European Parliament resolution on the Commission Communication concerning the Structural Funds and their coordination with the Cohesion Fund - Guidelines for programmes in the period 2000 to 2006 (COM(1999) 344 - C5-0122/1999 - 1999/2127(COS))
Date: 2000-01-18
Institutions: Committee on Regional Development, European Parliament
Subjects: Cohesion Fund, Structural Funds, coordination of financing

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(cid:1) having regard to Rule 67 of its Rules of Procedure,

(cid:1) having regard to the report of the Committee on Committee on Regional Policy, Transport and Tour-

ism (A5-0104/1999),

1.

Approves the Commission proposal as amended;

Asks to be consulted again should the Commission intend to amend its proposal substantially or

2.
replace it with another text;

3.

Instructs its President to forward its position to the Council and Commission.

7. Structural Funds (cid:14) Cohesion Fund coordination

A5-0108/1999

European Parliament resolution on the communication from the Commission in the field of the
Structural Funds and their coordination with the Cohesion Fund: guidelines for programmes in the
period 2000-2006 (COM(1999) 344 (cid:14) C5-0122/1999 (cid:14) 1999/2127(COS)

The European Parliament,

(cid:1) having regard to the Commission communication (COM(1999) 344 (cid:1) C5-0122/1999),

(cid:1) having regard to the EU Treaty, and in particular Article 2 thereof, and the EC Treaty, and in particu-

lar Article 158 et seq. and Article 299(2) thereof,

(cid:1) having regard to Council Regulation EC No 1260/1999 (1) laying down general provisions on the

Structural Funds, and in particular Articles 10(3) and 11(3)(b) thereof,

(cid:1) having regard to Council Regulation EC No 1257/1999 (2) on support for rural development from the
European Agricultural Guidance and Guarantee Fund (EAGGF), and in particular Article 1 thereof,

(cid:1) having regard to the Commission’s first
(COM(1996) 542 (cid:1) C4-0016/1997),

three-yearly report on economic and social cohesion

(cid:1) having regard to the sixth periodic report on the socio-economic situation and development of the

regions of the European Union (SEC(1999) 66 (cid:1) C5-0120/1999),

(cid:1) having regard to the proposals to strengthen economic and social cohesion, set out in the Commission
document ‘Agenda 2000: For a stronger and wider Union’ (COM(1997) 2000), and having regard to
its resolution of 18 June 1998 (3) on Agenda 2000: For a stronger and wider Union (cid:1) Part 1 (cid:1)
Chapter II (cid:1) ‘Economic and social cohesion’,

(cid:1) having regard to the Commission guidelines on priorities for the adaptation of Structural Fund pro-

grammes until the end of 1999 (C4-0640/1997),

(cid:1) having regard to its resolution of 19 November 1998 (4) and its decision of 6 May 1999 (5) on the

proposal for a regulation on the Structural Funds,

(cid:1) having regard to the European Spatial Development Perspective (ESDP) adopted in May 1999, its
resolution of 2 July 1998 on regional planning and the European Spatial Development Perspective (6)
and the Action Plan adopted by the Ministers of Regional Policy and Regional Planning meeting in
Tampere on 4 and 5 October 1999,

(1) OJ L 161, 26.6.1999, p. 1.
(2) OJ L 160, 26.6.1999, p. 80.
(3) OJ C 210, 6.7.1998, p. 189.
(4) OJ C 379, 7.12.1998, p.164.
(5) OJ C 279, 1.10.1999, p. 292.
(6) OJ C 226, 20.7.1998, p. 42.

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(cid:1) having regard to the fifth environmental action programme and to its resolution of 22 April 1993 in

this regard (1),

(cid:1) having regard to the fourth medium-term Community action programme on equal opportunities for
women and men (1996-2000) (COM(1995) 381) and to its resolution thereon of 17 November
1995 (2),

(cid:1) having regard to the Commission communication ‘Sustainable Urban Development in the European

Union: A Framework for Action’ (COM(1998) 605) and to its resolution thereon of 4 May 1999 (3),

(cid:1) having regard to the Commission communication on the coordination of activities to assist SMEs and
the craft sector (COM(1997) 610) and the Commission Communication on European capital markets
to progress
for
(COM(1997) 187), and its resolutions thereon of 5 November 1998 (4) and 17 September 1998 (5),

and potential obstacles

enterprises: prospects

and medium-sized

small

(cid:1) having regard to the Commission communication ‘A European strategy for encouraging local develop-
ment and employment initiatives’ (COM(1995) 273) and to its resolution thereon of 6 September
1996 (6),

(cid:1) having regard to the Commission communication ‘Environment and Employment’ (COM(1997) 592)

and to its resolution thereon of 16 July 1998 (7),

(cid:1) having regard to the Commission proposal for a Council directive on the assessment of the effects of
certain plans and programmes on the environment (COM(1996) 511) and to its opinion thereon of
20 October 1998 (8),

(cid:1) having regard to the report of the Committee on Regional Policy, Transport and Tourism and the
opinions of the Committee on Agriculture and Rural Development, the Committee on Economic and
Monetary Affairs, the Committee on Employment and Social Affairs, the Committee on Industry,
External Trade, Research and Energy and the Committee on Fisheries (A5-0108/1999),

A.

realising that the internal market focuses growth in economic activity on main centres at the expense
of disadvantaged regions and the environment, that the gains resulting from integration do not benefit
all to an equal extent and hence the Structural and Cohesion Funds are the key instruments for redu-
cing regional disparities and for ensuring harmonious development of the Community as a whole,

B. whereas the emphasis in the guidelines on promoting sustainable development and improved compe-

titiveness with a view to achieving employment is to be welcomed,

C. whereas least favoured islands are included among the regions whose development must be regarded
as a fundamental priority of the European Union’s cohesion policy referred to in the first paragraph of
Article 158 of the Treaty establishing the European Community and whereas the Commission should
therefore give them a suitable degree of importance within the guidelines which it is setting out for
the Member States,

D. whereas both the Commission and the Member States shoulder responsibility for a ‘Europe for its
citizens’ in which all are given comparable opportunities, regardless of region or social standing, with-
out at the same time jeopardising the ability of subsequent generations to meet their needs,

E.

having particular regard to Article 1 of Structural Funds Regulation (EC) No 1260/1999, which lays
down not only the geographical objective areas but also substantive goals for the European funds,
which call for an integrated approach to programming and implementing cross-sector Community
policies within the programmes,

(1) OJ C 150, 31.5.1993, p. 292.
(2) OJ C 323, 4.12.1995, p. 167.
(3) OJ C 279, 1.10.1999, p. 44.
(4) OJ C 359, 23.11.1998, p. 98.
(5) OJ C 313, 12.10.1998, p. 195.
(6) OJ C 277, 23.9.1996, p. 45.
(7) OJ C 292, 21.9.1998, p. 149.
(8) OJ C 341, 9.11.1998, p. 18.

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F. whereas the European Union’s regional policy represents its second intervention budget through the
Structural Funds and the Cohesion Fund; whereas the guidelines drawn up by the Commission should
ensure that Community priorities are taken into account as a matter of priority when addressing the
eligibility of measures in programmes determined by Member States in consultation with their local
and regional partners,

G. whereas both the content and the conclusions of the Commission’s sixth periodical report on the
regions are of enormous value and interest (cid:1) particularly where it diagnoses the factors that actually
determine the competitiveness of Europe’s regions (cid:1) for defining the Community priorities on which
the structural measures should concentrate in order to become effective, and whereas the Commission
has declared its intention of taking full account of them when drawing up these guidelines, consider-
ing that the four areas, which are reliable levers for regional development and require a concentration
of structural investment, are:

(cid:1) the productive base and economic structure,

(cid:1) the level of technology and research,

(cid:1) infrastructure to provide accessibility, and

(cid:1) skilled manpower,

H. whereas concentration, efficiency and simplification of administrative structures are the Community
objectives for reform with regard to the European Structural Funds under Agenda 2000 and whereas
the Commission is obliged to act on those objectives within the programme verification process,

I. whereas in June 1998 the Commission produced a Communication to the European Council on a
strategy for integrating environment into EU policies (COM(1998) 333), which concluded in particular
that environmental integration was not an option but a requirement,

J. whereas the Community strategy for biodiversity (COM(1998) 42 ), and particularly its paragraph 25,
draws attention to the aim of promoting sustainable regional development within the Structural Fund
Operational Programmes,

K. whereas, pursuant to Article 10(3) of Structural Funds Regulation (EC) No 1260/1999, the Commi-
ssion is tasked with publishing broad indicative guidelines on relevant and agreed Community policies
following the entry into force of the Regulation and prior to the mid-term review provided for under
Article 42 of the Regulation, and whereas those guidelines will be a major factor in the negotiations
on the programmes and on the revision thereof,

L. whereas the European Parliament was not consulted in time on the guidelines and was unable to

assess their content before they became effective,

M. whereas the new Objective 1 programmes have already been drafted prior to the guidelines becoming

operational,

1.
Underscores the importance of the guidelines, which are necessary for realising the Community
reform objectives of efficiency, concentration and administrative simplification, and further stresses the
European dimension of structural policy, and, in this connection, welcomes the fact that they have been
announced in good time by the Commission;

Regards the guidelines as an important indicative tool for the Member States and the regions in
2.
devising priorities within the programming process and in pursuing the coherent overall objective of sus-
tainable development of disadvantaged regions and regions experiencing development difficulties and of
active and preventive assistance with regard to employment; expects this to provide maximum possible
synergy between all instruments and financial resources and balance in terms of environment, economic
and social policy measures;

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3.
Regards it as progress, with regard to structural assistance, that the indicative guidelines are classified
by thematic area, since this is the only way in which they can foster an integrated approach in the new
plans and programmes, which must be based on decentrally devised development and conversion plans;

Notes the lack of any reference to how these guidelines are to be interpreted in the transitional

4.
programmes;

Stresses the importance of the guidelines as an instrument for decentralised, efficient and comprehen-
5.
sive partnership to be based on the skills and commitment of all actors in regional and local authorities,
it being imperative to back up their capabilities through technical assistance, and calls to that end for this
indicative instrument to be developed further since, to date, it involves no minimum demands and gui-
dance in terms of procedures to involve partners;

6.
Considers, furthermore, that the management of the Structural Funds’ financial resources should con-
sequently be decentralised, taking account both of the potentialities of partnership and of regional and
local authorities’ competences, subject to tighter scrutiny of the funds’ use and compliance with the objec-
tives which the Union has defined;

7.
Regrets the fact that the Commission document contains no recommendation to the Member States
to simplify national legal procedures and arrangements for the presentation and examination of projects by
the national authorities, and for their funding, execution and monitoring; considers that the regulatory and
administrative constraints placed by certain Member States are at times major obstacles to operators seek-
ing access to Structural Funds, in particular SMEs, micro-enterprises and craft businesses;

8.
Calls on the Commission to focus (cid:1) during negociations with the Member States on the new plans
and programmes (cid:1) on the promotion of a favorable environment for labour intensive SMEs, setting up
clear targets for alternative financing sources, including capital risk and private financing schemes, business
support services, including new information technologies, and investment in innovative fields;

9.
Believes that, on the basis of the guidelines which have been laid down, the Commission needs to
produce a document evaluating and analysing the most innovative projects (best practice) to be widely
circulated between those involved in the structural policies; asks the Commission to support the exchange
of experience between Member States and regions to enhance best practice in innovative and administra-
tive approaches and explore the potential of setting up a database demonstrating such projects;

Takes the view that, at the present juncture, the guidelines should no longer be assessed only in
10.
respect of their content, but, rather, in respect of their usability as an evaluation tool for the Commission
in negotiations on programmes; stresses, in this connection, compliance with horizontal Community poli-
cies and points out that the process of authorising programmes must be taken forward efficiently and
promptly, paying due regard to the involvement of local associations of the private sector in the planning
and implementation process, and ensuring that guidance is issued on exit strategies at the end of the
programme period;

Notes that the indicative guidelines can provide a minimum of guidance only if progress can be
11.
gauged in terms of verifiable targets and the extent of convergence with Community policy strategies;
regrets the fact that this is reflected only to a limited extent in the document under consideration, and
considers that it is imperative to improve matters;

12.
Regrets that the guidelines fail to contain specific provisions or clarification addressing the implica-
tions of enlargement for both regional and national authorities undertaking structural funds programmes
and for the applicant states, and urges the Commission to address this issue in the mid term review of the
programme;

13.
Stresses that the use of appropriations can only be coordinated successfully if cross-portfolio work-
ing becomes generally accepted in the various departments in the Commission, and there is compliance
with horizontal Community policies not only on a sectoral basis; insists in particular, in this connection,
on sustainability in urban and rural development;

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14.
Recommends, in the context of the Commission’s recommendations on sustainable development,
ensuring consistency between the integration policies of the Member States, in line with the guidelines
adopted in the plan for development of the Community area;

15.
Criticises the fact that only marginal attention has been given in the Guidelines to the urban
agenda; calls on the Commission to make sure that funding for urban projects is provided in all Member
States’ regional programmes and objective areas, taking into account the guidelines of the Framework for
Action on Sustainable Urban Development, and providing adequate resources with global grants;

16.
Criticises the fact that the guidelines have not successfully allowed for the dual role of rural devel-
opment as providing input into the reform of the European farming model as well as a to economic and
social cohesion, and calls on the Commission to make greater use of decentralised support instruments
both as regards the development of rural areas and the development of areas dependent on fishing and
not to confine support for model regions only to the Community initiative Leader;

Calls for the Commission, in cooperation with Member States, to allow for plans to pay greater
17.
attention to integrated strategies for revitalising relations between town and countryside, and again stresses
the fundamental importance of the European Spatial Development Perspective (ESDP);

Stresses that better coherence and coordination between regional development programmes, Cohe-
18.
sion Fund and Community Initiatives in terms of policy objectives, financial coordination and implementa-
tion of the partnership must be ensured;

Advocates focusing on a more balanced allocation of Structural and Cohesion Fund resources with
19.
regard to the balance between modes of transport, and particularly emphasises in this area the criterion of
sustainability, transport security and transport mode integration and calls on the Commission to give spe-
cial attention to this criterion when approving support funds;

20.
Calls on the Commission to report to Parliament, before negotiations with the Member States on
the planning documents are concluded, on how plans reflect the guidelines, in particular with regard to
horizontal Community policies and/or possible difficulties involving this new instrument;

Calls on the Commission to take over at the mid-term the EP proposals for the final revision of the

21.
guidelines, and reminds the Commission of the Code of Conduct and the obligations deriving from it;

Calls for the mid-term review, performance reserve allocation and the final assessment to be based
22.
on objective and pragmatic criteria, capable of securing the complete interaction of structural measures
and programmes which are by definition multifactoral, so that not only are quantitative indicators taken
into account but also the qualitative aspects,
including human development as defined by the United
Nations, and employment benchmarking are analysed with equal attention;

Reminds the Commission that Parliament ought to be consulted as early as at the drafting stage on

23.
connection with all draft guidelines devised by the Commission;

Employment and Social Affairs

24.
Regrets the fact that, at the definition stage of the new programme period 2000-2006, Objective 3
has been unable to play its part as a frame of reference for employment measures under structural policy,
as Objective 3 plans have not yet been finalised; calls for the coordination and strategic consistency of
Objectives 1, 2 and 3 to be ensured in the setting up of the new plans and programmes;

25.
Calls on the Commission and the Member States, in respect of territorial pacts, to use local and
regional pacts as the framework for the concertation and coordination of structural operations between
the parties involved, as the systematic extension of the territorial pact model will ensure the correct appli-
cation of the partnership principle;

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26.
Expects that the incentives for upgrading human resources will be tailored to the needs and growth
markets of the future; calls therefore for more intensive efforts to ascertain future demand for qualified
services and to support technology transfers to SMEs;

Draws attention to the importance of encouraging programmes with special measures to encourage
27.
the return to work of unemployed people aged over 40, who form a group that is difficult to adapt to the
new technologies and modern business requirements;

Industry

28.
Considers it important that the research infrastructure should be expanded, particularly in the coun-
tries eligible under the Cohesion Fund, by siting higher education and other educational establishments so
that they serve inhabitants of the less-developed areas better than in the past and make it easier for edu-
cated people to remain in their places of origin.

29.
Calls on the Commission and the Member States to give greater attention to programmes which
make use of energy with a low energy consumption and invest in sources of renewable energy, so as to
achieve sustainable regional development;

Competition Policy

Reiterates the essential need for programmes promoted by national or regional authorities to fully
30.
conform to European Union competition policy and rules, particularly in the application of such policy
and rules in the area of state aids;

31.

Instructs its President to forward this resolution to the Council and Commission.

*

*

*

8. Social and economic situation and development of the regions of the Union

A5-0107/1999

European Parliament resolution on the Sixth Periodic Report on the Social and Economic Situa-
tion and Development of the Regions of the European Union (SEC(1999) 66 (cid:14) C5-0120/1999 (cid:14)
1999/2123(COS))

The European Parliament,

(cid:1) having regard to the Sixth Periodic Report (SEC(1999) 66 (cid:1) C5-0120/1999),

(cid:1) having regard to Article 8 of Regulation (EEC) No 2083/93 of 20 July 1993 on the reform of the

ERDF (1),

(cid:1) having regard to Council Regulation (EEC) No 2082/93 of 20 July 1993 amending Regulation (EEC)
No 4253/88 laying down provisions for implementing Regulation (EEC) No 2052/88 as regards coor-
dination of the activities of the different Structural Funds between themselves and with the operations
of the European Investment Bank and the other existing financial instruments (2),

(cid:1) having regard to Regulation (EC) No 1260/1999 of 21 June 1999 laying down general provisions on

the Structural Funds from 2000 (3),

(cid:1) having regard to Articles 2 and 3(2) of the EC Treaty stating the Community’s tasks include promoting
equality between women and men and eliminating inequalities,and having regard to the fourth med-
ium-term Community action programme on equal opportunities for women and men (1996-2000)
(COM(1995) 381) and its resolution of 17 November 1995 on this programme (4),

(1) OJ L 193, 31.7.1993, p. 34.
(2) OJ L 193, 31.7.1993, p. 20.
(3) OJ L 161, 26.6.1999, p. 1.
(4) OJ C 323, 4.12.1995, p. 167.