International Co-Operation at Regional Level Rapporteur : Dino Vierin (Italy

CONGRÈS DES POUVOIRS LOCAUX ET RÉGIONAUX DE L'EUROPE Chambre des Régions COUNCIL CONSEIL OF EUROPE DE L'EUROPE CONGRESS OF LOCAL AND REGIONAL AUTHORITIES OF EUROPE Chamber of Regions Strasbourg, 10 May 2001 CPR (8) 2 Partii EIGHTH SESSION (Strasbourg, 29-31 May 2001) Internationa] Co-operation at regional level Rapporteur : Dino VIERIN (Italy) EXPLANATORY MEMORANDUM 2 INTERNATIONAL CO OPERATION AT REGIONAL LEVEL Introduction 3 1. Transfrontier interregional co-operation 3 1.1. Challenges and objectives of interregional transfrontier co-operation 4 1.2. Constraints and comparative advantages of border areas 4 1.3. Forms of interregional transfrontier co-operation 5 a. Bilateral co-operation 5 b. The Euro regions 5 c. Regions' participation in interstate transfrontier co-operation structures.5 2. Interregional co-operation within major geographical areas 6 3. Trans-European interregional co-operation networks 7 f 3.1. Origin of trans-European interregional co-operation networks 7 3.2. Fields of activity and working methods of the trans-European interregional co- operation networks 7 3.3. Forms and examples of trans-European interregional co-operation 9 a. Bilateral co-operation 9 b. Multilateral co-operation 10 4. Participation of regions in major European interregional organisations 10 5. Region's external activities involving inter-continental development aid and co- operation 11 6. Constitutional and legal provisions governing co-operation and regions' external activities 12 a. Regions' authority to sign co-operation agreements 12 / b. Regions' authority to participate in public-law co-operation bodies 12 7. Regions' relations with the European institutions 13 a. Individual representation of regional authorities 13 b. Regions' role in decision-making within the European institutions 14 c. European co-operation between regional parliaments 15 8. Intensifying international co-operation between European regions - prospects and limiting factors 16 Appendix: condensed list of interregional co-operation activities 17 3 Introduction There is currently a substantial increase in interregional co-operation in Europe and in regions' external activities. There are several reasons for this. Firstly, such activities make a particularly effective contribution to European integration and help to bring Europe's peoples closer to one another - regional "diplomacy" inevitably operates closer to the citizens in their own surroundings than the national equivalent. Secondly, transnational interregional co-operation is also an important factor in economic development, enabling regions to make economies of scale through networking and to participate fully in the integrated European market. This report is the result of a survey conducted by the Secretariat of the Chamber of the Regions of the Congress of Local and Regional Authorities of Europe1, between December 2000 and March 2001. The European regions sent in a large number of replies to the Secretariat, a condensed list of which can be found in the appendix to this report. Many of these replies describe regions' external activities but very few of them evaluate the results, the spin-off or the obstacles encountered in the field of external co-operation. Differences in the status and powers vested in the regions obviously have an impact on the opportunities they have to participate in transnational co-operation activities. Member states have a significant influence on whether regions participate in transnational co- operation, either by ratifying European treaties (eg the Outline Convention on Transfrontier Co-operation), through statutory and constitutional provisions relating to the regions' external activities, or the allocation of grants for interregional co-operation activities. The regions are involved in several types of international co-operation, which are not mutually exclusive and which need to be examined in greater detail. Co-operation can be bilateral or multilateral, between neighbouring countries or, on the contrary, trans- European. Historically speaking, regions' external activities have usually been cross- border activities. Only later were these activities extended, leading to trans-European interregional co-operation. Some forms of external co-operation now reach beyond Europe to countries on other continents. 1. Transfrontier interregional co-operation Much work has already been many done by the Council of Europe on transfrontier co- operation at regional and local level. This report therefore deals with the subject in only a summary manner, highlighting the most recent forms of co-operation and, in particular, the new importance it carries for the central and east European countries. 1.1. Challenges and objectives of interregional transfrontier co-operation There has been a substantial increase in interregional transfrontier co-operation in Western Europe over the past thirty years or so, not only for the purpose of bringing European 1 The rapporteur is grateful to Mr Jacques Robert. Strasbourg, expert consultant to the Congress and to Mr Kaido Sirel, Tallinn, for their help with the preparation of this report. 4 peoples closer and healing the scars of history but also to correct a number of malfunctions. These fall into two categories: - the exogenous problems of border regions, for example problems over different currencies values and their variations, differences in education systems and the recognition of diplomas, the diversity of economic, financial, social and administrative legislation, differing technical standards in the various countries, psychological problems and differences between political systems on either side of the borders in question. In these fields, interregional transfrontier co-operation endeavours to influence the national authorities, on whom the solution to these problems ultimately depends. - the endogenous problems of border regions. This second category of problems arises from the particular geographical context of border regions. There is a very wide range of such problems and challenges, relating to regional planning, regional economies, cultural differences, transport and communication systems, social and employment issues, environmental management, the value derived from the natural and cultural heritage, the promotion of tourism, etc. Border regions can use their own powers to settle many of their problems through co-operation, provided that member states have removed the institutional obstacles. This is precisely the objective of the Outline Convention on Transfrontier Co- operation and its two protocols. Moreover, in the fields under consideration, transfrontier co-operation is firmly supported by Community bodies (eg through the Interreg, Phare CBC and Tacis programmes). Political and cultural interests weigh heavily along some European borders. There may be tensions or conflicts between different ethnic groups, and borders sometimes cut through cultural communities, thereby creating a cultural minority within the national community on one side of the border, etc. Such situations are still common in central and eastern Europe, especially in the Balkans. Transfrontier co-operation between these regions has a very specific and very important role to play in preserving peace, defusing cultural tensions and gradually integrating the various communities. 1.2. Constraints and comparative advantages of border areas Border areas have traditionally been considered to have been penalised by history. The many conflicts that have occurred in Europe over the past two centuries have had especially damaging consequences for border regions (physical destruction, inadequate economic and industrial investment, poor development of infrastructure, depopulation, etc). Other obstacles, linked to the presence of a border (customs controls and police checks, the limited permeability of borders in the economic, cultural and social fields and under-developed service industries in many border towns) have proved to be comparative disadvantages. During the decades in which the central and east European countries were governed by collectivist regimes, many borders were closed. The aim of regional policies at national and Community level is therefore to restore normal economic and social interaction in border areas by fostering economic development and promoting transfrontier co-operation. It is however important to recognise that, in the context of an increasingly integrated Europe, border areas can also have comparative advantages. This is particularly obvious in 5 the Community context where "firm" borders (with customs controls and police checks, administrative and fiscal barriers, etc) have been abolished. In such a context the only frontiers that cannot be rapidly abolished are cultural frontiers (languages, mentalities, attitudes, work styles, communication networks, zones of influence, consumer habits, etc). In a single market context, regions which have bicultural or multicultural skills have a clear advantage. This applies to many border areas where the populations on either side of the border are familiar with the language, behaviour and work style of their neighbours on the other side. These comparative advantages can be put to good use in transfrontier co- operation to develop cross-border tertiary activities, making it possible, for example for businesses to have easier access to the neighbouring country's markets and to strategic information (economic intelligence). Industrial estates are already developing along some borders where businesses

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