Opinion of the Committee of the Regions on 'Regional nature parks: examples for the sustainable development of the most sensitive areas of the EU` (97/C 215/02)

THE COMMITTEE OF THE REGIONS,

having regard to its decision of 12 June 1996, under the fourth paragraph of Article 198c of the Treaty establishing the European Community, to issue an opinion on 'Regional nature parks: examples for the sustainable development of the most sensitive areas of the EU`, and to instruct Commission 2 for Spatial Planning, Agriculture, Hunting, Fisheries, Forestry, Marine Environment and Upland Areas to undertake the preparatory work;

having regard to the draft opinion (CdR 2/97 rev.) adopted by Commission 2 on 12 February 1997 (rapporteur: Mr Joseph);

having regard to the Treaty on European Union of 7 February 1992, the principal objectives of which (Article 2) include the promotion of sustainable growth respecting the environment;

having regard to the Community programme of policy and action in relation to the environment and sustainable development, and more especially Articles 25, 26 and 27 thereof concerning agriculture and Articles 28, 29 and 30 concerning tourism;

having regard to the Cork declaration on a living countryside;

whereas it is necessary to draw up an integrated spatial planning policy for rural areas that lays emphasis on ecological balance and leads to the participation of all relevant authorities;

whereas the achievement of sustainable development of the EU's rural areas is bound to be a long-term exercise, and whereas pilot areas are therefore essential;

whereas the EU Member States have protected landscapes, whether or not they feature on the list drawn up by the International Union for the Conservation of Nature and Natural Resources (IUCN), and whereas these protected landscapes can be the catalyst for such a policy;

whereas regional nature parks have acquired experience in this area and play a pilot role in the Member States where they exist;

whereas a network of EU protected landscapes, managed by the local and regional authorities in partnership with the socio-economic players and in close liaison with the national and EU authorities, can inject new momentum into EU rural areas;

whereas with a view to ensuring effective, sustainable protection and exploitation of the most sensitive natural areas, it is vital to involve the economic players and local and regional authorities in the management of these areas,

adopted the following opinion at its 17th plenary session on 12 and 13 March 1997 (meeting of 12 March).

INTRODUCTION

Regional nature parks are not found in all EU Member States. The International Union for the Conservation of Nature and Natural Resources (IUCN) has produced a list of 'protected landscapes` in the Member States. These are sensitive inhabited natural areas, defined as follows: 'Area of land, with coast and sea as appropriate, where the interaction of people and nature over time has produced an area of distinct character with significant aesthetic, ecological and/or cultural value, and often with high biological diversity.

Safeguarding the integrity of this traditional interaction is vital to the protection, maintenance and evolution of such an area.`

The present opinion considers all areas which meet the above criteria, whether or not they feature on the IUCN list, as they are also included in the park network. These areas are treated in the same way as the areas on the list.

The experience of regional nature parks is useful when considering the management of such areas, and the European Union also has a role to play in disseminating fruitful experience.

The quality and diversity of the EU's natural areas and landscapes are a matter of concern to everyone.

The priceless heritage of these areas is today in danger of being debased by a wide range of factors which has broken the centuries-old balance between nature and traditional human activity. Some of these factors are well known: poorly integrated public facilities, poorly regulated urbanization, environmental damage caused by agriculture, industrial pollution, and over-exploitation of natural resources. Others are less apparent (too many visitors to some areas, pursuit of certain sports in the countryside, alteration of river regimes, loss of landscape diversity) and may even seem paradoxical (flight from the land and disappearance of traditional rural activities such as pasturage).

Action is needed at EU level to preserve the features which mark a region's identity in terms of tourism and landscape, both for short-term economic reasons such as survival of tourism and the quality of life of local residents, and for future generations to whom we must pass on the heritage handed down to us.

To preserve these precious areas, action is needed on two fronts:

- deploy all means to ensure that the public policies conducted in these fragile areas are mutually consistent;

- introduce appropriate provisions in EU policies, including the Common Agricultural Policy, to further objectives involving the protection and development of regions displaying such local diversity.

1. Sensitive natural areas and EU issues

The present opinion will not consider all rural areas of the EU, but only those whose landscapes are particularly sensitive.

It will consider natural areas which are sensitive because of the close relation between man and nature. Such areas include coastal, wetland and upland regions.

These sensitive inhabited natural areas meet the IUCN definition given at the start of the present opinion.

The opinion considers regional nature parks, with a view to putting forward a practical model for the sustainable development of areas which are particularly vulnerable in terms of nature protection and landscape conservation.

Pursuant to the Rio agreements, sustainable development is now an EU priority.

Sustainable development is to be attained gradually, in accordance with the undertakings made under Agenda 21.

Regional nature parks could provide useful examples for other rural areas, and spearhead the launch of this new policy.

The aim of regional nature parks is to base the economic development of their region on the conservation and enhancement of their assets, in a naturally, culturally and socially compatible manner. This aim, and the means used to further it, perfectly match the objectives of sustainable development.

1.1. Landscape policy

A policy of landscape stewardship for 15 different countries is no easy matter, given the diversity of legal situations. Nonetheless, political, social and economic leaders are greatly exercised by this issue.

The need to safeguard the natural heritage is a shared and pressing concern for the peoples of the 15 Member States, but concrete action is a more difficult matter, because of the wide variety of legal instruments involved.

As regional nature parks are locally based and implement their development plans on the basis of joint consultations, they are well placed to accommodate this variety of situations within the EU.

1.2. The changing course of the Common Agricultural Policy

Regional nature parks are particularly vulnerable to upheavals in rural society. They are benchmarks for the limitations of the policies conducted in rural areas.

They can thus be used as testing grounds for the CAP's impact on the most vulnerable areas in the EU, for instance when considering ways of furthering the CAP's agri-environmental measures, such as the framing of long-term contracts with local farmers.

A number of proposals are put forward below.

1.3. Implementation of the 'habitats` Directive

National and regional spatial planning policies will be affected by Nature 2000, the future network of nature conservation areas that will result from the EU 'habitats` () and 'wild birds` () Directives. The Nature 2000 areas will be designated according to their importance for the conservation of certain animals, plant species or environments which are rare or endangered at European level (lists defined in the Annexes to the Directives). The areas are still under consideration at present.

Regional nature parks which make an inventory of local assets before planning their future course are particularly well placed to contribute to the establishment of the new network, in collaboration with the bodies responsible for land management.

1.4. Adding value to local products by a quality mark

The parks have a registered mark which, by offering the consumer a guarantee in the form of detailed quality specifications, provides an excellent way of adding value to local agricultural and craft products. Consumers view the mark very favourably, as was noted in the COR Opinion on promoting and protecting local products - a trump-card for the regions ().

The quality mark can be a useful tool for promoting local farm produce and craft products.

As well as being important outside the park, the quality mark is an excellent way to boost sales locally and strengthen regional economic solidarity.

Steps should be taken to ensure that such action is compatible with the provisions of Regulation (EEC) No 2081/92 () on designations of origin and geographical indications for foodstuffs.

1.5. Development of green tourism

The park network offers an opportunity for managed tourism development. It is ideally placed to meet Europe's growing demand for green tourism. It offers European consumers a guarantee of a safeguarded natural area and a high-quality service. Cooperation could usefully be stepped up with a view to establishing farm accommodation and catering networks.

1.6. Environmental education

Because the parks are involved with environmental protection in their daily work, they form extremely useful teaching aids. They demonstrate, day after day and through practical examples, that maximum concern for the environment is not incompatible with economic development but enhances the value of the EU's rural areas. This is the meaning of sustainable development.

1.7. Employment

Supporting agricultural employment and fostering non-farm employment - especially tourism - in rural areas is now a key objective of the Member States. By helping to make public policies more consistent and using local resources without destroying them, regional nature parks provide an excellent instrument for creating long-term jobs in rural areas.

2. Regional nature parks as testing grounds for agricultural policies concerning land management

Agricultural policies are crucial to the way land is managed, and they are largely determined at EU level. A number of recommendations, drawing on experience in the parks, can usefully be put forward with a view to sustainable land management.

To this end, data collection can be organized through networking by existing research centres.

Forestry and town planning policies also play a vital role. However, as these policies still remain the responsibility of the Member States, the present opinion will refer only to the European Commission's flanking measures in these fields.

2.1. The need to anticipate change so as to build a more lasting agricultural policy

The 1992 reform of the CAP was backed up by agri-environmental, afforestation and early retirement schemes financed by the guarantee section of the EAGGF. The reform is radically altering the relations between agriculture and the environment in rural and agricultural areas. The practical consequences of the reform will only become clear in a few years. The flanking measures - especially those designed to promote environmentally-friendly farming practices and landscape conservation - should be continued and developed as an autonomous aid instrument.

Many of the measures were initially scheduled for a five-year period, so they will be assessed after five years of implementation.

The agri-environmental measures, for instance, provide for five-year contracts, and rotational and non-rotational set-aside under Regulation (EEC) No 1765/92 () is for a five-year period.

A preliminary assessment of this first stage is necessary in order to begin preparations for the next stage. This is particularly important as the first stage has highlighted the need:

- to update the socio-economic benchmarks;

- to pinpoint specific regional needs;

- to extend debate beyond the production of foodstuffs. Land ownership and land-use are also key issues, and to ignore them would put a brake on incipient trends.

A pro-active approach to technical, economic, sociological and procedural issues is thus needed. In this way, new proposals can be made for adapting the regulations to the changing situation.

2.2. Recommendations for regional nature parks and sensitive natural areas

Regional nature parks, as local testing grounds, are ideally placed to respond to these needs.

They are able to anticipate and recommend concrete action because:

- for several decades now, they have made integration of agricultural and environmental concerns a key policy aim;

- their local base enables them to identify the areas where general regulatory policies fail to meet local needs. Hence they can play a diagnostic role;

- their staff provide the intellectual input and multidisciplinary skills needed for drawing up practical proposals;

- they are in regular touch with rural development players at both national and local level: elected representatives, institutions, professional groupings. In the course of their work, they also establish links with research and training centres.

In relation to these two needs, and given their special nature, the parks recommend action at two levels.

These recommendations could be embodied in a contract between the Member State, the European Commission, and the parks. Each will cover a clearly defined area.

The idea of such contracts is jointly to establish concrete objectives and assess them in order to draw the appropriate conclusions.

Research and training bodies (agricultural training, training of local officials, etc.) could also be involved, on a contractual basis, with a view to evaluating and disseminating the information obtained.

The contracts should focus on the following areas:

a) Adjusting or giving better consideration to existing measures

- The set-aside and agri-environmental measures may undoubtedly help to reduce production. But there is scope for improving their ecosystem, landscape and natural-resource aspects.

Some regional nature parks have already held detailed discussions with farmers about the implementation of clearly targeted environmental measures. The parks would like to suggest ways of improving the system so that environmental concerns are accommodated more fully.

The Commission and Member States are asked to give the parks a leading role in pilot schemes.

- Consideration of how farms can adapt to a new role: facilities for the public

Public access brings a need for a major shift in culture, but consideration must also be given to logistical problems, such as different types of access (permanent free access, or accompanied) and their impact on animal husbandry, distribution of watering points, and security of property and of persons.

These considerations, applied to such widely differing areas as wetlands and uplands, could prompt practical adjustments to EU legislation (Regulation (EEC) No 2078/92, Article 2) ().

- Promotion of forms of land stewardship which respect the biological quality of the environment. This would apply inter alia to public areas (e.g. land owned by local authorities, grazing land, waterways). Consideration should be given to ways of improving the management of such areas.

b) Extending scope for regional action in pursuit of structural agricultural and flanking measures

- Methods and tools needed to implement agri-environmental management contracts:

consideration of legislative instruments in the light of the information obtained in pilot areas. What sort of contracts should be concluded with farmers? In what cases could a contract be concluded with a land-owner? For what period should such a contract be signed in order to have a real impact on the environment?

consideration of the diagnostic tools needed before the contracts can be signed: inventories, maps identifying and classifying endangered areas (biological, landscape).

- Establishment of technical and economic parameters for 'green` production methods (extensive or organic farming) with a view to drawing up contracts and specifications geared to local needs.

- Improvement of agro-forestry balance: what sort of afforestation is acceptable on agricultural land, with a view to respecting biodiversity, landscapes and the economic viability of agriculture and forestry?

c) Recommendations for situations that are set to assume key importance, but that are neglected in existing regulations

- Heritage production rights: extensive farming is now viewed as a useful way of tending the land. Many operators call for upgrading or rehabilitation of land by using it for extensive animal husbandry. However, this raises some practical problems.

One key question is the distribution of grazing animals. Despite the appreciable aid for farmers who switch to extensive animal husbandry, the lack of grazing animals often poses a problem.

There thus seems little hope of replacing cash crops by extensive farming and rehabilitating land, the abandonment of which threatens the environment, unless serious thought is given to distributing production rights according to regional needs.

These production rights should also apply to other products.

The COR feels that:

- this issue should be addressed unambiguously at European level;

- regional nature parks should conduct pilot schemes for the granting of production rights and 'environment premiums`, linking production to land management.

Farmers in the parks could be granted production rights if they undertake to comply with a list of requirements ensuring that they farm in a manner respectful of the local environment, countryside and land-use, and providing a guarantee of the quality of their produce.

The 'heritage` production rights would be coordinated with conventional production rights so as not to distort competition.

The scheme would be set up on the basis of voluntary projects for a trial three-year period, after which the results would be assessed. To ensure that a specific pilot policy is being pursued, a contract would be signed by the European Commission, the Member State, the relevant local/regional authorities, and the parks.

Land without farmers

At present, many management contracts are concluded with farmers. This is important, as the right type of farming helps to safeguard the environment and the countryside.

In some regions, however, the number of farmers has fallen so significantly that there are no longer enough to look after the land.

It is worth examining the question of management contracts with owners of farmland and woodland.

The objectives, content and legal form of such contracts should be considered, and how they would intermesh with the contracts concluded with farmers so as to avoid any competition.

Similarly, the question of persons partly dependent on non-farm activities should be examined, for both its technical and policy implications. What type of contracts should be concluded with them? How should this category be defined?

3. The principles underpinning regional nature parks

The uniqueness of regional nature parks lies in the fact that they are set up both to protect the environment and to further the economic development of vulnerable areas.

A regional nature park is a group of local districts which, with the help of the regional and departmental authorities, shape their development by negotiating a regional plan which is then given concrete state endorsement in a ten-year charter. The role of the park covers the spatial planning of the area and its sustainable economic development. It acts as a locomotive and promotes cohesion, ensuring that policies and measures work in concert for the balanced management of the area. To do this, it works with the area's different players.

Such parks rest on four key principles:

1) A spatial approach: the parks draw not only on all the physical and bio-geographical features of the area but also on its culture, traditions and identity.

2) The parks are built around a plan. This is helpful because rural communities very often find it difficult to plan ahead and to instigate joint schemes.

3) The contractual aspect: once the plan has been prepared, a contract is signed between the relevant partners, local/regional authorities and the State, which guarantees that the plan is carried through. This is very important, as it provides political and financial support for a clearly defined area which is enshrined in a common plan.

4) The establishment of a management structure (made up of the relevant local/regional authorities) responsible for implementing the plan. This is a good example of the subsidiarity principle: the area takes responsibility for its own development under the contract which its representatives have signed with its partners.

This structure also provides an ideal channel for consulting and mobilizing all the local and institutional players. The resultant multi-disciplinary team injects the technical, administrative and financial expertise which is the driving force in the local development of regions which have been significantly affected.

Regional nature parks should be recognized and supported as an instrument for furthering sustainable development. Given that they act as role models for the adjustment of farm structures and the promotion of rural development, they should receive greater support as pilot projects under Article 8 of Regulation (EEC) No 2085/93 on the EAGGF Guidance Section ().

4. Towards a European network of regional nature parks and sensitive natural areas

The commitment to sustainable development of the EU's rural areas is irreversible, and the common agricultural policy and regional policies will need to be adjusted accordingly.

Such changes will necessarily be incremental, and will require time and thought. The COR proposes that they first be tried out in the EU's most sensitive inhabited rural areas where sustainable development schemes are conducted.

The new network could become a catalyst for more consistent nature and landscape conservation, sustainable development and regional policies, managed jointly by the Member States and the regional authorities.

CONCLUSIONS

The Committee of the Regions asks the European Commission:

1. to expand the flanking measures of the Common Agricultural Policy, with special emphasis on the promotion of environmentally-friendly production methods and landscape conservation. The Commission should lay down the framework conditions but leave the planning and implementation of environmentally-friendly production to the Member States and regions;

2. to facilitate the establishment of a network for trying out the proposals set out in the present opinion, drawing on the protected areas of the various Member States which wish to participate. The network will be responsible, with the Commission's support, for the following topics:

2.1. consideration of how farms can adapt to a new role: facilities for the public;

2.2. promotion of forms of land stewardship which respect the biological quality of the environment;

2.3. methods and tools needed to implement agri-environmental management contracts;

2.4. establishment of technical and economic parameters for 'green` production methods;

2.5. improvement of agro-forestry balance;

2.6. trial use of heritage production rights, with due regard for the relevant national legislation. The trial period would last for three years and would be followed by an assessment of results;

2.7. the question of management contracts with landowners;

2.8. trial introduction of long-term contracts with farmers and foresters;

3. to facilitate networking and relations between protected landscape areas, so as to speed up the implementation of the fifth environmental programme there, with due regard for regions' room for manoeuvre under the first paragraph of Article 3b of the EC Treaty and the second paragraph of Article 4(1) of the EC Treaty;

4. to draw up a report on the manner in which the recommendations of the fifth environmental programme are being implemented in protected landscape areas of the EU;

5. that this report be drawn up in partnership with the local and regional authorities responsible for the management of these protected landscape areas;

6. to contribute to the implementation of a training programme for elected local representatives and technical experts responsible for the management of these protected landscape areas.

Brussels, 12 March 1997.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

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