The strategy of agriculture and rural development of the republic
Activities related to realization of the strategic goals
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- 5.4.1 Legislative activities
- 5.4.2 The institutional reform
- 5.4.3. Indicators for monitoring of the strategic goals realization (evaluation)
5.4 Activities related to realization of the strategic goalsRealization of the mentioned development goals and the new agricultural policy are imposing the need to take different measures intended for improved sector efficiency which are primarily related to institutional regulation. The efficiency of any policy, especially of the one related to numerous beneficiaries of different profiles, involves a well-structured and efficient institutional framework. That framework is very complex in the area of agriculture and rural development, which, apart from numerous beneficiaries, have other complex and multi-dimensional aspects. A special dimension to the institutional improvement is provided by a fact that, in preparation for the EU membership, Serbia is obliged to adjust its policy and laws to the very complex European model of agriculture and rural development. The institutional framework is expected to fully implement all the relevant policies, provided the planned activities are implemented, and it is also expected to ensure functioning of the whole system in such a way as to enable the domestic producers to keep the maximum benefits. The preparations for these processes have so far been focused on adoption of legal solutions and adjustment to legal framework of the EU. Besides, the first steps have been made in establishing the new and improvement of the existing institutions. Many laws and regulations have been adopted, but their efficient implementation in most areas is still in early stage. The basis for further adjustments will be Acquis communautaire, along with continued education and training of the administration, farmers, entrepreneurs and all the other actors relevant for implementation of this very demanding legislation.
The more detailed activities plan for development of laws and relevant by-laws will be presented in the document that should be derived from this Strategy. 5.4.2 The institutional reformThe agricultural policy reform and EU accession process impose the need to reorganize the institutions. This primarily means the Ministry of Agriculture which needs to improve the internal communication, coordination and level of efficiency of some of its parts. These reforms are necessary since the way of agricultural policy implementation needs to radically change in the near future. It means that some of administrations should be relieved from some of their duties that should not (or do not need to) be in their jurisdiction. In that way we would create an ambient for improved professionalism and competencies of the employed, strengthening of the human capital in the administration which is at the top of agriculture policy management. Since some institutions do not need to be established until the very moment of joining the EU, it is important to map the institutional capacity and define priorities in institutional adjustment, so as to make the whole process conformed to the requirements that will be coming from the EU. Also, the internal system and organization fot he Ministry of Agriculture must be adjusted to better respond to the requirements related to IPARD implementation, and eventually the CAP. The complex institutional structure in the sector of agriculture and rural development, with numerous actors and complex horizontal and vertical ties among them, demands not only the reform of the Ministry but the reform of the other actors in the sector, such as: Reform of the expert and counseling service system and strengthening of other actors in the system of knowledge transfer and creation; adjustment of laws, strengthening of the material base and improvement of the communication system; Strengthening of institutions involved in the food safety control system, in material and human resources sense; improving the operation of the whole system by adoption of the by-laws, work and reporting protocols, etc. Strengthening of the institutional capacities related to testing the species for establishing the differences, uniformity and stability (the DUS test), used for the purposes of species recognition, protection of the rights of plant breeders and post-control tests. Development of all sorts of analytical and IT systems for assistance in agriculture, including the missing parts of the statistics, public reporting and weather forecast systems, market information, registries, etc.; material and human resource strengthening, providing the missing elements, improvement of the communication system. Reforming the cooperatives and other forms of organizing in agriculture and agri-industry; legal regulation, material and human resource strengthening, vibrant environment for public-private partnerships along the whole value chain. Creation of the new and strengthening of the existing social networks; creation of the preconditions for their improved involvement in political decision making; human resources strengthening, improved communication and coordination systems; decentralization of the decision making and financing systems. The establishment of the new institutions requires the several important principles to be observed: Gradual process – although the work on establishing the new institutions is very demanding, human resource and material-wise, the experience we have had so far showed that just formal meeting the obligation is not a solution. Without previously clearly defined vision, regulated obligations of the stakeholders and adequate preparation of the future human resources, this activity often has adverse effect. The evidence for this are numerous pilot and donor projects which did not bring sustainable solutions. The institutional changes must be derived from the reform of the complete political system in charge for agricultural policy, not the other way round. The new institutions must be sustainable for the long-term, must be adequate for the size of the agriculture sector and economic power of the country. Having in mind the limited material and human resources capacities, it is of extreme importance to prevent the overlapping of institutional jurisdictions. The stability of jobs of administrative staff is also important, since it is an important precondition for strengthening of their competency. The common denominator of institutional reform in all segments and levels is improvement of the human resources capacities. This is equally the case with the human resources in scientific and educational institutions and in administration on the lower levels of decision making. It is necessary to put a lot of effort in strengthening the competencies in the area of political practice and legal framework of the EU, in analytical potentials especially. The detailed plan for institutional reform will be the subject of the document that will be derived from the Strategy, and which should be the internal document of the Ministry. 5.4.3. Indicators for monitoring of the strategic goals realization (evaluation)The precondition for the efficient implementation of the Strategy is the regular control of the strategic goals realization. This process will ensure the timely adjustments due to new developments. The evaluation process will help the implementation of the Strategy, and it will rely on the selected indicators to measure the results and impact the Strategy has in key areas36. There are several functions of the evaluation: The estimation of the realization of individual activities; The estimation of relevancy, effectiveness and efficiency (evaluation); Providing input for adjustments in the segments where it is needed, in order to ensure the goals are met; Differences analysis between the expected and the final results; Dissemination of the final results to wider public. As a rule, the evaluation is done after the monitoring, reporting and review of the program goals and solutions. The evaluation indicators for the Strategy should be estimating its following characteristics: Relevancy – if the Strategy is adequate for priority needs of beneficiaries. It is necessary to estimate to what extent the goals and solutions are adequate for addressing the key issues of the sector in the current circumstances (that might change during the implementation), as well as whether the goals are in accordance with the national development priorities. Efficiency – the reached output value related to invested inputs, the performance of the engaged inputs. This dimension of the evaluation is essentially the cost-benefit analysis, which may point out the need for seeking alternative solutions and approaches, in order to estimate whether the adopted approach is the best possible. Effect and impact – the reached benefit level for targeted groups and beneficiaries after Strategy implementation. That process must estimate the effect and impact of all the measures and activities on social, economic environment and other development goals. Sustainability – estimation of the results of the Strategy in terms of their long-term impact; measuring the sustainability of the set goals, solutions and activities in the long-term perspective, including the potential risks. The evaluation process should be monitored by a team which would be in charge for operational management of the Strategy implementation, from its adoption, through adoption of the results from the interim reports on evaluation to making decisions on necessary corrective measures. The reached results in Strategy implementation will be presented in the annual report. The operational aspect o the evaluation and reporting will be presented in more details in the plan for institutional reform, that should be derived from this Strategy. All these facts lead to a conclusion that without good indicators it would be impossible to implement a good evaluation. The lack of indicators would mean the loss of an important tool in the decision making process. One of the most delicate tasks in public policy management is selection of the adequate indicators for measuring success according to the selected criteria. There are extensive lists of standardized indicators for monitoring of the different types of interventions in the area of agriculture and rural development, and in many cases they are not practical and they are difficult to identify and measure. Besides, often there is no possibility to ensure precise reporting, which makes these indicators useless. This is especially characteristic for agriculture, where many phenomena cannot be timely or reliably identified. The proposed indicators set is defined on the basis of the strategic goals, and they provide the possibility of continuous or periodical monitoring in separate segments. Table Indicators
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