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Rural Development: Following the
European Guidelines, but Adapted to Our Needs
by Uroš Korbar
In its broadest sense, rural land represents ninety per cent
of Eu territory. until recently, the terms agriculture and rural
land were very closely connected, almost indistinguishable;
in fact, they were synonymous. Today, we acknowledge many other
aspects of rural areas, and attribute to them a number of new
roles. Hence, areas where only a few decades ago agriculture
and forest management were the predominant activities, now host
non-rural populations, provide places for relaxation and recreational
sports activities, and shelter protected plant and animal species.
These are some of the most important roles which dominate discussions,
and planning and development measures for rural areas. As a
result, the question often resurfaces as to whether ‘traditional’
agriculture and forestry still have their roles and what they
are. This dilemma stems from a simplistic assumption which determines
their value only according to the ever-decreasing share they
contribute to GNP as determined by hitherto solely finance-related,
i.e. production role. Thus in 2004 in Slovenia, agriculture
and forestry accounted for ‘merely’ 2.2. and 0.19 per cent of
GNP, respectively. In urban circles and among salon environmentalists,
they are seen increasingly as a kind of necessity that accompanies
activities in rural areas.
The Various Roles of Forestry
and Agriculture
Such a way of thinking is, of course, mistaken. In fact, with
regard to sustainable development, it can prove detrimental
to a country like Slovenia, which has sixty per cent forest
cover, and a settlement pattern in which almost sixty per cent
of the population inhabits lowlands and valleys, i.e. twenty
per cent of the entire territory. As it is impossible to disregard
agriculture and forestry in planning the future, their fundamental
productive roles, i.e. food cultivation, the provision of renewable
sources of energy and raw materials, must be considered. Farmers,
and the owners of agricultural land and forests, are those who
daily manage almost 92 per cent of Slovenian territory, which
also has important environmental and aesthetic functions. Besides
engaging in production, they also manage the man-made environment,
and protect biotic diversity. If, for the purpose of illustration,
we consider the problems the capital Ljubljana is facing with
regard to maintaining its parks through a public municipal company,
we can clearly see that planning the sustainable development
of rural areas without agriculture and forestry, and without
the people who work in this branch and also inhabit these areas,
is impossible. Without them, it is simply impossible to rationally
carry out and finance the wide variety of emerging tasks and
roles which the broader public now imposes on these areas.
Rural Areas Have an Impact on
Slovenia's Image
Many rural development experts are warning that preserving the
vitality of the countryside is crucial for the future of postindustrial
society at the beginning of the third millennium. This is all
the more important for Slovenia, one of the smaller EU members,
with a total surface area of just over two million hectares
(20,273 km2), since it is also one of the countries with a percentage
of rural areas above the EU average. According to the OECD criteria
for regional subdivision, Slovenia comprises twelve regions,
eight of which are largely rural, and four predominantly rural.
The latter account for nearly a third of Slovenia’s territory,
and are home to 38.5 per cent of the entire population. Natura
2000: An Unknown In Slovenia, there are clear differences in
opinion between advocates of so-called unspoilt nature among
governmental and non-governmental environmentalists, and those
who daily manage agricultural lands and forests for a living.
With the Decree on Special Protection Areas, the former government
declared as much as thirty-six per cent of Slovenian territory
(of which forests account for 71 per cent) Natura 2000 areas.
For comparison, in the EU, fifteen per cent of the whole territory,
i.e. 12.5 per cent of agricultural lands and forests, are included
in Natura 2000 areas. The proponents of Natura 2000 work to
maintain a healthy natural environment and protect the habitats
and biotic diversity in Slovenia, which should definitely be
preserved with appropriate strategic guidelines and measures.
In so doing, they must not forget that the present situation
is largely the result of the work and lifestyle of people living
in rural areas; therefore, Natura 2000 should not constitute
irrational restrictions on the optimal management of the business
potential of agriculture and forestry, i.e. the rural economy.
Discussions among the owners of farmlands and forests, who are
organised in the non-governmental Chamber of Agriculture and
Forestry of Slovenia through mandatory membership, reveal that
inhabitants of rural areas are not well acquainted with these
issues. At present, the members of the Chamber can merely acknowledge
the fact that Natura 2000 areas have been designated, and that
due measures will have to be implemented. The areas have been
defined in great detail; however, competent bodies remain silent
as to concrete examples and measures. This will be possible
once the significance of individual meadows for a specific bird
or grass species within each piece of land, and the mode of
cultivation are precisely determined. The biggest problem is
financing the measures of the Slovenian Agricultural Environmental
Programme (SAEP), some of which are aimed at maintaining the
favourable situation important for Natura 2000. Up to now, sixty-five
per cent of funds for rural development have been earmarked
for SAEP’s measures, while a new strategy stipulates merely
fifty-three per cent. The Chamber advocates an approach whereby
a separate management plan is adopted for each area, and the
government provides the funds to compensate for the loss resulting
from the measures introduced, which, in view of Slovenia’s great
biotic diversity, need to be implemented on various levels.
The New EU Rural Development Policy
for 2007-2013
Following several years of discussions, in 2005, the European
Union adopted a reform of rural development policy, which was
finalised in 2006 by the Agriculture Council adopting six community
strategic guidelines for rural development. These are: improving
the competitiveness of the agricultural and forestry sectors,
improving the environment and countryside, improving the quality
of life in rural areas and encouraging diversification, building
local capacity for employment and diversification, translating
priorities into programmes, and complementarity between Community
instruments. In this way, Brussels outlined the strategy and
tools which member states can use in their national strategic
plans (NSPs) and in rural development programmes. It has been
emphasised that through the reform of the Common Agricultural
Policy (CAP) rural development has acquired greater significance
and helped the countryside to tackle the economic, social and
environmental challenges of the 21st century. The new legal
framework more clearly encourages economic growth and the creation
of new jobs in rural areas – in line with the Lisbon Strategy
– and promotes sustainable development – in line with the Göteborg
sustainability goals. Future EU Rural Development Policy 2007-2013
will focus on three areas in line with the ‘three axes’ of measures
laid down in the new rural development regulation: improving
competitiveness for farming and forestry; environment and countryside;
improving the quality of life and diversification of the rural
economy. The fourth ‘Leader’ axis, based on experience with
the Leader programme, introduces possibilities for locally based,
bottom-up approaches to rural development. The new uniform system
of programming, funding and control is also expected to simplify
the implementation of measures of the rural development policy.
The new programme period provides an opportunity for member
states to direct the funds from the new EU rural development
fund to economic growth, jobs and sustainable development. To
draw on these funds, member countries must devise national rural
development plans and programmes in line with the EU law by
autumn 2006, and submit them to the European Commission for
approval.
Slovenia's Experience in Rural
Development
Upon joining the EU, Slovenia adopted the Common Agricultural
Policy, thus joining a uniform scheme of rural development.
With regard to organising the market for agricultural products
with common market measures (for milk, cereals, beef, wine,
fruit, etc), which constitute the so-called first pillar of
the CAP, Slovenia, like all other EU members, has delegated
much of its authority in the area of agricultural policy to
Brussels. With regard to rural development, which constitutes
the ‘second pillar’ of the CAP, the country has retained more
authority in deciding on the type and range of measures. Already
in the pre-accession period Slovenia demonstrated its concern
for rural development. It has fifteen year of experience in
implementing programmes of sustainable rural development and
including local communities in development planning. The Programmes
of Integrated Rural Development and Village Renewal (CRPOV),
launched at the beginning of 1990, were an important milestone,
as they encouraged the participation of local communities. On
this basis, local development programmes were drafted in the
introductory stage. In the next stage, priority projects were
realised. Eventually, the CRPOV was substituted or upgraded
with rural development projects which employ a similar methodology,
but focus on larger territories. This facilitated a more precise
definition of target populations and a greater critical mass
potential, and established opportunities to form effective local
development partnerships.
The National Strategic Plan for
Rural Development 2007-2013 (NSN)
The outcome of current debates on the implementation of
the National Strategic Plan for Rural Development 2007-2013,
which has already been informally approved in Brussels, shows
that Slovenia will continue to strive for increasing competitiveness
in the agricultural and food sectors, ensuring the sustainable
management of natural resources and space, and strengthening
the economic potential of rural areas.
According to the Ministry of Agriculture, Forestry and Food,
the NSP was drafted in partnership with competent bodies at
the national, regional and local levels, economic and social
partners and other interested parties representing civil society,
including NGOs. The NSN provides the framework for the preparation
of the National Programme of Rural Development 2007-2013, which
should be finalised as soon as possible after the summer break.
According to the latest calculations, Slovenia has managed to
secure more funds from Brussels in the negotiations on the next
Financial Perspective. The Community’s contribution through
the European Agricultural Fund for Rural Development (EAFRD)
to implement measures of rural development through a sevenyear
period is estimated at approximately €1 billion, while the state
budget will provide funding amounting to 20 to 25 per cent,
in line with the specified level of co-funding stipulated in
the regulation on rural development. The amount of potential
convergence funds which will be allocated to the realisation
of the Programme of Rural Development goals have not yet been
announced. To achieve successful implementation, weaknesses
and mistakes discovered in applying the rural development policy
in the pre- and post-accession period will have to be dealt
with. In the new programme period, Slovenia will use the valuable
experience gained in involving the local community to her benefit,
and amend them in line with the Leader axis. The NSN stipulates
priority tasks in Slovenia’s rural development policy, which
is in accordance with the Community’s priorities in rural development
policy. The NSN covers the period from 2007 to 2013 and will,
if not specified otherwise in individual priority tasks, be
carried out throughout Slovenia. Policy-makers have stressed
that national priorities and activities have been determined
to enable synergies with other budgetary instruments in agricultural
policy, and also in the area of economic and social cohesion,
space and environment. The NSN considers the EU’s strategic
guidelines and policies regarding sustainable use of resources
(conclusions of the Council in Göteborg), and strengthening
economic growth and employment (the Lisbon Strategy). The agricultural
ministry believes that through priority tasks, the National
Strategic Plan will strengthen the diverse role of agriculture
and forestry in Slovenia. Their conclusions are based on the
fact that the NSN is built on the principles of the sustainable
management of renewable natural resources and places special
emphasis on maintaining the cultural landscape, preserving the
environment and keeping the settlement of rural areas and their
identity. The NSN also considers the diverse role of forests,
which are a special feature of Slovenia’s landscape and significantly
contribute to the environment and to biotic diversity. The priority
tasks are also expected to contribute to the economic and social
strengthening of rural areas and promote new approaches to increasing
employment, not relying solely on primary agricultural activities.
The Extent and Establishment of
a National Network for Rural Development
To implement rural development activities Slovenia will set
up a uniform (common) network for rural development in 2007-2013
which will provide an appropriate organisational scheme and
professionalism. With this aim in view an operational programme
will be established, and the necessary funds earmarked. The
network is intended to encourage collaboration, the exchange
of know-how and experience, and concerted action by different
professional organisations and interest groups from rural areas
to ensure the best professional support for rural development,
the exchange of good practices and the rapid flow of information
at all levels among all parties contributing to this goal. Some
existing institutions operating in this field, such as societies,
associations, different interest groups and organisations, already
constitute a preliminary network, as stipulated in the EU’s
regulation on rural development. In its development, the network
will have to follow priority goals, including encouraging and
ensuring collaboration, networking and a constant flow of information
and experience among experts, societies, institutions, local
communities and anyone else working on rural development.
Article abstracted from Sinfo.
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