Evaluations of the 2014-2020 programming period

Summary

This work package was the first attempt to collect, harmonise and aggregate - at an EU level - the data produced by the ERDF/CF project monitoring systems on the basis of national and regional monitoring data rather than available public lists. This rich set of data makes available a unique data source on ERDF and CF programmes funded during the 2014-2020 period for the ex post evaluation. Both in terms of granularity and coverage, it expands beyond what is available in public lists of operation, public open data platforms at national level.

This work package resulted in the preparation of a “Single Database” covering 215 Programmes financed by the ERDF and/or CF and 73 Interreg Programmes, across the 12 Thematic Objectives (i.e., 96% of the total number of programmes in scope). It covers 585 000 operations (dataset on operations), 1 169 000 beneficiaries (dataset on beneficiaries) as well as common and programme-specific output indicators that could be collected at the operation level (713 600 common output indicators and 491 500 programme-specific output indicators (dataset on indicators). This work package also examined the structure and efficiency of monitoring systems and the quality and reliability of monitoring data.

Cohesion Open Data story presenting the “Single database” on 2014-2020 operations monitoring

Summary

This work package presents the ex post evaluation of investments in Research, Technological Development and Innovation (RTDI) funded by the European Regional Development Fund (ERDF) during the 2014-2020 programming period. The evaluation employs a multi-level approach, examining country, Operational Programme, instrument, and project levels, and utilises a combination of qualitative and quantitative methods influenced by theory-based impact evaluation.

During this period, the ERDF programmes allocated a total of EUR 59 billion to support RTDI, primarily via non-repayable grants to sole beneficiaries with a predominant focus on promoting research activities within businesses and fostering science-industry collaborative projects. The direction of ERDF support was largely guided by regional and national Smart Specialisation Strategies, which targeted specific priority sectors. The ERDF played a crucial role in advancing knowledge production and enhancing regional collaborations between science and industry, contributing positively to technological progress in the EU.

However, the effectiveness of this support was contingent upon its strategic alignment with national and regional RTDI frameworks. The evaluation findings also revealed limited upstream synergies at the project level and limited downstream synergies between the ERDF and the Horizon 2020 programme, along with challenges related to research infrastructure projects, despite the overall smooth disbursement of ERDF grants.

Summary

This work package examines the effectiveness/impact, efficiency, coherence, relevance and EU added value of interventions across Member States that used ICT support, focusing on broadband infrastructures, e-government, e-health, digital education, and e-business. In 2007–2013, investments largely targeted e-government and broadband deployment in underserved regions, contributing to reduced digital divides. The 2014–2020 period shifted toward increased expenditure on very high-speed connectivity with >100 Mbps, continued investment in e-government and a modest increase of the share of resources allocated to digital education. The ERDF enhanced connectivity and user take-up, albeit with insufficient monitoring of the latter, fostered public service digitisation, and the digital transformation of SMEs. This enhanced regional innovation capacity, though outcomes varied by region due to differences in administrative capacity and the extent of implementation delays. Synergies were identified with other EU funds, notably the EAFRD, for the development of broadband infrastructure.

The main lessons learnt were the need for stronger alignment between EU and national digital strategies and programme planning, and improved monitoring frameworks to better capture results. The evaluation supports future cohesion policy design by underlining the importance of demand-driven and territorially-tailored ICT interventions.

Summary

The European Regional Development Fund (ERDF) helps small businesses expand and excel, competing in international markets, fostering the growth of new industries and transforming existing ones towards more competitive, innovative, and value-adding activities. The ERDF is expected to tailor its support to local needs and challenges to reduce disparities across regions and territories. During the 2014-2020 period, the ERDF allocated over EUR 45.4 billion to enhance the performance and productivity of Europe’s SMEs. Combined with national co-financing, this allocation amounted to a total support of EUR 62.5 billion.

The range of ERDF instruments mobilised during the 2014-2020 programming period supported SMEs throughout their entire life cycle, from the inception of new companies to their development and maturation phases. The majority of ERDF expenditure (54%) was directed towards business production expansion, productivity enhancement, and modernisation investments for existing SMEs. The second-largest allocation provided liquidity and working capital support (18%), particularly crucial in the aftermath of the COVID-19 crisis.

During the 2014-2020 period, ERDF programmes were the largest source of EU support for SME competitiveness and the latter was the second biggest ERDF objective, following research, development, and innovation support. The initial goal was to assist around 800,000 enterprises, a target that was successfully surpassed. In total, ERDF instruments for SME competitiveness benefited nearly 1.8 million SMEs, either through direct investment support or as end beneficiaries of indirect support services. This represented approximately 8% of all European SMEs, though there were significant variations across Member States and policy instruments.

The lessons learned emphasise the need for a comprehensive, long-term strategy to enhance regional competitiveness by promoting a more coherent and synergistic design and implementation of instruments. This strategy should be tailored to the strengths and challenges of the region’s SMEs. It should build on past experiences but also leave room for incremental adjustments and more risky experimentation to ensure alignment with evolving needs and to find more effective ways of support. It should identify key regional actors in the best position to drive positive regional transformation with the ability to undertake ambitious investments. The implementation of Smart Specialisation Strategies could provide a place-based framework to support such identification.

At the same time, the ERDF should continue to support less capable and dynamic SMEs in developing sustainable business practices and a mindset of continuous improvement, particularly in adopting digital and green technologies. This approach ensures that even if these SMEs are not at the forefront of innovation, they can contribute to the overall twin transition goals through technology uptake without exacerbating existing territorial disparities.

Summary

This work package assesses the contribution of European Regional Development Fund (ERDF) and Cohesion Fund (CF) investments during the 2014-2020 programming period to the objectives under the European Green Deal.

While the overall achievements fell short of the targets, meaningful progress was made across all key sectors, including decarbonisation, adaptation, clean transport and resource efficiency. Notable successes include strong performance in household energy efficiency (with 97% of the target achieved) and biodiversity protection (with 127% of the target achieved in territorial cooperation), although investments in public building efficiency and clean transport lagged behind.

Barriers included administrative capacity constraints, skill shortages and complex project implementation processes, particularly at the local level. Ex-ante conditionalities, while partially effective, often lacked ambition or were not fulfilled in a timely manner, limiting their transformative potential. Traditional grey infrastructure dominated investment portfolios, with limited uptake of nature-based or circular economy solutions. Financial instruments were underutilised due to administrative burdens, market conditions and low perceived attractiveness. Cross-sectoral coordination and the integration of sustainability principles proved beneficial but were inconsistently applied.

Strategic recommendations include prioritising high-impact and transformative investments, strengthening administrative and technical capacities, stepping up support for innovation and climate adaptation and promoting Green Public Procurement. The final report highlights the meaningful role of the ERDF and CF in aligning cohesion policy with the European Green Deal – despite the challenges – underscoring the need for more ambitious, sustainable and systemic investment approaches going forward.

Summary

This work package presents the findings of the ex post evaluation of the cohesion policy programmes 2014-2020 financed by the European Regional Development Fund (ERDF) under European Territorial Cooperation (ETC). Covering 101 programmes and five policy instruments — Interreg cross-border, transnational, interregional, IPA CBC and ENI CBC — the work package assessed their effectiveness, efficiency, coherence, relevance and EU added value. It combined theory-based methods with in-depth case studies across seven policy areas, including environment, innovation, transport, tourism, and institutional capacity.

The report confirms ETC’s contribution to fostering cooperation across borders and supporting integrated regional development, including improvements in public services, environmental protection, and trust-building between regions. Most programmes met or exceeded their output targets, although long-term impacts were harder to measure and varied by context.

Engagement of final beneficiaries and strong local ownership were identified as key success factors for sustainable results. Challenges included administrative complexity, limited coordination between strands, and inconsistent data systems. Lessons point to the need for clearer strategic focus, more harmonised implementation practices, and stronger interlinkages with other EU funds. The findings aim to inform the future design and delivery of ETC, reinforcing its role in promoting cohesion and resilience across EU internal and external borders.

Summary

This work package examines how cohesion policy, through the European Regional Development Fund (ERDF), responded to three major crises between 2020 and end of 2023: the COVID-19 pandemic, the Ukrainian refugee crisis, and the energy crisis. It assesses the relevance, effectiveness, efficiency, coherence and EU added value of the crisis response initiatives CRII/CRII+, REACT-EU, CARE/FAST-CARE, and SAFE. While the ERDF (but also cohesion policy more generally) accounted for a limited share of total crisis funding relative to national spending, it played a targeted and flexible role in cushioning the crisis effects through rapid reprogramming, flexibilities and the use of existing delivery structures.

Findings highlight that the ERDF’s established structures allowed for rapid adaptation, despite the administrative complexity and timing constraints that limited effectiveness in some cases. The report also points to trade-offs between short-term flexibility and long-term cohesion goals, and the challenges of coordinating multiple instruments under pressure.

The EU added value of cohesion policy in addressing region-specific needs and supporting long-term resilience proved essential. Lessons stress the importance of speed, foresight, simplification, and place-based approaches. The work package provides evidence to inform future crisis preparedness and the design of cohesion policy tools under high uncertainty.

Summary

This work package assesses the implementation of Territorial Delivery Mechanisms (TDMs) introduced under the 2014-2020 European Structural and Investment Funds framework. These were designed to enhance place-based approaches to regional development, aiming to improve the responsiveness of Cohesion Policy investments to local needs through integrated strategies and territorial governance. The five TDM types — Sustainable Urban Development (SUD, delivered as Integrated Territorial Investments (ITIs), programme Priority Axes or dedicated programmes), Community-led Local Development (CLLD), and non-SUD ITIs — were applied across Member States with considerable variation in design and uptake.

The study applied a Theory of Change framework through three ‘causality pathways’ to assess the role of TDMs in promoting territorial development. It took a mixed-methods approach, including data analysis, a survey, case studies, and focus groups.

Findings highlight the potentials and challenges of TDMs: while they fostered strategic territorial planning, local engagement, and sectoral coordination, their novelty, limitations in administrative capacity and regulatory complexity represented substantial challenges. Despite initial delays and implementation difficulties, TDMs contributed to decentralisation, strategic coherence, and increased local ownership in some contexts.

The study concludes that while TDMs represent innovative tools for place-based development, further regulatory flexibility, capacity building, and evidence generation are essential for maximising their long-term impact.