... But the ECB action came before the EFSF funds have/had been activated. present perfect/past perfect

Hello,

I have recently read an article (http://www.reuters.com/article/2012/02/28/us-eurozone-idUSTRE81R0PI20120228 )

There is a paragraph:

Anticipating such temporary downgrades, the euro zone and ECB had struck a deal whereby Greece would receive 35 billion euros in support from the EFSF rescue fund to enable the central bank to continue accepting Greek bonds and other assets underwritten by Athens in its lending operations. But the ECB action came before the EFSF funds have been activated.


Could somebody explain to me why is there used present perfect (passive) have been activated? Could I use past perfect had been activated since there is came- past simple?

Thanks

m