Opinion of the Committee of the Regions on the 'Proposal for a European Parliament and Council Decision concerning the Fifth Framework Programme of the European Community for research, technological development and demonstration activities (1998-2002)` (97/C 379/07)

THE COMMITTEE OF THE REGIONS,

having regard to the Commission proposal to the European Parliament and the Council [COM(97) 142 final - 97/0119 (COD)] ();

having regard to the decision taken by the European Commission on 30 April 1997, under the first paragraph of Article 198c of the Treaty establishing the European Community, to consult the Committee of the Regions on the matter;

having regard to its decision of 8 March 1996 to instruct Commission 7 (Citizens' Europe, Research, Culture, Youth and Consumers) to draw up the opinion;

having regard to the Commission Communication 'Inventing Tomorrow: Europe's research at the service of its people` (COM(96) 332 final);

having regard to the Commission Working Paper 'Towards the Fifth Framework Programme: Additional material for the policy debate` (COM(96) 595 final);

having regard to the Commission Working Paper 'Towards the Fifth Framework Programme: scientific and technological objectives` (COM(97) 47 final);

having regard to the Committee of the Regions' Opinion on the Proposal for a European Parliament and Council Decision adapting for the second time Decision No 1110/94/EC concerning the fourth framework programme of activities in the field of research, technological development and demonstration (1994-1998), as adapted by Decision 616/96/EC, and the Proposal for a Council Decision adapting for the second time Decision 94/268/Euratom concerning the framework programme of activities in the field of research and training for the European Atomic Energy Community (1994-1998), as adapted by Decision 96/253/Euratom` ();

having regard to the Committee of the Regions' Opinion on the Green Paper on Innovation` ();

having regard to the Committee of the Regions' Opinion on the Commission Green Paper on 'Education - Training - Research: the obstacles to transnational mobility` ();

having regard to the Committee of the Regions' Opinion on the First action plan for innovation in Europe - innovation for growth and employment` ();

having regard to the five-year assessment of the European Community RTD Framework Programmes by an independent panel chaired by Viscount E. Davignon;

having regard to the draft opinion (CdR 158/97 rev.) adopted by Commission 7 on 11 July (rapporteur: Mrs Tallberg),

unanimously adopted the following opinion at its 19th plenary session on 17 and 18 September 1997 (meeting of 18 September).

1. Premise

1.1. The Committee of the Regions welcomes the Commission proposal concerning a Fifth Framework Programme for research and technological development (1998-2002). The proposed action areas provide considerable scope for development at regional and local level.

2. General comments

2.1. The Committee of the Regions appreciates the Commission's approach: the communication and working paper have provided ample opportunity for participation in framing the final proposal. The fruits of future initiatives will help support development and solve local and regional problems. Continued dialogue is vital to exploit the opportunities created by the forthcoming framework programme.

2.2. The Committee of the Regions endorses the Commission proposal for the six programme areas and declared objectives, but would suggest certain additions and amendments. The Committee would, from the outset, emphasize that the most important decisions, from the point of view of regional and local authorities, are taken when the details of the programme areas and subsequent amendments are framed. It is extremely important that the Committee should be consulted and able to participate before decisions are taken in these areas.

2.3. The Committee of the Regions wonders whether the Commission will actually be able to implement the specific programmes itself, as proposed. The six programmes are of such importance to regional and local level authorities that the Committee of the Regions is keen to be consulted before the specific programmes are finalized, and prior to the review to be carried out during the lifetime of the programme.

2.4. It is important that R& TD also makes a contribution towards solving the problems currently facing society. Research policy should therefore, in accordance with the recommendations, be framed in such a way that it provides greater support than at present for both the needs of regional and local communities and for EU policies.

2.5. Many of society's problems with which the EU deals have a particularly strong impact at regional and local level. These include unemployment, fewer taxpayers in the workforce, environmental problems, an ageing population, etc. Initiatives are needed to enable citizens to recognize the scenario and realize that the solutions will benefit them in their own locality.

2.6. The Committee of the Regions would highlight the regional and local interplay which exists between the Structural Funds and R& TD. This is enhanced by national, regional and local development assistance. Different initiatives focussing on the same target area need to be coordinated at regional and local level.

2.7. The Committee of the Regions has issued an own-initiative opinion on the Commission Communication on priorities for consumer policy 1996-1998 (). The Committee endorsed the proposal to extend consumer protection to areas such as public utilities and food safety measures to promote consumer patterns which can promote sustainable development in the environment and public health sphere.

2.8. The Committee of the Regions believes that the regional and local authorities - the decision-making levels closest to citizens and economic players - must participate actively in the implementation of the forthcoming Fifth Framework Programme. There is considerable interest in this type of participation.

2.9. The Committee of the Regions would emphasize the potential for setting up regional research institutes. By backing the creation of such institutions, regional and local authorities can boost know-how in areas which are of particular importance to them. Dissemination of know-how is speedy, and closely involves practitioners and users.

2.10. In its Communication 'Inventing Tomorrow` (), the Commission sets out the challenges and opportunities facing the EU and the Member States. The Committee of the Regions shares the Commission's viewpoint, but would nevertheless highlight the following areas, which are just as important as the issues raised in the working paper and should, accordingly, be taken into account:

- the ageing population, coupled with other changes in society, requires appropriate action, e.g. in areas such as national and international shifts in population trends, the ageing process, preventive action for age-related illnesses and care;

- the sheer pace of development in information and communications technologies is creating new opportunities to improve the quality of life, education and the working environment for people with disabilities;

Development removes the obstacles which made it impossible for the disabled to take part in society on the same terms as other citizens.

- at the UN Conference in Rio, the heads of government agreed to frame local Agenda 21 programmes. Competence for this work lies with the regional and local authorities, and the aim is, inter alia, to convert to environmentally-friendly production methods, new environmentally-friendly products, and a switch from recycling to a cyclical production mode;

- information and communications technologies must be harnessed to serve democracy at local, regional and national level as well as within the EU to promote information and dialogue with the citizen;

- unemployment is a huge problem for the individual citizen and for their regions and municipalities. Regional and local authorities are making concerted efforts to create job opportunities and mitigate the impact of unemployment;

- problems in society as triggered, for instance, by unemployment, traffic accidents, violence and drugs, alcohol and other types of dependency, increase the risk of an unhealthy population;

- the need to highlight particularly the needs and options of children and young people in respect of the on-going changes in society;

- initiatives under the Fifth Framework Programme must be accompanied by a statement of the impact they have on men and women, and of the extent to which male and female researchers have equal access to the programme. Research has shown that the playing field is still not level for men and women in various areas;

- initiatives to promote regional and local development must be of the highest quality. They must be backed by development initiatives focusing on specific regions, to enable them to participate on the same terms. The objective must be to achieve cohesion at this high level;

- the growing interest in development cooperation between the countries of the Mediterranean basin and the Baltic Sea countries must be boosted, and exchanges of experience and know-how between them increased. Cooperation of this kind, coupled with research, can lead to social cohesion;

- regional and local authorities are heavily involved in the transport of passengers and goods, and in the attendant problems;

- mobility within the single market might need encouraging through research to point out possible patterns for life in a multi-ethnic society.

3. Specific remarks

3.1. Organizing the programmes: greater focus and efficiency

3.1.1. Content of the 'thematic` programmes

The Committee of the Regions calls for the document to include a socio-economic chapter in which research spans society as a whole, rather than focusing only on areas divided up into 'key actions`. Taken individually, the proposed elements of socio-economic research are slight. Added up, they do not cover all the areas which could be affected by the proposed 'key actions`. A specific, thematic programme area is needed to put the impact of the various initiatives in a larger context.

3.1.2. Key actions

3.1.2.1. The Committee of the Regions welcomes the fact that large components of the programmes are to be implemented with users and consumers in mind. Regional and local authorities have a key role to play in framing the individual programmes and disseminating the fruits of research.

3.1.2.2. The Committee of the Regions notes that implementation of the key actions will be from a bottom-up perspective. The programmes will therefore have to be underpinned by this approach. This means that the programme leaders must be - or become - familiar with the views of consumers and users, etc.

3.1.3. Coordination and flexibility

3.1.3.1. The Committee of the Regions calls for improved programme coordination in the forthcoming Framework Programme. This should not, however, get in the way of simplifying administrative procedures for the programmes; nor should it be at the expense of the subsidiarity principle.

3.1.3.2. The Committee of the Regions endorses the need for a 'free space`. The Committee expects to be consulted before any initiatives are framed and implemented.

3.1.4. Improved and adapted management methods

3.1.4.1. The Committee of the Regions wonders whether the Commission will actually be able to implement the specific programmes itself, as proposed. The programmes are of great importance to regional and local authorities. When framing the various solutions, priority must be given to the needs of consumers and users. The Committee's reservations stem from the fact that a Commission group is too remote from the municipalities, regions, users and consumers, to be able to take account of their interests when framing the specific programmes. The creation of an advisory group including local and regional representatives would help to quell some of these reservations.

3.1.4.2. The Committee of the Regions expects that arrangements will be made for consultation between the Commission and local and regional representatives, so that the latter's know-how and the concerns they share with the regions and municipalities can be taken on board.

3.1.5. Financial and budgetary aspects

3.1.5.1. The Committee of the Regions feels that the scope of the forthcoming 5th Framework Programme's financial framework should at least be equal to that of the current Framework Programme and that it should accommodate local and regional projects in need of this type of funding. The proposed breakdown of funding among the various components of the new Framework Programme appears to be well-balanced.

3.1.5.2. In future, the Committee of the Regions wishes to be consulted before decisions relating to the specific programmes are taken. The framing of these programmes will influence development, and consequently be of major importance at regional and local level.

3.2. The criteria for selecting the themes and objectives of Community activities

3.2.1. The Committee of the Regions endorses the Commission's proposed research objectives, which give equal weight to maintaining and improving the quality of European research, to citizens' needs and European competitiveness. The Committee regrets the proposal's omission of the detail which the Commission's working paper () provided in this area.

3.2.2. The Committee of the Regions would point out that the criteria must be interpreted in such a way that the fruits of research can also be oriented towards know-how and technology which can be exploited for the good of the citizen by business and social institutions alike.

3.2.3. The Committee of the Regions endorses the criteria related to European 'added value`, but would stress that concrete EU measures might be needed to build up a 'critical mass` in some regions, to enable them to participate in various research areas. This could be done within the framework of the three horizontal programmes, for example.

3.3. The programmes: content and objectives

3.3.1. The Committee of the Regions would emphasize the need for multi-disciplinary activities. These are often called for in issues affecting the regional and local level. Coordinated initiatives are a precondition for multi-disciplinary action.

3.3.2. The Committee of the Regions would emphasize the importance of providing support for research infrastructures so as to pave the way for successful projects in all parts of the EU.

Thematic programmes

3.3.3. 'Unlocking the resources of the living world and the ecosystem`

3.3.3.1. The living world and the ecosystem (I): health and food

The Committee of the Regions would suggest - in the wake of 'Mad Cow` disease, public scepticism regarding food quality, and lately, genetic engineering, that a sub-programme be set up for the benefit of both consumers and producers. All aspects of food production, such as quality control, optimization of nutritional value, and safety should be encompassed. It should be pointed out that, in many countries, it is the local authorities which are responsible for food inspection. The Committee of the Regions is also in favour of prioritizing research into new foodstuffs, such as those which have therapeutic and preventive properties

3.3.3.2. The living world and the ecosystem (II): control of viral and infectious diseases

- The Committee of the Regions believes that public health is of the utmost importance. It is also one of the EU's areas of competence under Article 129 of the Treaty. Action must be taken to curb health hazards, and to raise - particularly via preventive measures - the standard of health enjoyed by various sections of the population in different countries to optimum levels. This should be reflected more clearly in a higher profile for public health and a greater share of available resources than is currently the case.

- The Committee of the Regions calls for a broader action area in order to shed light on the impact of an ageing population. More information is needed on how requirements can be met and the attendant problems solved. Research could focus on demography, age-related illnesses and their impact on the healthcare budget. This issue concerns many Member States and affects regional and local responsibility for citizens.

3.3.3.3. The living world and the ecosystem (IV): management and quality of water

The Committee of the Regions shares the view that access to clean water is a key concern for all citizens. At the same time it is obvious that the clean water issue is perceived differently in different Member States, depending on their individual situation, and this has an effect on the framing of the programme. In many countries, local authorities are responsible for the water supply.

3.3.3.4. The living world and ecosystem (V): environment and health

The Committee of the Regions agrees that action is needed to reduce damage to the environment. One area in which the environment is greatly affected is access to clean water, as outlined in the previous paragraph. Much of the pollution described applies to drinking water reservoirs, the larger watercourses and inland seas such as the Baltic Sea.

3.3.3.5. The living world and ecosystem (VI): integrated development of rural and coastal areas

The Committee of the Regions has already pointed out the need for action to promote the development of sparsely-populated areas and coastal areas. Archipelagos also have the same need for development. Nowadays, however, sectors other than just agriculture, forestry and fishing are being developed. There is a case for highlighting forestry research. The accession of new Member States has boosted interest in this area. The collective know-how of original and new Member States should be harnessed to provide back-up for producers in rural areas, for instance, and users of wood pulp. Tourism and information and communications technologies (ICT) are sunrise areas. The Committee believes that research is needed to encourage their development.

3.3.3.6. General activities for the development of generic technologies and basic research

The Committee of the Regions has already pointed out the need for information to persuade people to exploit the new advances in the field of public health, for example, and change their behaviour accordingly. In this connection, research activities need to be developed in liaison with health education programmes likely to improve people's behavioural patterns.

3.3.4. 'Creating a user-friendly information society`

3.3.4.1. General objectives

The Committee of the Regions endorses the declared objectives of the various programmes. The Committee regrets the absence of a reference to the fact that a user-friendly information society must provide acceptable solutions for men and women, whatever their age and at whatever stage of life.

The Committee of the Regions would emphasize the vital role the information society will play in EU citizens' lives. Accordingly, there is a need for infrastructure and a pricing system which will give everyone access to information and communication systems.

3.3.4.2. Information society (I): systems and services for the citizen

- The Committee of the Regions would particularly emphasize the needs of people with disabilities. This mostly involves, in addition to other initiatives, providing assistance to ensure a good quality of life and independence at home and at work (e.g. by teleworking).

- The Committee of the Regions calls for an action area to satisfy the needs of a democratic society. ICT advances are opening new doors for political organizations at European, national, regional and local level. This makes a new form of dialogue with citizens possible, and involves them in the democratic process. Research is needed to provide solutions in this area.

- The Committee of the Regions calls for a further priority area for this key action, focusing on user-centred coordination of various applications, with particular reference to education, health, older people, municipalities and cities, the environment and transport. Such coordination spans national, regional and local applications. 'Digital sites` (IADS, Integrated Actions for Digital Sites) in municipalities, cities and regions provide an example of current action in this area. This approach featured in the Commission working paper.

3.3.4.3. Information society (II): new methods of work and electronic commerce

The Committee of the Regions would emphasize the merits of the proposed development. Nevertheless, in view of current developments, the heading is far too narrow in scope. It should perhaps be reworded as follows: 'new methods of work and electronic commerce`. Electronic procurement and payment systems, which are part and parcel of commerce, will be of considerable importance to regional and local authorities, and to the firms they do business with.

3.3.4.4. Information society (III): multimedia contents

The Committee of the Regions shares the view that support is needed for the specified areas. An area which is missing is 'life-long learning`. This will be vital to reduce the risk of unemployment for those currently in work, and to boost the chances of finding work for those who are unemployed. It is also a means of combating exclusion.

3.3.4.5. Information society (IV): essential technologies and infrastructures

The Committee of the Regions would stress that the required technical specifications must be framed by users (e.g. citizens, politicians and industry), whereas technological development is mainly the prerogative of producers.

3.3.5. 'Promoting competitive and sustainable growth`

3.3.5.1. Competitive and sustainable growth (I): products, processes, organization

- The Committee of the Regions is pleased to see that technology and ecology have been placed on an equal footing for the purpose of support measures under 'competitive and sustainable growth`. A switch is needed towards products, processes and organization of working practices which will facilitate the changeover to a society based on natural cycles.

- The Committee of the Regions believes that existing R& TD resources should be used to this end. At the 1992 UN Conference on the environment and development in Rio, the Heads of Government agreed that a Local Agenda should be framed for the 21st century. The regions and municipalities have a key role to play here.

- The Committee of the Regions would emphasize the need for speedy industrial application of new research findings. Close cooperation is needed between those who are looking for a solution to a problem, and researchers who can provide solutions in the form of know-how or new technology. This is important if the EU is to be competitive with third countries. This key action shows that flexibility is needed in order to incorporate new priority areas during the Framework Programme's lifetime.

3.3.5.2. Competitive and sustainable growth (II): sustainable mobility and intermodality

The Committee of the Regions believes that the development of an environmentally sustainable transport system is closely bound up with regional and local spatial and environmental planning. Research into infrastructure and accessibility must help achieve European, national, regional and local ambitions.

3.3.5.3. Competitive and sustainable growth (IV): marine technologies

The Committee of the Regions would recall the disparities in the individual situations of EU countries. Different solutions must be found to satisfy the requirements of both warm and arctic climates. In addition to the need to comply with the exigencies of climate, solutions are required for regional and inter-regional transport systems, and for transport via inland waterways.

3.3.5.4. Competitive and sustainable growth (V): advanced energy systems and services

The Committee of the Regions would point out the need to develop new, sustainable energy sources, including different forms of solar energy and geothermal energy. With the help of exchanges of experience on energy saving and forthcoming small-scale solutions, it will be possible to achieve both environmental and energy targets. Research into the use of hydrogen as fuel, for example, could be useful for the cars of the future. Moreover, all these solutions will bring new job opportunities with them.

3.3.5.5. Competitive and sustainable growth (VI): the city of tomorrow

The Committee of the Regions welcomes the proposal to make cities a research area, and feels that the suggested priority areas are apt. A programme of this kind must focus on some further areas, e.g. living and working conditions in cities, the ageing population, large immigrant population, and the impact of increasing use of ICT.

The impact of phenomena such as drug abuse, violence, segregation and unemployment should be investigated so that initiatives can be framed to combat them. Citizens particularly want to see initiatives to advance the issues of the future and address the problems. It is in the cities that the impact of modern society, with all its advantages and disadvantages, is first felt. It is thus especially important for research to show how cities can be developed and the attendant problems solved.

Many of the priority areas referred to have their roots in large cities and then spread to smaller towns. Others spread from towns to rural areas. Most importantly, there is an interplay between town and country. Any study of the city of the future must take this into account if it is to understand the various processes.

The Committee of the Regions would emphasize the importance of the proposed drive to establish user-friendly information networks (the concept of 'digital cities`). At the same time, it is important that this initiative be coordinated with those under the 'Key Action - Information Society: (I) services for the citizen`, so that all the various applications developed at national, regional and local level are organized in such a way that they can be coordinated from a user-standpoint.

Horizontal programmes

3.3.6. 'Confirming the international role of European research`

3.3.6.1. The Committee of the Regions sees the cooperation which has grown up around the Mediterranean as important. During the last year, it has found its counterpart in the Baltic Sea region. In both cases, EU and non-EU states are joining forces to find solutions to problems of common interest. It is essential that the projects be carried forward and exchanges of experience made possible.

3.3.6.2. The Committee of the Regions believes that simple rules are required on funding third country participation in R& TD activities. To make participant countries pay will result in an economic constraint (e.g. in the case of the countries of central and eastern Europe). Funding under Phare, Tacis and MEDA hardly seems appropriate, in view of their complicated rules. It is often impossible for developing countries to pay for themselves, and a special budget could be required for them in particular.

3.3.7. 'Innovation and participation of SMEs`

3.3.7.1. The Committee of the Regions endorses the proposals to help SMEs take part in the drive for innovation and reap the ensuing benefits.

3.3.7.2. The Committee of the Regions would stress the need to frame individual projects if SMEs are to be able to participate. The greater the economic scale and scope of the project, the more difficult it is for SMEs to overcome the practical and financial obstacles to taking part. Another problem is the sheer number of players involved in regional and local development support. These are to be found at European, national, regional and local level, via inter alia the Structural Funds and R& TD initiatives. There is considerable need for support measures to help SMEs find their way successfully through the maze of legislation, though without creating a proliferation of interface structures.

3.3.7.3. The Committee of the Regions calls for initiatives to make it easier for firms to take on staff. The aim is to improve mobility for researchers and their practical knowledge of undertakings, and particularly cross-border employment for young research workers and engineers. This is needed to complement the transfer of innovation or technical know-how.

3.3.7.4. The Committee of the Regions would point out that SME participation in R& TD must pursue a 'bottom-up` approach, and be underpinned by regional and local know-how. It is important to heed this approach when framing programme administration and management, perhaps by associating representatives from regional and local authorities with research institutes and universities, and with programme management.

3.3.7.5. By virtue of their responsibility for and participation in regional and local development, the regional and local authorities can play a key role in rallying support for the declared development objectives by working in partnership with a whole range of players. The back-up they provide for businesses includes local funding schemes, advice, staff training and management recruitment.

3.3.8. 'Improving human potential`

The Committee of the Regions would emphasize the need to frame initiatives so as both to encourage the participation of women and men in the development programmes and to promote a gender balance in future. Support measures must be designed to enable research workers in all regions to compete with 'benchmarking` projects.

4. Conclusions

4.1. The Committee of the Regions is pleased to see that the Commission has chosen to develop the forthcoming Framework Programme in consultation with the Committee, among others. This dialogue shows that the challenges and opportunities which are one of the points of departure for the Framework Programme are the same at regional and local levels. The research and development resulting from the programme is of great importance at these levels.

4.2. The Committee of the Regions endorses the Commission proposal for the six programme areas, but would suggest certain additions and amendments. At the same time, it is obvious that the more detailed descriptions of the specific programmes are central to the way in which the endorsed programmes are implemented in the municipalities and regions.

4.3. The Committee of the Regions wonders whether the Commission will actually be able to implement the specific programmes itself, as proposed. The Committee of the Regions wishes to be consulted before the specific programmes are finalized, in order to take into account the concerns of municipalities, regions, users and consumers.

4.4. The Committee advocates a broad thematic socio-economic programme which provides for research spanning society as a whole. The proposal to include a socio-economic section broken down into key actions means creating a division which will make it more difficult for various actions to be seen in a larger context. It is not enough to assess each individual action. It is important to describe the combined impact of several actions.

4.5. The Committee of the Regions wishes to emphasize three standpoints where research and development are particularly important or deserve special attention. The first is that of people with disabilities, for whom development will provide great opportunities both at home and at work. The ICT advances already made are a foretaste of the great potential in this area.

4.6. The second is women's and men's different needs and interests, which should be taken into consideration when the specific programmes are framed. For example, action to support development in areas such as ICT and sustainable development, should be designed so that both sexes can benefit equally. Where differences exist, action should promote change, in order to provide a level playing field for men and women.

4.7. The third standpoint is that of the ageing population. This affects the need for action in areas such as ICT, research into age-related illnesses, impact on the healthcare budget, etc. Demography must be an important consideration when framing the 'city of tomorrow` scenarios, for example.

4.8. The Committee would single out certain areas from the three thematic programmes. Food production has come to the forefront in the wake of 'mad cow disease`. The 'health and food` key action should include a broad programme to cover all aspects of food production. The resulting know-how will benefit both consumers and producers.

4.9. The key action 'control of viral and other infectious diseases` should be broader in scope, and include issues to do with public health and the ageing population.

4.10. The information society will have an enormous impact on the regions and municipalities. 'Systems and services for the citizen` should include an initiative to ensure the needs of the democratic system are met. Technology provides the opportunity to create a new forum for dialogue between citizens and politicians at local, regional, national and European level. Another area which is advocated is coordination of the different applications from a user-perspective; this applies to local, regional and national applications.

4.11. The framing of the key action 'Competitive and sustainable growth` is of particular importance to work on Local Agenda 21 programmes. The chosen projects should highlight the extent to which the results meet the objective of achieving a society based on natural cycles.

4.12. The Committee of the Regions welcomes the proposal to set up a multidisciplinary programme on 'the city of tomorrow`. Citizens particularly want to see initiatives to advance the issues of the future and address the problems. There is an interplay between cities and towns, and between these and rural areas, which should also be elucidated.

4.13. The Committee would also refer to the importance of actions to assist SMEs. It should be made easier for them to take part in research projects, to harness the fruits of research and to employ qualified staff.

Brussels, 18 September 1997.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ C 173, 7. 6. 1997, p. 30.

() OJ C 337, 11. 11. 1996, p. 55.

() OJ C 182, 24. 6. 1996, p. 1.

() OJ C 215, 16. 7. 1997, p. 1.

() OJ C 244, 11. 8. 1997, p. 9.

() COM(95) 519 final.

() COM(96) 332 final.

() COM(97) 47 final.