In many ways, leader has been a very significant intervention. Before leader,

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1 The LEADER Programme Rise Rural Development in Spain Javier Esparcia Pérez In many ways, has been a very significant intervention. Before, rural development policy was almost completely unknown in Spain, for this reason alone, represented a new force in rural affairs. The invitation form terririal collaborations was also novel local acrs were quick perceive it as an important political ol with which tackle both problems rural areas challenges presented by new roles being assigned rural world. Furrmore, has subsequently produced material, local impacts through its ability generate investment in development projects. The progress has, course, been refracted through (some might say hindered by) institutional conditions politico-administrative system. Leader has been used as a political power ol by various levels, leading confrontations in order gain control over programme. Neverless, awareness acceptance deeper philosophy behind has been gaining ground so that it is increasingly acknowledged as a powerful ol for promotion rural development in general for animation local, collective action. It would be inaccurate describe as a great success. Rar, it has started an incipient process in which a new democratic co-operative culture in rural areas is being created in which rural entrepreneurs are acquiring an enhanced capacity for decision making. The arrival LEADER in Spain As measured by statistics, Spain has participated enthusiastically in. During i, a tal 52 lags were established in Spain, with an average area 1,575 km 2 a density 22.6 inhabitants per km 2. Alger, i accounted for 16 per cent terriry 5 per cent population Spain. During ii, number lags rose 132 groups, average surface area 1,700 km 2, average density 23 inhabitants per km 2. Leader ii areas now account for 45 per cent Spanish terriry some 13 per cent its population. The appearance at beginning 1990s was a shock Spanish system (Esparcia Noguera 1997a). It was very first public policy designed tackle social economic deprivation in lagging rural areas directly. Published by Blackwell Publishers, 108 Cowley Road, Oxford OX4 1JF, UK 350 Main Street, Malden, MA 02148, USA Sociologia Ruralis Volume 40, Number 2, 2000 European Society for Rural Sociology ISSN

2 Leader rural development in Spain 201 Such areas had eir been assigned role supplying labour financial resources for development or areas (during 1960s 1970s) or else had seen ir socio-economic situation relative dynamic rural areas deteriorate as a consequence agro-productivistic policies (Cuadrado 1992). The second shock effect lay in its pioneering invitation adopt terririal approach principles endogenous development (Ramos Cruz 1995). This approach was not unknown in Spain: it underpinned Mountain Agriculture Law 1982 although none component Programmes Promotion Development Mountain Resources (proprom) was ever implemented. The legacy this experiment was create seed for a number subsequent Local Action Groups (lags) where this was case, found it easier secure agreement willingness participate majority local acrs. With regard composition lags, although this varied greatly, in i it was dominated by presence local government authorities; social economic acrs being in minority (Esparcia Noguera 1997b; Isla Soy 1998). The strong position political representatives has continued in ii although re has been an increased level participation by social economic acrs. As with i, most Groups (63 per cent) have Civil Association status (Alvarez 1998). Bearing in mind practical absence rural development before 1991, creation se partnerships public private acrs with a remit manage budgets varying between three five million Euro was itself a new significant phenomenon. In addition, demonstrated a capacity mobilize significant private investment for projects (Esparcia Noguera 1997a; 1997b; Massam Esparcia 1998). These facrs help explain why, in Spain, one can talk about a phenomenon. Indeed, responsible public authorities have claimed that i:... meant initiation a new rural development approach that incorporates concepts endogenous, integrated, innovative, demonstrative participative [development]. A new approach for many beneficiary areas that has implied setting in progress a dynamic global integrated development whose positive impact has produced an increase in local economic activity, helping sp depopulation... Reality went far beyond expectations final committed cost has been 45 per cent over initial estimations, which underlines success demonstrative capacity this innovative Community Initiative in Spain... On or h is outsting, positive response private secr, main facr in investment growth (Actualidad 1998, p. 16). There is clear evidence concerning many those claims for. However, it cannot be said that has been responsible for bringing about a generalized dynamic botm-up participation in rural areas, though significant progress is being made in this direction. In next section, a more detailed analysis is presented on aspects that have constrained generalization approach. LEADER responses politico-administrative system Around re has appeared a set acrs that operate interact at different levels. Although all share a basic understing as a ol for economic social development rural communities, almost all also see as a ol for power or self-legitimization (Figure 1). Consequently, certain groups or

3 202 Leader rural Esparcia development in Spain GEOGRAPHICAL LEVEL MAIN ACTORS Self-legitimization INSTRUMENT FOR RURAL DEVELOPMENT INSTRUMENT OF POWER Central Government Important National level Regional level National-Regional networks Local Action Groups Regional Government Important Important Lobbies Important Not Important Political, social, or economic control Local Action Groups Important Important Local Governments Local level Beneficiaries Not Important Money for investments Non beneficiaries Or local acrs (social, cultural,...) Not Important Figure 1: A dynamic, institutional schematization LEADER in Spain lobbies lobbies degree in in connectivity pursuit pursuit between ir ir particular particular m, whilst interests interests have have ultimate used used stage,.. rural This This development has has been been a is major major identified source source as an conflict conflict integrated within within strategy lags lags built (Esparcia (Esparcia on endogenous Buciega Buciega 1998). 1998). potential terriry: First, First, coherent at at actions state state level, level, providing responsible responsible holistic answers institution institution is is problems Ministry Ministry area. Agriculture, Agriculture, Fisheries Fisheries The beginnings Food Food (mapa). (mapa). a rural Despite Despite policy an an in abiding abiding Spain strong strong dominated centralist centralist by focus, focus, economic mapa mapa activity has has witnessed, witnessed, could hardly over over be described last last fifteen fifteen as years, years, meeting a transfer transfer criteria some some integrated its its responsibilities responsibilities rural development. upwards upwards This state eu eu affairs downwards downwards reflected regional regional low governments. governments. level awareness This This diminution diminution oretical power power basis function function among acrs resulted resulted in in an an an even identity identity lower crisis crisis willingness among among senior senior participate Ministry Ministry ficials ficials local initiatives regarding regarding social institution s institution s economic role role development. status. status. One One In responses responses i, refore, this this lags was was functioned introduce introduce essentially as platforms Rural Operative Operative Rural Development Development for processing Programme Programme project (proder (proder proposals i: i: ) ) not as which which opportunities imitated imitated cultivate co-operation model model but but between control control local which which acrs, was was still firmly firmly less in in as instruments hs hs mapa mapa for (Alvarez (Alvarez animation social In 1999). 1999). In one one or sense, sense, economic this this was was dynamism. a self-defence self-defence reaction reaction on on part part institution. institution. But But Leader it it was was ii equally equally brought about about about increasing increasing a substantial supply supply improvement -type -type in opportunities opportunities situation by moving meet meet wards dem dem a less generated generated secral by by more announcement announcement terririal integrated ii. ii. Mapa Mapa approach received received (Esparcia almost almost et al. 1999a,c). applications applications A number from from bodies bodies reasons become become can be lags lags identified but but was was for only only this able able change. appoint appoint First, 132, 132, expertise individuals most even even though though most employed ors ors met met by lags basic basic operate criteria criteria on (ir (ir ground degree degree increased underdevelopment underdevelopment as y gained being being experience slightly slightly less less prited than than that that from in in successful successful information areas). areas). exchange The The launching launching networks animated proder proder by represented represented a bureaucratic bureaucratic Observary. measure measure Second, awareness undermine undermine among any any possible possible acrs criticism criticism in localities government government important that that role might might played have have by come come mid- from from long-term rural rural acrs acrs development excluded excluded from from strategies.. in In In pursuit addition addition sustainable se se coping coping development strategies, strategies, re re also were were increased. also, also, within within Third, projects Ministry, Ministry, undertaken ficials ficials who who within were were keen keen had take take an incipient, philosophy philosophy demonstrative effect, extend extend reby it it through through contributing complementary complementary diffusion programmes. programmes. key ideas Proder, Proder, concerning refore, refore, economic had had an an underlying underlying environmental positive positive rationale: rationale: sustainability by by seeking seeking terririal extend extend co-operation. approach approach Fourth, in in or or some lagging lagging cases, lags rural rural assumed areas, areas, mapa mapa a leading used used role dem dem in generated generated development by by dynamic in do do ir something something local communities. more more than than just just Causality, manage manage a however, eu eu programme. programme. should The The not on-going on-going be attributed process process solely decentralization decentralization. Alongside has has seen seen, re co-ordination co-ordination has emerged a general ii ii transferred transferrecourse from dis- from concerning central central government government terririalization (where (where it was was all in in manner i) i) policies: regions. regions. not only rural

4 Leader rural development in Spain 203 Second, regional government a major beneficiary decentralization process during 1990s saw as an opportunity strengn extend its presence in rural areas, enhance its legitimacy in eyes general population ir constituent local authorities. However, despite having acquired role co-ordinar promoter rural development, some regions have, some extent, merely reproduced traditional p-down interventionism central government; using exert control over local agents. Third, at local level, was undersod essentially as an external programme able channel public funds in area (Esparcia Buciega 1998). During early years, authorities responsible for rural development policy implementation national regional did not promote idea endogenous development, probably due ir lack experience botm-up policies with an endogenous philosophy. Local acrs,refore, had difficulty in understing concept endogenous development significance. Many agents were ill prepared take responsibility for design implementation endogenous development strategies, or for creation participation networks. The paradigm shift would only come, if ever, in mid- or long term. In this situation, writing Business Plans generated high expectations for new possibilities development objectives modus operi fered by. However many local acrs perceived writing Business ( Rural Innovation ) Plan as merely a formulaic procedure gain access new public funding. Few people identified programme as an opportunity think about future terriry, possibilities endogenous development strategies, or creating effective, participation mechanisms. This was due mainly lack a culture democracy community participation, as well as due an abiding, excessive parochialism. The gap between a radical interpretation actual, rar orthodox, understings by local acrs resulted in emergence factions within lags. Some lags adopted a secral structure with each member confining mselves ir separate areas interest: wher political, cultural, social or economic. Or lags fractured reflect intra-group terririal loyalties. Eir way, result was interpret, essentially, as a ol for promotion development ir particular secr or terriry. Fourth, latter years ii saw creation consolidation networks lags (including those from proder), both at national, more recently, regional levels. Initially, y provided a service lags, although fact that re were two levels networks reflects ir different philosophies. However, power derived from lobbying on behalf 232 lags (as well as links between networks political parties) has legitimized m as interlocurs with various public administrations (regional, national, even, European Commission). Although networks have set mselves clear objectives namely, improvement co-ordination between groups, between networks regional or national authorities y have also assumed a lobbying role. For European Commission (agri, former dgvi), se networks represented a necessary mechanism for management programme, especially as it exped during ii. But more importantly, se networks were seen as a vital ingredient in evolution from a pilot scheme a self-sustaining dynamic rural development.

5 204 Esparcia It should be noted, however, that perceptions, reactions, have mselves changed during 1990s. In beginning, Initiative was seen primarily as a source power public funding local areas local acrs participated in lags on a partly opportunistic basis. Since n, a perception as a more radical ol for development ol has begun, tentatively, emerge. This is partly due a change in mentalities; a slow but persistent process that will continue in future. At present, an increasing number lag members or rural acrs are aware that has an importance beyond that a source development funding; it could also be framework for an endogenous development process, sustainable in mid- long term for whole terriry, in which lags could become new structures democratic participation (Esparcia et al. 1999a). Broadening analysis: wards integrated rural development? The analysis should not be restricted perspectives (mainly institutional) acrs involved: it must also be examined within a context rural development ory (Esparcia et al. 1999b). Leader s progress wards integrated endogenous development can be summarized in three main stages. In initial stage, scenario mainly comprises isolated development projects with a low degree connectivity between m, whilst in ultimate stage, rural development is identified as an integrated strategy built on endogenous potential terriry: coherent actions providing holistic answers problems area. The beginnings a rural policy in Spain dominated by economic activity could hardly be described as meeting criteria integrated rural development. This state affairs reflected low level awareness oretical basis among acrs an even lower willingness participate in local initiatives social economic development. In i, refore, lags functioned essentially as platforms for processing project proposals not as opportunities cultivate co-operation between local acrs, still less as instruments for animation social or economic dynamism. Leader ii brought about a substantial improvement in situation by moving wards a less secral more terririal integrated approach (Esparcia et al. 1999a,c). A number reasons can be identified for this change. First, expertise individuals employed by lags operate on ground increased as y gained experience prited from information exchange networks animated by Observary. Second, awareness among acrs in localities important role played by mid- long-term development strategies in pursuit sustainable development also increased. Third, projects undertaken within had an incipient, demonstrative effect, reby contributing diffusion key ideas concerning economic environmental sustainability terririal co-operation. Fourth, in some cases, lags assumed a leading role in development dynamic in ir local communities. Causality, however, should not be attributed solely. Alongside, re has emerged a general discourse concerning terririalization all manner policies: not only rural development but also health education services, communication infrastructure, agriculture environmental policy; that is, all elements that contribute

6 Leader rural development in Spain 205 quality life, social dynamic or improvement social base on which local productive activities rely (Esparcia Noguera 1999). This is, neverless, an incipient process. For it be continued, effective ship (with sufficient knowledge area a capacity for interlocution with external agents institutions) will need be in place so that problems may be addressed at supra-municipal (which could be area) level. Lags will have assume double role, on one h, providing ship, adapted problems rural areas (with support or pressionals), on or, animating community participation. The demonstrative effect LEADER in Spain The value lies as much in its demonstrative capacity as in material impacts produced during Leader 1 ii. The significance this laborary for rural development, according many local practitioners, can be found in process or extra-project features animated by initiative. Any examination programme needs, refore, include a speculative component. In most Spanish rural areas, re has been no tradition terririal co-operation (wher between municipal authorities, economic or or acrs). Leader terriries, refore, have potential function as referents for evolution terririal identities. What is more, although has only a limited capacity for action, as was noted above, it has helped generate interest in terririalization or policy areas. National regional authorities, as well as local governments lags, are becoming increasingly aware terririal approach as a more effective paradigm for design implementation policy. The Andalusian Regional Government, for example, has already embarked on this course by recognizing lags as partners in implementation Regional Rural Development Plan reby extending lag responsibilities matters beyond those (Guerrero 1999). What is more, although community governance in sense a collective responsibility for management changes local development process cannot yet said have occurred generally in Spain, it is true that in those areas where social or terririal structure was weak, has created demonstrative models for local participation co-operation. Despite power play by layers politico-administrative system discussed above, constitution performance lags existence potential channels for local participation represent an exercise in democratic dialogue. This is specially important in rural areas where new ideas meet with greater resistance. Leader is impelling a process democracy-learning in rural areas. Lags as entities in mselves are functioning as learning laboraries for practitioners local rural development. Leader has provided a particular environment in which practitioners can acquire experience endogenous/ participative approach team-working. Not only that, but se individuals are also becoming referents for ir local communities, enjoy an increasing respect from local entrepreneurs or acrs, influencing investment decisionmaking. Leader has legitimized reinforced role se practitioners in ir terriry. Although cannot claim have generated local enterprise

7 206 Esparcia cultures, projects are helping nurture an environment in which traditionally high uncertainty risk in business decision-making is reduced. Conclusion Unquestionably, has had a significant impact in Spain. At very least, it has helped raise awareness among politicians pressionals dynamics rural areas. Private secr investment has been mobilized some employment created, although little is known about survival rates projects started through. In terms concrete projects, ability inspire innovative actions appears have been limited. A major problem facing scientific analysis in Spain is absence a framework enable comparative investigation, evaluating projects within outwith. An important element such a framework would be control areas free effect. In absence such a framework, uncertainty remains or aspects assume a greater significance in analyses: democracy-learning process; rural development education function; improvement in capacity for decision-making; participation; terririal approach design implementation policies; Europeanization rural acrs. In Spanish context, however, this must be juxtaposed with apparent susceptibility being used by institutions politico-administrative system legitimize ir own agendas interventions. Local acrs showed a willingness participate collaborate in initial stages, when Business Plans were being written about be implemented, but subsequently each lag tended fragment in a number narrow interest lobbies, each trying use as an instrument power. It is only now, as ii draws a close, that y recall oretical underpinnings programme, such as community participation, social dynamization co-operation. References Actualidad (1998) El i en España. Una experiencia innovadora. Actualidad LEADER-Revista de Desarrollo Rural (Unidad Española del Observario Europeo ) 1 pp Alvarez, J. (1998) El Programa ii en España. Actualidad LEADER-Revista de Desarrollo Rural (Unidad Española del Observario Europeo ) 1 pp Alvarez, J. (1999) Proder: Programa de Desarrollo y Diversificación Económica de Zonas Rurales. In Observario Europeo Seminario: Integrar las enseñanzas de LEADER en las políticas rurales (Valencia-España, June 1999) Cuadrado, J.R. (1992) El desarrollo del mundo rural en España (Madrid: Ministerio de Agricultura, Pesca y Alimentación, 2 Vols) Esparcia, J. A. Buciega (1998) Reflexiones sobre el. Elemens para el debate. Ruralia Revista del Mon Rural Valencià (Centro Rural de Información Europea Mas de Noguera, Castellón) 1, pp Esparcia, J. J. Noguera (1997a) El Programa i y el desarrollo rural en España. Análisis y evaluación. In A. Ontiveros F. Molinero eds, La investigación Hispano-Británica reciente en Geografía Rural: del campo tradicional a la transición postproductivista (Murcia: Asociación de Geógrafos Españoles) Esparcia, J. J. Noguera (1997b) Aproximación al impac de LEADER 1 en España (Mimeo)

8 Leader rural development in Spain 207 Esparcia, J. J. Noguera (1999) Y llegó la hora de los terririos. Reflexiones en rno al terririo y el desarrollo rural. In E. Ramos ed., El desarrollo rural en la Agenda 2000 (Madrid: Ministerio de Agricultura, Pesca y Alimentación) Esparcia, J., J. Noguera A. Buciega (1999a) Emerging community development in Spain. In E. Westholm, M. Moseley N. Stenlas eds, Local partnerships rural development in Europe: a literature review practice ory (Falun: Dalarna Research Institute-Sweden, Countryside Community Research Unit, Cheltenham Gloucester College Higher Education-uk) Esparcia, J., J. Noguera A. Buciega (1999b) Europe-wide experiences Programme. In E. Westholm, M. Moseley N. Stenlas eds, Local partnerships rural development in Europe: a literature review practice ory (Falun: Dalarna Research Institute- Sweden, Countryside Community Research Unit, Cheltenham Gloucester College Higher Education-uk) Esparcia, J., J. Noguera A. Buciega (1999c) Evaluación intermedia de la iniciativa Comunitaria LEADER II en la Comunidad Valenciana (Uderval-Unidad de Desarrollo Rural y Evaluación de Políticas Públicas, Universidad de Valencia, 2 Vols) Guerrero, J.E. (1999) + Andalucía: la tercera generación. In Observario Europeo Seminario: Integrar las enseñanzas de LEADER en las políticas rurales (Valencia- España, June 1999) Isla, M.M. A. Soy (1998) Approaches on evaluation: evaluation i initiative in Spain. In European Observary Seminar Indicars Assess LEADER Program follow its implementation (Galashiels, Scottish Borders, Scotl, 4 8 March 1998) Massam, B., J. Esparcia, (1998) Approaches LEADER programme European Union: A conceptual overview. Discussion Paper Nº 49 (York University-Canada: Department Geography) Ramos, E., J. Cruz (1995) Hacia un nuevo sistema rural (Madrid: Ministerio de Agricultura, Pesca y Alimentación) Javier Esparcia Pérez uderval (Unit for Rural Development Evaluation Public Policies) Department Geography University Valencia, Spain