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Searching for Cohesion in a Europe of the Regions

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Searching for Cohesion in a Europe of the Regions SEARCHING FOR COHESION IN A EUROPE OF THE REGIONS THE IMPLEMENTATION OF THE EUROPEAN UNION'S STRUCTURAL FUNDS IN THE UNITED KINGDOM AND FRANCE (1994-96) A THESIS SUBMITTED FOR THE DEGREE OF DOCTOR OF PHILOSOPHY, UNIYERSITY OF SHEFFIELD PETER GEORGE WELLS POLITICAL Ecoxovn RESEARCH CENTRE DEP.\RT\lE:'\T OF POLITICS FUTLTY OF SOCIAL SClE:,\('ES IN MEMORY OF GEORGE WELLS (1925 - 1989) SEARCHING FOR COHESION IN A EUROPE OF THE REGIONS THE IMPLEMENTATION OF THE EUROPEAN UNION'S STRUCTURAL FUNDS IN THE UNITED KINGDOM AND FRANCE (1994-96) PETER GEORGE WELLS SUMMARY This thesis explores the following research question: what factors explain the relationship between levels of government over the implementation of European Union regional policy? Debates in political science and economics in the late 1980s and early 1990s considered whether a Europe ofthe Regions provided a model for the future economic and political order of Europe. Although these debates informed our understanding ofEuropean Union policy making, they have now moved on. The theoretical framework for this thesis tests the extent to which European integration can be explained by processes of multi-level governance, and not by the previously dominant systems of intergovernmentalism. Furthermore, much of the previous theoretical work on European integration has drawn from the earlier stages of policy making (on budgetary decisions, and on institutional and regulatory design). This thesis considers instead the neglected area ofthe implementation ofthe Structural Funds in two regions (Yorkshire and Humberside, and Lorraine). Using policy networks tools of analysis it tests the explanatory capability of multi-level governance in the following areas: the variation in policy implementation between the United Kingdom and France; the patterns of resource mobilisation in policy implementation; and the formation ofregional economic strategies. The main findings of this thesis show that where domestic regional policy frameworks are weak (e.g. in the United Kingdom), the European Commission has been able to effectively mobilise resources at critical phases of policy implementation - such as during the negotiation of economic strategies. However, over the longer term, the direction the Structural Funds have taken is driven by actors and institutions outside those directly involved in the implementation of the Structural Funds. That is, both DG XVI ofthe European Commission and the regions themselves have limited opportunities to influence the course of European political integration. 1 CONTENTS Summary Contents II Tables Glossary \'II .. Acknowledgements \:II 1. Introduction: Searching for Cohesion in a Europe of the Regions I 1.1 Introduction 1 1.2 Changing Nation State - Region Relations: towards a Europe .., ofthe Regions? -) 1.3 The Demand for Regional Cohesion Policies 13 .., 1 1.4 Framework ofAnalysis -) 1.5 Research Design and Method 44 1.6 Thesis Structure 56 2. The Evolution of the European Union's Structural Funds 66 2.1 Introduction 66 I J Interpreting European Political Integration 68 I ..., .;... -) The 1988 Structural Funds Reform and a Europe ofthe Regions 75 2.4 Using the Competing Theories ofEuropean Political Integration to Explain the Reform ofthe Structural Funds 85 2.5 The l.volution ofthe Structural Funds: from Maastricht to the 1993 Revisions 98 2.6 Emerging Trends in European Regional Development Policy 102 .. 11 2.7 Conclusion 10~ 3. Background: 1989-93 Implementation of the Structural Funds 112 3.1 Introduction 112 3.2 Implementation in the United Kingdom /11'+ 3.3 Implementation in France ~'12'+ 3.4 Conclusion 1J_." 4. Allocation of the Structural Funds for the 1994-99 Programming Periods 138 4.1 Introduction 1~8 4.2 Funding Allocation and Eligible Areas 1.+ 1 4.3 Conclusion 150 5. Preparation of the Single Programming Documents 155 5.1 Introduction 155 5.2 The Search for a Coherent Regional Strategy for Yorkshire and Humberside 156 5.3 The Preparation ofthe Document Unique de Programmation in Lorraine 167 5.4 Conclusion 177 6. Negotiation of the Single Programming Documents 184 6.1 Introduction 18.+ 6.2 Yorkshire and Humberside: a dynamic European Commission against a static Partnership 185 6.3 Lorraine: the Influence ofthe Prefecture and DATAR 196 6.-+ Conclusion: Comparison and Existence ofVertical Policy Networks 20.+ 7. Implementation of the Single Programming Documents 209 7.1. Introduction 20t) 7.2 Yorkshire and Humberside: What a Carve IIp? 210 7.3 Lorraine: the State as Gatekeeper 22_~ 7..+ ( 'onclusion 2~O III 8. Wider Issues of Regional Economic Development 137 8.1 Introduction 8.2 Yorkshire and Humberside and the United Kingdom: Private Sector Involvement in Structural Fund Programmes 8.3 Lorraine and France: the Role of Local and Regional Economic Development Agencies 8.4 Conclusion 9. Conclusion 258 9.1 Introduction 258 9.2 Yorkshire & Humberside: Region Building Through Programming and Partnership? 259 9.3 Lorraine: Weak Regional Institutions within a Strong and Coherent National Regional Policy Framework 266 9.4 Outcome: position at the beginning of the 1997-99 Programme 269 9.5 Evaluating the Framework of Analysis 271 9.6 What Future for a Europe ofthe Regions? 278 9.7 Conclusion 280 Bibliography 282 1. References 282 Yorkshire and Humberside Documentation 304 Lorraine Documentation 312 Appendix 1: Research Conducted 317 Appendix 2: Yorkshire and Humberside: Interviews 323 Appendix 3: Lorraine: Interviews 326 Appendix ~: DG XVI's Draft Summaryfor Response and Discussion: Yorkshire and Humberside SPD's focus on a number of questions 328 IV Appendix 5: DG XVI's Draft Summaryfor Response and Discussion: Proposed Priorities and Measures for the Yorkshire and Humberside SPD 329 Appendix 6: DXVI's Draft Summaryfor Response and Discussion: Proposed Standard SPD Structure for Objective 2 Regions 330 v TABLES 1.1 Phases of Policy Making 49 1.2 Political Influence in structural programming, 1989-93 50 1.3 List of Sources Used 3.1 Synthesis ofthe Principal Interventions in Lorraine Programmes (1989-91 and 1992-93 programming periods) 54 4.1 Distribution ofthe Structural Funds to the French Regions 148 4.2 Lorraine and Nord-Pas de Calais Compared 149 5.1 Yorkshire and Humberside Objective 2 regional Conversion Plan 165 5.2 Lorraine Contrat de Plan Budget Summary 170 5.3 Ministry for Industry: Lorraine Contrat de Plan 1994-1998 - Economy 171 6.1 Financial Allocations for 1994-96 (Yorkshire and Humberside) 191 6.2 Lorraine Financial Plan by Priority and Measure (1994-96) 200 7.1 The Composition ofthe Yorkshire and Humberside PMC -II'"'-' 7.2 The Composition ofthe South Yorkshire Area Advisory Group 218 7.3 The Composition ofthe Humberside Area Advisory Group 219 7.4 The Composition ofthe West Yorkshire Area Advisory Group 220 GLOSSARY AAG Area Advisory Group ADAPT Community Initiative for to support the adaptation ofthe workforce to industrial change ANVAR Agence National pour la Valorisation de Recherche APEILOR Association Pour I'Expansion Industrielle de la Lorraine ARDAN Association Regionale pour le Developpement dActivites Nouvelles BERD Business Expenditure on Research and Development BIDO Bradford Integrated Development Operation CAP Common Agricultural Pohey CAPE Comite dAmenagement de Promotion et dExpansion CAPEM Comite d'Amenagement de Promotion et d'Expansion de Moselle CAPEMM Cornite d'Amenagement de Promotion et dExpansion de Meurthe-et-Moselle CAPEV Comite dAmenagement de Promotion et dExpansion de Vosges CBI Confederation of British Industry (TC Commission ofthe European Communities Cl~S Comite d econmique et social CIAT Cornitec lnterrninisterielle dAmenagernent du Territoire CLES Centre for Local Economic Strategies COrvlPRIS Information Society Initiative for Yorkshire and Humbcrside COREPER Committee of Permanent Representatives ('SF Community Support Framework CSO Central Statistical Office " \'11 DATAR Delegation al'Amenagemenj du Territoire et al'Action Regionale DETR Department ofthe Environment, Transport and the Regions DtEE Department for Education and Employment DGIV Directorate-General for Competition DGV Directorate-General for Employment and Social Affairs DGXII Directorate-General for Science, Research and Development DGXVI Directorate-General for Regional Policies and Cohesion DGXIX Directorate-General for Budgets DGXX Directorate-General for Financial Control DOCUP Document Unique de Programmation DoE Department ofthe Environment DRIRE Direction Regionale de l'Industrie, de la Recherche et L'Environment DTI Department ofTrade and Industry EAGGF European Agricultural Guarantee and Guidance Fund EC European Commission ECOSOC Economic and Social Committee ED Employment Department EECSF East ofEngland Community Support Framework EIS European Information Service EMPLOYMENT Community Initiative to promote equal opportunities, employment prospects for the disabled, and labour market integration ofthe young EMROP East Midlands Region Operational Programme EPRC European Policy Research Centre ERAI Enterprise Rhone-Alpes International ERDF European Regional Development Fund ESF European Social Fund FIFG Financial Instrument for Fisheries Guidance FAST Forecasting and Assessment in Science and Technology FURs Functional Urban Regions Vl11 GERD Government Expenditure on Research and Development GMLC Greater Manchester, Lancashire and Cheshire Objective 2 Programme GONE Government Office for the North East GOYH Government Office for Yorkshire and Humberside HERD Higher Education on Research and Development HOP Humberside Operational
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