EN Official Journal of the European Union C 228/69

Opinion of the European Economic and Social Committee on the Proposal for a Decision of the European Parliament and of the Council on the participation by the Community in a European metrology research and development programme undertaken by several Member States

COM(2008) 814 final – 2008/0230 (COD)

2009/C 228/12

On 21 January 2009 the Council decided to consult the European Economic and Social Committee, under Articles 169 and 172(2) of the Treaty establishing the European Community, on the

‘Proposal for a Decision of the European Parliament and of the Council on the participation by the Community in a European metrology research and development programme undertaken by several Member States’

On 13 January 2009 the Committee Bureau instructed the Section for the Single Market, Production and Consumption to prepare the Committee’s work on the subject.

Given the urgent nature of the work, the European Economic and Social Committee appointed Mr PEZZINI as rapporteur-general at its 452nd plenary session (meeting of 25 March 2009), and adopted the following opinion unanimously.

1. Conclusions and recommendations

1.1 The EESC sees the proposal’s aims as essential and encourages the Commission to pursue a common metrology system going beyond national research and progress to achieve European added value, shared by all.

1.2 The EESC feels that the ultimate goal is a unified international approach, within which the EU’s voice is not seen as secondary but promotes standards geared to materials, products and processes developed in Europe and reflecting the EU’s industrial and commercial interests.

1.3 The EESC believes that, in the current globalised economic and social context, a European metrology structure achieving results of excellence can only be beneficial for the EU economy.

1.4 The EESC considers that the community of European researchers must be increasingly involved in developing modern systems which enable metrology to be used at the cutting edge of physics, chemistry, biology, environmental sciences, carbon footprints, nanotechnology, food, health and safety in the workplace.

1.5 The EESC feels that, to achieve the desired results, it is necessary to work resolutely towards greater involvement of industry, commerce and the public sector in the development of European metrology research, with a view to putting forward the new standards in international forums.

1.6 The EESC believes it is particularly important for metrology research not to appear self-contained and self-referential.

1.7 Regulation and standardisation are achieved through measurable systems based on internationally-accepted applied metrology. The EESC therefore suggests involving the European Standards Organisations (CEN (European Committee for Standardisation), CENELEC (European Committee for Electrotechnical Standardisation) and ETSI (European Telecommunications Standardisation Institute)) and national bodies, along with accreditation bodies, in developing new systems right from the outset.

1.8 The EESC calls for every endeavour to be made to achieve close integration in European metrology research between: — the research community, — industry, — universities, scientific bodies and higher education, — the results of technology platforms, — organised civil society, because it feels that excluding any form of ‘closed shop’ in this way is the only means of achieving internationally-accepted results at European level,.

1.9 The EESC sees the merits of the Commission proposal, which supports the EMRP (European Metrology Research Programme) (1) initiative by providing a high level of ‘communitarisation’, in terms of both: — joint programming and acceptance of Community rules on participation as laid down by FP7; — the level of estimated resource allocation, going beyond purely national intervention.

1.10 The EESC believes that the governance system needs to be better defined. Clearly, an ambiguous governance system can affect progress in research and the results hoped for.

1.11 In this connection, the EESC stresses the need for greater involvement of stakeholders with a direct interest in the metrology results of research both in establishing priorities and preparing and evaluating calls for expressions of interest – to be published on CORDIS and in the Official Journal (OJ) – with a view to proposals which integrate participation of businesses, universities and research and training centres, and through monitoring programmes and projects funded.

1.12 The EESC feels that the EMRP Research Council should be empowered to control, through binding opinions addressed to the EMRP Committee, the types of research to be funded, the annual work programme and selection of the pool of independent evaluators for the proposals, and that a Commission observer should monitor the evaluation panels, as under FP7.

1.13 In the EESC’s view, the preparatory proposals for the forthcoming 2014–2020 FP RTD should include a genuine, ongoing Community programme, coordinated and managed by the Commission, which is based on ongoing consultation of the stakeholders most concerned and takes into account in particular the needs of industry, universities and research and standards bodies as well as international aspects of metrology research, especially in relations with international bodies such as the ISO, the OECD and other reference bodies like the IUAP (2).

2. Introduction

2.1 Increasing globalisation of industrial production, service provision and trade requires technical barriers to trade to be reduced to a minimum. Underlying this process is a reliable measurement system accepted by all.

2.2 An increasing number of regulations, particularly in areas such as:

— security,

— food labelling,

— health schemes,

— the environment,

— biotechnology,

— nanotechnology and advanced materials,

— energy,

— transport, telecommunications and security systems

require internationally-recognised systems for traceability and comparability.

2.3 Metrology research has a strong public-good character and is a main supporting activity for regulation and standardisation.

2.3.1 European measurement infrastructure is supported by European organisations such as European cooperation for Accreditation (EA), the European Committee for Standardisation (CEN), the European metrology network EUROMET (European Collaboration in Measurement Standards) (3), now incorporated by EUROMET (European Association of National Metrology Institutes), and the Institute for Reference Materials and Measurements (IRMM) of the EC Joint Research Centre (Geel), in cooperation with the International Bureau of Weights and Measures (BIPM).

2.4 According to the BIPM, ‘The development of the inter-disciplinary areas of nanotechnology, advanced materials and material properties will soon require a number of new reference measurement standards and methods in the physical as well the chemical fields of measurement’ (4).

2.5 In Europe, sustainable competitiveness and innovation require precise measurements and tests in all fields with traceable results to establish long-term standards for reference measurements, as defined by the International System of Units (SI).

2.6 European metrology research is carried out by national metrology research programmes and projects under ERA-NET, provided for in the Sixth Framework Programme; and ERA-NET Plus from the Seventh Framework Programme (FP7). The Framework Programmes have also generated the iMERA (Implementing Metrology in the European Research Area (5) projects; iMERA Plus (6), which was the first phase of the EMRP; the activities of the Joint Research Centre (JCR) (7) and the current ‘variable geometry’ EMRP proposal.

2.7 In the United States, USD 634 million of federal funding was appropriated for the 2009 fiscal year to the National Institute of Standards and Technology (NIST)’s research programmes.

2.8 In this context, the EESC feels it is important to increase the resources available for European metrology research, combining research capacity in the Member States with that of the Joint Research Centre to generate a large, international critical mass, preventing duplication and wastage of resources; the results would be much better than those achievable through ERA-NET Plus coordination under FP7 2007-2013.

2.9 The EESC believes that, given how important metrology research will be in the near future, as various studies (8) have shown, this research should be made one of the thematic priorities of the forthcoming 2014-2020 FP. It should be given a permanent Community structure and status, with ongoing, coordinated integration of national initiatives.

3. The proposed programme under Article 169

3.1 The purpose of this proposal, based on Article 169 of the EC Treaty, is to establish a European Metrology Research Programme (EMRP) involving and bringing together 22 national metrology research programmes to improve the efficiency and effectiveness of public metrology research.

3.2 Its stated objectives include helping to structure the European Research Area through better coordination of national programmes, thereby tackling common European challenges, removing barriers between national programmes.

3.3 According to the Commission, the EMRP aims to integrate the national programmes of 22 Member States, bringing them together in one Joint Programme, to: — support, in particular, the objectives of the European National Measurement Systems, — accelerate the development, validation and exploitation of new measuring techniques, — support the development and implementation of directives and regulations.

3.4 The proposed governance model is based on the experience gained from the first Article 169 initiative undertaken during the Sixth Framework Programme, namely the EDCTP (9).

3.5 A budget of EUR 400 million is earmarked for the EMRP initiative, EUR 200 million of which is contributed by the participating countries for the period 2009-2016, and a further EUR 200 million of which is to be contributed by the Community.

3.6 The European Association of National Metrology Institutes (EURAMET), established in 2007 under German law as a non-profit association, with its secretariat in Braunschweig, Lower Saxony, acts as the European regional metrology organisation and EMRP Executive Agency and will be responsible for coordinating the initiative.

4. The EESC’s comments

4.1 The EESC endorses the proposal’s main objectives and the methods it outlines, stressing that it is important for the objectives to lead in practice to:

— excellence of the metrology structure,

— open, joint, competitive research projects,

— greater participation by the research community, through skills development,

— genuine international cooperation adding value to the European system,

— a single voice on the world stage,

— first and foremost, greater involvement of industry (employers’ and employees’ associations), commerce and the public sector in the development of European metrology research.

4.2 The EESC believes that it is essential for metrology research not to appear self-contained but to be able to involve users in setting the programme’s priorities, in the project evaluation and selection system and in proposals and monitoring project results, in close cooperation with standards and accreditation bodies. The EESC is opposed to any form of ‘closed shop’.

4.2.1 In particular, the EESC believes that the rules for participating in the EMRP must in all respects fully comply with Regulation (EC) No 1906/2006 laying down the rules for the participation in the Seventh Framework Programme and with the Implementing Rules for the Financial Regulation.

4.2.2 The rules for participating in the EMRP should provide a coherent, transparent framework to ensure that it is implemented as effectively as possible, taking into account the need for simplified procedures to facilitate access for all participants. These rules should facilitate use of the intellectual property developed by each participant while, at the same time, protecting the legitimate interests of other participants and the Community.

4.2.3 The EESC stresses that launching an integrated European metrology research system in the form of a Joint Programme with participating national bodies, will not yield satisfactory results if close integration is not provided for between the research community, industry, universities and standards and accreditation bodies, as well as structured dialogue with European technology platforms (10) and organised civil society.

4.3 The EESC points out that Article 169 of the EC Treaty entitles the Community to participate in research programmes undertaken jointly by several Member States provided that the objectives are clearly defined and relevant for the Community and the Framework Programme and have substantial European added value and critical mass, and that the joint programme of activities and implementing and governance structure are clearly defined.

4.4 The EESC feels that the objectives should be better defined, and not just in terms of supporting national measurement systems, enhancing the networks of National Metrology Institutes and Designated Institutes and integrating national activities.

4.5 Clear definition is needed of the priorities for action and expected results, with full evidence of:

— the proposal’s European added value,

— clear, exhaustive definition of the joint programme of integrated activities,

— a governance structure.

4.6 The same applies to definition of scholarships for researchers or organisations, National Metrology Institutes or Designated Institutes.

4.7 The proposed governance system should be more clearly defined. The EESC points out that other associations as well as EUROMET operate at European level, e.g. EURACHEM (11). It also stresses that while EUROMET is the dedicated implementation structure for the EMRP, much of the programme itself would have to be managed by the National Physical Laboratory, with a British programme manager, ‘as an interim solution’.

4.8 Lastly, the EESC is concerned to note that neither the proposed legislation nor the annexes provide for genuine involvement of stakeholders with a direct interest in the metrology results of research: industry as a whole, commerce, standards and accreditation bodies, the public sector.

4.9 In conclusion, the EESC feels it would be better to opt for a European metrology research pilot project of limited duration, due to end in 2013, along the lines of iMERA Plus, and, in the preparatory proposals for the 2014–2020 Eighth Framework Programme for RTD, to look into setting up a genuine, ongoing Community programme with clearer, proven mechanisms managed by the Commission for all the Member States and associated countries, with a Management Committee and an Advisory Committee, providing a sound consultation process which is steered and monitored by stakeholders concerned primarily with the needs of industry.

5. Specific comments

5.1 The EESC sees the merit of the Commission proposal, which supports the EMRP initiative (12), providing for a high level of ‘communitarisation’, through joint programming, estimated resource allocation, applying a ‘mutual learning’ approach and the rules for participation of businesses, universities and research bodies, and through evaluation of proposals, in which a Commission observer should be involved, as under FP7.

5.2 With regard to the proposed governance for the EMRP, the EESC notes that: a) the EMRP Committee, made up exclusively of representatives of national metrology bodies with the IRMM (13) as the only observer, would be responsible for the execution of the EMRP, in particular: — decisions on the development and updating of the EMRP; — creation and closing of sub-programme Committees; — preparing and deciding on funding conditions for the execution of the EMRP, including the criteria for the selection of evaluators; — approving the composition of a pool of evaluators; — deciding on funding research programmes and projects on the basis of the funding conditions insofar as EUROMET is authorised by the European Commission; — approving the part of the budget for the next financial year concerning the EMRP; — preparing and announcing calls for expressions of interest and for proposals concerning the EMRP; — supervising an adequate and orderly accounting of the EMRP tasks of the Secretariat; — monitoring and control of the progress of the funded programmes and projects and deciding on corrective measures (14). b) The EMRP Research Council, made up of 16 members, including: — one from the BIPM, — one from the European Commission, — one from the European Research Council, — one from the European Parliament, — one from EUROLAB, — one from a European standards body, — one from the WELMEC (15), — nine from industry, research and academia, has a purely advisory role as regards strategic EMRP matters and the decision-making process for the Targeted Programmes (16).

5.3 In this connection, the EESC stresses the need to involve the EMRP Research Council with a binding opinion, giving it the task of cooperating with the EMRP Committee as an equal, particularly as regards development and updating of the EMRP; sub-programme Committees; selection and composition of the pool of evaluators; decisions on funding research programmes and projects; preparing and announcing calls for expressions of interest and for proposals to be published in the OJEU; and monitoring and control of the progress of the funded programmes and projects.

Brussels, 25 March 2009. The President of the European Economic and Social Committee Mario SEPI

(1) Under Article 169 of the Treaty.

(2) International Union of Pure and Applied Physics.

(3) Made up of the National Metrology Institutes of 32 countries and the Institute for Reference Materials and Measurements (IRMM) of the EC Joint Research Centre (Geel).

(4) 2007 BIPM report: Evolving Needs for Metrology in Trade, Industry and Society, and the Role of the International Bureau of Weights and Measures (BIPM) – Paris, 2008.

(5) The iMERA project includes 20 partners from 14 countries, in addition to the EC-JRC’s IRMM project.

(6) The iMERA Plus project includes 45 partners from 20 countries, in addition to the EC.

(7) The JRC’s work in the field of metrology is as follows: ‘Fostering EU competitiveness, transparency of internal market and trade will be pursued by the production and dissemination of internationally-accepted references and the promotion of a common European measurement system.’

(8) See Instrumentation and metrology in nanotechnology, US National Science and Technology Council, 2006, and BIPM report, 2007.

(9) European-Developing Countries Clinical Trials Programme.

(10) Cf. microarrays or advanced mass spectrometry.

(11) EURACHEM is a network of organisations in Europe having the objective of establishing a system for the international traceability of chemical measurements and the promotion of good quality practices. Europe EURACHEM has 35 member states.

(12) Under Article 169 of the Treaty.

(13) IRMM - Institute for Reference Materials and Measurements - JRC – European Commission.

(14) See EUROMET e.V. Byelaws 11.01.2007, Article 14(5).

(15) WELMEC: Western European Legal Metrology Cooperation.

(16) See EUROMET e.V. Byelaws 11.01.2007, Rules and procedures, part B point III.