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Pendekatan baru Uni Eropa untuk evaluasi kebijakan ditandai dengan fokus pada
penutupan siklus kebijakan (menghubungkan ex ante dan ex post penilaian) dan
dengan menerapkan evaluasi untuk semua jenis intervensi kebijakan, apakah
pengeluaran atau peraturan kebijakan. Artikel ini menganalisis fitur utama dan
tantangan dari pendekatan baru ini. Ini penelitian pertama tantangan konseptual dan
interdisci-plinary dari seperti pendekatan meliputi evaluasi. Kemudian menilai
pendekatan baru dalam terang empat tujuan utama dari ex ante dan ex post penilaian;
memastikan evi-dence dan pembelajaran; akuntabilitas, transparansi dan partisipasi;
koherensi kebijakan; dan mengurangi beban regulasi.
∗ Stijn Smismans is Professor of EU law at the School of Law 2 For more detail, see Anne Meuwese in this Special Issue.
and Politics and Director of the Centre for European Law and
Gover-nance (Jean Monnet Centre of Excellence) at Cardiff
University. The research leading to this article has received
funding from the European Research Council under the
European Union's Seventh Framework Programme (FP/2007-
2013) / ERC Grant Agreement n. 313642–LASI (“Law, science
and interests in European policy-making”). I would like to thank
Rachel Minto for research assis-tance, and Emanuela Bozzini,
Claudio Radaelli, Steven Højlund and Lut Mergaert for useful
comments on an earlier draft of this article.
1 E.g. for an overview of 21 countries and three international
organisations, see Jan-Eric Furubo, Ray C. Rist and Rolf.
3 There are rare exceptions, mainly in the field of structural funds
policy, e.g. Elliot Stern, “Evaluation policy in the European Union and
its institutions” New Directions for Evaluation (2009), pp. 67 et sqq.;
Carlos Mendez and John Bachtler, “Administrative reform and
unintended consequences: an assessment of the EU cohesion policy
‘audit explosion’”, 18 Journal of European Public Policy (2011), pp.
746 et sqq.; Julian Hoerner and Paul Stephenson, “Theoretical
Perspectives on Approaches to Policy Evaluation in the EU: The
Case of Cohesion Policy” 90 Public Administration (2012), pp. 699 et
sqq. Federico Iannacci, Tony Cornford, Antonio Cordella and
Francesco Grillo, “Evaluating monitoring systems in the European
social fund context: a sociotechnical approach”, 33 Evaluation
Review (2009), pp. 419 et sqq.; and Steven Højlund, “Evaluation use
in evaluation systems – the case of the European Commission”, 20
Evaluation (2014), pp. 428 et sqq.
4 The broader historical background of EU policy evaluation is
set out further by Højlund in this Special Issue.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 7
passing approach to evaluation, section II will pro- tion(s) has met the needs it aimed to satisfy and ac-
vide conceptual clarification and set out the interdis- tually achieved its expected effects.”6 All evaluations
ciplinary challenges. Section III analyses the main are supposed to look at effectiveness (do the verified
features of the EU’s new approach to evaluation. effects correspond to the original objectives?), effi-
Sec-tion IV elaborates the main challenges of this ciency (were the costs justified?), relevance (do the
new approach in relation to four key objectives of original objectives still correspond to the needs of the
evalu-ation: ensuring evidence and learning; EU?), coherence (internally and with other interven-
accountabil-ity, transparency and participation; policy tions with similar objectives), and EU added value
coher-ence; and reducing the regulatory burden. By (compared to what could be achieved by Member
analysing the current state of affairs of both ex ante States). In official EU discourse, “evaluation” normal-
and ex post evaluation in relation to these four key ly refers to ex post (i.e. retrospective) evaluation,
objectives, the gaps and challenges of the which can be interim (i.e. at the mid-term of an ini-
encompass-ing approach are identified. By focusing tiative), final (at its conclusion), or ex post in the strict
critically on the objectives of evaluation, the analysis sense (which can take place several years after the
also ad-dresses the politics of evaluation. The in-tervention has finished). The Commission talks
literature on evaluation has been criticised for about ex ante evaluation only in relation to expendi-
focusing on assess-ing the effectiveness of ture programmes. Ex ante evaluation is legally re-
evaluation tools and devel-oping the most quired under the EU’s Financial Regulation to assess
appropriate methodology, while es-chewing analysis the cost-effectiveness of all proposed expenditure
of the interests and politics of pol-icy evaluation.5 programmes/actions for the Union budget.
Analysing the objectives of evalua-tion allows raising In general, though, Commission documents on
questions about the appropriate institutional setting, evaluation only deal with retrospective evaluation.7
the main actors, interests and ideology at stake in Moreover, the Commission’s well established system
the EU’s new approach to policy evaluation. of ex ante appraisal for regulatory action and main
initiatives, namely the system of integrated impact
assessments (IIA), is not usually referred to as eval-
II. Conceptual and Interdisciplinary uation. The divide between ex ante impact assess-
Clarification: Evaluation, ments (of mainly regulatory action), and ex post eval-
Appraisal, Audit and Enforcement uation (of mainly expenditure programmes) is also
partially reflected within the organisational structure
1. The Divide in the Literature of the Commission, both at the level of the Secretari-
Between Ex Ante Appraisal and Ex at General and the Directorates General (DGs). The
Post Evaluation Secretariat General has separate units for ex ante
and ex post evaluation, and DGs focusing on
The European Commission defines evaluation as “a regulatory intervention tend to copy this pattern
critical evidence-based judgement of whether EU ac- although in DGs focusing on expenditure policies,
programme units deal often both with ex ante and ex
post evalu-ation.
This discursive and institutional divide at the EU
5 Melvin M. Mark, Leslie J. Cooksy and William M.K. Trochim,
“Evaluation Policy: an introduction and overview”, 123 New level reflects a wider gap between policy and acade-
Directions in Evaluation (2009), pp. 3 et sqq.. For a similar cri-tique mic communities which deal, on the one hand, with
of the literature on ex ante appraisal missing out on the “policy and
politics” of appraisal, see John Turnpenny, Claudio M. Radaelli, ex ante regulatory assessment and, on the other
Andrew Jordan and Klaus Jacob, “The policy and politics of policy hand with evaluation, mainly focused on ex post
appraisal: emerging trends and new direction”, 16 Journal of
European Public Policy (2009), pp. 640 et sqq. assess-ment of, in particular, expenditure projects
6 Commission Communication “Strengthening the foundations and pro-grammes. Scholars and practitioners dealing
of Smart Regulation – improving evaluation”, COM(2013) 686
with evaluation constitute their own community,
final, at p. 7.
7 With the exception of the specific guidelines for ex ante
distinct from political science, regulation studies, and
evalua-tion on expenditure programmes. Commission, “Ex even public policy analysis.8 There is also hardly any
Ante Evalua-tion. A practical guide for preparing proposals for
expenditure programmes”, DG Budget, 10 December 2001. link between this literature and EU studies, except for
8 See also Emanuela Bozzini and Jo Hunt in this Special Issue. some more recent studies (particularly in the field of
8 Symposium on Policy Evaluation in the EU EJRR 1|2015
for a long time have been inspired by the “technical- 2. Audit and Enforcement
rational model” (based on the assumption that sound
evidence could be gathered neutrally and then pre- Having proposed a broad concept of evaluation, it is
sented to political decision-makers), types 3 and 4 are important to delineate the concept from affiliated
more inspired by a post-positivist understanding of terms, one that is more closely related to expenditure
knowledge production and knowledge use in policy- evaluation and another that relates more to regulato-
making. Although types 3 and 4 are even less devel- ry evaluation, namely audit and enforcement.
oped for ex post evaluation than for ex ante evalua-tion, Audithastraditionallyfocusedonfinancialreport-ing and
there is a striking amount of common ground in the ex control over compliance with the rules, thus ensuring
ante and ex post research of these types. In relation to effectiveness of management and internal control
the EU, for instance, Dunlop et al identi-fy four main systems. The last two decades have been wit-ness to a
usages of IIAs, based on an analysis of implementation boom in monitoring and auditing systems in the public
practice,13 while Højlund identifies 10 different usages sector, whether organised internally or externally. This
of ex post evaluation in the EU (five during evaluation, evolution has been labelled as the emergence of an
five with the final results of evaluation). 14 Although “audit society”.16 As will be further shown below and in
developed separately, these analyses share common Steven Højlund’s contribution to this Special Issue, the
inspiration in the literature on knowledge use, which EU has considerably strengthened its audit and
regularly distinguishes the key categories of knowledge monitoring regime since the 1990s, particularly in the
use as instrumental (problem solving), strategic (to light of legitimacy con-cerns. Yet, while increased
defend pre-defined positions) and symbolic (to accountability is welcome in any democracy, some have
strengthen legitimacy).15 also argued that the au-dit society is based on a total
As will be analysed further in section III, the lack of trust, which not only undermines learning but in
new approach to policy evaluation, such as that the end even democ-racy, as democracy is a trust-
advocat-ed by the Commission and reflected in based system in which the electorate entrusts the
broader eval-uation trends nationally and making of public policy to its elected representatives. 17
internationally, invites further interaction between That dense compliance and auditing rules stifle learning
the ex ante and ex post research communities as is also shown in the EU context.18 However, more
it poses similar challenges for them. recently there has been a shift from compliance audits
to performance au-dits, or at least performance
assessments comple-menting compliance assessments
13 The four main usages are political, instrumental, communicative within the audit-ing process. Performance audit goes
and perfunctory. Claire Dunlop, Martino Maggetti, Claudio Radaelli beyond the tra-ditional legality and regularity questions
and Duncan Russel, “The Many Uses of Regulatory Impact
Assessment: A Meta-Analysis of EU and UK Cases”, 6 Regulation
of sound fi-nancial management and looks into
and Governance (2012), pp. 23 et sqq. effectiveness and whether objectives have been
14 Steven Højlund, “Evaluation use in evaluation systems – the achieved. Howev-er, this means that the distinction
case of the European Commission”, 20 Evaluation (2014), pp.
428 et sqq. between audit and evaluation has become increasingly
15 Lorna Schrefler, “Reflections on the different roles of expertise in blurred. Accord-ing to the European Commission similar
regulatory policy making”, in Monika Ambrus, Karin Arts, Ellen knowledge and skills are involved in performance audit
Hey, Helena Raulus (eds), The Role of ‘Experts' in International
and European Decision-Making ProcessesAdvisors, Decision and eval-uation, and the main difference is the context
Makers or Irrelevant Actors?, (Cambridge: Cambridge University and purpose of the activities. Audit remains institution-
Press, 2014), pp. 63 et sqq..
ally implemented by institutions set up for financial
16 Michael Power ,The Audit Society: Rituals of Verification,
(Oxford: Oxford University Press, 1997). auditing and has a stronger focus on methodology to
17 Jan Klabbers, “The virtues of expertise”, in Monika Ambrus, Karin assess the economy, efficiency and effectiveness of
Arts, Ellen Hey, Helena Raulus (eds), The Role of ‘Experts' in
how the work was done to achieve the objectives, while
International and European Decision-Making Processes. Advisors,
Decision Makers or Irrelevant Actors, (Cambridge: Cambridge evaluation also looks into policy impact, con-sidering
University Press, 2014), pp. 82 et sqq., at p. 87. why something has occurred and the com-parison of
18 Steven Højlund in this Special Issue, and Mendez and
Bachtler, “Administrative reform”, supra note 3. alternatives.19 Exploring this further, in this Special
19 Commission, “Public Consultation on Commission Guidelines for Issue Paul Stephenson analyses how the European
Evaluation”, November 2013, available on the Internet at <http://
Court of Auditors (the key EU institution
ec.europa.eu/smart-regulation/evaluation/consultation/index_en
.htm>, (last accessed on 20 May 2014), at p. 13.
10 Symposium on Policy Evaluation in the EU EJRR 1|2015
to ensure that the books are sound) has more Evaluasi gram selama beberapa dekade sekarang.
recent-ly engaged in performance auditing, Howev-er, evaluasi telah difokuskan pada
particularly through the production of “special pengeluaran poli-badan-khususnya, seperti dana
reports”, thus carv-ing itself a place in the EU’s struktural, penelitian dan pengembangan, Kebijakan
institutional landscape of policy evaluation. Umum Pertanian (CAP) dan bantuan pembangunan.
While performance audit has blurred the line be- Sementara praktek evaluasi awal dikembangkan ad
tween the audit and evaluation of EU initiatives in- hoc dalam Dirjen berbeda, peningkatan anggaran
volving the Union budget, the assessment of perfor- Uni Eropa dan pengeluaran Uni Eropa dur-ing tahun
mance of regulatory action has focused on the en- 1990-an, serta contoh-contoh korupsi dan krisis
forcement of regulatory acts at Member State level. legitimasi yang terkait dengan pengunduran diri
Available data are often limited to information on the Komisi santer, menyebabkan lebih sistematis ap-
transposition of EU directives, while information about proach untuk evaluasi di Komisi Eropa. persyaratan
implementation on the ground remains scarce. Also, the hukum dan kontrol diperketat untuk en-yakin
academic literature on compliance in the EU has akuntabilitas keuangan.22
focused on the transposition of directives, deal-ing
Evaluasi menjadi terpusat diabadikan dalam
particularly with the identification of explanato-ry
alokasi tunas-getary dan siklus keuangan pro-
“goodness of fit” variables at national level to ex-plain
gramming tujuh tahun. standar evaluasi yang devel-
success or failure of transposition.20 However, so far, OpEd oleh Ditjen Anggaran pada tahun 1999 (dan
this literature, like the broader Europeaniza-tion direvisi pada tahun 2004) untuk memandu Dirjen
21
literature, has not made a link with the debate on dalam pekerjaan evaluasi mereka, terutama ketika
evaluation. It has focused on explaining national outsourcing evaluasi untuk konsultan eksternal.
diversity in relation to European integration, but has not Semua Dirjen seharusnya mengembangkan
conceptualised the assessment of national imple- kapasitas evaluasi mereka, melalui pembentukan
mentation as part of an EU evaluation process that can unit evaluasi pada khususnya. Namun, seperti
feed back into new European initiatives. This gap Steven Højlund ar-gues kemudian dalam Edisi ini
between “compliance” and “evaluation” is not only an khusus, banyak Dirjen (particu-larly mereka yang
academic one, but is equally present in the EU’s in- tidak terlibat dalam kebijakan belanja) con-sidered
stitutional set up. While evaluation has long been the evaluasi formalitas mereka harus mematuhi,
remit of DG Budget, enforcement has always been the daripada latihan yang berguna mereka bisa belajar
responsibility of the more legally oriented Secretari-at dari.
General of the Commission, linked with the legal service Baru-baru ini, Komisi Eropa telah ditujukan terhadap
when enforcement action is taken. reorientasi evaluasi poli-cy-nya. Reorientasi kebijakan
Dalam Edisi ini khusus, Melanie Smith istirahat evaluasi pertama kali ditetapkan dalam Komisi
penghalang antara penegakan dan evaluasi. Data Komunikasi “Re-sponding ke Strategis Kebutuhan:
Komisi berkumpul di penegakan berada di- Memperkuat penggunaan evaluasi” 2007, 23 dan
perbuatan titik awal yang baik untuk membangun kemudian diberikan lebih pengaruh oleh embedding
evaluasi ca-Capacity dalam kaitannya dengan evaluasi dalam yang lebih luas Lebih baik diambil
kebijakan peraturan. Pada saat yang sama, Smith
berpendapat bahwa penguatan kebijakan
mengeva-tion dapat membuat kebijakan
20 Gerda Falkner, Oliver Treib, Miriam Hartlapp and Simone Leiber,
penegakan Komisi lebih akuntabel. Complying with Europe. EU harmonisation and soft law in the
Member States, (Cambridge: Cambridge University Press, 2005);
Thomas König and Brooke Luetgert, “Troubles with Transposition?
Explaining Trends in Member-State Notification and Delayed
III. Menuju Kebijakan Uni Eropa Transposition of EU Directives”, 39 British Journal of Political
Science (2009), pp. 163 et sqq.; Ellen Mastenbroek and Michael
Budaya Evaluasi Kaeding, “Europeanization Beyond the Goodness of Fit: Domestic
Politics in the Forefront”, Comparative European Politics (2006), pp.
331 et sqq.; and Esther Versluis “Even Rules, Uneven Prac-tices:
1. Fitur Utama Pendekatan Baru untuk Opening the ‘Black Box’ of EU law in action”, 30 West European
Politics (2007),pp. 50 et sqq..
Evaluasi 21 Keith Featherstone and Claudio Radaelli (eds.), The
Politics of Europeanisation (Oxford: Oxford University
Evaluasi ini tidak berarti hal yang baru di Uni Press, 2003); and Paolo Graziano and Maarten Vink,
Europeanization: new re-search agendas (Palgrave, 2008)
Eropa pembuatan kebijakan. Uni Eropa telah 22 Højlund in this Special Issue.
terlibat dalam proyek dan pro
23 Commission Communication “Responding to Strategic Needs:
Reinforcing the use of evaluation”, SEC (2007) 2013.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 11
ter Regulation agenda. The turn from “Better Regu- more comprehensive approach to evaluation. Draft-
24 ed by the Secretariat General of the Commission
lation” to “Smart Regulation” in 2010 was precise-ly
characterised by the argument that “better/smart they also read as a more hierarchical document to be
regulation” should be taken into account throughout the fol-lowed by all DGs,28 compared to the existing
entire policy-cycle and not just at the start of it (where evalua-tion guidelines of 2004, which were drafted by
most better regulation tools had up to then been DG Budget as a “Practical Guide for the Commission
focused ). This means in particular that ex post Ser-vices”, by “presenting practical solutions and
evaluation should gain a more central place in the good practices”.29
policy-making process and should be linked to the ex The key features of the new approach to evalua-
ante assessment of new policy intervention. The cen- tion resulting from the three Communications (2007
trality of evaluation to the policy-making process in “Reinforcing Evaluation”, 2010 “Smart Regulation”,
general was exemplified by the fact that the Secre-tariat 2013 “Improving evaluation”) and draft guidelines
General of the Commission, instead of DG Bud-get, (2013), are the following:
became the leading unit responsible for evalua-tion in 1) Evaluation has to be applied to all types of EU
2009. The Commission’s 2013 Communica-tion in-tervention; expenditure policy as well as
“Strengthening the foundations of Smart Regu-lation – regulato-ry intervention, including soft law
improving evaluation”25 reiterates this ap-proach in measures. While the idea to apply evaluation
catchy terms by talking about the “evalu-ate first” beyond expen-diture policies goes back more
principle, and promoting an “evaluation cul-ture” in the than a decade,30 it is only in the 2007 and 2010
Commission, while more concrete pro-posals were to be Communications that concrete measures are
proposed in new evaluation guide-lines. The new draft proposed for a more sys-tematic application of
evaluation guidelines were pre-sented for public evaluation to regulatory in-tervention.
consultation in November 2013. 26 At the time of writing 2) The “evaluate first” principle locates evaluation firmly
this article (January 2015) the final new evaluation within the policy cycle. New EU interven-tion can only
guidelines have not yet been made publicly available. be taken after an assessment of past action has been
The start of the new Junck-er Commission in November made. While evaluation of expen-diture policy has
2014, as well as the par-allel redrafting and consultation long been linked to the seven year financial
process on the new impact assessment guidelines 27 programme cycle, the 2007 Communica-tion sets the
may explain the de-lay. The draft evaluation guidelines Commission on track to fit evaluation of all its action
confirm the new, into its strategic planning and pro-gramming cycle.
Most importantly, ex post evalu-ation should feed
back into the EU system of ex ante impact
assessments, which has been solidly established
24 Commission Communication “Smart Regulation in the
European Union”, COM(2010) 543 final. since 2003.
25 Commission Communication “Strengthening the foundations 3) The Commission’s emphasis upon the place of
of Smart Regulation – improving evaluation”, supra note 6. evaluation in the policy cycle goes hand in hand
26 Commission, “Public Consultation on Commission Guidelines
for Evaluation”, supra note 19.
with the embedding of evaluation within the Smart
27 Commission, “2014 Revision of the European Commission
Regulation agenda, and the “REFIT pro-gramme”
Impact Assessment Guidelines. Public Consultation document”, in particular. As part of the Smart Reg-ulation
1 July 2014 , available at <http://ec.europa.eu/smart-regulation/
impact/consultation_2014/index_en.htm> (last accessed on 30
agenda, the Commission initiated a Regu-latory
September 2014). Fitness and Performance Programme (RE-FIT) in
28 Although the guidelines do not provide for any systematic December 201231 in order to review the en-tire
screen-ing of DGs on whether they respect these guidelines, in
a way that exists through the Impact Assessment Board. stock of EU legislation; to identify burdens,
29 Commission, “Evaluating EU Activities. Practical Guide for inconsistencies, gaps or ineffective measures,
the Commission Services”, DG Budget, July 2004.
with the aim to ensure “a simple, clear, stable and
30 E.g. Commission Communication “Focus on results: strengthening
evaluation of Commission activities”, SEC(2000)1051.
pre-dictable regulatory framework for businesses,
31 Commission Communication “EU Regulatory Fitness”, workers and citizens.”32
COM (2012) 746 final.
Evaluation has always had a “value for money”
32 Commission Communication “Regulatory Fitness and Perfor-
mance (REFIT): Results and Next Steps”, COM(2013) 685
character. Control over the implementation of ex-
final, at p. 2. penditure policies would ensure a certain level of
12 Symposium on Policy Evaluation in the EU EJRR 1|2015
accountability regarding whether citizens had got ry ex post evaluasi. Untuk kedua ex ante dan ex post
what they paid for. However, in the Smart Regu- penilaian pergeseran dari proyek dan program yang
lation context, the value for money argument de- menilai-ment penilaian kebijakan yang lebih luas
velops from ex post accountability to making use mengundang refleksi pada metodologi baru, sebagai
of ex post evaluation to decide on the desirability alat yang ada mungkin tidak SUF-ficient untuk menarik
of future action, particularly in the context of a kesimpulan kebijakan yang lebih luas. 35.
regulatory framework that aims to be as “smart” Secondly, the “evaluate first” principle and focus
and “thin” as possible. The Commission considers on the policy cycle implies a major challenge to cur-
evaluation a “key tool” in its Smart Regulation rent practices. For expenditure programmes, the
agenda, not only to ensure better (quality) regula- cyclical process is well established, with ex ante,
tion but also to avoid regulatory burden: “Evalu- mid-term, final and ex post evaluations constructed
ating the effectiveness and efficiency of EU legis- around the Commission’s Activity Based Manage-
lation will improve the quality of policy-making and ment system and budget cycles. However, even for
help to identify new opportunities to simpli-fy expenditure policy, data from ex post evaluation do
legislation and reduce administrative bur-dens.”33 not always systematically feed back into the current
Or as the 2013 Evaluation Communication states type of ex ante financial evaluation. Moreover, for
it: “There can be a tendency to look forward and regulatory policy, the idea of a policy cycle is more
focus on new initiatives. But changes are cost-ly an abstract notion than a reality. There is neither a
and take time to implement – so they need to be systematic cyclical process, nor a broad availability
justified and greater attention needs to be paid to of ex post data on regulatory assessment that could
looking back before moving forward.”34 feed into new initiatives.
4) Finally, by placing evaluation centrally in the pol- Akhirnya, peningkatan fokus pada tingkat
icycycleforallEUaction, ex post evaluationshould kebijakan ap-praisal, serta embedding evaluasi
ensure above all policy learning, and not just (fi- dengan-dalam agenda Peraturan Cerdas,
nancial) programme or project learning. Evalua- membuat evaluasi dalam-trinsically lebih politis.
tion should not only be the remit of a small num- Hal ini menimbulkan pertanyaan bagi Uni Eropa
ber of administrators directly involved in a specif- tentang apa itu benar-benar bertujuan untuk
ic programme or project, but should feed back in- mencapai melalui evaluasi dan bagaimana hal itu
to the political decision-making process. This un- dapat menerjemahkan ini lembaga-sekutu. Untuk
derpins the Commission’s attention to ensuring penelitian akademis itu menimbulkan pertanyaan
better communication and transparency so as to tipe 3 dan tipe 4 penelitian semakin tentang
increase the number of actors that can be kepentingan yang dipertaruhkan, dan penggunaan
involved in this learning process, whether politik dan strategis ap-praisal.
stakeholders or other institutional actors.
These key features of the new approach to 2. Alat kunci Dikembangkan sejauh ini
policy eval-uation pose important challenges to untuk Mewujudkan Pendekatan Baru
the EU’s evalu-ation system as developed so
untuk Evaluasi
far, while inviting a clos-er link between the ex
ante and ex post research com-munities. Sementara Komisi Komunikasi (ditetapkan di atas)
Pertama, menerapkan evaluasi untuk semua jenis mendefinisikan fitur kunci dari pendekatan baru
kebijakan di-tervention berarti tantangan khusus untuk untuk evaluasi, ada jalan panjang untuk pergi
kebijakan regulato-ry. Sementara pasca evaluasi ex sebelum “budaya evaluasi” tersebut benar-benar
sangat de-veloped untuk kebijakan belanja, alat-alat didirikan. Sejauh ini Komisi telah difokuskan pada
dan metode-ology untuk kebijakan peraturan ex post tiga inisiatif utama:
jauh lebih baca-ily tersedia. Meskipun pelajaran yang The first key initiative has been to include evalu-
dapat dipetik dari kebijakan mantan penditure, alat-alat ation within the Commission’s strategic planning and
dan metodologi tidak bisa sim-ply telah dialihkan ke to make the results of ex post evaluation more
posting kebijakan regulasi ex as-menguji kehandalan. readily available. The 2004 Evaluation Guidelines
Pada saat yang sama, tantangan dalam hal alat dan
metodologi tidak terbatas pada regulato-
33 Commission Communication “Smart Regulation in the
European Union”, supra note 25, at p. 4.
34 Commission Communication “Strengthening the foundations of
Smart Regulation – improving evaluation”, supra note 6, at p. 5.
35 Stern, “Evaluation policy in the European Union”, supra note 3.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 13
suggest that each DG adopts an annual evaluation plan evaluation reports is concerned, there is diversity
36 in the amount of information available on DG
and a multi-annual evaluation programme. In practice
these are integrated in each DGs annual man-agement websites. While the creation of a central database
plan. An overall future evaluation pro-gramme is then of evalua-tion files on the Commission’s
set out, previously by DG Budget and now by the evaluation website39 is an important improvement,
Secretariat General, to plan Commission evaluations the database is not ex-haustive. 40
against the strategic priorities of the Commission. The Inisiatif kunci kedua dari pendekatan re-lambatnya
2010 Smart Regulation Communi-cation promised to baru untuk upaya untuk menghubungkan evaluasi ex
publish planned evaluations of legislative action on a post dan sistem ex ante terintegrasi penilaian dampak.
specific website to facilitate in-put. However, while all Sejak awal tahun 2003, sistem IIA pro-vided dua link
DGs now provide an annual evaluation plan, there dengan evaluasi sebagai tradisional de-didenda dalam
remains significant room for improved longer-term Uni Eropa. Pertama dari semua itu mengklarifikasi rela-
planning, more transparency and greater advance tionship antara IIAS dan praktek yang ada evaluasi ex
warning and predictability.37 An overview of planned ante diperlukan untuk inisiatif pengeluaran. Ketika IIA
evaluations is now available on the Commission’s diterapkan untuk proposal tertentu involv-ing
pengeluaran anggaran, IIA akan menggabungkan
evaluation website,38 as well as in an annex to the
unsur-unsur khusus untuk ex pengeluaran ante eval-
Commission Work Programme as part of the overview
uation, terutama pada isu-isu efektivitas biaya, selain
of REFIT activities. Yet, some DGs have not looked
penilaian penuh ekonomi, environ-mental dan sosial
further than a year ahead. More-over, the overview
does not provide links to informa-tion on exact dates for dampak sebuah IIA biasanya pro-vides.41Kedua,
tender, and does not provide opportunities for input. menyediakan link dengan ex post eval-uation dengan
Further information is dis-persed on DG websites, but mengharuskan penilaian dampak untuk ditetapkan
the available information is inconsistent. As far as the dalam-dicators untuk evaluasi retrospektif masa depan
publication of ex post inisiatif baru. Begitu juga sebaliknya, pasca evaluasi ex
adalah mantan pected mengandalkan IIAS dan indikator
ini untuk mengidentifikasikan-fy mengapa dan
bagaimana intervensi seharusnya bekerja untuk
36 European Commission, “Evaluating EU Activities”, at p. 30.
kemudian menilai implementasi.42Bagaimana-pernah,
37 Commission Communication “Strengthening the foundations of
Smart Regulation – improving evaluation”, supra note 6, at p. 6.
sistem IIA memberikan insentif sedikit di-clude informasi
38 Commission, “Evaluation”, 12 November 2014, available on the dari evaluasi ex post sebelumnya dalam penilaian
Internet at <http://ec.europa.eu/smart-regulation/evaluation/index dampak. Menetapkan sumber data yang IIAS dapat
_en.htm> (last accessed on 20 May 2014).
menggunakan, 2009 negara Pedoman IIA bahwa
39 Commission, “Search evaluation results”, 24 July 2014, available on
the Internet at http://ec.europa.eu/smart-regulation/evaluation/ “informasi dapat mencakup pemantauan atau evaluasi
search/search.do (last accessed on 21 January 2015). laporan dari program sebelumnya atau serupa” (stres
40 How representative the database is for the entirety of ditambahkan). Namun, tidak ada kewajiban structur-al
evaluations is difficult to assess. For sure, the database
seems to focus on outsourced evaluations, leaving roughly atau insentif prosedural untuk melakukannya. Ac-
20% of internal evalua-tions uncovered. cording ke Eropa Dampak Board (IAB) hanya sekitar
41 Commission Communication “Impact Assessment”, satu dari enam IIAS pada 2013 mengandalkan (atau
COM(2002)276. Not all IIAs include such financial ex ante
evaluation as the initiative may not engage the Union budget. digunakan) hasil evaluasi ex post (yang, bagaimana-
Vice versa, ex ante financial evaluation continues to exist as a pernah, sudah perbaikan dibandingkan dengan sekitar
separate process for expenditure actions for which no IIA is
required. However, ex ante evaluation is now predominantly satu dari sepuluh di 2010).43 Mengingat Smart Regula-
conducted in the context of impact assessments. See Commis-
sion, “Public Consultation on Commission Guidelines for tion fokus pada siklus kebijakan, IAB kini com-mitted
Evalua-tion”, supra note 19, at p. 16. untuk skrining lebih sistematis apakah IIAS
42 Commission, “Public Consultation on Commission Guidelines memanfaatkan data dari retrospektif mengeva-
for Evaluation”, supra note 19, at p. 7.
43 European Impact Assessment Board, “Annual Report for 2013”, tions.44Rancangan baru IIA pedoman disajikan pada
available on the Internet at <http://ec.europa.eu/smart- tahun 2014 menyediakan untuk menghubungkan
regulation/ impact/key_docs/docs/iab_report_2013_en.pdf>
(last accessed on 21 January 2015 at p. 7. struktural lebih lanjut dari ex ante dan penilaian ex post.
44 European Impact Assessment Board, “Annual Report for 2012”, Menurut panduan ini “tertanam dalam siklus kebijakan”
available on the Internet at <http://ec.europa.eu/smart-regulation/
memiliki akan datang salah satu prinsip inti delapan dari
impact/key_docs/docs/iab_report_2012_en_final.pdf> (last ac-
cessed on 21 January 2015), at p. 27. IIA sys-tem. Sementara mengkonfirmasikan komitmen
sebelumnya yang masing-masing IIA harus memberikan
pengawasan dan eval-
EJRR 1 |
14 Simposium Evaluasi Kebijakan di Uni Eropa 2015
IV. Tujuan dari Ex Ante dan Ex Post Komisi selama 1990-an dan 2000-an terfokus pada
Evaluation di Terang Menutup akuntabilitas hukum dan keuangan, dan melemah
Siklus Kebijakan ketimbang memperkuat kapasitas belajar yang hadir
sebelum periode itu. Khususnya, terlalu kuat
1. Ikhtisar Tujuan pemantauan untuk memastikan akuntabilitas
mungkin memang menahan proses pembelajaran.
Tabel 1 memberikan gambaran komparatif tujuan Secondly, while the four identified categories of
pejabat-secara resmi mengklaim sistem Uni Eropa dari objectives are relevant for both ex ante and ex post
ex ante dan post evaluasi ex.53 Kolom dua daftar tujuan evaluation, they are so in different ways. As such, an
resmi IIA sebagaimana diatur dalam Pedoman IIA 2009, automatic fit cannot be assumed when linking ex
sementara kolom tiga menyediakan empat tujuan ante and ex post evaluation. For instance, an IA sys-
sebagaimana diatur dalam Pedoman Evaluasi 2013 tem aimed mainly at ensuring policy coherence by
Draft.54 Empat kategori tujuan utama yang ditetapkan coordinating Commission DGs is likely to be less in-
dalam kolom satu merupakan yang umum terested in information from ex post assessment than
perbandingan ba-sis untuk ex ante dan ex post an IA system that is particularly steered towards re-
evaluasi, berdasarkan pada kedua dokumen resmi dan ducing the regulatory burden. Or still, an ex post
literatur akademis di dua bidang.55Saya membedakan eval-uation geared particularly towards reducing the
empat kategori utama dari tujuan utama dari evaluasi, reg-ulatory burden may not deliver the best evidence
yaitu: 1) memastikan soundevidenceandlearning; 2) for an ex ante evaluation that aims at providing the
akuntabilitas, trans-parency dan partisipasi; 3) widest possible evidence basis for new policy initia-
koherensi kebijakan; dan tives.
4) mengurangi beban regulasi. Hence, setting out the objectives in a
dokumen kebijakan sering menganggap bahwa comparative way allows for the addressing of the
berbeda- ini challenges of an evaluation culture that aims to
tujuan ent dari ex ante dan post evaluasi ex close the policy cycle. I will unpack the challenges
sepenuhnya melengkapi. Namun, seperti relating to each key ob-jective below table 1.
complemen-tarity tidak dapat diterima begitu
saja.
Pertama, bahkan ketika berhadapan dengan ex ante 2. Sound Evidence and Learning:
dan post evaluasi ex secara terpisah, mungkin ada
ketegangan antara tujuan-tujuan ini. Misalnya,
Which Evidence for whom?
meskipun Komisi Euro-pean cenderung untuk Both ex ante and ex post evaluation are expected to
menyajikan “belajar dan ac-tercacah” sebagai tujuan
provide evidence for policy-making. Both the IIA
utama dari ex post mengeva-tion,56berusaha untuk guidelines and the evaluation guidelines state explic-
mencapai satu tujuan dapat bekerja untuk merugikan itly that they are a decision-support tool, with the aim
yang lain. Berdasarkan berbagai wawancara, Steven
Højlund (dalam Edisi ini khusus) menunjukkan
bagaimana praktek evaluasi dikendalikan lebih terpusat
dan formal yang dikembangkan di
55 Ann-Katrin Bäcklund, “Impact assessment in the European Com-
mission - a system with multiple objectives”, 12 Environmental
Tabel 1
EX ANTE (2009 IIA Pedoman) EX POST (2013 Draft Pedoman Evaluasi)
-ensures koordinasi awal dalam alokasi sumber daya yang efisien D.: sumber
Koherensi dan pilihan Communication daya
prioritas kebijakan misi. terbatas dan alokasi antara intervensi atau
-Membantu untuk memastikan koherensi bahkan antara unsur-unsur yang terpisah dari
Komisi antar
kebijakan dan konsistensi dengan
Perjanjian objec- campur harus didasarkan pada prioritas
yang belum terpenuhi kebutuhan masyarakat
tives (seperti menghormati Fundamental / stakeholder. Akhir
Alokasi mungkin dipengaruhi baik oleh esti-
Hak) dan tujuan tingkat tinggi (seperti yang
dikawinkan harapan dan oleh pengalaman-
Lisboa atau Pembangunan Berkelanjutan sebelumnya
Ence dalam menjalankan yang sama atau
strategi). kegiatan serupa.
Mengurangi beban bagi -meningkatkan kualitas proposal kebijakan A. ... ..reinforcing prinsip-prinsip Smart Regulasi
peraturan oleh yang
memberikan transparansi tentang manfaat
sarang dan tion dan penyederhanaan administrasi.
biaya alternatif kebijakan yang berbeda
dan alokasi sumber daya yang efisien D.
membantu menjaga intervensi Uni Eropa
yang sederhana
dan seefektif mungkin.
Simposium Evaluasi Kebijakan di Uni
EJRR 1 | 2015 Eropa 17
Ceeds 5 juta €.62 Additional legal requirements for help in this regard, since IIAs need to set out the
monitoring and reporting are often set out in Eu- “gen-eral”, “specific” and “operational” objectives of a
ropean secondary legislation, including for non-ex- new initiative. “General” refers to Treaty-based goals,
penditure policy. However, while expenditure pro- “spe-cific” to how the new policy would contribute to
grammes and projects have a clear period of dura- a Treaty-based goal, and “operational” to specific tar-
tion around which a programme of ex ante, mid-term, gets and deliverables toreach that goal. 64 The
final and ex post evaluation is built, this estab-lished require-ment of the IIA guidelines to set out
pattern is lacking for regulatory interventions. indicators for ex post evaluation is also a welcome
Although some regulatory interventions have sunset help in this re-gard. However, while most IIAs set out
clauses, to which a requirement for retrospective general and specific objectives, many fail to set out
evaluation can be attached, most regulatory operational objectives,65membuat ex post
interven-tion has no “expiry date”. Such interventions pengukuran sangat sulit. Hampir semua IIAS
may still include monitoring obligations but their termasuk bagian mengenai ex post monitoring dan
scope is highly variable and may refer to the entire evaluasi, tetapi hanya sekitar setengah meliputi
regula-tory intervention or a specific part of it. There indikator tertentu, meskipun tren untuk dimasukkan
is no inherent link, in either content or timing, positif.66 Juga, sejauh tidak ada data berhasil-bisa
between such monitoring obligations and IIA for new pada apakah usulan evaluasi ex post di-dicators
regu-latory actions. diatur dalam IIAS pasti membuat proposal final dan
Thirdly, (partially as a result of the legal require- apakah mereka de facto digunakan dalam penilaian
ments) there is a misfit between the type of informa-tion ret-rospective.
gathered through ex post assessment and the in- Kelima, komplikasi tambahan hasil dari fakta
formation needed for ex ante assessment. Long fo- bahwa beberapa evaluasi dengan ruang lingkup
cused on expenditure programmes, ex post evalua-tion yang berbeda, menilai tujuan atau indikator inisiatif
is particularly geared towards the provision of yang sama yang berbeda (atau beberapa inisiatif
information on the cost effectiveness of financial in- serupa) dapat diadopsi secara paralel atau sebagian
terventions. With respect to regulatory intervention, dalam siklus hidup yang berbeda tindak ing paralel.67
systematic information is mainly limited to compli-ance Meskipun inisiatif Commis-sion untuk memprogram
reports, particularly the provision of informa-tion on the evaluasi lebih Strate-gically dan lebih jelas
transposition of directives, while assess-ment of policy merupakan langkah berharga dalam arah yang
implementation is ad hoc and not in depth. Moreover, benar, tetap tantangan untuk mengumpulkan semua
even when ex post evaluation pro-vides in depth informasi ex post yang relevan untuk mantan
assessment of implementation, it will be in relation to penilaian ante baru, es-pecially sebagai pendekatan
the objectives (or part of them) set out in the initial tujuan baru khususnya pada pembelajaran kebijakan
policy measure. This may not be suf-ficient to ensure yang luas (bukan hanya proyek atau program
broad policy learning to guide new initiatives (with pembelajaran).
potentially divergent objectives). Moreover, the system Akhirnya, ada ketidakseimbangan dalam pengalaman
of IIAs requires the systemat-ic ex ante assessment of dan bukti yang tersedia mengenai ex ante dan ex post
economic, environmental and social impacts of new eval-
initiatives. The ex post eval-uation system instead does
not require a systematic assessment of initiatives on
their economic, environ-mental and social
consequences. The IIA system thus misses out on what
62 Peraturan Parlemen Eropa dan Dewan pada aturan keuangan
could be a very valuable assess-ment of past practice yang berlaku untuk anggaran umum Uni dan membatalkan
on the three criteria specifical-ly required for ex ante Dewan 25 Oktober 2012, Peraturan (EC, EURATOM) No
1605/2002, pada Bab 7, Pasal 30.
analysis. 63 Emanuela Bozzini dan Jo Hunt, dan Luth Mergaert dan
Fourthly, as several contributions to this special is- Rachel Minto di Edisi ini khusus.
64 Komisi, “Pedoman Penilaian Dampak”, SEC (2009) 92.
sue show,63 one of the key problems of ex post eval-
65 According to a CEPS database of all IIAs adopted between 2003
uation is to clearly identify the original objectives of and 2009, only about 43% of IIAs included operational objec-tives.
an initiative and the benchmarks against which eval- The database created by the Centre for European Policy Studies
under the supervision of Andrea Renda is not publicly available,
uation is possible. The systematic use of IIA should but these data were quoted in Giacomo Luchetta, “Impact
assessment and the policy cycle in the EU”, 3 European Journal of
Risk Regulation (2012), pp. 561 et sqq,, at p. 568.
66 Luchetta, “IA and the policy cycle”, ibid., at p. 573.
67 Emanuela Bozzini and Jo Hunt, and Lut Mergaert and
Rachel Minto in this Special Issue.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 19
uation in different DGs. Graph 1 compares the total ENV, and particularly MARKT) have a much stronger
number of IIAs and evaluation reports per DG over a tradition of adopting IIAs rather than ex post evalu-
four year period (2010-2013). The data were gath- ations. This is not to suggest that an encompassing
ered from the Commission’s IIA and evaluation web- approach to evaluation would necessarily imply that
sites, but come with a caveat. While a full list of IIAs DGs ought to adopt a similar number of ex post eval-
is published by the Commission,68 the public “data- uations and IIAs, and that all DGs should converge to
base on evaluation files”69 does not systematically similar practice. However, the graph is indicative of
cover all evaluation reports. More particularly it fo- the challenges ahead as it illustrates a misfit be-
cuses on external evaluation reports and tends not to tween the evidence available through ex post evalu-
include evaluation reports done entirely within the ation and the inclination for new (regulatory) inter-
Commission. Yet, as about 80% of the Commission’s vention. With some exceptions (such as DG SANCO,
evaluation work is outsourced, the available data al- and DG ENTR) DGs which adopt many IIAs and thus
low some comparative conclusions between ex ante propose many new initiatives tend to have relative-ly
and ex post evaluation to be drawn. limited expertise of and evidence from ex post eval-
Grafik 1 menunjukkan variasi antara Dirjen mengenai uation at their disposal.
penggunaan ex ante dan ex post evalu-asi. Tidak Dapat disimpulkan bahwa, dalam hal bukti dan
mengherankan, Dirjen yang utama berperan dalam pembelajaran, Uni Eropa masih memiliki beberapa
kebijakan pengeluaran (seperti Dirjen AGRI, DEV, cara untuk pergi untuk membuat ex ante dan post
Regio dan RTD) mengadopsi sejumlah besar evaluasi evaluasi ex “cocok”. Sejauh ada sedikit penelitian
ex post tapi sederhana dalam penggunaan IIAS. akademis tentang apakah bukti yang tersedia dalam
Sebaliknya, Dirjen dengan tugas-tugas terutama proses ini sebenarnya mengarah ke pembelajaran.
peraturan (seperti Dirjen ENER, Sebuah studi terbaru oleh Boras dan Højlund
menunjukkan bagaimana hanya dua jenis pelaku,
yaitu unit program dan mantan ternal evaluator,
belajar dari tiga evaluasi program pengeluaran, dan
68 Komisi, “2014 penilaian dampak (IA) laporan / pendapat IAB, bahwa seperti belajar cenderung-ed menjadi
tersedia di Internet di http://ec.europa.eu/smart-regulation/
dampak / ia_carried_out / cia_2014_en.htm (terakhir diakses tambahan daripada jalur yang putus.70 Masih
pada 13 Januari 2015).
69 Komisi, “Hasil evaluasi Cari”, supra note 39.
menjadi pertanyaan apakah pembelajaran kebijakan
70 Borras dan Højlund, “Evaluasi dan pembelajaran kebijakan”,
juga terjadi dalam kaitannya dengan intervensi
supra note 55. peraturan, dan khususnya apakah itu terjadi pada
tingkat politik yang lebih tinggi dalam kaitannya
dengan kerangka peraturan yang lebih luas
EJRR 1 |
20 Simposium Evaluasi Kebijakan di Uni Eropa 2015
(in a way as promoted by the new approach to eval- kontrol politik. Sebagai evaluasi ternyata semakin
uation). The EU’s new approach to policy evaluation evaluasi kinerja, menjadi lebih sarana musyawarah
seems based on a general assumption that ex post demokratis yang memungkinkan “warga, saham-
in-formation will contribute to the sound evidence ba- pemegang dan anggota parlemen untuk menahan
sis for ex ante assessment of new action. However, Administration-tion ke akun”.74Hal ini menjelaskan
it has to be acknowledged that different types of evi- Komisi
dence lead to learning for different types of actors. effortssinceits2007Communicationtoensuretrans-
Hence, evidence from programme and project eval- parency evaluasi sehubungan dengan lembaga-
uation can lead to “administrative” learning at the lembaga Uni Eropa lainnya (Parlemen khususnya)
level of policy officers. Yet, in order to ensure broad- serta terhadap warga. Sebagai negara dalam 2013
er policy learning on regulatory intervention, differ- rancangan panduan-garis, transparansi tersebut
ent evidence is required – which to date is scarce – dapat meningkatkan kepercayaan. Howev-er,
and such evidence has to reach different policy ac- fokusnya adalah pada transparansi hasil evaluasi:
tors. Specifically, it is not enough that information oleh “evaluasi temuan penerbitan, Komisi publik
reaches project and programme officers, but evi- mengambil tanggung jawab atas tindakan-
dence provided by research departments dealing tindakannya, mengakui bagaimana intervensi adalah
with ex post evaluation and IIAs must also reach per-membentuk dan mengundang umpan balik lebih
those departments responsible for drafting policy. lanjut”.75The invita-tion untuk umpan balik lebih lanjut
Moreover, the evidence gathering process may be juga menunjukkan pendekatan participato-ry untuk
geared towards objectives other than ensuring the evaluasi, namun, setelah laporan evaluasi telah
most sound evidence basis for policy-making, such diadopsi. “Tujuan dari evaluasi, yaitu untuk
asensuringaccountability,policycoherenceorreduc-ing mempromosikan akuntabilitas / transparen-cy dan
the regulatory burden. pembelajaran organisasi, hanya dapat dicapai jika
informasi yang dihasilkan oleh evaluasi tersebut
mencapai orang-orang kepada siapa kita
2. Akuntabilitas, Transparansi dan bertanggung jawab untuk [sic] (masyarakat umum,
Partisipasi: Siapa dan Harus Actors parlemen, dll ) atau interme-buku harian tertentu
di Evaluasi? (wartawan) dan mereka yang harus belajar dari hasil.
Semua laporan evaluasi kualitas tinggi karena itu
Menurut Ian Sanderson, menjamurnya monitoring harus disebarkan dengan cara suit-ed ke audiens
dan evaluasi mekanisme di yang berbeda. diskusi aktif dan perdebatan tentang
governanceissignofaprocessinwhichgovernments temuan ini harus didorong.”76Database pusat dari file
publik yang beralih ke bukti kinerja untuk legitima-cy evaluasi yang tersedia pada halaman web evaluasi
karena tidak lagi dijamin sepenuhnya oleh proses Komisi adalah alat kunci dalam hal ini. Untuk saat ini
politik democ-ratic.71 Akuntabilitas, trans-parency database ini terutama telah terbatas untuk
dan partisipasi karena itu sering muncul sebagai menyediakan laporan evaluasi. Komisi mengusulkan
tujuan ex ante dan sistem evaluasi ex post, tapi dalam pedoman rancangan baru untuk pub-lish
dengan cara yang berbeda. (selain hasil evaluasi utama) al-sehingga evaluasi
Akuntabilitas sering diidentikkan (bersama-sama mandat dan Komisi re-sponse tentang bagaimana itu
dengan pembelajaran) sebagai tujuan utama dari akan mengambil temuan ini. Bahkan jika ini
evaluasi ex post, baik dalam literatur dan dokumen direalisasikan, ini transparansi mea-sures berfungsi
resmi.72 Ac-tercacah selalu inti untuk evaluasi terutama sebagai alat akuntabilitas, sementara
retrospektif, tetapi dapat mengambil bentuk yang
berbeda.73Selama pasca evaluasi ex terutama
71 Ian Sanderson, “Evaluasi, belajar kebijakan, dan pembuatan
tentang audit, dan kepatuhan keuangan dan hukum, kebijakan berbasis bukti”, 80 Administrasi Publik (2002), 1 et
itu adalah tentang “akuntansi” daripada “akuntansi pp. Sqq., Pada p, 2.
72 Scriven, “Beyond Formatif dan Sumatif Evaluasi”, supra note
untuk”. Yang penting adalah memastikan kepatuhan 55; Van der Meer dan Edelenbos, “Evaluasi dalam proses
dengan aturan dengan memiliki ancaman sanksi kebijakan multi-aktor”, supra note 55.
bukan politik “akuntansi untuk” vis-à-vis a principal 73 Lihat juga Steven Højlund di Edisi ini khusus.
publik atau politik yang lebih luas, meskipun tidak 74 Commission, “Public Consultation on Commission Guidelines
for Evaluation”, supra note 19, see table 1 above.
memberikan parlemen dengan cara
75 Commission, “Public Consultation on Commission Guidelines
for Evaluation”, supra note 19, see table 1 above.
76 Commission, “Public Consultation on Commission Guidelines
for Evaluation”, supra note 19.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 21
theseconsultanciesaretherightplacetoprovidesuch
penilaian.
Ketiga, sifat yang lebih politis dari jenis
pembelajaran tingkat kebijakan siklus diramalkan
oleh ap-proach baru, menunjukkan bahwa peran
yang lebih penting harus dipertimbangkan untuk
Parlemen Eropa (EP) dalam proses ini. Peran EP
dalam evaluasi seharusnya tidak terbatas pada
membaca laporan ex post sanksi tunas-get. Sebagai
evaluasi evaluasi kinerja semakin diasumsikan untuk
memberi makan kembali ke kebijakan initia-tives
baru, EP harus dalam posisi untuk menilai pada data
yang tersedia dan bagaimana memberi makan
kembali beraksi Com-misi baru. Penciptaan
Direktorat Penilaian Im-pakta dan Eropa
Pertambahan Nilai Januari-uary 2012 telah menjadi
langkah penting dalam devel-ngunan kapasitas
seperti itu, meskipun sejauh aksinya telah
difokuskan pada sistem IIA. Pada tahun 2014,85
Akhirnya, evaluasi kebijakan mungkin terlalu berat
per-ceived sebagai permainan tingkat Eropa, yang
melibatkan dalam partic-ular Komisi dan industri
consultan-kota lainnya yang beroperasi terutama
sebagai bisnis Eropa atau interna-tional. Realitas
evaluasi kebijakan expen-diture, bagaimanapun,
menunjukkan permainan multi-level, dengan Uni Eropa
menetapkan persyaratan penting dalam hal pelaporan
dan evaluasi di tingkat nasional. Yang terakhir,
meskipun, yang dirasakan oleh negara-negara anggota
sebagai kuat mengendalikan dan tidak memfasilitasi
dalam hal belajar.86Tantangannya adalah lebih besar
dalam kaitannya dengan kebijakan peraturan, di mana
ada kesenjangan yang jelas dalam infrastruktur ap-
propriate untuk mengumpulkan data yang cukup dan
com-perumpamaan untuk memberi makan kembali dari
nasional ke tingkat Eu-ropean. Pada saat yang sama,
bagian dari yang ada Uni Eropa kelembagaan set-up
yang dapat berkontribusi untuk data evaluasi mengenai
apa yang terjadi pada bangsa
objectives set at the origin of an initiative, not in re-lation assessment of economic, social and environmental
to wider EU objectives. However, policy coher-ence impacts. These reflect the original mixed values of
might be improved if ex ante evaluation relied on more the Lisbon Strategy, not only aiming at competitive-
ex post data assessing policy outcomes in re-lation to ness but equally social cohesion and sustainability.
broader EU policy frameworks and “gover-nance However, the revision of the Lisbon Strategy in 2005
architectures”90 such as Europe 2020. This could be led to an ever stronger focus on competitive-ness. As
done by increasingly setting the objectives of new policy Radaelli has argued,92 as a consequence, con-cerns
initiatives in light of these broader frameworks, so they about “quantity” rather than “quality” were brought to the
could also be assessed on this basis at the level of ex foreground of the Better Regulation agenda and the IIA
post evaluation. Or ex post eval-uation may engage de system. The 2009 IIA guidelines introduced specific
officio in such broader appre-ciation, which may suit an sections on “administrative bur-dens” and on
evaluation trend that goes from compliance to “simplification potential”, while a sep-arate
performance assessment. How-ever, this has two “competitiveness proofing toolkit” was intro-duced as
significant inherent risks. Ex post evaluation is a difficult further guidance to the guidelines in 2012. 93
and costly task even for pol-icy initiatives with relatively The initial history of ex post evaluation in the Com-
narrow objectives, par-ticularly if the aim is performance mission has been driven to a lesser extent by con-
evaluation and al-so the assessment of benefits and not cerns about regulatory burden. Although it has al-
only costs. In-deed, the broader the objectives of an ways had a strong “value for money” dimension, fo-
initiative, the bigger the challenge. Moreover, there is a cus was on ex post accountability of expenditure pol-
risk that a broad evaluation mandate may be hijacked icy. However, as argued above, the new approach to
by assess-ing technocratically set benchmarks, rather evaluation (extending ex post evaluation to regulato-
than clearly set Treaty-based objectives formulated by ry action and focusing on the policy cycle) has turned
the legislator. Elsewhere we have analysed that there is the “value for money” argument from an ex post ac-
a tendency in the IIA system to steer policy-making into countability mechanism into a tool to decide on the
the direction of rather technocratically framed desirability of future action. It is the Smart Regula-
benchmarks set out, for instance, in the Smart Reg- tion (2010) agenda and in particular the REFIT pro-
ulation and Europe 2020 Strategies rather than in gramme (2012) (with a strong focus on reducing the
function of the EU’s constitutional values set out in the regulatory burden) which have propelled evaluation
Treaties.91 As the next section will illustrate, the higher up the political agenda. Not surprisingly, the
encompassing approach to evaluation is likely to most important new evaluation tools so far (namely
strengthen that process. fitness checks and CCA) are aimed particularly at ad-
dressingtheREFITobjectives. ThenewJunckerCom-
mission has further propelled evaluation to the top of
the political agenda by considering it a key tool to
4. Reducing the Regulatory Burden address what appears to be its number one political
priority: ensuring that the EU is “big on big things
Policy intentions to reduce the regulatory burden are
often a key, or even the key driver for the introduc-
tion of a regulatory impact assessment system. Also
90 Susana Borrás and Claudio M. Radaelli, “The politics of
at EU level this concern has been at the origin of the gover-nance architectures: creation, change and effects of
creation of the system of IIA, which should be placed the EU Lisbon Strategy”, 18 Journal of European Public
Policy (2011), pp. 463 et sqq,
in the context of the 2000 Lisbon Strategy which 91 Stijn Smismans and Rachel Minto (forthcoming), “Are
aimed to make Europe the most competitive knowl- integrated impact assessments the way forward for
mainstreaming in the EU?”. See also Dunlop and Radaelli in
edge based economy in the world. As mentioned this special issue, who point to the potentially normatively
above, at the same time it was inspired by concerns disturbing finding that IAs develop narratives about values
and identities, which are thus developed within bureaucratic
about participatory and legitimate governance, ex- documents instead of within constitutional discussions.
pressed in the context of the White Paper on Euro- 92 Radaelli, “Whither better regulation”, supra note 78.
pean Governance. The IIA system thus created was 93 Commission staff working document “Operational guidance for
assessing impacts on sectoral competitiveness within the commis-
more participatory than in most countries, while sion impact assessment system. A "Competitiveness Proofing"
aimed towards an integrated assessment including Toolkit for use in Impact Assessments”, SEC(2012) 91 final.
EJRR 1|2015 Symposium on Policy Evaluation in the EU 25
and small on small things”. Promising “a new start” perhatian berkerut pada evaluasi sektoral yang lebih
and “making a political priority of lightening the reg- komprehensif meliputi risiko balik evaluasi dalam-
ulatory load”,94 the first action of the new Commis- creasingly menjadi fungsi dari agenda untuk
sion has been to propose a particularly thin work mengurangi beban regulasi. Sementara kebijakan
plan, listing only 23 initiatives for 2015, compared to individu initia-tives (apakah peraturan atau program)
an average of 130 new initiatives each year under dapat dengan jelas dinilai pada tujuan awal mereka,
the Barroso Commission.95 In this context, the mengidentifikasi-ing tujuan awal kerangka peraturan
Commis-sion not only presented a list of 80 acts for yang lebih luas lebih kompleks, sehingga
withdraw-al, but equally a list announcing nine new membuatnya lebih mungkin untuk evaluasi untuk
fitness checks, 44 evaluations of individual fokus pada eksternal set eval- tujuan uation seperti
regulatory acts, and three new CCAs.96 dampak pada administrasi, usaha kecil dan
Oleh karena itu, pada tingkat politik tertinggi, menengah, dll
evaluasi tampaknya telah menjadi terutama alat Ketiga, evaluasi rumit dan mahal, khususnya
untuk membuat lebih tipis Uni Eropa, didasarkan jika penilaian berganda dan luas ob-jectives harus
pada asumsi bahwa ini akan menjadi cara terbaik dibuat. Selain itu, mengukur bene-cocok lebih sulit
untuk mengatasi meningkatnya euro-skeptisisme. daripada mengukur biaya. Oleh karena itu,
Ada beberapa aspek dari sistem evaluasi saat ini mungkin bahwa sistem evaluasi akan digunakan
yang memperkuat dorongan ini ke arah par-ticularly dalam fungsi satu tujuan utama, yaitu
menggunakannya terutama sebagai instrumen untuk re-ducing beban regulasi, dengan fokus pada
mengatasi beban regulasi, bukan sebagai sistem biaya mea-suring jangka pendek.
pembelajaran yang bertujuan untuk mengumpulkan
bukti terbaik untuk pembuatan kebijakan dengan
cara yang seluas mungkin. V. KESIMPULAN
Firstly, unlike impact assessments, which are re-
quired to assess the economic, social and environ- Niat Uni Eropa untuk menciptakan sebuah “budaya
mental impacts of new initiatives (together with im-pacts evaluasi” berdasarkan pemahaman siklus
on regulatory burden), the general evaluation guidelines pembuatan kebijakan yang menghubungkan ex post
do not set specific substantive objectives for ex post dan evaluasi ex ante dan berlaku untuk semua jenis
assessment. Ex post assessment always re-lates to the intervensi kebijakan membawa serta banyak
initial objectives of a policy intervention, which will have tantangan. Sehubungan dengan kebijakan belanja,
to be identified by the evaluation of-ficer on a case by Uni Eropa memiliki tradisi mapan siklus interven-tion
case basis. However, the new eval-uation guidelines set di kedua program dan proyek tingkat, termasuk ex
out one priority which needs to be assessed more ante evaluasi keuangan, jangka menengah dan
generally, namely “where appropri-ate, evaluation of evaluasi, diikuti oleh siklus anggaran baru. Namun,
regulation should include an assess-ment of bahkan dalam kasus ini, masih ada beberapa
administrative burden, simplification poten-tial, impacts tantangan, re-lated ke waktu (seperti pos evaluasi ex
on small and medium-sized enterprises, and the global datang terlambat untuk menginspirasi program
competitiveness of EU business as part of the analysis babak berikutnya), kesulitan untuk mengidentifikasi
of ‘efficiency’”.97 tujuan awal ini-tiatives untuk menilai mereka , atau
Second, although the Smart Regulation Commu- mengubah na-mendatang dari tujuan tersebut dari
nication states that individual ex post assessments waktu ke waktu. Masalah diperburuk ketika evaluasi
and fitness checks are complementary,98 the in- ditujukan untuk per-Formance daripada kepatuhan,
terutama ketika ada pergeseran dari proyek dan
evaluasi tingkat program untuk evaluasi politik yang
94 Commission Communication “Commission Work Programme lebih luas dari kerangka peraturan. Ada banyak
2015. A new start”, COM(2014) 910 final, at p. 3.
orang aneh antara tujuan utama dari ex post dan ex
95 European Voice, “The Companion to the European
Commission”, February 2015, at p. 24. ante eval-uation dan cara mereka telah
96 Commission Communication “Commission Work dilembagakan, pergi dari kesenjangan antara jenis
Programme 2015”, supra note 94, at Annex 3. bukti yang dikumpulkan ex post dan yang dibutuhkan
97 Commission, “Public Consultation on Commission Guidelines
for Evaluation”, supra note 19, at p. 39.
untuk ex ante as-menguji kehandalan; kurangnya
98 Commission Communication “Smart Regulation in the kerangka waktu yang ditetapkan dan tidak adanya
European Union”, supra note 25, at p. 4. proses siklus dalam kaitannya dengan intervensi
regu-latory; untuk fokus yang berbeda pada Account
Ada banyak orang aneh antara tujuan utama dari ex
post dan ex ante eval-uation dan cara mereka telah
dilembagakan, pergi dari kesenjangan antara jenis
bukti yang dikumpulkan ex post dan yang dibutuhkan
untuk ex ante as-menguji kehandalan; kurangnya
kerangka waktu yang ditetapkan dan tidak adanya
proses siklus dalam kaitannya dengan intervensi
regu-latory; untuk fokus yang berbeda pada Account
Ada banyak orang aneh antara tujuan utama dari ex
post dan ex ante eval-uation dan cara mereka telah
dilembagakan, pergi dari kesenjangan antara jenis
bukti yang dikumpulkan ex post dan yang dibutuhkan
untuk ex ante as-menguji kehandalan; kurangnya
kerangka waktu yang ditetapkan dan tidak adanya
proses siklus dalam kaitannya dengan intervensi
regu-latory; untuk fokus yang berbeda pada Account
EJRR 1 |
26 Simposium Evaluasi Kebijakan di Uni Eropa 2015
kemampuan dibandingkan belajar, dan harapan sehingga cukup besar yang mungkin bahwa upaya
yang berbeda tentang aktor yang tepat untuk fokus pada memastikan bahwa catatan evaluasi ex
terlibat dalam proses. memberikan bukti untuk penilaian ex ante tindakan
Dengan fokus pada siklus kebijakan, baru ap- baru dalam kaitannya dengan satu tujuan tertentu,
proach evaluasi tampaknya terinspirasi oleh com- yaitu mengurangi beban regu-latory. konteks di mana
mitment kuat untuk memperkuat dasar bukti kuat baru ap-proach untuk evaluasi telah
untuk Eropa pembuatan kebijakan, baik pengeluaran mengembangkan, dan tindakan konkrit yang diambil
atau intervensi peraturan. Namun, tantangan yang sejauh ini, sangat mengkonfirmasi kemungkinan
perkembangan semacam itu.
Reproduksi dengan izin dari pemilik hak cipta. reproduksi lanjut dilarang tanpa izin.