Transcript New SF
STRUCTURAL FUNDS 2007-2013 Presentation given at The Council of European Municipalities and Regions (CEMR) on the occasion of the seminar on “Promoting endogenous local economic development strategies: the case of the creative industry” Ana Maria Nogueira - DG EMPL April 6th 2006 Commission européenne -1- Timeline 2001: Second Cohesion report Feb 04: Financial Perspectives proposal 07-13 + Third Cohesion report July 04: Proposal SF regulations Sep 04: Start debate Council + EP + other institutions June 05: proposal Strategic Guidelines for Cohesion Dec 05/ Adoption of financial perspectives Commission européenne -2- The legislative proposals A General Regulation setting the main objectives and eligibility rules for interventions, programming and management of the funds 3 Funds' Regulations – ERDF, ESF, Cohesion Fund – stipulating the arrangements specific to each fund A regulation establishing a European grouping for cross-border co-operation One Commission's implementing Regulation Commission européenne -3- Why the need of change To address enlargement challenges To concentrate on Lisbon and Gothenburg agendas To give more visibility to the results of cohesion policy To address the difficulties encountered in the implementation of current programming Commission européenne -4- Re-orientation of Cohesion policy based on the priorities of the Union – Lisbon and Gothenburg Articulation around the 3 pillars of sustainable development Competitiveness innovation, research, education and accessibility Employment and social inclusion Environment and risk prevention Commission européenne -5- Impact of enlargement From 380 to 454 million (EU25) – and then to 485 million (EU 27) GDP per head drops (-12.5% EU 25: -18% EU27) BUT – NMS bring dynamic growth (4% per year against 2.5% in EU 15) Commission européenne -6- Impact of enlargement The development gap between regions doubles: the average GDP in Obj 1 is 69%: in the NMS 46% Employment rate: EU15 = 64% - NMS = 56% Number of unemployed reaches 18 million Rate: 15% in 10 NMS – 8% in EU 15 Population getting the highest rate of aid from Cohesion policy goes from 83 million to 123 million Commission européenne -7- Other challenges for the future Globalisation and technological progress Adjusting to change Demographic trends Increase growth in the Loss of 1 million workers per year EU Commission européenne -8- Principles of the SF reform Concentration: a more strategic approach – geographic – thematic Simplification: less objectives-less funds simpler programming more flexible management Decentralisation: stronger role for the regions and local players Commission européenne -9- Principles Concentration Simplification Decentralisation while keeping the main principles that have proved the Community added value: programming partnership evaluation additionality shared management accent on quality and performance Commission européenne -10- A more strategic approach and in line with the Subsidiarity principle for the three stages of programming Community Strategic Guidelines (EU level): linking cohesion objectives with Lisbon agenda Strategic Reference Framework (national level): organisation of coherence of Community, national and regional priorities Operational Programmes – thematic\geographic: analysis, strategy, priorities Commission européenne -11- The new architecture: 3 Objectives-3 Funds Convergence – ERDF, ESF,CF regions (regional GDP per capita <75% of the average) Regions concerned by the statistical effect: “phasing-out” CF (GNI per capita <90% of the average) Regional competitiveness and employment – ERDF,ESF "phasing-in" regions all other parts of the Union European territorial co-operation – ERDF No Community Initiatives Commission européenne -12- The political priorities Convergence support growth and job creation in the least developed MS and regions Regional Competitiveness and Employment helping regions and people to anticipate and respond to change Territorial co-operation promoting a balanced integration of the European territory Commission européenne -13- Special treatment Regions affected statistically by enlargement Outermost regions Regions with geographical handicaps Certain islands Mountain areas Sparsely-populated regions in the far North of EU Commission européenne -14- A decentralised and territorial approach Each region may benefit from a programme, which it implements Territorial specificities are taken into account Integration of the urban dimension with the possibility of sub-delegation to the urban authorities Attention given to zones with a geographic or natural handicap islands, mountains, rural zones with low population density, previous external border areas may benefit from an increased rate of cofinancing Nordic zones very low population density taken into account in the final allocation Ultra-peripheral regions covered by a specific allocation compensating for extra costs Commission européenne -15- acquis structurale policy – present / future financiar-instrumentele Pachetul Cohesion Structural instruments 7 priority themes – 5 instruments ERDF ESF Objective 1 Objective 2 INTERREG URBAN Objective 1 Objective 2 Objective 3 EQUAL ERDF Convergence Regional competitiv&employment European territorial cooperation EAGGFGuidance FIFG CF Objective 1 Transport and environ projects X X Objective 1 LEADER+ Restr. fisheries outside Objective 1 ESF Convergence CF Convergence Regional competitiv &employment 3 objectives – 3 instruments Simplification Commission européenne -16- Structural funds - programming cycle Cohesion Strategic National Development Guidelines adopted by Plan Council Community Support National Strategic Framework Reference Framework Simplification Operational Programmes Operational Programmes (high priority level, most important actions) X Programme Complements Commission européenne -17- Strategic guidelines, programming and follow-up Community's strategic guidelines on cohesion 1 proposed by the Commission, adpoted by the Council, assent by the European Parliament National strategic reference framework 2 proposed by the Member State in applying the partnership principle; reflects on the Union‘s orientations, lays down a national strategy and its programming; finally decided by the Commission Operational Programmes 3 one programme by fund and Member State or region, description of priorities, management and financial sources; proposed by Member State or region; finally decided by the Commission Programme management and project selection 4 5 by Member States and regions; “shared management“ principle = concertation with the Commission Strategic follow-up and annual debate by the European Council in Spring, based on an annual report of the Commission and Member States Commission européenne -18- Significant simplification 3 funds in place of 6 ERDF, Cohesion Fund, ESF Mono-fund programmes Integration of projects of the Cohesion Fund in multi-annual programming Identical management rules for the Cohesion Fund and the Structural Funds Programming and financial management by priority and no longer by measure National eligibility rules for expenditure and no longer Community rules Commission européenne -19- Concentration Budgetary resources are concentrated on those who need them most (budgetary concentration): 78,54% in favour of Convergence (81,7%): Less-developed regions Less-developed countries Regions concerned by the statistical effect linked to enlargement (drop in GDP per capita) 17,22% (15,9)in favour of Regional Competitiveness and Employment 3,94% (2,42%)for cross-border and trans-national co-operation Programmes will focus on the Lisbon and Gothenburg priorities (thematic concentration) Commission européenne -20- Comparison between Commission proposal and Council agreement Commission proposal in % in billion Euro Council agreement in% in billion Euro Convergence 78.54 % 264 81.7 % 251.3 Regional Competitiveness and Employment 17.22 % 57.9 15.9 % 48.9 European Territorial Cooperation 3.94 % 13.2 2.42 % 7.5 Objective Total 336.1 Commission européenne 307.6 -21- Objectives, Structural Funds and instruments 2007-2013 Objectives Structural Funds and instruments Convergence ERDF ESF Regional Competitiv. and Employment ERDF ESF European territorial Cooperation ERDF infrastructure, innovation, investments etc. vocational training, employment aids etc. all Member States and regions Commission européenne Cohesion Fund environmental and transport infrastructure, renewable energy MemberStates with a GNI/head below 90% -22- Programmes and Instruments Eligibility Priorities Convergence objective Cohesion Policy 2007-2013 3 Objectives Budget: EUR 307.6 bn Regional and national programmes ERDF ESF Cohesion Fund including phasing-out Allocations 81.7% (EUR 251.33 bn) Regions with a GDP/head 75% of average EU25 Statistical effect: Regions with a GDP/head 75% of EU15 and >75% in EU25 Member States GNI/head 90% EU25 average •innovation; •environment/ risk prevention; •accessibility; •infrastructure; •human resources; •administrative capacity •transport (TENs); •sustainable transport; •environment; •renewable energy 57.6% EUR 177.29 bn 4.1% EUR 12.52 bn 20.0% EUR 61.42 bn Regional competitiveness and employment objective 15.8% (EUR 48.79 bn.) (0.37% of EU-GNI) Regional programmes (ERDF) and national programmes (ESF) Member States suggest a list of regions (NUTS I or II) "Phasing-in" Regions covered by objective 1 beween 2000-06 and not covered by the convergence objective •Innovation •environment/risk prevention •accessibility •European Employment Strategy 3.4% EUR 10.38 bn European territorial co-operation objective Cross-border and transnational programmes and networking (ERDF) Border regions and greater regions of transnational co-operation Commission européenne 15.5% EUR 38.4 bn •innovation; •environment/ risk prevention; •accessibility •culture, education 2.44% (EUR 7.5 bn.) of which: 77.6% cross-border 18.5% transnational 3.9% interregional + ENPI -23- The regulatory framework General Regulation on the ERDF, the ESF and the Cohesion Fund Council by unanimity, assent EP ERDF Regulation ESF Regulation Cohesion Fund Regulation Regulation establishing a European grouping of territorial co-operation (EGTC) ERDF, ESF: Co-decision; Cohesion Fund: assent EP Co-decision Commission Regulation on Implementation Information, Publicity, Financial control and Financial corrections New: General Regulation applies to the Cohesion Fund; a new Rural Development Fund and Fisheries instrument now outside Cohesion Policy; one Commission regulation instead of five on specific aspects; eligibility rules simplified. 24 Commission européenne -24- Financing: Differentiation of co-financing rates Criteria Member States, regions ERDF, ESF Cohesion Fund (1) Member States whose average per capita/ GDP below 85% between 2001-03 CZ, EE, GR, CY, LV, LT, HU, MT, PL, PT, SI, SK, BG, RO 85% 85% ES 80%/50%* 85% AT, BE, DK, DE, FR, IR, IT, LU, NL, SE, SF, UK 75%/50%* - regions in ES, FR, PT 85% 85%** (2) Member States other than those under (1) eligible to the Cohesion Fund (3) Member States other than those under (1) and (2) (4) Outermost regions referred to in Article 299 (2) of the Treaty * The first rate concerns regions eligible under the "Convergence"; the second one concerns regions under the "Regional Competitiveness and Employment" objective ** If applicable Commission européenne -25- Programming: Earmarking "Lisbon priorities" Presidency conclusions stipulate that expenditure targets will be set under both the convergence (60%) and regional competitiveness and employment (75%) objectives for policies which contribute directly to achieving the Lisbon objectives. The Commission currently prepares a list of those categories of expenditure concerning research and innovation, human capital, business services, major European infrastructures and energy efficiency and renewables. Exception: these provisions shall not apply to Member States that acceded the Union after 2004. Commission européenne -26- The European Social Fund 2007-2013 “Jobs and new opportunities for all” Commission européenne -27- Legal basis • Article 146 of the Treaty establishes that the ESF aims “to render the employment of workers easier and to increase their geographical and occupational mobility within the Community, and to facilitate their adaptation to industrial changes and to changes in production systems, in particular through vocational training and retraining” • The ESF Regulation translates Article 146 of the Treaty into concrete provisions on the tasks, priorities, and eligible activities of the ESF Commission européenne -28- The new FSE Reinforced links with EU employment and social inclusion priorities Contributes to Convergence and Regional Competitiveness and Employment Mainstream of innovative actions and transnational cooperation Priority for administrative capacity development Promotion of good governance and partnership Commission européenne -29- Reinforced links with the EES Strengthen economic and social cohesion by supporting MS policies aiming at – – – – full employment, quality and productivity at work, social inclusion and reduction of regional employment disparities Take account of EU objectives in the field of social inclusion and gender equality Concentration on the employment recommendations Commission européenne -30- ESF priorities: Convergence and Regional Comp. (I) Adaptability of workers and enterprises Development and implementation of lifelong learning strategies and systems, dissemination of ICT and management skills, promotion of entrepreneurship and innovation Anticipation and positive management of change through work organisation, identification of future skill needs and support to workers affected by restructuring Commission européenne -31- ESF priorities: Convergence and Regional Comp. (II) Enhancing access to employment Modernisation of labour market institutions Active and preventive measures ensuring early identification of needs Participation and progress of women in employment, reduce gender segregation, reconcile work and private life Strengthen social integration and employment of migrants Commission européenne -32- ESF priorities: Convergence and Regional Comp.(III) Reinforcing social inclusion of people at disadvantage and combating discrimination pathways to integration in employment through employability measures and accompanying actions and social support and care services diversity in the work place and awareness raising and involvement of local communities and enterprises to combat discrimination Commission européenne -33- ESF priorities: Convergence and Regional Comp.(IV) Mobilising for reforms in employment and inclusion development of partnerships and pacts through networking at national, regional and local level Commission européenne -34- ESF priorities: Convergence (I) Investment in human capital reforms in Education and Training systems to increase relevance to the LM, update teachers' skills Increased participation in Education and Training systems to reduce early school leaving and increase access to initial vocational and tertiary education Development of human potential in research and innovation Commission européenne -35- ESF priorities: Convergence (II) Building of Institutional Capacity of public administrations and public services support to policy and programme design and evaluation capacity building in the delivery of policies, programmes and legislation Commission européenne -36- Mainstreaming innovation and trans-nationality Promotion and mainstreaming of innovative and trans-national action within each programme Each Managing Authority will choose the themes for innovation Trans-national co-operation specific axis or programme MS ensure complementary and coherence with other Community programmes Commission européenne -37- Promotion of good governance and partnership ESF shall be implemented at the appropriate territorial level according to each MS specificities Greater involvement of Social Partners and consultation of non-governmental stakeholders in ESF programming, implementation and monitoring "An appropriate amount" of ESF resources under Convergence for capacity building and activities undertaken by Social Partners Adequate access of NGO to funded activities Commission européenne -38- Eligibility Expenditure ineligible for ESF support Reimbursable VAT Interests on debt Purchase of infrastructure, depreciable movables real state and land “The ERDF and the ESF may finance, in a complementary manner and subject to a limit of 10% of each priority axis of an operational programme, actions falling within the scope of assistance from the other Fund, provided that they are necessary for the satisfactory implementation of the operation and are directly linked to it” (art.33.2 GR) Commission européenne -39- 2000-2006/2007-2013: Instruments and Objectives 2000-2006 Objectives 2007-2013 Financial instruments Cohesion Fund Cohesion Fund Objective 1 ERDF ESF EAGGF-Guidance FIFG Objective 2 ERDF ESF Objective 3 Objectives Convergence and competitiveness Financial Instruments Cohesion Fund ERDF ESF ESF Regional competitiveness and employment - regional level - national level: European Employment Strategy ERDF ESF INTERREG ERDF European territorial cooperation ERDF URBAN ERDF EQUAL ESF LEADER + EAGGF-Guidance Rural development and restructuring of the fishery sector outside Obj. 1 EAGGF-Guarantee FIFG 9 objectives 6 instruments 3 objectives 3 instruments Commission européenne -40- Next steps Budget 2007-2013: Council, European Parliament and Commission need to agree upon a new Inter-institutional Agreement (April/May?). Cohesion Policy regulations and Strategic Guidelines for Cohesion: the set of five regulations will possibly be agreed by the Council (February 2006) and by Council and EP (June/July 2006). Programming and implementation: Member States and regions to propose National Strategic Reference Frameworks and Operational Programmes (second half of 2006), which will be adopted by the Commission (2006/2007). Commission européenne -41- Thank you for your attention For more information, please visit: http://europa.eu.int/comm/employment_social/esf2000/index-en.htm Commission européenne -42- LOCAL EMPLOYMENT DEVELOPMENT (LED) Commission européenne -43- The European Employment Strategy The European Employment Strategy (EES) has coordinated Member States' employment policies since 1997 through: • common European guidelines and recommendations • annual national action plans for employment • monitoring, evaluation and mutual learning at EU level (open method of coordination) • Member States have responsibility for implementation A policy framework which complements EU action in the field of employment (cf. legislation, social dialogue and the European Social Fund) Commission européenne -44- The EES and the Lisbon Agenda Lisbon Macro-economic policy coordination stability and growth pact, monetary policy Sustainable Development Strategy Micro-economic reforms industrial policy, innovation and R&D, reforms in product, service and financial markets Employment policy coordination attracting more people, adaptability of workers and enterprises, investment in human capital EES Coordination on social protection & social inclusion The Lisbon Strategy initiated a comprehensive set of structural reforms. The EES is the employment pillar. Commission européenne -45- European Employment Strategy New EES covers a three year period, from 2005 to 2008. Components are: Integrated Employment Guidelines (following a proposal from the Commission, the European Council agrees every year on a series of guidelines setting out common priorities for MSs' employment policies) National Reform Programmes (every MS draws up a programme in which is described how these Guidelines are going to be designed and implemented nationally) Joint Employment Report (the Employment chapter of the annual progress report is adopted by the Council to form the Joint Employment Report) Recommendations (The Council may decide, by qualified majority, to issue country-specific Recommendations upon a proposal by the Commission) EU annual progress report A rolling programme of annual planning, monitoring, examination, and readjustment Commission européenne -46- European Employment Strategy THE EMPLOYMENT GUIDELINES (2005 to 2008) Integrated Guidelines numbers 17 to 24 Member States, in cooperation with the social partners, shall conduct their policies with a view to implementing the objectives and priorities for action specified below. Reflecting the Lisbon strategy, the Member States' policies shall foster in a balanced manner: Full employment Improving quality and productivity at work Strengthening social and territorial cohesion Commission européenne -47- European Employment Strategy THE EMPLOYMENT GUIDELINES (2005 to 2008) Integrated Guidelines numbers 17 to 24 17: Implement employment policies aiming at achieving full employment, improving quality and productivity at work, and strengthening social and territorial cohesion 18: Promote a lifecycle approach to work 19: Ensure inclusive labour markets, enhance work attractiveness, and make work pay for job-seekers, including disadvantaged people, and the inactive 20: Improve matching of labour market needs 21: Promote flexibility combined with employment security and reduce labour market segmentation, having due regard to the role of the social partners 22: Ensure employment-friendly labour cost developments and wagesetting mechanisms 23: Expand and improve investment in human capital 24: Adapt education and training systems in response to new competence requirements Commission européenne -48- European Employment Strategy Introductory text to the employment guidelines for 2005-2008 (integrated guidelines 17-24): "In taking action, Member States should ensure good governance of employment policies. They should establish a broad partnership for change by involving parliamentary bodies and stakeholders, including those at regional and local levels. European and national social partners should play a central role." ie. good governance and partnership, including at the local level, cuts across all the Employment Guidelines Commission européenne -49- What is Local Employment Development? Activities to develop employment locally, involving key local actors, generally in partnership with others (perhaps EU/nationally/regionally designed initiatives, but not always) Everything has a local dimension Commission européenne -50- What is Local Employment Development? Local Employment Development reaches the parts that EU policy and national policy (and regional policy) fail to reach PROMOTING THE LOCAL DIMENSION OF THE EES Commission européenne -51- European Social Fund (ESF) Proposal for ESF Regulation, 2007-2013 Scope of Assistance (Article 3): • (Social Inclusion) "… the involvement of local communities and enterprises and the promotion of local employment initiatives." • "Promoting partnerships, pacts and initiatives through networking of relevant stakeholders, such as social partners and NGOs, at national, regional, local and transnational level…" • "Strengthening institutional capacity and the efficiency of public administrations and public services at national, regional and local level…" Commission européenne -52- European Social Fund (ESF) Proposal for ESF Regulation, 2007-2013 Good governance and partnership (Article 5): • "Its support shall be designed and implemented at the appropriate territorial level taking into account the national, regional and local level according to the institutional arrangements specific to each Member State." • "The MSs shall ensure the involvement of the social partners and adequate consultation and participation of other stakeholders, at the appropriate territorial level…" Gender equality and equal opportunities (Article 6): • "MSs shall promote a balanced participation of women and men in the management and realisation of the operational programmes at local, regional and national level, as appropriate." Commission européenne -53- Some of our recent LED Activities • Grants towards pilot projects 'Preparatory Measures in favour of a Local Commitment to Employment' (2000-03) • EU Forum on LED (Rhodes, Greece, 2003) • Practical Handbooks for Local Employment Strategies (2004) • IDELE: Identification, Dissemination and Exchange of good practice in Local Employment development (2004-06) • New Member States and Local Employment Development: taking stock and planning for the future (2005-06) • Benchmarking and LED (2005) • Joint EU-US Seminar on LED (June 2005) • Linking Local Actors (2006-07) • Joint work with OECD-LEED programme Commission européenne -54- IDELE Identification, Dissemination and Exchange of good practice in Local Employment development, and promoting better governance • 3-year rolling programme (2004-2006) • Series of 12 seminars, each on a different theme (4 each year) • Rigorous process of identification and analysis of good practices (focus on local strategies and overall approaches, rather than ad hoc projects) • Seminars bring together 25-30 participants - researchers, practitioners, policy makers (mainly from local level, but other levels also represented) – to discuss issues and case studies (6-8) in depth • Dissemination: website; each year, 4 thematic reports, plus overall report; will be increasing focus in Year 3 • Creating its own network, and database of good practice examples Commission européenne -55- IDELE Themes covered so far – LED and: • Declining industrial areas • Integrating ethnic minorities in cities • Remote rural areas • Successful areas and the Lisbon Process • Lifelong Learning • Linking into national/regional governance systems • Sustainable finance (alternatives to the grant culture) • Cross-border areas Commission européenne -56- IDELE Themes to be covered in 2006 – LED and: • The new Convergence Regions (for cohesion policy – especially the ESF) • Employment activation in the new Regional Competitiveness and Employment regions • Rural development • Overall conclusions and recommendations from IDELE Commission européenne -57- IDELE Themes to be covered in 2006 – LED and: • The new Convergence Regions (for cohesion policy – especially the ESF) • Employment activation in the new Regional Competitiveness and Employment regions • Rural development • Overall conclusions and recommendations from IDELE Commission européenne -58- IDELE Emerging issues/findings (1) • A lot is going on out there! • IDELE is an intensive process if it is to be effective • No 'one-size fits all'… BUT common factors and issues • Governance issues: "wired up" to other levels, flexibility • Local action is most effective where local strategies/action plans (LAPs) are developed – should link vertically and horizontally • Local Authorities always play a crucial role in LED partnerships and activities… BUT leadership not ownership • Maximise local assets • Local action profits from strong social and trust relationships Commission européenne -59- IDELE Emerging issues/findings (2) • Finance: grant dependency, sustainability, attract capital • Best practice in LED often comes from organisations formed as companies (of some sort) • May exist because of or in spite of external policies and environment (and can change over time) • National governments can: provide commitment; acknowledge diverse needs at local level; remove barriers to partnership; balance accountability with freedom and flexibility • Have to work harder at involvement of private sector • Do not always need radical overhaul – adapt existing structures Commission européenne -60- IDELE Emerging issues/findings (3) BUT, remember… • Objective is not the creation of partnerships, but is the delivery of effective and efficient (public) services, responsive to local needs, that have a positive impact • Crowded platforms problem in some areas • Limits to the local – local level cannot or should not be involved in everything Commission européenne -61- EES & LED Conclusions regarding the local dimension of the EES: The EES is a well established vehicle for the promotion of more and better jobs. At regional and local levels, actors have been given the opportunity to work increasingly together and interact with national and European institutions and policies. Local development plays a big role in the implementation of the EES. Even more must be done to ensure this involvement thereby improving the governance of the EES, a key part of the Growth and Employment (Lisbon) Strategy. Commission européenne -62- The Local Dimension of the EES • Website address for LED pages on Europa: http://europa.eu.int/comm/employment_social/local_employment/index_en.htm http://europa.eu.int/comm/employment_social/employment_strategy/index_en.htm • IDELE website: http://www.ecotec.com/idele/ • Benchmarking & LED project: http://www.benchmarking-led.dk/ • OECD-LEED: http://www.oecd.org/document/9/0,2340,en_2649_34417_22477577_1_1_1_1,00. html • DG EMPL: http://europa.eu.int/comm/employment_social/index_en.html Commission européenne -63-