The strategy of agriculture and rural development of the republic
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- 1.3.2 Phases of work and participants in the Strategy design process
1.3 Strategy Design Methodology1.3.1 Public policy cycleThe Strategy has been designed in accordance with the modern principles of public policy management, based on the public policy cycle. The stratetig planning theory and political practice have confirmed that it is the best way to create and operationalize the public policies. The public policy cycle concept is related to several phases of the strategic planning, but mostly to three key segments: Public policy creation. Public policy creation, including the agricultural policy, includes identification of the development goals and expected results. In that sense, the jey steps in policy creation process are defining the issues of agriculture and rural areas and proposal of the goals whose realization leads to their solution. Implementation includes successful realization of all the activities defined during the public policy creation process. The policy implementation falls under the jurisdiction of the Government and requires the definition of the ways of implementation, i.e. defining the responsibilities of separate institutions, their horizontal and vertical connections, defining the stable and transparent financial sources for the defined solutions realization. Each strategy and its action plan are subject to control and evaluation. The evaluation and monitoring phase of the policy implementation is the final phase which establishes the results and evaluates the effects of the implemented policy. The evaluation ensures the constant quality improvement since it includes the definition of corrective measures, if needed. Namely, the answer to the question whether the defined policy has led to the expected outcomes will decide whether in the future the same solutions will be applied or they need to be amended.
There are rules and procedures set for each of the described phases, and they are usually defined in laws or other regulating mechanisms. In the cases when legal solutions and procedures are not clear, when there is a lack of coordination and communication among institutions, the adverse effects to the policy effectiveness and efficiency are inevitable. The design process of this Strategy, its concept and contents, are in accordance with the requirements of modern public policy management.
Activities of the Strategy preparation had a few phases: Phase one During this period, a detailed working concept was prepared and all the organizational and other structures for the Strategy design were defined and established. It involved designing the detailed activities plan with precise definitions of job descriptions, time frames, goals, results; defining the needs for engagement of domestic and foreign experts, defining the organizations, institutions and other key actors in the field of agriculture and rural development that would be involved in the design process of the final document; preparation of the necessary analytical base and documents. On the basis of the analysis of the national programs and other relevant strategic, scientific and analytical documents and laws, basic statistical data and new guidelines of JAP, the initial contents of the Strategy was prepared, the basic thematic areas and the key goals of the Strategy were defined. In order to ensure the uniformity of the reports and to formulate the clear goals and tasks for Sector working groups (SWGs), the instructions on contents and structure of the sector reports were prepared, that included topics specific for separate sectors. The reports prepared in this manner served as a platform for further work of SWGs (Annex 1). Phase two involved further development of the defined main goals, through their confirmation, addition and further development into specific goals and adequate measures. During this process, SWOT and PESTLE analyses were prepared. All the SWGs workshops were held according to the same model and document basis, in order to reach the uniformity of the whole process. Phase three was the period devoted to adjusting all the opinions and to making the first draft of the Strategy, with the special attention devoted to verification of the general and specific goals and proposed measures and activities. Special attention was paid to making the budget framework in terms of its scope, structure and budget guidelines according to support pillars and budget planning principles for the following period. Phase four involved many consultations and workshops of the expert team and representatives of the Main and expert team of the Ministry, when more detailed budget frameworks were defined and other outstanding issues were addressed. On the basis of their conclusions, the draft of the Strategy was prepared. In the phase five of the process, the prepared Strategy draft was presented to the representatives of the Ministry and chairpersons of the SWGs. All the suggestions and comments were reviewed and incorporated in the final document “Draft Strategy of the Agriculture and Rural Development of the Republic of Serbia 2014–2024". In the phase six, at the end of the process, several public discussions were held where the proposed draft Strategy was presented. The Main team of the Ministry was established for coordination, monitoring, implementation and evaluation of the activities related to the Strategy design, as well as the relevant groups and individuals (Annex 2), with defined tasks and responsibilities: 1. Main team of the Ministry of Agriculture – adopts the tasks and approves engagement of associates, monitors the design of the documents in the key phases, assesses preliminary and final results, participates in public discussions and in promotion of the final document, participates in the administrative procedures related to preparation of the document and implements the Strategy adoption procedure. 2. Team of experts – develops the methodology of the sector working groups and sequence of procedures in preparation of the final document; formulates technical instructions for work of the sector working groups; prepares the first draft of the document and processes the comments of the Main team and representatives of the SWGs; prepares the final document. 3. External experts – propose the document structure; suggest the ways of incorporating the best international practices and experiences in the area of the proposed solutions; perform the final review of the document. 4. Chairpersons/Coordinators of the working groups – purpose the members of the working groups and cooperate with them in preparation of the sector reports; provide information at the request of the team of experts in any phase; cooperate with other coordinators and teams of experts on adjusting the separate reports of the sector groups; are responsible for the final version of the sector working group reports. 5. The expert team of the Ministry of Agriculture – actively participates in the activities of the working groups and contributes to the better quality of the final documents; assists to coordinators of the sector working groups; participates in the development of the final versions of the sector working group reports; maintains communication with working group coordinator; prepares the technical report on SWGs workshops; assists public relations service of the Ministry of Agriculture. 6. Members of the sector working groups: participate in the consultations in different thematic fields. Members of the working groups are the representatives of the relevant sub-sectors, knowledgeable of the specific issues and areas. 7. Public relations service – Ensures the media coverage of the process; prepares reports for internet and other media; prepares the press conferences for the minister. 8. Process coordinator – administrative, logistic, organizational and expert support; organization of meetings, workshops, communication process; development and processing of data bases and information. Methodological approach is based on observing the basic principles of participation and process transparency. The carrier of the Strategy development process is the Ministry of Agriculture, Forestry and Water Management, with its Main team and team of experts, consisted of the representatives of all the relevant organizational units, which ensures the “ownership” of the umbrella institution over this document. The participation of the experts and academia and other stakeholders has been ensured through establishment of the thematic, sector working groups. The sector working groups belong to three priority areas: А – Food production area, with sector working groups: 1. Crops and vegetable production, 2. Cattle breeding, 3. Fruit and wine production, и 4. Agroindustry; Б – Rural development area, with sector working groups: 1. Environment and natural resources, 2. Diversification of the economic activities and the development of villages, and 3. Small households and fight against poverty; В – Creation and transfer of knowledge and technology. The SWGs structure reflects all the sub-sectors of agriculture and other parts of the food chain, as well as those parts of development segments identified as bearing the most significant challenges in the following period (Environment and natural resources, Creation and transfer of knowledge and technology, Small households and fight against poverty). Members of the working groups were also the representatives of the research and scientific institutions, business sector, primary producers, leading associations, project teams, scientific community, local self-governments, Ministry of Agriculture and other Government bodies (Annex 2).
Adoption of the Draft Strategy by the Government Draft Strategy of Agriculture and rural development of the Republic of Serbia 2014-2024 Definition of strategic and operational goals Design of the national program for the following sub-period Formulation of the measures and activities to realize goals Representatives of the institutions involved in SWGs: * Scientific and research community, * Associations of producers and processors * Civil sector, * Institutions from the field of agriculture and rural development Formulation of budget framework Piublic discussion
Political parties Decision on launching the process (Decision on establishing a team for Strategy development) General SWОТ Establishing the sector working groups: Formulation of the vision Sector working groups: 1. Crops and vegetable production 2. Fruit and wine production 3. Cattle breeding 4. Agroindustry 5. Technological development and knowledge transfer 6. Environment 7. Rural development 8. Small households and poverty Reviews, changes Monitoring of the goals realization Strategic goals realization 2. SITUATION IN THE AGRI-FOOD SECTOR AND RURAL AREAS 2.1. Macroeconomic Framework and the Importance of Agriculture to the Serbian national economy 2.1.1. Macroeconomic Framework In a view of transition reforms, the first decade of XXI century in Serbia can be divided into two phases. During the first phase, most of the privatization and restructuring of the vital parts of the economy was carried out, macroeconomic stability was achieved, market liberalization started, banking sector was consolidated and privatized, the process of joining the EU started, and significant progress was made in all aspects of legislative adjustments. In economic terms, government policy was focused on establishing and maintaining macroeconomic stability and high economic growth. Second phase of the reform was focused on creating an enabling business environment for investors, reform of the tax system and public sector, creating conditions for establishing public-private partnerships, on reducing gray-economy, as well as on other activities that should help strengthen the credibility of the state. Overall, the reforms undertaken at this stage did not have the same intensity and progress - in some segments reforming had only begun, in other parts the reform process was not continuous, while the progress of some system reforms had gone very far. Since the second half of the 2008, Serbia begins to face negative effects of the global crisis on the domestic economic and financial markets. The effects of the crisis were primarily manifested in slowing and then declining of economic activity, as a result of the drop in demand on domestic and international markets, as well as reduced inflow of foreign capital. Results of these developments are reflected in reduction of the real GDP, employment and wages, and on the other hand, increased consumer prices and indebtedness. Macroeconomic imbalances affected the fluctuation of the exchange rate, and the weakening of the national currency. Table . The basic macroeconomic indicators of the Republic of Serbia
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