Principles and mechanisms of Twinning implementation in Ukraine

Twinning is a form of direct technical co-operation between public administrations and mandated bodies of EU Member States and government authorities of Ukraine that transfers know-how and best practices between public administrations of EU Member States and their Ukrainian counterparts.

For reference: In 1998 the European Commission suggested the Twinning instrument implementation to the candidate countries for the European Union (the EU) accession in order to support their integration. During the Twinning projects implementation approximately 2 thousand projects have been realized in the candidate countries. 

One of major advantages of the instrument is the financial support of a institutional and administration reform in the amount of €1 - 1,5 ml and the specific of the project implementation: providing expertise and giving advices in the relevant sphere of public administration, personnel training, assistance in drafting legislation and its approximation to the acquis communautaire. Thus, the systems of the EU-members countries are not coping but adapted with the aim to operate effectively in Ukraine. Twinning is also the basis for the implementation of the CIB programme.

According to the evaluation of the European Commission (hereinafter – the EC) Ukraine is considered to be one of the leaders among the countries of the European Neighborhood and Partnership Instrument (16 countries) in accordance with the quantity of completed Twinning projects as well as the projects that are at the stage of implementation. 

Regulatory documents for the Twinning implementation in Ukraine:

  • Decree of the President of Ukraine «Issues for the Implementation of Twinning Programmes in Ukraine» dated 06.10.2005 № 1424;
  • Resolution of the Cabinet of Ministers of Ukraine “On Approval of the Procedure for Initiation, Preparation and Implementation of the Twinning Projects” as of 11 October, 2016 No 700;
  • Interagency Order of the National Agency of Ukraine on Civil Service (hereinafter – the NAUCS) and the Ministry of Economic Development and Trade of Ukraine «On Creation of Working Group on Coordination of the Twinning Instrument Implementation» dated 15.06.2012 № 120/702

Mechanisms of cooperation within the framework of Twinning projects implementation: 

- providing peer review in the relevant area of civil service;

- support to the public authority in development and review of the existing legislation;

- support to the public authority in development of internal rules, procedures, instructions etc.;

- support to the public authority in its institutional capacity strengthening trough conducting functional review by the European experts and/ or comparative analysis of the existing institutional structure of the public authority;

- providing training for representatives of the public authority

 (seminars and trainings conducted by foreign experts);

- organization of study tours and internship for representatives of the public authority of Ukraine;

- organization of conferences, round table discussions etc.

Basic characteristic features of the Twinning instrument:

- it is not traditional technical assistance as far as it stipulates cooperation between civil servants of similar government authorities and it is aimed at the achievement of the required results by means of common efforts of the partners from the EU member states and the beneficiary body;

- it foresees the competitive selection procedure of the partner institution of the EU member states. For this purpose the special tender procedure is conducted;

- it doesn’t copy the system of the EU member states but carries out its adaptation to the existing conditions for their efficient functioning in Ukraine; it promotes its approximation to the EU standards;

- the period of preparation of the Twinning project (from project proposal drafting to the contract signing) takes on the average 1 - 1, 5 years and theperiod of realization takes 1 - 2 years;

- the project implementation is realized with the help of the Resident Twinning Advisor (hereinafter – RTA) who is the civil servant of the EU member state or is likened to him and is sent on a business trip for the period of the project realization to the beneficiary country;

- Twinning projects are of the type of the EC grant and they are implemented according to the established procedures and rules.

The following activities are to be financed by the EC:

  • work and allowance of the RTA in the beneficiary country;
  • work of medium term and long term experts;
  • expenses on preparation and realization of the project;
  • seminars, round table discussions, conferences;
  • study tours;
  • internship of representatives of the beneficiary body in the institutions of the Twinning partner countries;
  • work of the public authority of the EU member state regarding the project implementation (on the territory of the EU Member States);
  • expenses on oral and written forms of translation;
  • audit expenses;
  • in separate cases special equipment (at the cost of up to 5000 Euro).


- for the purpose of the Twinning project successful implementation the beneficiary should provide the project with the relevant human resources (to appoint the Project Leader, the RTA counterpart, to create working groups on preparation and implementation of the project), to supply the RTA and his assistant with the furnished and equipped office in the personal premise, to identify the place for organization of trainings, seminars and project conferences.

Twinning in Ukraine: the order of approval of the project proposals:

  • The NAUCS annually before the 1-st February informs public authorities (institutions) about the possibilities of attracting the EU assistance within the framework of the Twinning instrument. In case of interest public authorities prepare and submit to the NAUCS the project proposals before the 1-st March;
  • the NAUCS provides analysis and assessment of submitted project proposals taking into consideration the capacity of the public authority (institution) to implement the project;
  • the list of the project proposals elaborated by the NAUCS is to be submitted to the Ukrainian Part of the Committee on Cooperation between Ukraine and the European Union for further review and approval. It facilitates implementation of the system approach to the annual programming, identification and regular monitoring of the Twinning projects;
  • in order to provide coordination of the Twinning instrument implementation as well as objectiveness, transparency and taking into consideration interests of all the stakeholders the approved list of project proposals is submitted for consideration to the working group on coordination of the Twinning instrument implementation (representatives of the Presidential Administration of Ukraine, the Cabinet of Ministers of Ukraine, the NAUCS, the Ministry of Economic Development and Trade of Ukraine, the Ministry of Foreign Affairs of Ukraine, the Delegation of the EU in Ukraine);
  • working group on coordination of the Twinning instrument implementation approves the list of the project proposals and on the basis of it the indicative list (work plan) of the projects is developed.

Procedures and requirements to the preparation of the Twinning project proposals

The project proposal is filled in according to the sample and it should include the information on the public authority (institution) which initiates the project and the brief summary of the future project (the title, general objective, goals, required outcomes, the problem, the project is aimed at).

The project proposals should match the following criteria:

- national priorities of the state development;

- areas of cooperation, covered by the Agreement on Partnership and Cooperation between Ukraine and the EU as well as the priorities of the Agenda of the Ukraine-EU Association;

- medium term priorities of the public authority (institution) where the Twinning project is implemented;

- it should provide the elements of approximation to acquis communautaire (the EU legislation);

- it should involve the elements of institutional development and approximation of the legislation to the norms and standards of the EU.

Completed Projects

Implementation of the Twinning Projects

Development of the Twinning Fiche

Twinning Note

Twinning-contract preparation

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