protection of the border, resulting in an increase of reaction capabilities of their reconnaissance services and border control. 90

91 Below, there are two examples of projects implemented within 2009 and Annual Programmes, which contributed to an increase of reaction capacities of reconnaissance services and border control: FGZ Purchase of the equipment for the Border Guard air crews performing flights to protect external EU borders. The main assumption of the project is purchasing night-vision goggles for night flights on Border Guard aircrafts with a supply of a portable tester for servicing optical systems of night-vision devices in stationary stand. The project aimed at strengthening the supervision and protection of the state border as well as increasing safety of aerial night operations, an increase of capabilities in the case of using aircrafts in times of emergency and offering a prompt reaction to actions threatening the safety of the external EU border, and widening the scope and versatility of realised tasks of protection of the external EU border. Moreover, the realisation of aerial operations with the use of night-vision goggles allows for more efficient and more rational use of assets. Equipping crews with night-vision goggles allows for extended realisation of night actions. FGZ An extension of the technical system of protection of the external EU border - this project was not covered by this evaluation, nevertheless it was fully implemented. The project covered purchasing portable infrared cameras. They are used during low visibility conditions in varying weather of the temperate climate by the motorised and foot patrols for observation from selected field points and from remotely controlled platforms. Taking the aforementioned objective of the EUROSUR programme into account, it should be stressed that financial support from the EBF greatly influenced the knowledge of the situation at the external borders and enhanced the reaction abilities of reconnaissance services and border control, thus preparing Poland for an introduction of the integrated interoperational EUROSUR European Surveillance System To what extent did the Fund contribute to increasing and improving (local) consular co-operation and creating economies of scale in consulates? When applicable, please illustrate by referring to specific actions and/or projects. There are two projects realised by the Ministry of Foreign Affairs, which contributed to increase of consular co-operation, these are: 91

92 FGZ Environmental analysis including development of the connection of public networks of offices abroad with LAN public network in the headquarters of the Ministry of Foreign Affairs The project anticipated an analysis prior the commencement of the project allowing to, among others, prepare Internet connection parameters. An infrastructure of a safe communication among internal networks of diplomatic and consular units was created, which aimed at creating conditions for further integration of the Ministry of Foreign Affairs with external national and international partners. The project aimed at creating a global communication system, taking various technical conditions and the level of development of telecommunication infrastructure in countries, where Polish diplomatic and consular units operate, into account. FGZ Extension of the Connection of the Network of Open Foreign Posts with Open LAN Network at the Ministry of Foreign Affairs The project anticipated creating an infrastructure of safe communication among internal networks of 7 foreign diplomatic and consular units and the Head Office to create conditions for further integration of the Ministry of Foreign Affairs with external national and international partners. Therefore, its aim was to create a global communication network taking various technical conditions and level of development of the telecommunication infrastructure in countries, where Polish diplomatic and consular units operate into account. The system is based on a Virtual Private Network (VPN), with the Internet serving as a physical connection, due to being an inexpensive as well as more and more available (even in countries with poor telecommunication infrastructure) data carrier, which is particularly important in the case of creating such a broad communication system. Data concerning potential savings in consulates, resulting from projects implemented with the EBF, are not available, but it should be indicated that an introduction of biometrics as an element of visa applications will significantly increase the amount of time of data transfers between consular units and the Head Office of the Ministry of Foreign Affairs. It was therefore necessary to create a high-level security communication channel with a sufficient capacity To what extent did the Fund allow you to research, develop, test and introduce innovative / state-of-the-art technology at borders and in consulates? (such as ABC gates and Registered Traveller Programmes). Projects implemented within the EBF contributed to a significant degree to introducing modern technologies both in consulates and at the borders. 92

93 As mentioned before, increasing crossborder traffic, particularly at external borders, required appropriate infrastructure, i.e. ensuring that a relevant number of border crossings, and their modernisation and extension in order to install modern equipment for quick, efficient and thorough border control, and to improve safety of the external border. The other provisions of the Schengen Convention have become also a prerequisite of the introduction of modern technology. They actually forced the introduction of innovative elements, in order to improve the performance of the border checks and people flow and the protection of the external border. By virtue of the above mentioned Convention concluded on 19 June 1990, there was created Schengen Information System (SIS). The purpose of the SIS is to help the state authorities to exchange information on persons crossing the borders of countries which are parties to the agreement. The priorities of the EBF are fully consistent with these goals and due to new technologies it is much easier to achieve the expected results. Participation in SIS II, Schengen Information System of the next generation, assumes an introduction of new, innovative elements, such as using biometrical data (photographs and fingerprints) or so called communication of records, which will enhance capacity and reliability of earlier version of the SIS. Developing the biometrical system was related to a necessity to purchase modern equipment coupled with relevant software.. Basing upon an analysis of final reports of researched projects (9 projects out of analysed 37 covered purchasing equipment for border protection), it was found that the total amount of purchased equipment for border control was 930 pieces, including 1 radiometric gate, 222 devices for document verification, and 686 pieces of other equipment: computers, scanners, and mobile radio terminals, etc. The introduction of the Visa Information System simplified processing visa applications and the control at the external EU border, at the same time preventing against visa-shopping and improving the exchange of information concerning submitted visa applications between member states. Relevant authorities of member states have full access to visa applications for entering the Schengen Zone territory. These elements contribute to an increase of the level of safety in Poland and to even stronger tightening of co-operation in EU structures. Among projects, which significantly contributed to introduction of modern technologies and solutions at the borders, are first of all: FGZ Development and maintenance of the teleinformation platform for the Border Guard Schengen bus equipping; FGZ Purchase of the equipment for the Border Guard air crews performing flights to protect external EU borders; 93

94 FGZ Providing Lubelski Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry; FGZ Providing Mazowiecki Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry; FGZ Improvement of procedures for entry, transit, residence and departure of foreigners in the territory of the Republic of Poland by modernising the ICT system for set of records, files and register of foreigners; FGZ The construction of a backup centre for the AFIS National Network I stage Purchase and supply of the hardware components and software licences for the construction of the backup centre for the AFIS National Network; FGZ Modernisation of radio communication systems of Border Guard; FGZ Equipping trainers of Border Guard Training Centre responsible for specialist training in the field of pyrotechnics sapper received by the officers carrying out tasks in the direct protection of state border; FGZ DAKTYL III Index Roll Out; FGZ Extension of the Connection of the Network of Open Foreign Posts with Open LAN Network at the Ministry of Foreign Affairs; FGZ Modernisation of the Authorised Interception System for purposes of implementation of Border Guards statutory tasks in the area of exchanging criminal information with the Police; FGZ A purchase of specialist means of transport for the Border Guard; FGZ Development and Maintenance of the Central Information and Communication Node of the Border Guard; FGZ Upgrade of the AFIS system; FGZ Development and maintenance of legal stay control systems; FGZ Providing consular offices with equipment and software for the collection of biometric data What alternatives would you have used to address the problems identified at national level should the Fund not have been available? To what extent and in what timeframe would you have been able to address them? 94

95 In 2009, beneficiaries of the EBF could use special national budget funds available within the Programme for Modernisation of the Police, Border Guard, National Fire Brigade, and Government Protection Office for Also support from other programmes of the European Union such as the Schengen Fund or the Norwegian Financial Mechanism, was important in order to properly prepare services that perform tasks concerning protection of the border and the Schengen Zone. Chart 9 Source: Own study based on the results of the quantitative research 95

96 As the above chart shows, if researched projects were not implemented with financial support of the EBF, Partners indicated own funds as the most probable alternative sources for funding. As many as 17 out of 23 respondents answered in such a way. However, is must be stressed that in respondents opinion, projects would be implemented to a limited extent and in a later time (as almost 61% of respondent answered). It confirms the high added value of projects implemented within the EBF with regard to existing national programmes and available state budget Taking into account the above analysis of your programmes' achievements, please evaluate the overall impact of the programmes under the External Borders Fund (choose one or more options and explain): Border management consolidation and limited extension of border management capabilities in your country consolidation and significant extension of border management capabilities in your country Process effects: The implementation of EBF Annual Programmes significantly contributed to the strengthening and development of border management system through the following activities: increasing the number of BG facilities to install modern equipment to allow for quick and efficient control and surveillance increasing the number of premises corresponding to the European standards in the field conditions and the organization of work of employees and officers of the BG; purchasing new equipment and replacing already exploited; staff training. limited modification of practices/tools supporting border management in your country significant modification of practices/tools supporting border management in your country Process effects: 96

97 Modification of the existing practices and management tools to support border management largely was possible due to the training projects implemented under the EBF. Both theoretical knowledge as well as practical experience brought to improvement of the effectiveness of BG officers in the implementation of tasks on the external border in the field of application of best practices, in particular the Schengen Borders Code and the European Code on Visas, border traffic control, conduct administrative proceedings against foreigners and border inspection counteracting illegal migration and human trafficking. A better knowledge of foreign languages has had a positive impact on overcoming the language barriers by BG officers involved in the work of EU bodies and referring contacts with the relevant services of other countries, which ensure a constant and direct exchange of information and best practices. introduction of new practices/tools supporting border management in your country other (please specify) Visa policy consolidation and limited extension of visa policy capabilities in your country consolidation and significant extension of visa policy capabilities in your country Process effects: The EBF funded a series of actions that have affected the development of the visa policy. Among them are: equipment of units, a system of communication and exchange of information between units involved in the process of issuing visas and training in the field of visa policy. limited modification of practices/tools supporting visa policy in your country significant modification of practices/tools supporting visa policy in your country Process effects: It should be emphasized that the actions of the EBF stand for an invaluable support that fills a gap in the domestic financing of the area. Without the support of the following results the EBF achievement would not be possible: support for consular biometric infrastructure, transferring data in the process of issuing visas and extension of communication routes; efficient handling visas and foreigners issues; adapting information and communication systems for the full implementation of the Community legal instruments for the protection of the external borders of the EU; 97

98 improving the qualifications of staff performing tasks related to the protection of the border, the Schengen area, and consular services in the field of external borders and visas, in particular the Schengen Borders Code and the European Code on Visas. introduction of new practices/tools supporting visa policy in your country other IT systems significant contribution to investments in SIS in your country Process effects: Taking into account the analyses of projects implemented under particular EBF Annual Programs, the EBF contribution in the area of investment in SIS was identified as limited due to the relatively low value of the funds which had been allocated for this purpose in relation to the national financing. It should also be noted that, that though a relatively small financial commitment of EBF (compared with domestic investments related to SIS), the results of the fund in this area are high. First of all, cofinancing of the EBF filled a gap in the national budget, so that the EBF projects made it possible to keep deadline for running the Schengen Information System (SIS) set by the European Commission. limited contribution to investments in SIS in your country crucial contribution to investments in SIS in your country significant contribution to investments in VIS in your country Process effects: The introduction of the Visa Information System has simplified visa application processing and control of the external border of the EU. The effect of the system is mainly to improve the exchange of information between Member States on applications submitted and the possibility of preventing visashopping phenomenon. The relevant authorities of the Member States have full access to visa applications for the right to enter the territory of the Schengen area. These elements will help to increase the level of safety in Poland, and ensure the safety of other EU Member States against threats from the persona non grata in EU. Taking into account the analyses of projects implemented under particular EBF Annual Programs, EBF contribution in the area of investment in the VIS was defined as limited due to the relatively small amount of funds that has been allocated for this purpose in relation to the national financing. 98

99 It should also be noted that, that though a relatively small financial commitment of the EBF (compared with domestic investments related to VIS), the results of the fund in this area are high. First of all, cofinancing of EBF filled a gap in the national budget, so that the EBF projects made it possible to keep deadline for running the Visa Information System (VIS) set by the European Commission - especially in countries where the greatest risks have been identified. At the end of 2011, the VIS worked effectively in 7 consulates, and in 10 more consulates it was ready to start. limited contribution to investments in VIS in your country crucial contribution to investments in VIS in your country other (please specify) To what extent did the Fund enable you to address specific national weaknesses and/or deficiencies at external borders? When applicable, please illustrate by referring to specific actions and/or projects. To sum up the previous effects of all implemented projects being the subject of this evaluation, it should be stressed that the EBF played an important role in eliminating weak points that previously existed at external borders. Main national needs in this regard were identified in the Programme of the Integrated Border Management , adopted by the Polish government on the 11 th of September The main objective of this Programme was guaranteeing freedom and smoothness of the legal flow of people and goods through the national border while providing a high level of safety and cohesion of the social community through protecting the border against threats for the national security, national economy, and public health, as well as against illegal crossing of the border. External Polish borders have several weak points, the elimination of which was possible mostly because of all projects, realised with support of the EBF. They are as follows: lack of a relevant infrastructure (border crossings); insufficient equipping services with modern devices allowing for carrying out tasks concerning direct protection of the border; insufficient equipping officers with devices allowing for fast, effective, and thorough border control and efficient clearance of travellers; 99

100 lack of effective and efficiently functioning communication systems; lack of relevant telecommunication infrastructure; lack of sufficient number of highly trained officers. All aforementioned elements required vast investments and substantial financial intervention. Without these investments, Poland would not be feasible for guaranteeing safety of the Member states against threats from unwanted persons in the same time and to the same extent. Chart 10 Source: Own study based on the results of the quantitative research It is also important to look, how this question is observed by representatives of institutions that implement projects financed from the EBF. When asked, whether in their opinion projects contributed to strengthening weak points and eliminating problems at external borders, they almost unanimously confirmed this. As the chart above shows, only one person answered: I have no opinion in this matter. 100

101 Until June 2012, 37 projects have been realised and financially settled, for whom total commitment from EBF has amounted to EUR. It is once again worth mentioning that results of this evaluation explicitly show, that the majority of these projects, without the possibility to obtain funding from the EBF, would probably not be implemented (12 respondents in this way) or would be implemented, but later and to limited extent To what extent did the Fund enable you to address specific national weaknesses and/or deficiencies in the services and facilities available for your country in third countries with regard to visa issuing and/or the (preparation for the) entry of third-country nationals into your country and the Schengen area? When applicable, please illustrate by referring to specific actions and/or projects. Implemented under EBF projects have contributed to the modernization of consular offices by participating in the implementation of the Visa Information System. Expansion of existing systems and the introduction of new solutions undoubtedly contributed to the improvement of work of consular officers and increase their efficiency, which largely contributed to a better and faster service to the public. The introduction of the Visa Information System has simplified the processing of visa applications and the control of the external border of the EU, as well as improved the exchange of information between Member States in the field of complex applications. The relevant authorities have constant access to visa applications for the right to enter the territory of the Schengen area. However, it should be noted that the introduction of the SIS requires extensive changes to the system, equipment consular with additional devices, upgrading servicing points for clients and adequately trained personnel. This is why projects co-financed under the EBF have contributed to the elimination of weaknesses and deficiencies in this area, including the purchase of equipment and the modernization of the necessary infrastructure. Among the projects that have the greatest positive impact on facilitating the procedure for obtaining visas for Polish project are the following: FGZ Training of customs officers on the use and operation of SIS and VIS, FGZ Implementation of adjustment and construction works in the premises of the backup centre and IT equipment providing, FGZ Providing consular offices with equipment and software for the collection of biometric data, FGZ Environmental analysis including development of the connection of public networks of offices abroad with LAN public network in the headquarters of the Ministry of Foreign Affairs, FGZ Extension of the Connection of the Network of Open Foreign Posts with Open LAN Network at the Ministry of Foreign Affairs, FGZ Providing Lubelski Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, 101

102 Biometry, FGZ Providing Mazowiecki Voivod services with ICT equipment and equipment to communicate with other systems: POBYT, SIS, VIS, Biometry. In 2011, consular offices issued a total of visas, which is an increase of over 30% in comparison with. While the most of visas were issued in 2011 in the consular offices in countries to the East from Poland: Ukraine visas, Belarus and Russia The total number of visas issued in the above mentioned countries accounted for over 92% of all visas issued in Polish consulates in the world in Undoubtedly it is a result of the liberalization of the visa process in the East, but also facilitate the entry procedure for obtaining visas for Polish. However, issues of limiting and eliminating of weaknesses gaps in services and infrastructure for third-country nationals who enter the Polish, and thus to the Schengen area, are the subject of support under the European Refugee Fund (ERF) and the European Fund for the Integration of Third Country Nationals (EIF) and European Return Fund (RF). ERF supports, among other activities of reception conditions and asylum procedures, integration of the target group of the ERF, which stay in the territory of a Member State shall be permanent and durable. While, EIF helps to facilitate the development and implementation of admission procedures that are important for the integration of third country nationals and supports the integration process of newly arrived third-country nationals in the Member States. An important element is the sharing of best practices and cooperation within Member States and between them in the development, implementation, monitoring and evaluation of policies and measures for the integration of third country nationals. RF co-finances actions to achieve the objective of introducing and improving the organization and implementation of integrated management of migrants returns by Member States What other effects did the implementation of the Fund bring at national level; different from what was initially expected or estimated? When applicable, please illustrate by referring to specific actions and/or projects. During the evaluation, a quantitative research was performed with the use of a face to face survey. As mentioned before, 23 persons, responsible for implementing 37 projects from the allocation were involved in the research. Respondents indicated numerous additional positive effects, apart from those, which were initially expected. These were, among others: 102

103 Realisation of the EBF project began a series of actions aiming at building a centre of mining and pyrotechnical training in the Training Centre of the Border Guard in Kętrzyn. Since the beginning of its realisation up until now, extensive works have been carried out. At the moment the school in Kętrzyn has a permission from the Voivode for such an activity and systematically conducts courses on that topic. As a result of training offered within implemented projects, BG officers, became active in other EU undertakings. Tighter co-operation between the BG and the Police. A possibility to expand the project, to implement additional actions, and to stimulate another investments. Interest of other Offices in realising similar projects and exchanging good practice in this matter. Increasing professional qualifications of people involved in project implementation, and users being beneficiaries of project results. Creating a permanent unit for acquiring and settling EU funds. Continuation of training from budget funds. Becoming acquainted with new procedures, gaining new experience. Improving qualifications of the personnel regarding project management. An increase of experience of project technical staff, involved in realisation of projects. Moreover, among additional profits achieved by representatives of Institutions that implemented projects, who were directly involved in their realisation, it is worth to mention: a increase of qualification of the personnel with regard to the project management (21 indications); an increase of experience of the personnel with regard to implementation of foreign financial support (20 indications); stimulating following investments regarding protecting the border (6 indications). Only one respondent answered that additional benefits, apart from those expected, are not visible. During the survey, the BG officers answered that implemented projects significantly improved the comfort of their work too (modern equipment, new uniforms and dresses, modernised infrastructure). 103

104 Chart 11 Source: Own study based on the results of the quantitative research Taking all aforementioned information into account, it is clear that the added value of the EBF with regard to existing national programmes and to the state budget is very high Please indicate to what extent the activities co-financed by the Fund would not have taken place without the financial support of the EU and explain: they could not have been carried out they could have been carried out to a limited extent they could have been carried out to a significant extent part of the activities carried out by public authorities (namely ) could not have been carried out the co-financing of the Fund, activities by other organisations could not have been carried out (namely, if applicable) 104

105 other Process effects: As mentioned before, results of the face to face survey indicated explicitly that the majority of implemented projects, without the support of the EBF, would not be implemented or would be implemented but later and to a limited extent. Almost 48% of respondents think that in a situation of no funding from the EBF, the implementation of projects would not be possible. The rest of respondents answered that it would be possible, but added that it would be much more difficult. The main reason for that is lack of appropriate funds and that the budget of the Beneficiaries of the EBF hinders the realisation of many important and urgent investments. Respondents answered: the realisation of the project would be possible in the same scope and in the same time 1 indication, which makes 4.35% of respondents; the realisation of the project would be possible in the same scope but later 2 indications, which makes 8.70% of respondents; the realisation of the project would be possible in a smaller scope and in the same time 1 indication, which makes 4.35% of respondents; the realisation of the project would be possible in a smaller scope and later 8 indications, which makes 34.78% of respondents; the project would not be realised 11, indications, which makes % of respondents. 105

106 Chart 12 Source: Own study based on the results of the quantitative research To what extent did the Fund contribute to an efficient management of passenger flows at border crossing points? When applicable, please illustrate by referring to specific actions and/or projects. The analysis of projects implemented within the EBF proved that there are positive results in a form of more efficient management of passenger flows at border crossings. There are several reasons for that. First of all, several projects concerning extending and modernising border crossings were realised. BG officers obtained appropriate and modern equipment, which allowed for prompt and smooth clearance of passengers. They also attended trainings, which proved to be very useful in performing day-to-day duties concerning clearance and control of passengers at border crossings. 106