Esta es la versión HTML de un fichero adjunto a una solicitud de acceso a la información 'Action Document for Helping Belarus Address the Phenomenon of Increasing Numbers of Irregular Migrants'.



 
Ref. Ares(2017)419960 - 26/01/2017
Ref. Ares(2018)6549080 - 19/12/2018
ANNEX I TO FINANCING AGREEMENT N° ENI/2016/038-812 
TECHNICAL AND ADMINISTRATIVE PROVISIONS 
 
1. Title/basic act/ 
Helping Belarus Address the Phenomenon of Increasing Numbers 
CRIS number 
of Irregular Migrants 
CRIS number: ENI/2016/038-812 
financed under the European Neighbourhood Instrument 
2. Zone benefiting 
Belarus 
from the 
The action shall be carried out at the following locations: Several 
action/location 
Belarusian Voblasts (Regions), Latvia/Lithuania/Poland-Belarus border 
regions 
3. Programming 
Multiannual Indicative Programme for EU Support to Belarus (2014-
document 
2017) 
4. Sector of 
Complementary Support for 
DEV. Aid: YES 
concentration/ 
Capacity Development 
thematic area 
5. Amounts 
Total estimated cost: EUR 7 million 
concerned 
Total amount of EU budget contribution: EUR 7 million 
6. Aid 
Project Modality 
modality(ies) 
Indirect management with the International Organization for Migration 
and 
implementation 
modality(ies) 

7 a) DAC code(s) 
15110 – Public Sector Policy and Administrative Management 
b) Main Delivery    47066 - International Organisation for Migration  
Channel 
8. Markers (from 
General policy objective 
Not 
Significant 
Main 
CRIS DAC form) 
targeted 
objective 
objective 
Participation development/good 
☐ 
☐ 

governance 
Aid to environment 

☐ 
☐ 
Gender equality (including Women 
☐ 

☐ 
In Development) 
Trade Development 

☐ 
☐ 
Reproductive, Maternal, New born 

☐ 
☐ 
and child health 
RIO Convention markers 
Not 
Significant 
Main 
targeted 
objective 
objective 
Biological diversity 

☐ 
☐ 
Combat desertification 

☐ 
☐ 
Climate change mitigation 

☐ 
☐ 
Climate change adaptation 

☐ 
☐ 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [1] 
 
 

 
9. Global Public 
n/a  
Goods and 
Challenges (GPGC) 
thematic flagships 

 
SUMMARY 
The EU and Belarus are currently in the final phase of negotiations on three mobility-related 
agreements: a visa facilitation agreement, a readmission agreement and a Mobility Partnership. As 
a measure accompanying the negotiation process, the European Commission has decided to 
allocate about 10% of the funds of the «Multiannual Indicative Programme for EU Support to 
Belarus (2014-2017)» to "Complementary Support for Capacity Development" in order to 
"provide specific assistance for the implementation of priority commitments deriving from future 
possible EU agreements and the dialogue on mobility". 
This Action is meant to help the country (1) comply with its potential commitments under the 
future EU-Belarus readmission agreement and the Mobility Partnership and (2) address the 
phenomenon of increased irregular migration flows through Belarus originating from the conflict 
in Ukraine, the civil war in Syria and the economic crisis in Russia, which force many third-
country nationals to look for new (job) opportunities in the EU. 
This project is a comprehensive support programme in the area of migration. It will support the 
development and implementation of a fully-fledged irregular migration management strategy in 
line with international migrants' rights standards. The programme will encompass activities on 
legislative and  institutional reform issues in Component 1 (e.g. policy advice on migration 
strategy development, division of responsibilities between state agencies, enhanced inter-service 
cooperation, and the development of a national referral system). It will focus on topics such as the 
development of analytical and statistical reports on migration flows (including support to Belarus' 
databases on migration), migration profiling (including sex- and age-disaggregated statistical 
data) and gender-sensitive training on interviewing techniques for border guard staff when dealing 
with migrants. Activities will also include training on the management of migrants' 
accommodation centres in line with best international and EU standards, English language courses 
for interviewers as well as centres' staff. Moreover, a mechanism of voluntary return and 
reintegration
 for stranded migrants, including rejected asylum seekers and third-country or 
Belarusian nationals returned from EU countries, will be set up and supplemented by funds 
(Component 2). Apart from that, this Action will finance the construction and/or renovation of 
several temporary migrants' accommodation centres, administered by the Ministry of Interior 
and the State Border Committee, based on best practices of EU Member States and taking into 
account the needs of persons with special needs and vulnerable persons (Component 3). 
 

DESCRIPTION OF THE ACTION 
1.1 
Objectives/results 
Overall Objectives 
1.  To contribute to the strengthening and respect of human rights and fundamental 
freedom aspects in the area of irregular migration 
2.  To contribute to the convergence of Belarus' normative framework towards the EU's 
corresponding framework 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [2] 
 
 

 
3.  To contribute to the facilitation of operational cooperation between the EU, EU 
Agencies, EU Member States and Belarus 
4.  To help increase security levels in the region and on the external EU border 
Specific Objective 
To support Belarus in the development and implementation of the country's irregular 
migration and asylum policies and strategies in order to bring them closer to best EU and 
international standards and practices 
Results 
1.  A comprehensive legal and institutional policy framework programme on managing 
irregular migration has been developed and implemented 
2.  An Assisted Voluntary Return and Reintegration Programme for irregular migrants is 
designed and implemented 
3.  Several Migrants Accommodation Centres are built or refurbished and integrated in 
the irregular migration management system 
4.  The legal, institutional and policy framework on irregular migration is gender-
streamlined 
1.2 
Main activities 
Component 1: Policy development, strengthening of legal, institutional and operational 
capacities 

- Development of the necessary legal, institutional and policy framework for the smooth and 
efficient functioning of Migrants' Accommodation Centres (MAC) and their integration into 
the migration policy framework of Belarus; 
- Provision of policy-related and legal advice on the review of relevant legislation and the 
elaboration of an irregular migration management strategy and its implementation based on 
best European practices: the focus will be on matters such as enhanced intra-service and inter-
agency coordination and data sharing, development of extended country migration profiles 
(including sex- and age-disaggregated statistical data), drafting of migration and border risk 
analysis reports, regulatory frameworks for handling irregular migration and national referral 
mechanisms; 
- Support to training institutions such as the ITC (International Training Centre) of the MoI; 
- Training on identification of migrants' identity; 
- Development of gender-sensitive standard operating procedures (SOPs) for the management 
of MACs compliant with best international practice and respect of human rights; 
- Gender assessment study on irregular migration at the beginning and at the end of the 
project; 
- Legal advice for detained irregular migrants; 
- Development and implementation of tailor-made training programmes (including Training-
of-Trainers) for personnel working in MACs. Trainings will include language training, code 
of conduct, gender awareness, international treaties and operational standards. Besides, 
UNHCR will be invited to deliver trainings dedicated to asylum procedures; 
- Training for services involved in processing readmission applications; 
- Coordination with EU-funded TAIEX and MIEUX programmes to avoid overlaps. 
Component 2: Establishment of an Assisted Voluntary Return and Reintegration (AVRR) 
system for irregular migrants  

Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [3] 
 
 

 
- Support in legislative and policy development, as well as training of Belarusian law 
enforcement agencies staff to enable them to set up and operate a sustainable voluntary return 
assistance system based on identified best EU practices; at least 50% of the trainees will be 
women. 
- Delivery of direct assistance to stranded migrants, including rejected asylum seekers and 
third-country nationals returned from EU countries, such as translations/interpretation, 
psychological support, medical services (including mobile gynaecological services), and 
emergency packages (including clothes, sanitary goods, water and food). NGOs such as the 
Belarus Red Cross, the Belarusian Movement of Medical Workers and women’s organisations 
will also be invited to take part in legal counselling and the provision of direct assistance to 
migrants. 
Component 3: Establishment of Migrants Accommodation Centres (MAC) in line with best 
EU and international standards 

- Study visits for senior officials (policy makers) and technical experts to several EU / non-EU 
countries where MACs already exist; 
- Refurbishment, construction and equipping of the selected centres taking into account 
specific needs of women migrants, minors and other vulnerable groups; 
- Facilitation of links between MACs, surrounding communities and local authorities. 
1.3 
Intervention logic 
The proposed intervention encompasses the following three components, which are expected 
to be implemented in parallel: 
1. Policy development, strengthening of institutional and operational capacities 
This component is expected to lead to a significant improvement of migration governance in 
Belarus. Its focus will be on the support to the elaboration of a comprehensive irregular 
migration management strategy based on a revised legal, institutional and policy framework, 
in full respect of human rights, which envisages, inter alia, enhanced intra-service and inter-
agency coordination, risk analysis capacities and data sharing. Moreover, the project will help 
the government develop extended migration profiles of the country containing most up-to-
date statistical data, aggregated in a gender-sensitive manner, and other relevant information 
on the migration situation and trends. This data is expected to be used by the authorities also 
to draft migration and border risk analysis reports, based on Frontex risk analysis 
methodology, for the use by border guards and immigration police. In addition, regulatory 
frameworks for handling irregular migration will be reviewed, revised as necessary, and 
consolidated in a unified document. A national referral mechanism on irregular migration will 
be developed. Support will also be extended to concerned training institutions such as the ITC 
(International Training Centre of the MoI) to strengthen their research capacities in the field 
of migration. Participants of the trainings organised in the framework of this component will 
include policymakers, independent experts, academic circles, gender & gender-based violence 
experts, and NGO representatives. 
2. Assisted Voluntary Return and Reintegration (AVRR) of irregular migrants 
Currently, the Government's capacity to provide AVRR to third-country nationals is very 
limited (almost non-existent). Until recently, IOM used to partially fill this gap. However, due 
to the lack of resources IOM is able to provide assistance to most vulnerable persons only. 
Hence, as part of a broader capacity building support programme to Belarusian authorities, a 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [4] 
 
 

 
mechanism of voluntary return and reintegration for stranded migrants, including rejected 
asylum seeker, third-country and Belarusian nationals returned from EU countries, will be set 
up and supplemented by funds. 
3. Establishment of Migrants Accommodation Centres (MAC) in line with best 
international and EU standards 

Under this component, it is proposed to construct several MoI-run MACs with a capacity to 
accommodate between 30 and 50 irregular migrants per centre at a time. Similar EU-funded 
programmes are currently being implemented, for instance, in Turkey and the Caucasus. 
Possible locations are Brest, Homieĺ, Lida, Minsk, Mahilioŭ and Viciebsk. In addition, 
facilities operated by the SBC along the border with Poland, Lithuania and Latvia will be 
upgraded (Brest, Hrodna, Lida or Smarhoń) and, possibly, newly built (Polack). 
All centres will have closed and open-type facilities as well as multi-purpose women-only 
spaces for refugee women, girls, minors and families that provide for access to a range of 
targeted services including psychological first aid, trauma counselling, and health care. All 
centres will be made safe, accessible for representatives of organisations such as IOM, 
UNHCR and the Belarus Red Cross, winterized, will have family and sex-segregated 
partitions ensuring privacy as well as with wash facilities separating men and women. The 
exact number of centres and their locations will be determined prior to the signing of the 
Delegation Agreement. 

IMPLEMENTATION 
2.1 
Implementation modalities 
2.2.1  Indirect management with an international organisation 
This action may be implemented in indirect management with the International Organization 
for Migration (IOM) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No 
966/2012. This implementation entails the Action's three components as described in section 
4 above. This implementation is justified for the following reasons: 
-  There are very few other international organisations which are physically present in 
Belarus, which is an absolute must for the implementation of this action; 
-  IOM has almost exclusive expertise in this particular area of assistance;  
-  IOM can build on its long-term relationship with project beneficiaries, something that is 
particularly important in Belarus; 
-  Very good performance of IOM in other projects supervised by the EU Delegation to 
Belarus (SURCAP, SURCAP 2, PRINEX); 
-  Due to IOM's extensive experience in implementing projects in Belarus and familiarity 
with project registration procedures with the Ministry of Economy, which are rather 
complicated and time-consuming, project activities could start without significant delay. 
The entrusted entity would carry out the following budget-implementation tasks: running the 
public procurement, concluding and managing the resulting contracts, including making of the 
related payments. 
If negotiations with the above-mentioned entrusted entity fail, that part of this action may be 
implemented in indirect management with UNDP. The implementation by this alternative 
entrusted entity would be justified because: 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [5] 
 
 

 
-  There are very few other international organisations which are physically present in 
Belarus, which is an absolute must for the implementation of this action; 
-  UNDP can build on its long-term relationship with the Belarusian government, something 
that is particularly important in Belarus; 
-  Good performance of UNDP in another similar project supervised by the EU Delegation to 
Belarus (AMBEL); 
-  Due to UNDP's extensive experience in implementing projects in Belarus and familiarity 
with project registration procedures with the Ministry of Economy, which are rather 
complicated and time-consuming, project activities could start without significant delay. 
The alternative entrusted entity would carry out the following budget-implementation tasks: 
running the public procurement, concluding and managing the resulting contracts, including 
making of the related payments. 
2.2 
Scope of geographical eligibility for procurement and grants 
The geographical eligibility in terms of place of establishment for participating in 
procurement and grant award procedures and in terms of origin of supplies purchased as 
established in the basic act and set out in the relevant contractual documents shall apply, 
subject to the following provision. 
The Commission’s authorising officer responsible may extend the geographical eligibility in 
accordance with Article 9(2)(b) of Regulation (EU) No 236/2014 on the basis of urgency or of 
unavailability of products and services in the markets of the countries concerned, or in other 
duly substantiated cases where the eligibility rules would make the realisation of this action 
impossible or exceedingly difficult. 
2.3 
Indicative budget 
 
 EU 
contribution 
Indicative third party contribution
(amount in EUR) 
(amount in EUR) 
2.2.1 – Indirect management with 
6.95 million
N.A.
the International Organisation for 
Migration (IOM)  
2.6 –  Evaluation, 2.7 – Audit 
0.05 million
N.A.
Totals 7 
million
N.A.
2.4 
Organisational set-up and responsibilities 
A Steering Committee will be set up to oversee and validate the overall direction and policy 
of the project (or other responsibilities to be specified) and will be convened twice a year. The 
project steering committee shall be made up of representatives of the Beneficiary country, of 
the entrusted entity (IOM), and of the Delegation of the European Union to the Republic of 
Belarus. 
2.5 
Performance monitoring and reporting 
The day-to-day technical and financial monitoring of the implementation of this action will be 
a continuous process and part of the implementing partner’s responsibilities. To this aim, the 
implementing partner shall establish a permanent internal, technical and financial monitoring 
system for the action and elaborate regular progress reports (not less than annual) and final 
reports. Every report shall provide an accurate account of implementation of the action, 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [6] 
 
 

 
difficulties encountered, changes introduced, as well as the degree of achievement of its 
results (outputs and direct outcomes) as measured by corresponding indicators, using as 
reference the logframe matrix. The report shall be laid out in such a way as to allow 
monitoring of the means envisaged and employed and of the budget details for the action. The 
final report, narrative and financial, will cover the entire period of the action implementation. 
The Commission may undertake additional project monitoring visits both through its own 
staff and through independent consultants recruited directly by the Commission for 
independent monitoring reviews (or recruited by the responsible agent contracted by the 
Commission for implementing such reviews). 
2.6 
Evaluation  
Having regard to the importance of the action, a mid-term evaluation will be carried out for 
this action or its components via independent consultants contracted by the Commission. 
The mid-term evaluation will be carried out for problem solving and learning purposes, in 
particular with respect to the works component of the action. 
The Commission shall inform the implementing partner at least one month in advance of the 
dates foreseen for the evaluation missions. The implementing partner shall collaborate 
efficiently and effectively with the evaluation experts, and inter alia provide them with all 
necessary information and documentation, as well as access to the project premises and 
activities. 
The evaluation report shall be shared with the partner country and other key stakeholders. The 
implementing partner and the Commission shall analyse the conclusions and 
recommendations of the evaluations and, where appropriate, in agreement with the partner 
country, jointly decide on the follow-up actions to be taken and any adjustments necessary, 
including, if indicated, the reorientation of the project. 
Indicatively, one contract for evaluation services shall be concluded under a framework 
contract in Q2/2018. 
2.7 
Audit 
Without prejudice to the obligations applicable to contracts concluded for the implementation 
of this action, the Commission may, on the basis of a risk assessment, contract independent 
audits or expenditure verification assignments for one or several contracts or agreements. 
Indicatively, one contract for audit services shall be concluded under a framework contract in 
Q1/2020. 
2.8 
Communication and visibility 
Communication and visibility of the EU is a legal obligation for all external actions funded by 
the EU. 
This action shall contain communication and visibility measures which shall be based on a 
specific Communication and Visibility Plan of the Action, to be elaborated at the start of 
implementation. 
In terms of legal obligations on communication and visibility, the measures shall be 
implemented by the Commission, the partner country, contractors, grant beneficiaries and/or 
entrusted entities. Appropriate contractual obligations shall be included in, respectively, the 
financing agreement, procurement and grant contracts, and delegation agreements.  
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [7] 
 
 

 
The Communication and Visibility Manual for European Union External Action shall be used 
to establish the Communication and Visibility Plan of the Action and the appropriate 
contractual obligations. 
Communication and visibility expenditure will be financed under the budget of the Delegation 
Agreement. 
The Delegation will closely monitor that the visibility of EU support to the programme is 
ensured by the implementing partners and promote visibility of the programme in its own 
communication and visibility activities covered by another measure constituting a financing 
decision. 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [8] 
 
 

 
APPENDIX
1
 - INDICATIVE LOGFRAME MATRIX (FOR PROJECT MODALITY)   
The activities, the expected outputs and all the indicators, targets and baselines included in the logframe matrix are indicative and may be updated during the 
implementation of the action, no amendment being required to the financing decision. When it is not possible to determine the outputs of an action at formulation 
stage, intermediary outcomes should be presented and the outputs defined during inception of the overall programme and its components. The indicative logframe 
matrix will evolve during the lifetime of the action: new lines will be added for including the activities as well as new columns for intermediary targets (milestones) 
for the output and outcome indicators whenever it is relevant for monitoring and reporting purposes. Note also that indicators should be disaggregated by sex 
whenever relevant. 
 
 
Results chain 
Indicators 
Baselines 
Targets 
Sources and means 
Assumptions 
(incl. reference year) 
(incl. reference year) 
of verification 
To contribute to the 
Number of media reports; 
Baseline study at  End-of-the-
Media reports; 
n/a 
strengthening of human 
number of changes in 
the beginning 
project study 
European 
rights and fundamental 
Belarus' normative 
of the project 
describing 
Commission reports; 
Impact 
freedoms aspects in the 
frameworks towards EU and 
describing 
situation 
Belarus government 
area of irregular migration 
international standards; 
situation 
reports; baseline 
tives: 
 
number of policy dialogue 
studies 
To contribute to the 
meetings held; number of 
convergence of Belarus' 
cases of irregular migrants 
all objec
normative framework 
detected; number of migrants 
towards the EU's 
accommodated; number of 
Over
corresponding framework 
third-country migrants 
 
readmitted from the EU 
To contribute to the 
facilitation of operational 
cooperation between the 
EU, EU Agencies, EU 
Member States and 
Belarus 
 
To help increase security 
levels in the region and on 
the external EU border 
 
                                                 
1 Mark indicators aligned with the relevant programming document mark with '*' and indicators aligned to the EU Results Framework with '**'. 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [9] 
 
 

 
To support Belarus in the 
Number of changes introduced  0 
Number to be 
2 assessments 
Beneficiary 
(s) 
development and  
in adopted policy documents 
 
established by 
(baseline and end-
country has the 
ome
implementation of the 
and legislative acts 
 
baseline study 
of-project); 2 ROM 
willingness to 
country's irregular 
commented on by project 
 
in 2017; 
missions; 1 mid-
reform its 
Outc
migration and asylum 
experts 
 
changes to be 
term evaluation; 
migration and 
policies and strategies in 
 
 
achieved by end 
interviews with 
asylum policies 
tive: 
order to bring them closer 
 
 
of 2020 
beneficiaries 
in line with 
to best EU and 
 
 
 
international 
international standards and 
Number of migrants supported  0 
At least 300 by 
standards 
practices 
under the Assisted Voluntary   
end of 2020 
Return and Reintegration 
 
 
Specific objec
(AVRR) Programme 
 
 
 
 
 
Number of Migrants' 

Number of 
Accommodation Centres 
MACs; 
(MAC) established 
construction by 
end of 2020 
 
A comprehensive legal and 
Number of policy advice 

Number to be 
Two baseline studies,  The beneficiary 
uts
institutional policy 
consultations delivered 
 
established by 
media reports, 
country will 
framework programme on 
 
 
baseline study 
operative reports of 
make sufficient 
Outp
managing irregular 
 
 
in 2017; all 
the beneficiaries (if 
numbers of 
migration has been 
 
 
consultations to 
available); 
appropriate 
developed and 
 
 
be finalised by 
attendance lists of 
qualified 
implemented 
 
 
end of 2020 
training 
personnel 
An Assisted Voluntary 
A legal and institutional policy  0 
One framework 
participants; project 
available for 
Return and Reintegration 
framework programme 
 
programme 
progress reports; 
project activities 
(AVRR) Programme for 
developed, gender-
 
developed by 
tender 
Project 
irregular migrants is 
streamlined and implemented   
end of 2020 
documentation, 
participants of 
designed and implemented  Number of study visits for 

Number to be 
MAC assessment 
the beneficiary 
Several Migrants 
senior officials (policy 
 
established in 
study; ROM 
country will 
Accommodation Centres 
makers) and technical 
 
Delegation 
reports; mid-term 
keep working in 
(MAC) are built or 
experts 
 
Agreement with 
evaluation 
their institutions 
refurbished and integrated 
 
 
IOM in 2017; 
for sufficient 
in the irregular migration 
 
 
all study visits 
time so that the 
management system 
 
 
to be finalised 
skills and 
Legal, institutional and 
 
 
by end of 2020 
knowledge 
policy framework on 
Number of trainings organised 

Number to be 
obtained can be 
irregular migration is 
 
 
established in 
properly applied 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [10] 
 
 

 
gender-streamlined 
 
 
Delegation 
and transferred 
 
 
Agreement with 
to colleagues 
 
 
IOM in 2017; 
 
 
all trainings to 
 
 
be finalised by 
 
 
end of 2020 
One set of gender -sensitive 

1 set by end of 
standard operating 
 
2020 
procedures (SOPs) 
 
 
All funds allocated for the 
0 EUR 
About 6% of the 
AVRR Programme spent 
 
funds available; 
 
 
spent by end of 
 
 
2020 
One assessment study on 

1 study in 2017 
number of MAC, their 
 
 
location, conditions and 
 
 
needs 
 
 
Number of MACs built 

Number to be 
established in 
Delegation 
Agreement with 
IOM in 2017; 
construction 
finalised by end 
of 2020 
 
Financing Agreement ENI/2016/038-812 – Technical and Administrative Provisions 
 
 [11] 
 
 

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