Communication from the Commission - The outermost regions: an asset for Europe
Date: 2008-10-17
Institutions: European Commission
Subjects: competitiveness, cooperation policy, economic and social cohesion, peripheral region, regional integration, regional policy, sustainable development

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 17.10.2008 
COM(2008) 642 final 

COMMUNICATION FROM THE COMMISSION 

The outermost regions: an asset for Europe 

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COMMUNICATION FROM THE COMMISSION 

The outermost regions: an asset for Europe 

1. 

INTRODUCTION 

Globalisation, climate  change,  demographic trends and migratory flows, and  the  sustainable 
management of natural resources such as marine resources and agricultural products are just 
some of the challenges facing Europe as a whole. 

The European Commission, aware that the outermost regions (OR) are particularly vulnerable 
and  exposed  to  these  challenges  and  in  order  to  gather  input  for  its  reflections  on  the 
development  of  the  European  strategy  for  these  regions,  launched  a  wide-ranging 
consultation1  in  September  2007  with  the  European  institutions,  the  Member  States,  the 
outermost regions, socio-professional groups, research centres and universities, and organised 
an interinstitutional and partnership conference on 14 and 15 May 2008 in Brussels. 

The numerous contributions received show that the respondents are keen to explore and make 
the most of the EU’s outermost regions, as well as to see the emergence of a renewed strategy 
marking  a  change  of  paradigm  –  the  OR  as  “regions  of  opportunity”,  rich  in  potential  for 
development – while ensuring that their specific characteristics are taken into account. 

Drawing on all of these reflections, this Communication: 

–  responds  to  the  call  on  the  Commission  from  the  Heads  of  State  and  Government  to 
present the results of the public consultation and proposals on the subject (Conclusions of 
the European Council, December 2007, para. 59); 

–  proposes a change of approach for the development of the strategy, opening the way for the 
new paradigm, and makes recommendations to ensure optimal use of the instruments and 
possibilities available in the current financial framework (2007-2013). 

2. 

DEVELOPMENT OF THE EUROPEAN STRATEGY FOR THE OR 

Since 1999, the EU has recognised that the geographical and economic realities of the OR are 
different from those of the other regions of Europe: remoteness, insularity, small size, difficult 
topography  and  climate,  and  economic  dependence  on  a  small  number  of  products  (see 
Article 299(2) of the EC Treaty). These realities constitute disadvantages for their sustainable 
and harmonious development and the EU, through various programmes and measures, aims to 
minimise these as far as possible in order to promote the economic and social convergence of 
these regions2. 

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Consultation  launched  by  the  Commission  communication  "Strategy  for  the  Outermost  Regions: 
Achievements and Future Prospects" COM(2007)507 final. 
Since the latest EU enlargements, the OR as a whole are no longer part of the group of poorest regions. 
However,  relative  to  the  Community  average  in  2005  (EU-27=100),  French  Guiana  (GDP  per  capita 
50.5), Réunion (GDP per capita 61.6) but also the Azores (GDP per capita 66.7) and, to a lesser extent, 

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In 2004, the EU defined a strategy based on an integrated approach with three main strands: 
accessibility and reduction of the effects of the other constraints, competitiveness and regional 
integration.  This  approach,  given  the  permanent  nature  of  the  disadvantages  facing  the  OR, 
remains valid but will require further development in order to rise to the new challenges. 

In September 20073 the Commission therefore recognised the need: "to continue the effort to 
adapt Community policies and for specific support whenever necessary". The adoption, since 
2007, of new programmes and measures in support of the OR is testimony to the continued 
awareness of the specificities of the OR, and should enable them to make clear progress in the 
context of the three strands of the strategy. 

Reducing the accessibility deficit 

The  European  Regional  Development  Fund  (ERDF)  operational  programmes  for  the  period 
2007-2013  continue  the  effort  to  reduce  the  accessibility  problems  by  investing  in  transport 
and telecommunications infrastructures and by supporting operating expenditure through the 
new  specific  allocation  to  offset  additional  costs.  In  total,  almost  €1 710  million  from  the 
ERDF (in other words, 36% of the total ERDF budget allocated to the OR) will be invested in 
improving the accessibility of these regions. 

The  Commission  has  also  adopted  a  scheme  of  support  for  freight  in  the  French  overseas 
departments4 and aid of a social nature for air transport (French Guiana5 and Madeira, similar 
to that granted in the past for Guadeloupe, Martinique and Réunion). 

Increasing competitiveness 

In  accordance  with  the  guidelines  resulting  from  the  implementation  of  the  Lisbon  and 
Gothenburg  strategies,  the  outermost  regions  have  taken  up  the  challenge  of  economic 
competitiveness  of  their  territories  by  devising  a  development  strategy  for  the  period  2007-
2013 that draws on their home-grown potential. In the framework of the ERDF and European 
Social  Fund  (ESF)  operational  programmes,  this  has  translated  into  a  high  concentration  of 
expenditure  in  areas  related  to  the  Lisbon  strategy  and  emphasis  on  developing  regional 
strategies  for  innovation  or  to  enhance  the  development  of  human  potential  in  the  field  of 
research and innovation. 

The  rural  development  programmes  for 
the 
competitiveness  of  the  OR  by  concentrating  on  maintaining  productivity  in  the  agricultural 
sector,  supporting  sectors  undergoing  restructuring,  continuing  training,  the  development  of 
high-quality products and the preservation of the environment. 

the  period  2007-2013  also 

improve 

In the agricultural sphere, the draft Regulation for a “health check6" maintains the exemptions 
made for the OR in terms of decoupling and modulation of direct payments. It also provides 

Guadeloupe  (GDP  per  capita  70.6)  and  Martinique  (GDP  per  capita  75.6)  remain  among  the  least 
prosperous  regions  of  the  27  EU  countries.  The  Canary  Islands  (GDP  per  capita  93.7)  and  Madeira 
(GDP per capita 94.9) are coming close to the Community average. 
Commission communication "Strategy for the Outermost Regions: Achievements and Future Prospects" 
COM(2007)507 final, 12 September 2007. 
State Aid N199/2007 concerning support for freight in the French overseas departments. 
State Aid N912/2006 concerning individual aid measures of a social nature for internal air transport in 
French Guiana and air transport in the autonomous region of Madeira. 
COM(2008)306 final, 20 May 2008. 

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for  the  transfer  of  €24.46  million  in  direct  pa yments  to  the  POSEI  scheme  from  the  2010 
financial year onwards. 

Furthermore, in the context of the reform of the common organisation of the market in wine, 
the Commission  has  taken  account of the calls from the OR concerning the maintenance of 
the  current  arrangements  for  vineyard  restructuring  and  exemption  from  the  grubbing-up 
scheme. As far as distillation and use of concentrated grape must is concerned, the status quo 
will be maintained, with one change provided for in Regulation (EC) No 247/2006. 

In  the  fisheries  sector,  the  European  Fisheries  Fund  (EFF)  helps  fishing  communities  to 
diversify their economy, remain competitive on the fresh fish market by developing products 
with high added value and increase the rate of supply to local markets from aquaculture. 

In October 2007 the Commission set out its vision for a new integrated maritime policy for 
the European Union7, which aims to meet the specific needs of the OR more effectively while 
strengthening synergies and consistency between sectoral policies. 

Finally,  concerning  State  aid,  a  number  of  provisions  are  aimed  in  particular  at  promoting 
productive investment, job creation or vocational training, while taking account of the specific 
disadvantages  affecting  the  OR8.  The  different  special  fiscal  and  customs  arrangements9 
adopted in favour of the OR will make it possible to continue to provide the necessary support 
to  the  competitiveness  of  the  economies  of  these  regions,  particularly  for  certain  sectors  or 
types of products. 

Strengthening regional integration  

The  territorial  cooperation  programmes  for  the  period  2007-2013,  jointly  financed  by  the 
ERDF,  provide  opportunities  for  the  development  of  the  action  plan  for  the  wider 
neighbourhood. By way of example, the "Macaronesia"10 (MAC) programme allocates almost 
one-third of its ERDF budget to cooperation with third countries. Similarly, in the context of 
the  national  indicative  programmes  of  the  tenth  EDF,  Mauritania,  Senegal  and  Cape  Verde 
have allocated – or are likely to allocate – financial resources to cooperation with the OR. In 
addition,  the  Canary  Islands  are  currently  developing  a  programme  of  cross-border 
cooperation  with  Morocco,  jointly  financed  by  the  Wider  Neighbourhood  Instrument  (IGV) 
and the ERDF. 

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Commission  communication  "An  integrated  maritime  policy  for  the  EU"  COM(2007)575  final,  Blue 
Book, SEC(2007) 12/78/2 action plan. 
For  example,  State  Aid  22/2008  concerning  aid  measures  in  the  context  of  the  AIEM  for  the  Canary 
Islands.  Decision  2008/417/EC  of  3  June  2008  on  the  excise  duties  applicable  to  beer  brewed  in 
Madeira. State Aid N421/2006, authorisation for a State aid measure in the form of a lower tax rate for 
companies registered in Madeira’s free zone. 
For  example,  Council  Decision  2008/439/EC  of  9  June  2008  on  amendments  to  dock  dues  for  new 
products  from  French  Guiana.  Council  Regulation  (EC)  No 645/2008  of  8  July  2008  opening  and 
providing for the administration of autonomous Community tariff quotas on imports of certain fishery 
products into the Canary Islands. 
The Macaronesia programme is the name of the transnational territorial cooperation area encompassing 
the Canary Islands, Madeira and the Azores. 

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Finally,  the  OR  involved  in  the  Macaronesia  programme  play  an  essential  role  in  the 
implementation of the special partnership between the EU and Cape Verde11. 

The  specific  provisions  in  favour  of  the  OR  included  in  the  Economic  Partnership 
Agreements  (EPAs)  –  facilitation  of  cooperation  with  the  ACP  countries,  safeguard  and 
exclusion clauses for the local sugar and banana markets – give these regions the chance to 
increase their regional integration, while taking account of the vulnerability of their markets. 

3. 

THE PUBLIC DEBATE 

The  public  debate  on  the  future  of  the  European  strategy  for  the  outermost  regions,  which 
took  place  between  September  2007  and  May  2008,  marks  an  important  stage  in  the 
development  of  dialogue  and  partnership  between  the  European  Union,  the  Member  States 
and the outermost regions. 

The  numerous  contributions  received  and  the  participatory  mechanisms  put  in  place  at 
regional and local level reflect the high levels of  commitment and interest among all of the 
parties concerned. 

Similarly,  the  interinstitutional  and  partnership  conference  held  on  14  and  15  May  2008  in 
Brussels  brought  together  nearly  300  participants,  who  were  able  to  express  and  exchange 
their  points  of  view  concerning  the  challenges  and  realities  facing  Europe’s  outermost 
regions. 

Beyond the detailed analysis of the results of this consultation12 several key lessons emerged 
from this exercise: 

Implementation of the 2004 strategy assessed as satisfactory overall 

–  Unanimous  recognition  of  the  usefulness  of  an  integrated  European  strategy  for  the 
outermost regions and validation of the three priority strands defined in 2004: accessibility, 
competitiveness  and  regional  integration.  Need  for  advancement  in  the  action  taken 
specifically with a view to reducing the accessibility deficit of the OR and enhancing their 
regional integration. 

–  Recognition  of  the  significant  advances  recorded  in  recent  years  thanks  to  the 
implementation of specific measures, particularly under the cohesion, agriculture, research 
and competition policies. 

Suitability of the subject areas proposed by the 2007 communication 

–  Confirmation of the relevance of the four themes proposed by the communication issued in 
September  200713, which  sought to add to  the three  priority areas set out in the strategy. 
These themes present major challenges for the outermost regions, in terms not only of the 
problems which need to be overcome (the high cost of coping with the effects of climate 

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Communication  from  the  Commission  of  24  October  2007  on  the  future  of  relations  between  the 
European Union and the Republic of Cape Verde, COM(2007) 641 final. 
All  of  the  contributions,  and  a  summary  of  the  conclusions  of  the  public  consultation  process,  are 
available on the site http://ec.europa.eu/regional_policy/consultation/rup/contri_fr.htm. 
Climate change, demographic change and migratory flows, agriculture and maritime policy. 

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change, the impact of the population boom or of the ageing population, the effects of the 
increase in illegal immigration) but also of the opportunities for development which need 
to be grasped (the challenge of agricultural diversification, the benefits to be gained from 
exploiting maritime potential). 

Reaffirmation  of  constraints  and  of  the  need  to  capitalise  on  the  strengths  of  the  outermost 
regions  

–  Reaffirmation of the permanent disadvantages affecting the OR and call for consolidation 

of existing instruments in order to offset them. 

–  Readiness  to  make  full  use  of  the  comparative  assets  and  advantages  enjoyed  by  these 
regions  compared  to  the  European  Union  and  neighbouring  third  countries  (unique 
geostrategic  position,  specific  potential  in  terms  of  renewable  energies,  observation  and 
monitoring  of  the  effects  of  climate  change  and  of  biodiversity).  These  characteristics 
make the outermost regions an ideal location in which to conduct pilot projects with high 
added value for the European Union. 

Systematisation of impact assessments and quest for better synergy and consistency between 
Community policies for the outermost regions 

–  Need  for  systematisation  of  the  use  of  impact  assessments  when  implementing  new 
Community legislation on the environment, agriculture or fisheries, and when negotiating 
international trade agreements with a direct impact on the economies of the OR. 

–  Need to improve consistency between the various Community policies and to ensure that 

realities on the ground are better recognised and taken into account. 

Improvements to knowledge and statistical data about certain phenomena 

–  Need for statistics that are reliable, comprehensive and tailored to the specific context of 
the OR in order to formulate, implement and properly assess the impact of public policies. 
Numerous studies are thus proposed, focusing on: population movements and demographic 
trends,  the  impact  of  migration  on  the  economic  and  social  cohesion  of  the  outermost 
regions, the effects of climate change on the economy of these regions, the impact of trade 
liberalisation on agriculture. 

All of these contributions provided input for the Commission’s reflections in connection with 
this  communication  and  will  continue  to  enhance  the  development  and  implementation  of 
Community policies with an impact on the OR. 

4. 

TOWARDS  A  NEW  PARADIGM:  MAKING  THE  MOST  OF  THE  UNIQUE 
CHARACTERISTICS OF THE OR 

In  the  age  of  globalisation  and  of  research  to  improve  European  competitiveness,  there  is  a 
need  to  support  the  development  of  growth  sectors  where  the  OR  have  the  potential  for 
specialisation and a strong comparative edge. These sectors also constitute fertile ground for 
the  development  of  cutting-edge  initiatives  and  pilot  projects  of  significant  interest  for 
Europe.  This  new  paradigm,  centred  on  making  the  most  of  the  assets  of  the  OR  as  a 
springboard for economic development, must lead to a renewal of the strategy focussing, in 
particular,  on  sectors  with  high  added  value,  such  as  agri-food,  biodiversity,  renewable 

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energies, astrophysics, aerospace science, oceanography, vulcanology or seismology, and the 
important role of the OR as outposts of the European Union in the world. 

4.1. 

Outposts of the European Union in the world 

The OR, surrounded by geopolitical and geographic realities that are different from those of 
the continental European Union, represent the vanguard of the EU’s position vis-à-vis other 
major economic blocs. They thus confer a special dimension on the Union’s external activities 
and  participate  in  the  development  of  a  true  wider  neighbourhood  policy  through  their 
geographical,  cultural  and  historical  links  with  other  countries  and  peoples,  particularly  in 
Africa and the Americas. 

The  OR  bring  a  considerable  international  maritime  dimension  to  the  European  Union, 
resulting in enhanced legitimacy for its policy of sustainable co-development of the oceans in 
three areas in particular: Macaronesia, the Caribbean and the south-western Indian Ocean. 

Located  on  shipping  routes  or  straits,  the  OR  occupy  an  important  position  for  trade.  They 
also play a role in maritime governance for the monitoring of coastal waters (for instance, the 
fight  against  illegal  fishing,  piracy  or  drug  trafficking)  or  in  improving  the  security  of 
transport (for instance, the management of oil transport in the Caribbean). 

Moreover, the OR border on regions faced with developmental challenges, with which the EU 
cooperates in the areas of combating poverty, sustainable development, managing migratory 
flows  and  regional  security.  The  OR  can  thus  act  as  privileged  partners  with  their 
neighbouring  third  countries,  specifically  in  projects  to  enhance  administrative  capacities, 
training,  education  and  health,  creation  of  SMEs,  agriculture,  fisheries  and  prevention  of 
natural hazards. 

The  Atlantic  OR  are  called  upon  to  play  a  strategic  role  in  the  special  partnership  recently 
concluded between the EU14 and Cape Verde. Cooperation measures will be developed in the 
priority  areas  identified  in  the  partnership  action  plan,  such  as  the  fight  against  illegal 
trafficking (drugs, clandestine immigration), and police cooperation. 

4.2. 

Ideal location for experimentation to combat the effects of climate change 

The  geomorphologic  characteristics  and  geographical  location  of  the  OR  are  assets  of 
fundamental  importance  for  scientific  research,  particularly  the  study  and  monitoring  of 
phenomena linked to the effects of climate change. 

The  prevention  of  the  natural  hazards  to  which  the  OR  are  particularly  exposed  is  an 
especially  valuable  line  of  research.  The  OR  are  in  a  position  to  serve  as  platforms  for 
technological  and  scientific  cooperation  through  monitoring  and  observation  of  natural 
hazards in their respective areas. 

The OR face a dual challenge where energy is concerned: reducing their dependency on fossil 
energies  and  grasping  the  opportunities  presented  by  their  natural  environment  to  develop 
practices and know-how that can be exported and reproduced. Pilot projects under way or in 
preparation are developing innovative and original solutions in which renewable energies play 

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Communication  from  the  Commission  of  24  October  2007  on  the  future  of  relations  between  the 
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a  central  role.  As  well  as  offering  environmental  and  economic  benefits,  these  constitute  a 
veritable showcase of European knowhow. 

The  NRJRUP  project  aims  to  promote  exchanges  of  best  practice  and  transfer  of  knowhow 
between  the  OR,  and  to  define  a  policy  for  the  development  of  renewable  energies  starting 
from the use of maritime resources. 

In  Réunion,  the  GERRI  project  aims  at  achieving  energy  self-sufficiency  for  the  island  by 
2030. 

The  multi-purpose  power  station  ("Aproveitamento  de  fins  múltiplos  dos  Socorridos")  in 
Madeira makes a substantial contribution to the island’s electricity production by reducing the 
hydroelectric system's dependence on seasonal constraints. 

In the area of health, climatic upheavals are today increasing the risk of and vulnerability to 
tropical diseases. The emergence of new diseases calls for the establishment of new advanced 
centres  for  microbiological  research  and  monitoring  in  areas  where  disease  is  endemic,  to 
enable  rapid  and  reliable  diagnosis  of  pathogens  and  the  assessment  of  the  risks  of  their 
emergence and spread. The OR already have and are in a position to further develop research 
infrastructures that may be used to enhance health protection in their region as a whole as well 
as in continental Europe. 

Established  as  a  result  of  the  2007  chikungunya  epidemic,  the  Centre  de  Recherche  et  de 
Veille  sur  les  Maladies  Emergentes  dans  l'Océan  Indien  (CRVOI,  Centre  for  Research  and 
Monitoring  of  Emerging  Diseases  in  the  Indian  Ocean)  aims  to  develop  multi-disciplinary 
research in the field of emerging infectious diseases, particularly those with the potential to 
develop into epidemics, with an eye to the health priorities in the Indian Ocean Region. 

4.3. 

Remarkable biodiversity and wealth of marine ecosystems 

Where  biodiversity  is  concerned  the  OR  are  home  to  an  extraordinary  wealth  of  varieties, 
generally  more  numerous  than  those  of  all  of  continental  Europe.  This  wealth  forms  the 
foundation  of  economic  activities  such  as  fishing  and  tourism,  and  supports  numerous 
ecological services such as water purification, the renewal of fisheries resources, protection of 
soils  against  erosion  or  protection  of  coasts  from  natural  disasters  and  climate  change.  This 
resource represents a potential for discoveries and innovations in the areas of pharmaceutical 
or agronomic research. 

The  OR  also  have  abundant  and  relatively  well-preserved  fishery  resources:  the  seabed  is  a 
veritable  living  laboratory  of  biodiversity  and  makes  it  possible  to  establish  a  policy  of 
sustainable fisheries development. 

The  OR  are  also  an  ideal  location  for  research  into  the  development  of  biotechnologies, 
particularly  those  involving  the  exploitation  of  specific  marine  resources  such  as  deep-sea 
hydrothermal springs or tropical ecosystems. 

The  Oceanography  and  Fisheries  Department  of  the  University  of  the  Azores  has  created  a 
centre  of  excellence  to  study  and  analyse  oceanic  resources.  One  of  the  projects  conducted 
aims to improve knowledge of the ocean depths and develop technologies to facilitate access 
to deep waters.  

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4.4. 

Scientific portals for their geographical areas 

By developing cutting-edge information and communication technologies on their territories, 
the  OR  are  creating  a  position  for  themselves  as  platforms  for  the  dissemination  of 
technologies and veritable scientific portals in their respective environments.  

The  SEAS15  project  in  French  Guiana  aims  to  gather  data  from  satellite  observation  of  the 
Amazonian  and  Caribbean  environment.  Unique  in  Europe  and  in  South  America,  this 
technological platform supplies the data needed to monitor resources and manage the Amazon 
basin  (7  million  km2)  and  contributes  to  the  Global  Monitoring  Environment  and  Security 
initiative. 

Since 2005, Guadeloupe has set up a network of high-speed undersea digital cables ("Global 
Cable Network") running from Puerto Rico and serving 14 islands in the Eastern Caribbean as 
far as Trinidad and Tobago. This major infrastructure, spread over 2 100 km, has considerably 
increased  the  capacity  available  to  telecommunications  operators  and  brought  about  very 
competitive rates for users. 

Offering  excellent  visibility  of  celestial  objects  to  astronomers,  the  Canary  Islands 
Astrophysics Centre is a research infrastructure renowned at international level, housing the 
most  advanced  telescopes  and  astrophysical  installations  in  the  European  Union.  Once  the 
Great Canary Telescope (GCT), the only one of its kind in the world, is put into service it will 
enable European astrophysics researchers to participate in projects of a highly technological 
nature. 

4.5. 

High-quality agricultural produce 

The  originality  and  quality  of  the  agricultural  produce  grown  in  the  OR  deserve  wider 
recognition.  Indeed,  the  economic  development  of  the  OR  is  also  supported  by  exports  of 
products  that  are  much  in  demand  for  their  quality  and  unique  characteristics:  for  instance, 
AOC  rum  from  Martinique,  the  Victoria  pineapple  from  Réunion  or  the  Caribbean  melon, 
Madeira  wine,  cheese  and  tea  from  the  Azores,  AOC  wines  and  cheeses  from  the  Canary 
Islands or flowers and ornamental plants from all of the OR. 

The  Martinique  Agriculture  and  Environment  Research  Centre  (Pôle  de  Recherche  Agro-
environnementale de la Martinique, PRAM) is working to develop diversified and sustainable 
agriculture  as  well  as  new  niche  markets  by  focussing  in  particular  on exploiting little-used 
local  fruit  varieties,  making  genetic  improvements  to  varieties  and  establishing  sustainable 
production systems. 

As all of the above examples demonstrate, the OR are already using innovative and original 
methods to make the most of their assets. This know-how must be enhanced to enable them to 
make their economies more dynamic and to play a new role within the European Union. 

5. 

PROPOSALS FOR THE FUTURE 

Without  anticipating  the  development  of  the  Union’s  future  general  policy  framework, 
particularly the reflection on the financial outlook beyond 2013, and with a view to fleshing 

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out  the  new  paradigm,  the  Commission  proposes  to  ensure  that  better  use  is  made  of  the 
existing  Community  instruments,  and  puts  forward  a  series  of  measures  that  could  be 
implemented in the current budgetary framework. 

5.1. 

Use of existing Community instruments 

In budgetary terms, the OR will receive €7.8 bil lion in Community investment over the period 
2007-2013 (ERDF, ESF, EAFRD, EFF, POSEI). Full advantage must be taken of all of these 
instruments and of the flexibility allowed under the regulations to incorporate new priorities, 
for instance, during the mid-term strategic reflections on the national reports for 2009 and the 
Commission report in 2010. 

The  Commission  will  continue  to  work  with  the  EIB  and  the  EIF  to  facilitate  the 
implementation of the JEREMIE and JESSICA initiatives in these regions. 

The  OR  will  also  be  able  to  become  involved  in  the  “Regions  for  Economic  Change” 
initiative  and  its  “fast-track”  element  implemented  under  the  interregional  strand  of  the 
territorial  cooperation  objective  and  the  sustainable  urban  development  programme  (Urbact 
II).  Encouraging  the  emergence  of  networks  of  regional  players  and  pilot  projects  that  may 
eventually  be  incorporated  into  the  convergence  and  competitiveness  programmes,  this 
initiative  includes  priority  themes  of  particular  relevance  for  the  OR,  such  as  "enhancing 
coastal areas" and "reaping the benefits of the seas and oceans".  

In  the  field  of  education  and  training,  the  Commission  encourages  the  development  of  new 
skills and know-how that will be of crucial importance to enable individuals to face up to the 
challenges  of  the  21st  century.  This  adaptation  of  human  capital  will  have  to  be  based  in 
particular on increased participation in university exchange programmes, the development of 
key  skills  through  lifelong  learning16  and  increased  cooperation  between  European  training 
and education systems. 

Finally,  the  OR  must  be  placed  in  a  position  to  grasp  the  opportunities  offered  within  the 
existing  Community  programmes  in  the  areas  of  research,  transport,  energy,  innovation, 
information  and  communication 
through  active 
participation in the corresponding calls for proposals. 

technologies,  education  or  culture 

5.2. 

Rising to the new challenges, deepening knowledge, strengthening partnership 

More  specifically,  in  view  of  the  themes  analysed  in  the  course  of  the  public  debate,  the 
Commission would propose the following measures: 

(a) 

Climate change 

•  Launching  a  study  of  the  economic  impact  of  adaptation  to  climate  change  in 
coastal areas. This study will be carried out for the European Union as a whole but 
will  include  a  specific  analysis  of  the  OR.  It  should  encourage  the  systematic 
exchange  of  good  practices  concerning  the  cost  and  planning  of  adaptation  in 
coastal regions. 

•  Encouraging  the  establishment  of  an  integrated  policy  for  the  management  of 
coastal risks (flooding, coastline erosion, reducing the vulnerability of people and 

16 

Recommendation on key competences for lifelong learning, OJ L 394, 30.12.2006. 

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property at risk) and a monitoring and warning system with an eye to safety and 
the disaster and emergency services. 

•  Drawing  up  a  voluntary  nature  conservation  plan  based  on  the  Natura  2000 

experience. 

•  Developing and implementing measures to control invasive species. 

•  Recognising the vulnerability of the outermost regions in the context of the White 

Paper on adaptation to the effects of climate change. 

(b) 

Demographic trends and migratory flows 

•  Launching  an  impact  study  to  obtain  a  better  overview  of  the  consequences  – 
positive  and  otherwise  –  of  both  migration  and  demographic  trends  on  the 
territory, the labour market, public services, education and health in the OR. This 
should enable a “migration balance sheet” to be drawn up for each region. During 
the  mid-term  evaluation  of  the  recent  general  programme  "Solidarity  and  the 
Management  of  Migration  Flows  2007-2013",  the  Commission  will  determine 
whether further developments are necessary, including the need for and feasibility 
of setting up a “European Fund for adjustment to migration”. 

•  Concerning demographics, the Commission would call on the Member States and 
the regional authorities of the OR to continue and, where necessary, increase their 
analytical  work  with  a  view  to  taking  the  demographic  change  factor  into 
consideration  when  defining  policies,  particularly  in  the  areas  of  education, 
training  and  employment,  as  well  as  during  the  Structural  Fund  programming 
process.  It  also  calls  on  the  National  Statistical  Institutes  to  continue  their 
cooperation with EUROSTAT. 

(c) 

Agriculture 

•  Continue  to  encourage  the  use  of  all  of  the  possibilities  offered  by  the  POSEI 
scheme as regards structuring and distribution of the budget allocated to each OR, 
the  number  of  productions  to  be  supported,  and  monitoring  of  environmental 
problems linked to specific forms of pollution. 

•  Encouraging  the  use  of  different  forms  of  start-up  and  investment  assistance  for 
young farmers, which can be modulated within the rural development programme 
in question to take account of specific regional requirements. 

•  Grasping  all  the  opportunities  offered  by  the  Community  product  promotion 
programmes17  and  including  more  products  in  these  programmes  will  certainly 
contribute to increasing the number of trade outlets and building up the reputation 
of high-performance agricultural and agri-food sectors. 

17 

Programme to promote the graphic symbol of the OR (Council Regulation 247/2006) and Annex I of 
Commission Regulation 501/2008 – indicative annual budget: €1 million, as well as product promotion 
measures laid down in the POSEI arrangements. 

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(d)  Maritime policy 

•  Adapting  the  European  Integrated  Maritime  Policy  and  the  various  sectoral 
actions provided for in its action plan to the specific characteristics of the OR. 

•  Increasing  knowledge  of  maritime  affairs  and  the  marine  environment  and  the 
value  of  the  services  provided  by  marine  ecosystems  in  the  OR  by  means  of  a 
specific analysis in the context of the maritime socio-economic data project led by 
the  European  Marine  Observation  and  Data  Network 
EUROSTAT  and 
(EMODNet). The information obtained will be used for a comprehensive analysis 
of the OR in the "Sea Atlas" to be published in 2009 by the Commission. 

•  Creating networks dedicated to research and enhancing the role of the OR as ideal 
observatories  for  the  marine  environment  for  Europe  in  the  context  of  the  new 
Marine  and  Maritime  Research  Strategy18.  Providing,  in  the  context  of  the  7th 
RTD  Framework  Programme,  support  for  research  into  knowledge,  preservation 
and management of marine ecosystems. 

•  Encouraging  the  OR  to  play  a  strategic  role  in  maritime  governance  and 
monitoring  in  their  respective  regions,  specifically  by  developing  their  own 
integrated regional maritime policies and maritime spatial plans and through joint 
activities  with  third  countries  in  the  context  of  Community  regional  cooperation 
programmes or the regional fisheries monitoring plan in the south-western Indian 
Ocean. 

•  Encouraging  maritime  links  between  the  OR  and  neighbouring  third  countries 
with a view to strengthening economic and cultural exchanges, by modifying – no 
later than their next revision – the current Community guidelines on State aid for 
sea  transport  in  order  to  authorise  start-up  assistance  for  these  connections. 
Alternatively,  the  OR  can  make  use  of  public  service  contracts  for  these  links, 
verifying the criteria of the “Altmark” case-law19. 

(e) 

Strengthening partnership 

•  When  new  Community  legislation  is  being  adopted,  the  analysis  of  its 
consequences  for  the  OR  must  be  intensified  in  order  to  ensure  consistency.  In 
this  regard  the  work  of  the  Commission’s  Interdepartmental  OR  group  could, 
when  needed,  be  accompanied  by  ad  hoc  task  forces  to  deal  with  specific 
problems. 

•  Launching  a  socio-economic  study  of  growth  factors  in  the  OR  that  would 
emphasise growth sectors, such as those identified in this communication, would 
also identify the principal constraints on their development and make it possible to 
address them. 

•  Making sure that discussions of the development of the strategy for the OR – as 
well  as  full  participation  by  the  OR  themselves  –  are  included  in  ongoing 

18 

19 

COM  (2008)534  “A  European  Strategy  for  Marine  and  Maritime  Research.  A  coherent  European 
Research Area framework in support of a sustainable use of oceans and seas”. 
Court of Justice ruling – OJ C 226/1, 20.09.2003. 

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mechanisms  and  actions  such  as:  the  Green  Paper  on  territorial  cohesion;  the 
future of cohesion policy beyond 2013; the reform of the Union’s budget; regional 
integration  for  the  development  of  the  ACP  countries;  the  Green  Paper  on  the 
future  of  relations  between  the  EU  and  the  overseas  territories  and  countries,  or 
the development of European maritime policy. 

•  The  OR  must  be  called  upon  to  take  a  constructive  role  in  the  process  of 
implementing  and  finalising  the  EPAs.  They  should  in  particular  grasp  the 
opportunities  offered  by  the  enhancement  of  regional  cooperation  for  trade  in 
goods and services as well as in other areas such as services, intellectual property 
and  public  procurement.  It  is  in  these  areas  in  particular,  where  the  OR  have  a 
comparative  edge,  that  real  complementarity  may  be  developed  between  the 
economies  of  these  regions  and  those  of  the  ACP  countries.  In  this  regard,  it  is 
important to support measures geared towards increasing the capacity of the OR 
to keep pace with both the trade flows in which they are involved and the EU’s 
trade policy. 

•  Organising,  together  with  the  OR,  information  sessions  to  provide  a  better 
explanation  of  Community  instruments  and  policies  (7th  RTD  Framework 
Programme, dissemination of cooperation possibilities developed by the EDF and 
the ERDF, etc). 

•  Organising, together with the Member States and the OR, a forum for “outermost 
Europe”  that  would  take  place  every  two  years  (networking  of  best  practices, 
rewards for initiatives developing growth sectors, campaigns to raise awareness of 
the issues facing the OR, etc.). 

6. 

CONCLUSION 

In  this  Communication  the  Commission  is  following  up  the  call  made  by  the  European 
Council of December 2007, taking account of the views expressed by the parties during the 
public consultation. 

In  view  of  the  challenges  currently  facing  the  world  –  energy  crisis,  food  crisis,  climate 
change, demographic pressure and migratory flows, urgent need for better management of the 
oceans and seas – full use must be made of the contribution from the OR. These regions are 
veritable “ideas laboratories” where all of these challenges and phenomena can be identified, 
examined  and  modelled.  Their  experience  will  be  important  for  their  geographical 
surroundings and for the rest of the territory of the Union. 

This potential brings with it a new paradigm that will have to be exploited in the future. This 
must  not,  however,  lead  to  any  let-up  in  the  surveillance  of  the  development  of  European 
sectoral policies, in the context of which all of the existing possibilities must be used. 

The new approach  must give  rise to new projects  that result  in added  value  and sustainable 
development and that will lead, in the longer term, to a renewed European strategy in favour 
of the OR. 

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