Opinion of the Committee of the Regions on "Eurotraining for Local and Regional Authorities in Europe"

(1999/C 198/13)

THE COMMITTEE OF THE REGIONS,

having regard to the decision of its Bureau of 15 July 1998, under the fourth paragraph of Article 198c of the Treaty establishing the European Community, to draw up an Opinion on "Eurotraining for local and regional authorities in Europe" and to direct Commission 7 - Education, Vocational Training, Culture, Youth, Sport and Citizens' Rights to draw up an Opinion on this subject;

having regard to the conclusions of the conference on "Eurotraining for local and regional authorities in the EU" which took place in Barcelona on 5-6 June 1998 organized by the COR, the European Centre for the Regions, the European Institute of Public Administration, the College of Europe and the European Commission;

having regard to the Draft Opinion (CdR 404/98 rev. 1) adopted by Commission 7 on 4 December 1998 (Rapporteurs: Ms Lund and Mr Pujol I Soley),

adopted the following opinion at its 28th plenary session of 10 and 11 March 1999 (meeting of 11 March).

1. Introduction

1.1. The development of the Interregional Conference on Eurotraining for local and Regional Authorities in the European Union, which took place in Barcelona on 5 and 6 June 1998 - organised by the European Centre for the Regions (ECR), Barcelona, in cooperation with the European Institute of Public Administration (EIPA), Maastricht, and the College of Europe (COE), Bruges, supported by the European Commission, the Committee of the Regions and the Government of Catalonia - was a milestone for regions and municipalities in Europe since it was an opportunity to have in-depth discussions about the training needs related to European issues affecting these authorities.

1.2. On the basis of a questionnaire sent to practically all the regions and most cities in the EU and the candidate countries for accession to the EU the Conference identified the needs for European training in certain priority areas and provided information about the administrative structures dealing with European affairs, the human resources component and information concerning the elected representatives and civil servants of local and regional authorities involved in these issues.

1.3. The conclusions of the conference focused on the need for administrations at local and regional level, and of associations of local and regional authorities to prioritise attention on strengthening the capacity of their human resources to be informed on the topics that are of Community interest and to develop activities which are imperative in the field of Eurotraining. The conference also identified training needs in certain priority areas.

1.4. Based on the results of the Conference, the COR proposes that action is taken to improve the professionalism of the human resources of subnational administrations with respect to Community issues.

2. General comments

2.1. The purpose of Eurotraining

2.1.1. The COR proposes to launch a programme on Eurotraining as a necessary instrument for strengthening the European integration process and improving the functioning of local and regional authorities in Europe.

2.1.2. The project aims to improve the knowledge which elected representatives and officials of local and regional authorities in Europe must have on Community issues.

2.1.3. The COR aims to create awareness, within the EU institutions, of its firm belief in the importance of Eurotraining for strengthening the European integration process and promoting the involvement of the citizens in this process. It also intends to transmit this belief to the citizens.

2.1.4. The COR calls upon the public authorities - at Community, national, local and regional level - and the associations of local and regional authorities to pay priority attention to the acquisition of adequate Eurotraining.

2.2. Local and regional authorities in the European Integration Process

2.2.1. The European integration process requires the contribution and involvement of all public authorities as well as all EU citizens. One of the tasks that public administrations can perform in this context is to make public opinion and citizens aware of the different implications of European integration and promote awareness of the EU locally.

2.2.2. From the beginning of the European integration process, there have always been many diverse internal territorial realities in the Member States, resulting from historical evolution, culture and traditions. Local and regional authorities being concerned about the democratic respect of this diversity, which is actually an enriching factor, have participated to various degrees in the European integration process.

2.2.3. However, as a result of the Single European Act, adopted in 1985 - introducing the internal market and economic and social cohesion - the involvement of local and regional governments in European integration has gained in importance.

2.2.4. The Treaty on European Union (TEU) of 1992 provides local and regional authorities, through the creation of the Committee of the Regions, with an important forum for institutional participation in the EU integration process. Local and regional authorities are no longer only responsible for putting the decisions affecting them into practice, but can now also make themselves heard in the Council and the European Commission, in the decision-making process, in the formulation of Community law, in policy-making and in European issues which they believe concern the local and regional authorities of Europe.

2.2.5. The subsidiarity principle should be effectively applied in the Eurotraining programme in the relations between the different government structures of the Member States (central, local and regional) and in accordance with the national constitutional system in force. These administrations will have to ensure that their human resources are properly trained in these fields.

2.2.6. The development of the decentralisation processes in EU Member States, which has led to an increase in competences for these authorities, implies a larger involvement of local and regional authorities in Community affairs.

2.2.7. In this context, local and regional authorities are mainly involved in three different areas: i) the implementation process: given that the majority of EU legislation is actually implemented at local and regional level in many Member States (this includes activities concerning structural policies, public procurement, transposition of rules, participation in programmes, etc.), ii) the EU decision-making process in particular through the role of the COR (in the development of the acquis communautaire, Community standards, European policies, etc.), and iii) the communication of their respective views with regard to issues that concern citizens in order to involve them more closely in the EU's development process as well as relaying citizens' views back to the EU.

2.2.8. All these technical efforts to reinforce the local and regional presence in the Community decision making process and raise awareness among European citizens of EU issues require adequate and continuing training at the level of local and regional authorities.

2.2.9. It is obvious that the increasing responsibility of local and regional authorities is proceeding along the lines of i) strengthening economic and social cohesion, ii) developing cooperation and exchanges between the local and regional authorities and, consequently iii) deepening the European integration process. The ultimate objective being to bring the potential benefit of the EU for the citizens closer to them and to improve their quality of life.

3. Specific comments

Strategic Programme on Eurotraining Activities for local and regional authorities in Europe (2000-2002):

3.1. Content

3.1.1. The Strategic Programme on Eurotraining involves a range of activities in the field of training, transfer of knowledge, consultancy and applied research on European affairs and on issues with a Community dimension which are of interest to elected representatives, public officials, technicians and experts from local and regional authorities in the EU and the candidate countries for accession.

3.2. Objectives and Needs

3.2.1. The Project on Eurotraining will benefit local and regional authorities in the 15 Member States of the EU and the candidate countries for accession to the Union as well as representatives of the European institutions in their understanding of the EU's contribution in meeting citizens' concerns and needs. The following two objectives, for the benefit of the citizens of the EU, should be attained:

3.2.2. To contribute to improving public administration and its service towards the citizen in local and regional authorities and guarantee its creative and effective functioning;

3.2.3. To contribute to promoting regional cohesion, European integration and interregional cooperation.

3.2.4. In order to achieve these objectives, the following training needs of local and regional public administrations with respect to Community issues have to be met:

3.2.5. The need for more professionalism at all human resources levels of administrations of local and regional authorities in the EU with respect to information on European issues including reference to access to Community programmes and their operational procedures;

3.2.6. The need for more effectiveness and efficiency;

3.2.7. The need to improve performance.

3.2.8. Public representatives, elected representatives and public servants should therefore be knowledgeable in these matters and have the opportunity to follow training on Community issues, that is an adequate and continuous Eurotraining.

3.2.9. Vocational training of human resources of local and regional administrations must be considered as a key factor in local and regional development and should therefore be given priority attention, both from the viewpoint of economic resources allocated to this field and from the angle of the support which public authorities should lend to training activities for public servants.

3.3. Characteristic Features of the Programme

The COR proposes the following framework for a such a programme:

3.3.1. It will last at least three years (2000-2002), to be renewable on a mutli-annual basis with appropriate modifications.

3.3.2. It is pan-European, considering that these activities will aim at the local and regional authorities of the 15 EU Member States and the CEEC.

3.3.3. It is strategic, as it indicates the path to be followed by training actions on Community issues in order to improve efficiency in the administrations concerned, to deepen the integration process and enable citizens to fully benefit from this.

3.3.4. It is integral as a whole, but has a differentiated modular structure (see 3.4.1) in each of the six priority areas of Eurotraining (see 3.5).

3.3.5. It has an open character in that other complementary projects could be incorporated.

3.3.6. The content and methodologies of training should be reviewed and updated every year to ensure that the programme is responsive to the diverse requirements of local and regional authorities, their particular political and administrative capacities and their socio-economic context.

3.3.7. Its activities are promoted in partnership and in cooperation between institutions responsible for training and representative associations of local and regional government.

3.3.8. It is open to all elected representatives of governments and officials from local and regional authorities, as well as to professionals, experts, trainers and institutions involved in training in this field.

3.4. Actions

3.4.1. This Strategic Programme involves four initial actions, the following which are to be developed:

- training and transfer of knowledge in the priority areas described below, which will guarantee that local and regional authorities can acquire adequate skills in dealing with European issues in order to i) improve the efficiency of their administrations by means of having better knowledge of EU rules, policies and procedures, ii) ensure their involvement in the process of change taking place across Europe, and iii) promote greater economic and social cohesion;

- carrying out consultancy tasks relating to European issues, for local and regional governments and administrations in the Member States and the CEEC where a defined gap in existing knowledge or in training facilities has been firmly established;

- carrying out studies and applied research for local and regional authorities;

- carrying out activities relating to institutional development through the promotion of an informal forum for exchange of ideas and experiences between various local and regional governments and administrations and training centres in Europe.

3.5. Priority Areas

The COR identifies the following as priority areas regarding training for local and regional authorities in Europe:

3.5.1. The institutional and legal field of the EU/Community policies/Comparative data of the Member States

3.5.1.1. Examining the present situation, analysing adaptations that will have to be implemented by the Community institutions, their structures, relations between various levels of administration as well as the way in which subnational levels are involved with the national level over their respective policy positions and decision-making on European issues; the examination of administrative procedures, the acquis communautaire, Community rules. Training in these areas will enable governments and administrations concerned to develop a sound way of managing their human resources.

3.5.2. Economic and social cohesion and cooperation

3.5.2.1. For the local and regional authorities in the EU - but also for the candidate countries - the orientation and new package of financial measures for 2000-2006 presented by the European Commission in Agenda 2000, the new guidelines of the Structural Funds, the new regulations, the improvement and simplification of their management, the drafting of local and regional programmes, general EU policy initiatives and proposals, comparative studies on the politico-administrative structures of the Member States and the candidate countries, etc.; these pose a challenge with respect to the adaptation to new procedures and eligibility and programming criteria. These factors will also determine the capacity of subnational governments to make effective use of the Structural Funds as well as other EU programmes and initiatives. For these governments, well- tailored training and practical training in these fields are essential.

3.5.3. Exchanges, partnerships and twinning

3.5.3.1. Local and regional authorities and their national and international associations also contribute actively and in a practical way to the European integration process through exchange of experiences which depending on the case have positive as well as negative results. Knowing and analysing the strong and weak points of these experiences will be very useful in defining the best approach to be followed in the coming years. Special focus should be given to the preparatory phase which can determine the success of a cooperation project. Local and regional authorities have to play a very important role in this framework, considering their proximity to and their knowledge of the actual grassroots situation and considering their flexibility in implementing actions. Cooperation and exchanges at European level between different subnational administrations and their national and international associations can bring considerable added value, particularly in the case of administrations that have similar needs. Their contribution to creating and developing a partnership framework between different training centres could therefore prove important. Special attention should be paid to the effectiveness of twinning as a way of developing and strengthening public administrations. Twinning can indeed serve as a useful means of comparing the different ways in which all the various services to citizens are organized, enabling the most efficient to be singled out and put into use.

3.5.4. Economic and financial fields

3.5.4.1. The economic and financial fields will be of paramount importance in the period 2000-2006. This explains why programmes with an economic content and measures aimed at financing policies and programmes for this period need to be analysed in depth. Knowing how regions and cities - being centres of investment, innovation and research - can use the new opportunities for growth and employment, how they can manage scarce resources, improve their output and better apply Community policies, in the European framework of Economic and Monetary Union and globalisation, will contribute towards promoting local and regional development.

3.5.5. Candidate countries for accession to the EU

3.5.5.1. The recently launched actions that will have to be developed in the coming years with the candidate countries during the pre-accession and accession periods are really necessary if the next stages in the development of the EU are to be successful. These should be undertaken in full recognition of the diverse specificities in training needs that exist across the candidate countries. Knowledge in these countries of the political and administrative structures of the various EU Member States and comparative experiences, at national as well as at local or regional level, may be useful in the development of their own management structures and in managing and coordinating matters related to the EU. A better management as well as increased awareness of EU programmes and initiatives, a strengthening of their capacity to make effective use of these, the application of the acquis communautaire in local and regional matters and the inclusion of these countries in a network formed by the Member States are all aspects that have taken on great importance.

3.5.6. Management skills and practical knowledge

3.5.6.1. This is a horizontal field that concerns the skills, communications and inter-cultural skills, required to manage European dossiers and the methodology for acquiring skills which are indispensable in this framework. Organisational capacity, management skills, the ability to promote project development and negotiation skills are the key issues in this field which are mainly of a practical nature. Account should also be taken - but not separately - of these practical aspects of management during the implementation of training activities in each of the above-mentioned priority areas.

3.6. Target Group

3.6.1. As regards the target group, the project should be open everyone and consequently the participants may be politicians, public servants, academics, experts and trainers responsible for local and regional authority training programmes from the EU Member States and from the candidate countries for accession to the EU.

3.6.2. Special training actions should be developed for the younger generations of civil servants and elected representatives, since they will be the future public authority managers in the local and regional authorities of Europe.

3.7. Countries Involved

3.7.1. The Eurotraining project is intended for the 15 EU Member States and the candidate countries for accession; training centres that wish to partake in the project may be involved in its organisation and development through the bodies that are created for that specific purpose.

3.8. Implementation

3.8.1. For the implementation of the Eurotraining Programme, the European Commission could benefit from the work that has already been initiated by some European training institutions and from the networks of public administrations operating in this field. Courses must take place as close to the local and regional authorities as possible to facilitate the participation of administrators and officials from local authorities, the smallest of which in particular possess limited economic resources.

3.8.2. Associations of regional and local authorities may play a special role since they are able to further disseminate information and since they also generally embody the political level, which is particularly important to opinion-forming. The Eurotraining project should take account of existing networks.

4. Conclusions

4.1. Considering that it is imperative that all public authorities, at all levels, must become involved - in accordance with the Treaties - in the European integration process so as to give it greater momentum and to ensure that citizens are provided with better and more accurate information in order to bring them closer to the opportunities offered by the institutions and policies of the EU, the Committee of the Regions calls on the Council and the European Commission to take the following conclusions and recommendations into consideration:

4.2. The Committee of the Regions maintains that the Community institutions, the national administrations and the local and regional authorities and their associations must give priority attention to the continuous training in European affairs of local and regional authorities in the EU Member States and in the CEEC, in order to strengthen their participation in the future development of the EU and to contribute towards a greater transparency of the EU and towards greater proximity of citizens to the EU. The COR believes that this will ensure the effective inclusion of a European civil society into the new Europe.

4.3. The Committee of the Regions recommends that economic and human resources matching the required needs be allocated to this project, particularly by the Community institutions, in view of the obvious Community interest of this type of action for subnational administrations.

4.4. The Committee of the Regions believes that, moreover, the staff of these administrations and the leaders of local and regional governments should be encouraged to participate in these training activities.

4.5. The Committee of the Regions considers that, the updating of the knowledge within local and regional authorities and administrations in Europe will strengthen their Community identity. This objective can only be achieved if the role of these administrations, their associations and existing networks is supported and if a strategic programme of Eurotraining activities for local and regional authorities in Europe - as an ongoing and long lasting process - is adopted and financed.

Brussels, 11 March 1999.

The President

of the Committee of the Regions

Manfred DAMMEYER