Contribution to the European Debate on territorial cohesion

The Massif

Central

An area of cohesion and

innovation

18 février 2009

DIACT Massif Central 19, boulevard Berthelot 63400 Chamalières - France

Translator’s note

This translation is about two-thirds of the original French-language document in length. It nonetheless contains all the essential elements, of course, and respects the spirit of the original.

The French word territoire sometimes refers to the Massif Central as a whole, sometimes to smaller areas within it. I have translated it variously as “territory”, “area”, “region” or “locality” according to which makes the best sense in English.

I have used a capital “R” for “Region” when it refers to the administrative entity (the Auvergne or Rhône-Alpes, for example), and a small “r” when it refers to a geographical area such as the Massif Central itself.

I have elected not to translate the words Préfet and commune , for they have no equivalent in English.

John Gamgee

DIACT Massif Central – Cohésion territoriale européenne 19 Contribution to the European Debate on territorial cohesion

I. An area of shared concerns

The Massif Central is a vast, mid-altitude, mountainous region. It is sparsely populated (about 47 inhabitants per km2, with a population of 3,700,000 and an area of 85,000 km2. Situated in the centre of France, it contains nearly half the mountains and 15% of the total area of the country. Its morphology and position make it potentially a highly sought-after region for the 500 million population of the EU in the years to come, as it remains one of the last natural areas. Thanks to its motorway network, it also within easy reach of several big cities: Lyon, Montpellier, Toulouse and Bordeaux.

1. An economic area of great environmental interest The Massif Central is considered to be the “water-tower” of France. It is an inhabited rural area in which the mountains are protected, and combines economic development and the conservation of natural resources. Agricultural activity plays a major rôle and, despite being spread throughout the territory, industry is very competitive, as can be seen by its large number of sub-contractors and internationally renowned firms. One national and nine regional parks, managed in accordance with sustainable development, form 40% of the area, making the Massif Central the largest protected area of the EU.

2. An area of European dimensions The Massif Central is often said to be similar geographically to Portugal and Ireland. It is in fact bigger than both these countries, with a similar population to Ireland, which has 4 million inhabitants. It is approximately the size of Austria, with about half its population, and double the size of Belgium, with scarcely one third of the population of that country, and slightly bigger than the Czech Republic, with a little more than one third of that population. Although it is not an administrative Region, it could perhaps be compared to Castille-la-Manche in the heart of the Spanish Meseta, with its 80,000 km2 and its 2 million inhabitants.

3. A relatively evenly dispersed population Whereas the inhabitants of the Alps live mainly in the valleys, the population of the Massif Central is evenly spread. 62% live in urban areas (compared to 82% nationally), occupying just a quarter of the territory and more than a third of the employment. There is a significant economic contribution of the rural sector, and the Massif Central remains a predominantly rural area, with only three agglomerations boasting more than 250,000 inhabitants: Clermont-Ferrand, Saint-Etienne, and Limoges. All three towns are in the north of the Massif, along an east-west axis, the central and southern parts being composed mainly of small and average-sized towns, which are the economic motor of the more isolated parts. This indeed is one of the particularities of the Massif Central. It is not population size that is of prime importance here, but rather the appeal of the surrounding rural areas and the services provided. Indeed, a denser population would make it more difficult for these economic centres to blossom. Of the three cities mentioned, Saint-Etienne also has links with Lyon, and Limoges with Poitiers. Clermont-Ferrand (capital of the Auvergne) looks over the

DIACT Massif Central – Cohésion territoriale européenne 20 Contribution to the European Debate on territorial cohesion Val d’Allier to the south. It is the only agglomeration in the Massif Central to have a population of real European dimensions (significantly more than half a million).

4. A shared demographic challenge The population of the Massif Central has been decreasing for more than thirty years. This is due particularly to the fall in the birth-rate (36,000 births per year, compared to 45,000 in 1977 and 54,000 in 1970). Young people have left, whereas pensioners have arrived, resulting in an ageing population. The area is thus faced with a problem that the whole of Europe is soon to know: how to fill the jobs and, more generally, the requirements of territorial development. The Massif Central contains four of the seven departments in France with a falling population. Nevertheless, this demographic decline is slowing down. As in the 1990s , the Massif Central is becoming attractive again , albeit only in certain parts of the region. Policies that encourage people to settle in the area have become the norm. This is part of an inter-regional policy for the period 2007-2013 and is at the heart of the strategy to re-vitalize the population and the businesses. This initiative has the support of the European, State and Regional authorities. An important aspect of this strategy to repopulate the area is the even distribution of newcomers to the area, thereby avoiding economic and demographic concentration.

II. Inter-regional cooperation - central to development

For about thirty years the Massif Central has benefited from the national mountain policy dating from January 1985, which recognizes the specific needs of certain geographical areas that transcend administrative boundaries. In the last fifteen years, it has been the turn of Europe to support national efforts in this domain. Today, the changes we are witnessing and the need to incorporate sustainable development into regional planning have led to a new type of governance based on inter-regional cooperation and innovative measures. The Massif Central does not have a lot of financial means at its disposal, yet intends henceforth to see the mountain not as a hindrance but as a strength.

1. Increasingly organized territories After lagging behind as far as solidarity and territorial integration is concerned, the Massif Central has become highly organized and is now sometimes considered the leader in the field. For example, in the Puy-de-Dôme (one of the four departments of the Auvergne), 95% of the inter-communal administrations have their own professional tax. The 4,073 communes (the smallest administrative districts), which constitute 11% of the total number of communes in France, are now organized on a federal basis. The Regional Parks are at the heart of this in the field of sustainable development, having set the pace as far as innovative local development is concerned, and other projects have come to fruition since the 1990s. It is clear, then, that the Massif Central is resolutely committed to restructuring its territory, and the policies put into practice by the authorities

DIACT Massif Central – Cohésion territoriale européenne 21 Contribution to the European Debate on territorial cohesion reflect this fact. In their decision-making, departments and Regions throughout France have for a long time either carried on from where the State left off or consolidated actions that the State has started, enabling them to adapt to the local context and the needs of the population. However, the sparseness of the population has led to inter-communal dispersion. Management of local activities by urban agglomerations or communautés de communes (inter-communal administrations) has not proved successful in terms of sustainable development. The new administrative organization does not necessarily correspond to everyday local needs. Like the present debate on French institutional reform, the new territorial organization has to be rethought in terms of what is in fact the most efficient management, so varied are local requirements. In fact, there seems to be limited cooperation between different parts of the region, whether in urban or rural areas, either because some areas are genuinely isolated or because of legitimate political considerations. Thus we have a vast mosaic of small localities which could in fact go forward together in a shared destiny. It is surely the rôle of the Regions and the State both to clarify the priorities and to bring all the participants together – anyway, this is what inter-regional cooperation is trying to do.

2. The new governance of the Massif Central In terms of administration, the area has many local authorities: 22 departments and 6 Regions. Twelve of these departments and two of the Regions are situated entirely in the Massif. In accordance with the French Constitution, no one authority takes precedence over any other, and the freedom enjoyed by each authority allows full cooperation with others. They all share responsibility with the State for the organization and development of this large inter-regional area. Only the Auvergne and the Limousin Regions are completely in the Massif Central. The regional capitals of the four are at some distance. Each Region can decide upon its policy, which can often be in contradiction with local needs in the mountainous areas of the Massif. In addition, large Regions such as Rhône-Alpes and Midi-Pyrénées have other mountainous areas under their jurisdiction, with their own priorities. All of this renders coordination and coherence within the Massif difficult to achieve. It is the rôle of the State and the coordinating Préfet (a top civil servant appointed by the State) to try to find this coherence. Other representative bodies act in different ways and have different, equally legitimate goals, which can be completely at variance with the administrative organization of local authorities. For example, no fewer than four authorities manage the main water supplies of the Massif Central, the “water tower” of France: Loire Bretagne (47%), Adour Garonne (39%), Rhône Méditerranée Corse (11%) and Seine Normandie (3%). The need for all these authorities to coordinate their plans to protect the water resources is clear. Traditionally, the State has ultimate authority over the economic and social cohesion of the Massif Central. The coordinating Préfet oversees a development commissioner, who in turn must regulate and harmonize political decisions in the public sector. Of course, the Regions also have their say in decisions concerning sustainable development.

DIACT Massif Central – Cohésion territoriale européenne 22 Contribution to the European Debate on territorial cohesion With the support of the EU, the 2007-2013 operational programme has enabled the consolidation of a new form of inter-regional partnership. This “quiet revolution” could be the object of exchanges on a European level.

It not only reinforces the original practices but also adds new relations between the various partners, enabling the introduction of a new development pact:

Cooperation based on sustainable development. The goal here is to build a European model of sustainable development which favours growth and jobs without harming the environment. The approach is positive, ambitious and innovative.

A common development strategy for demographic regeneration. There are three principal objectives here: encouraging outsiders to settle in the area, assuring economic development by the creation of wealth, making the various parts of the Massif Central more attractive by improving their accessibility.

A policy that supports structural projects. The goal here is to ensure that the funds are used for what is essential. There is a total of 163 million euros available for the 2007-2013 period, including 61.2 million euros from the State and the six Regions, and 40.6 million euros from the Feder. Structural projects will thus be given priority in order to avoid any frittering away of funds and to target what is really advantageous for the region.

Priority given to specific assets of the Massif Central. The golden rule of the programme is what is essential and advantageous for territorial coherence. Some examples of these are: harvesting and diffusion of information; research, development and the sharing of expertise; improvement of the Massif’s image and its promotion; coordination of the various contributors; realization of multi-regional development schemes.

Shared governance. The coordinating Préfet of the Massif Central has requested that the various partners agree on a complete overview of the situation and on new cooperation methods. In addition, inter- regional working groups have been set up and are in the process of improving the development strategy with a view to the post 2013 period. This has considerable consequences, for it has led to real solidarity between Regions, each one co-financing projects from throughout the Massif. In this way, governance is shared, both in spirit and in acts. Finally, many participants in the socio-professional domains who have contributed to the development of the area for three decades play an active rôle in this new form of governance.

DIACT Massif Central – Cohésion territoriale européenne 23 Contribution to the European Debate on territorial cohesion 3. The first fruits of the inter-regional assets It is too early to give a mid-term evaluation of the operational programme, but mention can be made of a few structural projects because of what they teach us in terms of governance or their “lever effect” on sustainable development.

supporting local agricultural produce , differentiating between the quality, health guarantees and identity of various products of the Massif Central.

a coordinated approach towards local breeds, enabling breeders to respect the environment and to exploit the land in a way which both encourages people to stay in the area and attracts tourists who come for its natural beauty.

sustainable tourism and innovative methods to enhance the particularity of the Massif Central by involving all the different participants – Natural Parks, spa towns and rambling associations, for example.

valorization of well-known areas with a particular identity: the Lot Valley, the Dordogne Valley, the Cévennes, Aubrac or Mézenc for example.

reinforcement of a modern image , involving well-organized and well- publicized events which present the particular identity of the Massif Central (breeding or water, for example).

inter-regional professional sectors , offering potential development to the companies involved.

a coordinated approach of all the partners to support and finance infra-structures (and sometimes considerably reduce investment costs in zones considered not to be cost-effective) - broadband internet networks or motorway service stations, for example.

It is clear that inter-regional cooperation is bearing fruit thanks, on the one hand, to the involvement of all the partners and, on the other hand, to the demands of the new form of governance, as well as the significant contribution of subsidies (at present the average subsidy is 120,000€). The first results have encouraged the partners to reinforce fundamental identity of the area by calling for projects across the Massif Central, thereby involving more and more participants, such as the welcoming of newcomers to the region or support for stock-breeding.

DIACT Massif Central – Cohésion territoriale européenne 24 Contribution to the European Debate on territorial cohesion

III. Contribution to European territorial cohesion

With its long experience of cooperation and the first stages of new governance, the Massif Central appears to have turned over a new leaf in favour of cohesion and innovation. Aware of the dangers of internal division, this area of development intends to face the future positively and bring coordinated answers to the challenges of this diverse territory. This is the goal of the operational programme, of which the three main objectives are : helping newcomers to settle in the region, the creation of wealth, accessibility.

1. An attempt to define territorial cohesion One could perhaps suggest the following definition : the political will to reduce disparities by offering different areas conditions for economic and social development while respecting the values of sustainable development. This requires at least three rules of conduct :

encouraging and supporting the participation of the local population,

taking into account the specific needs of each area , including its potential for development and innovation,

the necessity for projects right across the region , which must be taken as a whole.

Two dangers must be avoided : we should think in terms of competition rather than rivalry; egalitarianism must not be at the expense of appeal and diversity.

2. Scale and reach of territorial action The notion of territorial projects is complex. On the one hand we must be sure that the local participants have the information necessary to make the right decisions in terms of cooperation. On the other hand, each locality remains within a regional strategy. Dialogue and cooperation are therefore essential to avoid a sort of institutional “Russian doll” effect.

The project itself will determine and define the scale of the contribution of various public authorities. For example, the valorization of local products must take place throughout the Massif Central.

Another example is that of broadband, which must not be exclusive to certain localities. The A75 motorway, from Clermont-Ferrand to Montpellier, will serve as the axis for this fibre optic circuit, the cost of which is divided by ten thanks to inter-regional funding and contributions by the State and Europe. There is also a project for ultra broadband which shall connect the south of the Massif on an east-west axis. It is clear that only a geographical entity on the scale of the Massif Central could bring to fruition such a project which would be beyond the reach of a single department, or even a Region.

The particular geographical characteristics of the Massif Central require specific measures. The example of broadband is significant, for it requires cooperation between various local authorities and private enterprise. Efforts made by these authorities and the State have ensured that European aid has been used with territorial cohesion in mind. France is lagging behind Europe and the rest of the world as far as ultra broadband is concerned, for it has only 150,000 subscribers. This is clearly detrimental to the Massif Central, because access to ultra broadband will be a deciding factor for many businesses looking to set up. Ultra broadband can contribute positively to the quality of life, competitiveness and the appeal of the whole region.

As we have seen, territorial cohesion concerns social, cultural, economic and environmental aspects, contributing significantly to sustainable development and making Europe more attractive through its diversity.

3. Improved cooperation Being far from national and European borders, the Massif Central has only rarely taken part in international cooperation programmes, logically limiting itself to inter-regional governance, very demanding in terms of quality and partnership. The experiments undertaken in the Massif Central have led to stronger and more diverse policies in the public domain. The support of the EU has been essential in facilitating the implication of the State and the Regions. Cooperation and dialogue have improved awareness both of local needs and global strategy. Cooperation throughout the Massif Central in pursuit of the main goals (broadband, environment, wood, agriculture, sustainable tourism, industry, for example) has proved its worth.

This experience in turn suggests the need for new forms of cooperation on a European scale in order to improve the awareness of areas of significance to the EU concerning:

their contribution to sustainable development : vast, scarcely- populated areas, a balanced spread of industries, agriculture that, on the whole, respects the environment and the quality of life. Surely mountain regions require specific programmes, such as those granted to urban or coastal areas?

the absence of national borders . The new Europe has many of these areas and their isolation can make them more appealing. Vast areas are generally managed by local authorities which are often very small. While respecting the fact that these areas are subsidiary to them, the State and the EU can facilitate the cooperation between the various authorities.

DIACT Massif Central – Cohésion territoriale européenne 26 Contribution to the European Debate on territorial cohesion 4. Improved coordination For a long time, public authorities made decisions according to which sector they were dealing with. The new territorial vision requires a different approach . In the Massif Central, the coordinating Préfet has set up inter-regional working groups to this effect. The example of wood exploitation is an illustration of this. The forest is of great economic importance for the area, yet coordination is almost non- existent, despite all the efforts of people in the profession. For example, it is not rare for sawyers working in the middle of the forest to import raw materials from afar or for billets to be sent abroad, only to return transformed. All this is incompatible with sustainable development. Institutional partners have therefore decided that the sector of wood production must be organized inter-regionally. Be it for construction or heating, wood is now seen as an essential element in the economic process. Wood must be taken from the forest, sawn up and transformed in accordance with European requirements of sustainable development before being sold locally. Local authorities have involved themselves in development schemes from beginning to end according to local needs, particularly concerning wood for heating, with the result that local councils invest in cooperatives for the benefit of all and companies invest in the principle of lower energy consumption. The aim is to create a real network of participants and an industrial project that benefits local economies and is respectful of the need for careful management of resources.

So we have seen that, far from being in opposition, local needs and particular production sectors can cooperate for the good of sustainable development in the Massif Central. Policies of political cohesion must better take into account the specificities of the needs of the various sectors in each locality.

5. New territorial partnerships The application of policies decided by the authorities cannot be achieved without the help of professionals and associations working in the various fields, indispensable partners of the diverse political authorities in the shared goal of territorial cohesion. The “Massif Committee” has two co-presidents: the elected president of the permanent commission and the coordinating Préfet . It brings together elected members of the various local authorities, professionals from different sectors and members of diverse associations. This diversity enables it to define a common strategy thanks to genuine inter-regional governance. Being permanently in contact with the people in the field locally, the committee can act as a type of mediator, gathering information and putting the final touches to different aspects of the programme. The recent experience of the “call for projects” is an example of this. The application of the policy of welcoming outsiders into the area (a delicate and complex task) was made even more successful by working with territorial partners, associations and professionals. This call for projects enabled the committee to see more clearly what was expected and required, enabling them to concentrate on three fields : professional activity, housing and lifestyle.

DIACT Massif Central – Cohésion territoriale européenne 27 Contribution to the European Debate on territorial cohesion Using these partnerships right from the outset is essential for territorial cohesion, enabling the participants both to see what problems there are and to find solutions.

6. Improving the understanding of territorial cohesion The GDP of the Massif Central is only 75% of the European average, which should place it within the European convergence objective. However, far from viewing this statistic as a handicap, the authorities and professionals of the region see the considerable potential for development of a highly attractive area. In addition to GDP, three other elements are important to understand territorial cohesion :

Demographic evolution as a factor in attracting newcomers . This must be seen in tandem with the ageing of the population or, on the other hand, with an increased presence of young people.

Equal access to basic services , such as health, energy, food, education and transport. At present, there is a great discrepancy between different localities, which can be detrimental both to the appeal of the region and its competitiveness. We should now add broadband and ultra broadband to these basic services.

Contribution to sustainable development. This concerns both individuals and businesses. It involves the quality and the preservation of the environment, producing and consuming locally, and responsible production methods. Once the finished product is available, one can measure its ecological footprint in terms of raw resources, production and distribution.

Conclusion

Finding the right policies for territorial cohesion is primordial for the future of Europe as a whole. It is also essential for regions of particular geographic characteristics and which contribute significantly to sustainable development. The Göteborg Summit of 15-16 June 2001 lends credence to the opinion that this type of development is essential for economic renewal, social equity and the preservation of the environment. Territorial cohesion has an essential rôle to play in this. It encourages development, thereby increasing the appeal and the competitiveness of Europe as a whole. In addition, areas on a European scale, such as the Massif Central, are ideal for inventing and experimenting new forms of governance that transcend administrative boundaries. Innovative inter-regional programmes can go beyond seeing the mountains as a handicap and construct positive, ambitious policies which can lead to the better integration of different sectors within the needs of each locality. This is the route that the Massif Central has taken, in order to enable its population, its diverse territory and its businesses to play a full part in the 21 st century.

  

DIACT Massif Central – Cohésion territoriale européenne 28 Contribution to the European Debate on territorial cohesion