A European Charter for Rural Areas[1]
Doc. 7517
12 April 1996
OPINION [2]
Rapporteur: Mr BARTODZIEJ, Poland, Group of the European Peoples' Party
I. INTRODUCTION
The initiative taken by the Committee on Agriculture and Rural Development in drawing up a European Charter for Rural Areas is of major importance for European policy on the development and protection of rural areas.
Rural areas form a very complex, specific system, the economic, ecological, social and cultural components of which are interdependent. Most of the historical and cultural heritage of a society is found within these rural areas. The majority of the population of Europe lives in these rural areas, which adds a considerable political dimension to the issue. Finally, human beings have shaped the rural world with their different activities, and have left their mark on nature.
The Charter presupposes interaction between humans and the environment in rural areas. It sets out to provide a framework within which the laws and administrative and financial rules needed to achieve a balance between human activities and nature protection in rural areas can be introduced. The wealth of diversity of the rural environment (flora, fauna, forests, minerals, raw materials for energy, cultural and landscape heritage, etc.) and the diversity of human activities (agriculture, forestry, fish farming, crafts, industry, etc.) only add to the urgent need for a policy in this area.
The Charter clearly affirms the need for a policy concerning the development of rural areas, which should take into account two requirements: sustainable, balanced development and the observance of ecological rules.
Lastly, a policy concerning rural areas would accelerate the transition process in Central and Eastern Europe, since it would establish a common framework for all European countries.
Moreover, experience in several countries has shown how important democracy and the direct participation of the public is in the protection of rural areas. Indeed, we have seen only too often the destruction and damage brought about in rural areas in countries which used to have, or still have, a non-democratic system of government.
II. PRESENTATION OF THE PROVISIONS OF THE CHARTER FOR RURAL AREAS
The European Charter for Rural Areas is an innovative step designed to give new impetus, in the long term, to the Council of Europe's policy in this area. It defines the economic, ecological, cultural and social features and functions of rural areas, and affirms the urgent need for states to promote a new rural policy, for which the Charter lays down a number of guidelines.
A. Sustainable, balanced development of rural areas, based on a two-fold policy
1. A regional (or rural development) policy
Generally speaking, reforms are envisaged to foster economic and social progress in rural areas, strengthen and stabilise the economic and social fabric of the countryside, improve living and working conditions in rural areas and, more specifically:
_ promote the ecological function and socio-cultural role of rural regions;
_ revive town and country planning policies to correct any economic, social and cultural imbalance between urban and rural areas;
_ promote sectorial policies for rural development (developing human resources, creating a wide range of attractive rural jobs, giving new impetus to traditional activities and jobs, developing tourism, etc.);
_ adopt a policy for sustainable management of natural resources (preventing urbanisation, industrialisation, uncontrolled exploitation of resources, intensive single-crop farming and excessive exploitation of earth and forest resources);
_ enhance historical and cultural heritage;
_ reinforce the cultural identity of the rural environment;
_ improve the standard of living and quality of life of rural communities, particularly through modern infrastructure, transport and equipment, access to teaching and to vocational training, and decentralisation of services.
2. An agricultural policy
Ensure the continued existence of the farming sector, particularly by:
_ promoting multifunctional agriculture, close to nature;
_ rethinking and broadening the farm income policy;
_ updating farming equipment, diversifying and adapting production facilities.
B. Protection of rural areas
Rural areas in most European countries are threatened. Their continued existence has to be ensured by:
_ preventing excessive exploitation of natural resources, excessive consumption of natural resources which are non-renewable or renewable on a small scale only, and concentration of industry and agriculture in certain areas;
_ preventing environmental damage, repairing damage to the environment, or restoring its natural elements;
_ implementing policies for the protection of the rural, natural and landscape heritage: protecting natural or man-made sites and landscapes;
_ preserving the quality of life and traditional family life and safeguarding the values of rural society, cultural heritage and identity, traditions and customs.
The Committee on Legal Affairs and Human Rights would particularly like to draw attention to a number of original provisions contained in the Charter which are crucial for its effective implementation.
The principle of subsidiarity, as provided for under Article 11 of the Charter, according to which the role of local and regional authorities is acknowledged and their powers increased, is also of importance for the rural environment.
Experience in post-communist countries has shown the need to apply the principle of subsidiarity when earmarking financial aid. In several countries the negative effects (destruction of crops and natural resources) of central planning on rural areas can be seen.
In several Central and East European countries, extensive areas of rural territory have been damaged by industrial activity, mining, intensive farming and pollution. The need to return the earth to its natural primary function is evident.
However, the Committee on Legal Affairs and Human Rights wishes to stress that the draft Charter does not constitute an appeal to member states to carry out a process of "ruralisation", but should encourage them to look at the rural world in a new light.
A Standing Committee on European Rural Areas would ensure the vital exchange of information between countries and the pooling of experience (see Part VI., articles 12 to 15).
The Committee on Legal Affairs and Human Rights also wishes to draw attention to the particular importance it attaches to biodiversity. Equilibrium between people and the environment in rural areas depends on the preservation of biodiversity. The committee therefore welcomes the many provisions of the Charter aimed at the promotion and protection of biodiversity, genetic resources, and the diversity of species and landscapes.
Moreover, the Charter ties in with the Pan-European Biological and Landscape Diversity Strategy, which is currently being examined by the Committee of Ministers of the Council of Europe, this being further proof of the importance of the initiative taken by the Committee on Agriculture and Rural Development.
III. SUGGESTED AMENDMENTS
The Committee on Legal Affairs and Human Rights had informed the Committee on Agriculture and Rural Development of its comments on the draft Charter and would like to thank the committee for having already incorporated many suggested changes. However, it would still like to draw attention to a number of points.
A. Amendment and comments concerning the draft recommendation
The Committee on Legal Affairs and Human Rights thinks that paragraphs 1 and 2 of the draft recommendation need to be expanded on, and that they should specifically mention the most significant and most recent texts in the areas of rural development and the protection of natural resources and cultural riches. In view of the importance of this work, Recommendation 1122 (1990) on the revival of the countryside by means of information technology, Recommendation 1233 (1994) on European environmental policy, Resolution 1039 (1994) on rural and agricultural reform in the new democracies of central and eastern Europe, and Order 490 (1993) on necessary agricultural and rural policy reforms in Europe, could be mentioned, for example.
Moreover, the committee proposes to delete paragraph 6, the text of which would be more appropriate in a draft resolution than in a recommendation to be addressed to member States or the Committee of Ministers.
The committee also wonders about the justification for having a specific legal instrument in the area of rural development. The Charter lays down general common rules regarding European policy for rural areas, and is therefore more of a non-binding declaration of intent regarding policy for the signatory parties. The model Charter could therefore equally serve as a guideline for preparing a Committee of Ministers recommendation.
For this reason, the committee thinks that, in paragraph 7.i of the draft recommendation, the words "to prepare" should be replaced by:
"to determine the need for, and analyse the possibility of applying..."
Finally, paragraph 7 could lead to confusion concerning the role of the European Union. The committee therefore proposes the following two amendments:
- delete in paragraph 7 the words "in cooperation with the European Union";
- add, in sub-paragraph ii, after "institutions", the words "and in particular the European Union".
B. Amendment concerning the model European Charter for Rural Areas
Lastly, it would be a good thing to reinforce the binding nature of Article 10 by wording the first sentence as follows:
"The Parties shall provide the financial resources required to ensure that the rights provided for in the Charter are exercised, and in particular implement a policy of state and regional aid for rural areas, using the principle of subsidiarity and the measures set out in the guidelines in the Appendix to this Charter."
C. Remark concerning the appendix
Generally speaking, the committee thinks there should be a clear distinction between guidelines regarding a policy for rural and agricultural development and those which are more geared to the protection of rural areas (protection of the environment, society, heritage, culture, etc.).
IV. CONCLUSION
The Committee on Legal Affairs and Human Rights would like to congratulate the Committee on Agriculture and Rural Development on its work, and invites the Assembly to adopt the draft recommendation while taking into account the proposed amendments.
Reporting committee: Committee on Agriculture and Rural Development
Committee for opinion: Committee on Legal Affairs and Human Rights
Reference to committee: Order 490 (1993)
Opinion approved by the committee on 3 April 1996
Secretaries to the committee: Mr Plate, Ms Chatzivassiliou et Ms Kleinsorge
[2] by the Committee on Legal Affairs and Human Rights