MASARYK UNIVERSITY FACULTY OF SOCIAL STUDIES. Department of International Relations and European Studies

Transcription

1 MASARYK UNIVERSITY FACULTY OF SOCIAL STUDIES Department of International Relations and European Studies Models of Regional Representation in Brussels: A Case Study of the Zlín Region Master s Thesis Ondřej Benešík Supervisor: PhDr. Markéta Pitrová, Ph.D. UČO: Study Field: PL EUP Year of Enrollment: 2006 Brno, 2009

2 Abstract: Models of Regional Representation in Brussels: A Case Study of the Zlín Region Ondřej Benešík This thesis provides a case study dealing with the Regional Representation of the Zlín Region in Brussels. It argues that the representation is a significant instrument that assists the region in fulfilling its EU policies and strategies, thus contributing to the overall development of the region. It identifies links between the representation s activities and the official developmental objectives of the Zlín Region. It also analyzes the chosen form of representation and identifies its strengths and weaknesses. On the basis of the analysis, recommendations are put forth for improving its efficiency. Key words: Region, regional, development, cooperation, integration, direct representation, indirect representation, the Zlín Region, the Czech Republic, the European Union. 2

3 I hereby declare that this thesis I submit for assessment is entirely my own work and has not been taken from the work of others save to the extent that such work has been cited and acknowledged within the text of my work. Date: 10 December Ondřej Benešík 3

4 Contents: 1. Introduction Theoretical Framework Zlín Region in the Context of the European Union The Zlín Region as a Public Administration Authority The Program of Development of the Zlín Region A Brief History of the Program s Creation and its Structure The European Dimension of the Vision of the Zlín Region General Strategic Objectives of the Zlín Region Functional Areas European Funds and the Zlín Region The Regional Operational Program of Central Moravia NUTS II Region Territorial Units (NUTS) Specification of NUTS II Region Representation in EU-related Institutions The Association of Regions of the Czech Republic The Zlín Region in the Committee of the Regions Region Representations in Brussels Brussels as a Centre of Regional Lobbing Why Representation in Brussels? Forms of Representation Direct Representation An Example of Direct Representation - Prague House Indirect Representation A General Description of Activities of Regional Representations Types of Representation of the Regions of the Czech Republic Zlín Region in Brussels Creation of the Zlín Region in Brussels Working Team Job Description of Representation Activities of the Zlín Region in Brussels Promotion of the Region Open Days Journée Portes Ouvertes The Zlín Film Festival in Brussels The Czech Street Party Institutional Representation Networking Partners of the Zlín Region Membership in European Networks

5 Friends of Europe (FoE) European Regions Research and Innovation Network (ERRIN) EUREGHA (European Regional and Local Health Authorities) The Network for Sustainable and Competitive European Tourism BIRTH Bringing Innovative Regions Together for Health CzechReg Representation of Czech Regions in Brussels Lisbon Monitoring Platform Technical Assistance to Projects Project RIS (Regional Innovation Strategy) Project SupPolicy Project Cognac Projects Within the Framework of Interreg IV C ENSPIRE EU Project ENSPIRE EU Project Amber Route Project within the Framework of NAEP Norway The Creating and Negotiating the Regional Operational Program (ROP) Communications Strategies Website Newsletters Reports Regular Reports Special Reports Communications with the Media Study Programs at the Representation Training Student Study Programs Analysis of the Representation An Analysis of the Form of Representation A SWOT Analysis of the Direct and Indirect Types of Regional Representation An Analysis of the Results of the Representation of the Zlín Region in Brussels Outcomes of Presentation of the Region Open Days Journée Portes Ouvertes The Zlín Film Festival in Brussels Results of Institutional Representation Events on a Local Level The Help Desk in the Baťa Villa Expedience of Technical Assistance to Projects Assessment of the Communications Strategy

6 Website Special Reports Newsletters Training and Study Programs at the Representation Linkage of Representation s Activities to Development Objectives Recommendations for Increasing Efficiency of the Representation Conclusion Bibliography Appendix I would like to thank doc. PhDr. Markéta Pitrová, Ph.D. for her contribution and valuable consultations. 6

7 1. Introduction The European Union is commonly called a Europe of regions, which implies that regional self-governing units throughout the Union play an important role in the integration process of Europe. The member states and institutions of the European Union still remain more powerful and significant actors in the process of integration than the regions, but influence and opportunities to participate within the process have increased. The Conceptual effort to strengthen the identity of regions, so-called Regionalization, is directly supported by the central institutions of the European Union such as the European Commission, European Parliament and the Committee of the Regions. According to this concept, regions should to play an increasingly decisive role in shaping the European Union. For this reasons, regional and municipal self-governing unites establish representation offices in Brussels. In most European countries, the process of decentralization has given more powers and competencies to regions at the expense of national governments. These new competencies are often connected to managing and deciding on issues and agendas concerning the European Union. Regional representations in Brussels started mushrooming after the Maastricht Treaty 1 came to force (1993), which redefined the EU Regional Policy and thus made its actors regions and municipalities of the European Union more powerful. European politics is open and to a great degree even based upon lobbying, which is a process aimed at influencing key players who make important decisions to promote the legitimate interests of a particular entity. The communication of various interest groups (for example associations of employers and employees, ethnical minorities, non-governmental organizations, municipalities and regional governments, etc) with institutions in charge of law making or executive authorities is therefore common and sometimes even required. For this reason representations of European regions in Brussels might prove a very helpful instrument in the pursuit of regional strategies within the European Union, but analysis is needed on a micro political level in the form of a case study. 1 The Maastricht Treaty (the Treaty on European Union), was signed in 1992 and came into force on 1st November It was a major reform of the primary law, introducing a range of institutional and policy reforms. The Treaty founded the European Union with its pillar structure, for example. (Cini, New York:, Oxford University Press, 2007, p. 496). 7

8 Thus the primary goal of this thesis is to evaluate the contribution of the Representation of the Zlín Region to the fulfillment of the official development priorities of its region and to analyze the chosen type (model) of representation. On the basis of this analysis recommendations will be made for increasing efficiency of the regional representation. Finally, the examination of the representation in Brussels will be placed into a broader framework that tries to define the Zlín Region in the context of the European Union and outline its policy towards the European Union. The hypothesis to be verified by this thesis is the following: The Representation of the Zlín Region in Brussels is a key instrument contributing to the realization of the developmental objectives of the Zlín Region as included in the official program document the Program of Development of the Zlín Region. Convinced that without a presence at the administrative center of the European Union it would not be possible to take full advantage of our membership in the Union, the leadership of the Zlín Region decided in favor of a representation office in Brussels since it has been. There are many opportunities originating from EU membership, which are open to Bohemian and Moravian regions, the grasping of which can contribute to their development (here rank e.g. gaining EU funds, finding suitable partners for EU projects, influencing EU legislation, etc). However realizing them requires frequent and direct contact and communication with various actors, especially EU institutions, in Brussels. For this reason, the leadership of the Zlín Region chaired by František Slavík, decided in 2004 to establish a representation office in Brussels (Slavík, 2008). Structure of the thesis: The theory of multilevel governance is the theoretical framework of the thesis. This theory is closely connected with regionalization, which is naturally also dealt with here. Also taken into consideration are the European context of the Zlín Region and the region s official development objectives within it. In focus are the Program of Development of the Zlín 8

9 Region and its European dimension, the direct connection of the Zlín Region to EU programs (Regional Operational Program of Central Moravia NUTS II Region, Global Grants of the Operational Program: Education for Competitiveness ) and the membership of regional representatives in EU-related institutions. The main part of the thesis is dedicated to the Zlín representation in Brussels, which is partially described in the context of its other Bohemian and Moravian counterparts. Then the chosen model of representation (indirect model) is examined and a SWOT analysis of both the direct and indirect model is provided. Further, the mission and functioning of the representation is touched upon. In the next part, the concrete activities of the representation are evaluated and linked with the developmental objectives of the Zlín Region, which are fundamental for proving or rejecting the hypothesis. Finally, recommendations for to increasing efficiency of the representation will be made. Methodology: This thesis is a case study examining a specific example of regional representation in Brussels. An analysis (including SWOT) is employed for evaluation of the model of representation and the linkage of the representation s activities with the developmental objectives of the Zlín Region. For the purpose of full disclosure, it should be noted that I am an insider of the Zlín Region and its policy towards the European Union. As a member of the Council of the Zlín Region and the Chair of Committee for EU Affairs, I am partially responsible for the involvement of the Region in European affairs and have a certain share in defining the region s policy. I am directly involved in communication with the Representation of the Zlín Region in Brussels and take part in some projects and activities initiated by the representation. I am also a member of the Committee of the Region, which enables me direct contact with regional representations of the Czech Republic in Brussels as well as with EU institutions. Therefore I am able to use direct observation, interviews with people in charge, and my own experiences and knowledge of the topic in writing this thesis. Literature and other sources Due to the nature of the thesis, most of the sources utilized are documents of the Zlín Region and its Brussels representation, such as annual reports and biweekly bulletins of the Representation of the Zlín Region in Brussels, Technical Resolutions of the representation 9

10 (internal documents of the Zlín Region), information gathered via face-to face interviews with responsible officials and politicians and data gained through my personal involvement in this issue. Only a fraction of resources are secondary and these were used mostly in the following theoretical portion of this thesis. 10

11 2. Theoretical Framework Regions throughout the European Union play an important role in development as well as in enforcing policies and legislation of the European Union. They are important actors within both their own states and the European Union. The regions of the Czech Republic, although established relatively recently and with relatively limited powers (especially in comparison to e.g. German Lander or Spanish Autonomous Regions), are no exception. Not only are they able to influence decision making processes and take part in policy shaping within the European Union, but they also have options to pursue their own strategies and policies towards the European Union, which can significantly contribute to their development. The theoretical framework of this thesis is provided by multilevel level governance (MLG), which is a quite recent theory of European integration. The model of multilevel governance claims that governance in the system of the European Union is neither exclusively carried out at the level of central integration institutions nor at the level of member states but governance takes place at more levels supranational, national and sub-national level (Kratochvíl, 2008, p. 147). The first and obvious feature of European governance is that most of the activities of policy making and implementation involve multilevel activity. The idea of multilevel governance was developed largely in reference to the EU, although most of the features associated with this concept would be familiar to the citizens of federal states, or indeed even most unitary states. The multilevel governance model recognizes not only the existence of national governments in the EU, but also emphasizes the importance of regional governments, whether already pre-existing regions (the German Lander, for example) or regions that have recently been constructed for purposes of regional policy within the EU (Peters and Pierre, 2009, page 95). Models of multilevel governance applied to the EU remain conservative in the sense that it is still the state that is considered the fundamental actor. On the other hand, however, the states are not seen as monolithic entities but as representatives of certain socially or territorially defied groups, which function within them. This approach thus enables the possibility of taking actors other than states into account and these actors are able to influence the politics of the EU on a smaller scale, but in fact there is no qualitative difference between them (Kratochvíl, 2008, p. 150). Despite the fact that regions neither possess strong 11

12 decision-making or legislative powers like the institutions of the EU nor are chief aspirators of the integration like the states, they still have a significant share of influence in shaping EU policies. There have been two crucial developmental tendencies in creating the system of multilevel governance in Europe in the last fifty years: First the European international process has transferred the authority in several key areas from the nation states to the level of the EU institutions. Second, regionalization has, in several European countries including the largest ones, transferred powers from the nation level towards the sub-national level of government. From the beginning of the 19 th century until the 1960s there existed a wide-spread opinion that centralization of the state alongside with strengthening of its powers in the economic and political fields was the synonymous with the modernization and increased efficiency of the state administration. Since 1960 this concept has been heavily criticized, and the overall positive influences of decentralization as state policy have been emphasized. Such opinions have prevailed that decentralization may contribute to the economic recovery and the growth of underdeveloped regions, reduce transfers from rich regions towards poor ones and at the same time diversify the influence of the state on the functioning of specific regions. This first phase of regionalization was understood as a policy that strengthens the state and not vice versa. This phase, which focused on economic factors, came to be referred to as topdown regionalism. The second phase of regionalization, which began in 1970s, was associated with the growing ambitions of regions (bottom-up regionalism). It was not any more the benevolent politics of the state, which makes more autonomous functioning of regions possible, but emancipation efforts of the regions themselves to gain broader economic and political powers. The third phase of regionalization, which started in the 1980s, is sometimes referred to as the period of new regionalism. There were a number of stimuli for this phase, e.g. globalization, the ongoing processes of public administration reforms in some European countries, etc. However it was the European integration that has had the fundamental impact on the process of regionalization. The importance of regions grew after the adoption of the 12

13 European Single Act 2 and completion of the Common Market. At the same time, the Regional Policy of the EU changed. This originally compensation instrument has become one of the key policies of the Union. Regions have begun to make efforts towards a more visible presence at the level of the European Communities. This process is closely associated with so called paradiplomacy. 3 European integration has gradually become a suitable method for regions to strengthen their own position within the home state. A number of regions have established representation offices in Brussels and it is possible to say that, to a certain extant, they pursue their own foreign policy that is independent from their home state (Kratochvíl, 2008, pp ). In the Czech Republic, regions as self-governing administrative unites were established in January 2000, and the fist regional elections were held in November Consequently there was a gradual transfer of competencies from the central government to the regions. Act No. 248 on Support of Regional Development imposes on regions the responsibility for the overall development of their territories and the creation and adoption of an official program for the development of the respective region. Even during the creation of the program for development of the Zlín Region, it was obvious that the region would set up its own policy towards the European Union with the aim of taking advantage of membership in fulfillment of official developmental objectives. The Representation of the Zlín Region in Brussels, has played, and continues to play, a role in the policy. 2 Single European Act is the first of the important Treaty revisions, signed in It came into force in 1987 and focused especially on the Single Market Programme. The document was also very important for the policy of economic and social cohesion. (Cini, 2007, p. 496). 3 Paradiplomacy is a foreign policy capacity of sub-state entities, their participation, independent of their metropolitan state, in the international arena in pursuit of their own specific international interests ( 13

14 3. The Zlín Region in the Context of European Union The aim of this chapter is to define the European dimension of the workings of the Zlín Region, especially its linkage and involvement in matters concerning the European Union. It begins with defining the region as a self-governing unit that possesses certain position, competencies and responsibilities within the public administration system of the Czech Republic. The regional political representation set up its development priorities quite shortly after completion of the reform of public administration in The priorities are elaborated in the Program of Development of the Zlín Region, which includes possibilities of funding that are made available to the Zlín Region due to its membership in the European Union. This chapter also touches on the financial schemes of the EU, in which the Region is involved directly, such as the Regional Operational Program of Central Moravia NUTS II Region and the Global Grant of the Operational Program: Education for Competitiveness. Further, it focuses on the membership of elected regional representatives in EU-related institutions. This chapter is designed to create a framework for an analysis of the Zlín Region s Representation in Brussels, its operations, activities and especially contributions to the fulfillment of the region s developmental objectives. The broader picture of the region s connections to European issues is necessary for analyzing the functionality of the Representation of the Zlín Region in Brussels. 3.1 The Zlín Region as a Public Administration Authority The Zlín Region was formed on 01 January 2000 within the framework of public administration reforms, and became one of the fourteen new regions of the Czech Republic in accordance with Act no. 347/1997 Coll., on Creating Higher Territorial Administrative Units. In accordance with the Act No. 248 on Support of Regional Development, which imposes a significant share of responsibility for regional development on the regions, the Zlín Region elaborated and adopted the Program of Development of the Zlín Region. 14

15 The region identified for itself four strategic development priorities that became the basis for the definition of four strategic objectives framing the official development programming document of the region: High-speed roadways and motorways a priority in making the region more competitive is the connection of the region to the highway network, improvement of transportation accessibility of cities and municipalities and use of railway corridors running through the region; Development of entrepreneurship the creation of favorable conditions for doing business and for increasing competitiveness, to contribute to regional economic development; Increasing the level of education and the development of culture - increasing education and developing cultural heritage, to improve the quality of life in the region, and decrease the threat of unemployment; Attaining structural changes - to attain skills, which increase access to the structural funds of the European Union. Also, effective forms of cooperation will be used with partners in the region, and proper management of public services will be applied (Zlínský kraj, Výroční zpráva Zlínského kraje, p. 10). The document, which includes the development priorities called The Program of development of the Zlín Region, is dealt with in greater detail in the following chapter. It is a fundamental document for the direction of the development of the Zlín Region, which is to a significant degree, despite of its adoption before the Czech entry into the European Union, based upon possibilities arising from EU membership. 3.2 The Program of Development of the Zlín Region The fundamental document of the Zlín Region, defining development objectives and measures to be employed in order to fulfill them, quite clearly refers to the region s intention to take advantage of possibilities stemming from membership in the European Union. Logically then, this document became a framework for setting up priorities for the representation of the Zlín Region in Brussels. Apart from that, it indirectly initiated the creation of the regional representation, as it was believed that without a regular and intensive 15

16 flow of information from Brussels to Zlín and vice versa and without an effective lobbying tool at the heart of the European Union, achieving some of the region s development objectives would be virtually impossible or at least extremely difficult A Brief History of the Program s Creation and its Structure The Program of Development of the Zlín Region was adopted by the Council of the Zlín Region in accordance with Paragraph 13 of the Law No. 248/2000 Collection, on the Support of Regional Development on 19 June This strategic document is the result of a joint effort of politicians and experts working in a structure of commissions appointed by the Executive Board of the Zlín Region. The document was further developed by the consulting agency METOD KONZULT IPM s.r.o. Olomouc and by external consultant Alois Glogar under the supervision of the Department of Strategic Development and Department of Regional Development of the Regional Authority of the Zlín Region. The Program of Development of the Zlín Region is a crucial strategic document setting up developmental needs and objectives that the regions intends to achieve. Prior to its adoption, there was a profound public debate, in which a number of entities including individuals, municipalities, civic initiatives, institutions of public administration and businesses took part. The document includes short term objectives (until 2002) as well as long term objectives (until 2010). It is the long term objectives that are the focus of this thesis. The Program of Development of the Zlín Region analyzes the situation of the region from economic as well as sociological points of view and defines the vision of the Zlín Region. The analytical part is called the Basic Picture of the Zlín Region and is followed by the Complex Vision of Development of the Zlín Region, which is a concentrated picture of the region in the future. Another part of the document contains the General Strategy of the Development of the Zlín Region, which describes the priority objectives of the region as a whole (Mareček, 2009). The priority objectives are further developed into functional areas, which are, in this thesis, dealt with in greater detail as they are used to evaluate the representation s activities compliance with the developmental goals of the Zlín Region. 16

17 The European Dimension of the Vision of the Zlín Region The vision touches on the Region s ambition to take advantage of EU membership: The Zlín Region will use all competitive strengths to improve its position among other Regions of the Czech Republic and will reverse all processes of regression, achieve success in the field of cooperation with the EU in cohesion and usage of structural funds in the area of transport infrastructure and transport accessibility, in increasing of competitive ability of the region and internationalization, in development of competitive businesses, decreasing of the unemployment rate and in development of all parts of the region. (Zlínský kraj, Program rozvoje územního obvodu Zlínského kraje, 2002, p. 31). The realization of the vision is thus based to a significant degree upon possibilities open to the Zlín Region through membership in the European Union General Strategic Objectives of the Zlín Region The document contains four strategic objectives and strategies to be followed in order to achieve them. The political representation set up strategic objectives as follows: 1. Development of transport infrastructure. 2. Development and support of business activities. 3. Improved quality of life. 4. Gaining of maximal effects through the realization of structural changes with the contribution of EU funds Functional Areas The largest and most detailed section of the document deals with six functional areas, which define concrete tasks and activities as well as specific goals for the development of the Zlín Region. These six functional areas are the most important part of the Program of 17

18 development of Zlín Region in relation to the evaluation of the Zlín Region s Representation s contribution to the development of the region. Summary of functional areas: A. Economic Development It includes support for the development of a dynamic entrepreneurial base of industrial, agricultural as well as trade businesses that will solve market problems and create favorable conditions for a competitive and sustainable operational environment. Specific goals: - An increase of internationalization of local economy - The creation and development of small and medium-sized businesses - The strengthening of science and research - Making access to financial capital for businesses easier B. Technical utility, transport accessibility and transport services This includes making transport utilities and services comparable to the rest of the Czech Republic and narrowing the gap with the closest EU countries 4 Specific goals: - Improvement of transport accessibility in the area of intra-regional and international transport networks (highways, railway corridors, etc). - Improvement and development of II and III category roads. - Development of other means of transport supporting transport functions. - Improvement of the public transportation system as a public service - Increase of energy efficiency. C. Human Resources 4 Infrastructure in the Zlín Region in comparison with the average of the Czech Republic is underdeveloped (Mareček, 2009). 18

19 This aims at improving quality of life from increased incomes, increased quality and availability of infrastructure, educational modernization, support for civic initiatives, and the security of the region s inhabitants and visitors. Specific goals: - The increased employment of inhabitants and the improvement of offer of qualified job offers - The increased availability and quality of social services - The increased availability and quality of health services - Prosperity through education - The prevention of social-pathologic phenomena and the increased security of inhabitants and visitors - The maintenance and strengthening of cultural values and heritage - The conceptual development of physical education and sports in the region D. Environment Protection It includes strengthening the environment for the sustainable development of living conditions of the inhabitants and competitive economic activities, development of environmental education and promotion of eco-related issues. Specific goals: - The maintenance of eco-functionality of the landscape - A permanent solution for the scope of pollutions in the environment - Reduction of production and the ecologization of waste management - The protection of the purity and function of natural water reservoirs - An effort to transfer the ownership of state-owned forests to the region s ownership - The efficient management of drinking water - A reduction in the risk of floods and erosion E. Development of Rural Areas and Agriculture 19

20 It deals with the strengthening of the economic and social stability of villages and rural areas with the aim of increasing incomes of village inhabitants and supporting the stabilization of competitive agricultural entrepreneurship. Specific goals: - The maintenance of quality crop and animal production in agriculture-favorable areas of the region - To strengthen the significance of agriculture in the landscape care and environmental protection - The development of infrastructure and the habitation of rural areas - The improvement of quality of life in villages and micro-regions F. Tourism It focuses on a more efficient usage of the economic and social potential of the region in tourism development, as well as on the improvement and construction of tourism infrastructure. Specific goals: - The creation of tourism attractions based on local resources - The increase of the scope and quality of services in tourism - The renovation of cultural monuments The development priorities are reflected in schemes that are linked to EU funds, thorough which the Zlín Region receives funding from the EU as well as in operation of the Region s Representation in Brussels. The following part of this thesis is devoted to these schemes, the management of which the Zlín Region directly influences, and which are used for financing regional projects. Here belong the Regional Operational Program of Central Moravia NUTS II Region and the Grant of the Operational Program: Education for Competitiveness. (Zlínský kraj, Program rozvoje územního obvodu Zlínského kraje, 2002, pp ). 20