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Rural Development in Spain

Miguel SetuainResident Twinning Advisor

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Rural Development Keys of succes in the Spanish

regions:

…from the beginning, the bet was made on a integral, endogenous and participative development with a territorial basis, not a sectorial basis.

….the Programs of Rural Development are defined and executed on homogenous rural spaces where the agents that are sharing the solidarity must confront common challenges and problems.

… the level of consolidation of the local fact, the social cohesion, the values constitute without any doubt key elements for the effectiveness of the designed policies.

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Rural DevelopmentKeys of succes in the Spanish regions:

The introduction of a method, and the proactive attitude that reflects the application of the strategic planning in the formulation of the policies from the beginning of the 90s to present days

The approval in the regional Parliament of the Law of Rural Development, like political element that gives the legal force and the legal endorsement of the policies and the programs of rural development beyond the social legitimacy .

A wide institutional framework for the rural development prepared to act with an integral vision of the territory

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SPAIN

Mixing …

Horizontal programmes

Regional Programmes

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Overwiew of programme architecture 2000 - 2006Type of programme

Financed by Programmes concerned

Rural Development Programmes

EAGGF-GuaranteeSection

2 national (supporting measures, improving structures)

7 regional (Navarre, Basque Country, Rioja, Aragon, Catalonia, Madrid and Balearis Islands)

Operational Programmes

EAGGF-GuidanceSection

2 national (supporting measures, technical assistance)10 regional (Galicia, Asturias, Castilla-Leon, Castilla la Mancha, Extremadura, Andalusia, Murcia, Valencia and Canary Islands)

Leader +Programmes

EAGGF-Guidance

1 national17 regional

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Horizontal programmes:What are the priorities?

Four main priorities have been set up for the horizontal programmes:

to rationalize the input by reducing the use of pesticides and irrigation water, by a more integrated management of the holdings, etc.

to improve the viability of the agricultural holdings, by encouraging sustainable and environmental-friendly farming, diversifying the production, etc.

to reorganize the productive sector, to improve the quality of life and the protection of the

natural environment

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In addition to the horizontal programs, each Autonomous Community has designed a Regional Development Plan, taking into account the specific needs and priorities of the region.

REGIONAL PROGRAMSRural development at regional level

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Each plan includes a selection of measures, in line with the Council Regulations (I)

development and improvement of infrastructure connected with the development of agriculture

encouragement for tourist and craft activities protection of the environment in connection with agriculture,

forestry and landscape conservation as well as with the improvement of animal welfare

restoring agricultural production potential damaged by natural disasters and introducing the appropriate prevention instruments

financial engineering diversification of agricultural activities and activities close to

agriculture to provide multiple activities or alternative incomes agricultural water resources management

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Each plan includes a selection of measures, in line with the Council Regulations (II)

Training Improving processing and marketing of agricultural

products Forestry measures (on non-agricultural land) Promoting the adaptation and development of rural areas

(art 33): Land improvement Re parceling Setting-up of farm relief and farm management services Marketing of quality agricultural products Basic services for the rural economy and population Renovation and development of villages and protection and

conservation of the rural Heritage

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The Regional PlansAims the triple dimension of the rural development:

Economic dimension: adaptation, maintenance and creation of employment

Socio cultural dimension: strengthening the social cohesion and valuation of the cultural patrimony

Environmental dimension: conservation and renovation of the available natural resources

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Important…

…to keep in mind that the horizontal and regional programmes go together.

Whereas the horizontal programmes constitutes the main body of support, and address the big structural difficulties within the agrarian sector, the regional programmes add to this the specific support designed for the unique, particular situation of each and every Autonomous Community.

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AXES:

Improvement of the competitiveness and development of the productive sector

Information Society Environment, Habitat and Hidric Resources Human Resources development,

Employment equality of opportunities Local and urban development Transport and Energy networks Agriculture and Rural Development

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ERDF:

•support to industrial companies and services, •development, promotion and services to tourism companies, •water supplies,•waste management, •protection and regeneration of the natural surroundings, •infrastructures and equipment for urban and rural municipalities, conservation and rehabilitation of social, sanitary, sport and artistic/cultural patrimony, equipment of leisure, creation of the information society, ports, highways, energy, etc.

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creation of employment, labor insertion of young people and

women, fight against the horizontal and vertical

segregation as well as the wage/salaried discrimination

to favor to the conciliation of the laboral and familial life

opportunities of employment for the groups with an exclusion risk

ESF:

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The Community Initiative Leader+ is a complement to the mainstreaming programming.

It aims at developing integrated cross-sector strategies for rural areas, which seek to exploit all the potential of the local economy. The local population is actively involved to elaborate and carry out the strategies and to participate in Local Action Groups (LAGs), with equal representation from the public and private sector. The initiative also encourages co-operation and networking between rural areas

In Spain was created by many regions complementary programs called PRODER to cover areas and measures not covered by LEADER or LEADER+. The idea was a big success allowing to expand the LEADER approach in new rural areas….

Leader+

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National Strategic Reference Framework

2007-2013

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Art.25 General Regulation The Member State shall present a national strategic

reference framework which ensures that assistance from the Funds is consistent with the Community Strategic Guidelines on cohesion, and which identifies the link between Community priorities on the one hand and the national reform programme, on the other hand.

Each national strategic reference framework shall constitute a reference instrument for preparing the programming of the Funds.

The national strategic reference framework will apply to the "Convergence" Objective and the "Regional Competitiveness and Employment" Objective. It may also, if a Member State so decides, apply to the "European Territorial Co-operation" Objective, without prejudice to the future choices of other Member States concerned

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Art.25 General Regulation The national strategic reference framework shall contain

the following elements:

An analysis of development disparities, weaknesses and potential, taking into account trends in the European and world economy;

The strategy chosen on the basis of this analysis, including the thematic and territorial priorities. Where appropriate these priorities shall include actions relating to sustainable urban development , the diversification of rural economies and areas dependent on fisheries;

The list of operational programmes for the ‘Convergence’ and ‘Regional Competitiveness and Employment’ objectives;

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Art.25 General Regulation

A description of how the expenditure for Convergence’ and ‘Regional Competitiveness and Employment’ Objectives shall contribute to the EU priorities of promoting competitiveness and creating jobs, including meeting the objectives of the Integrated Guidelines for Growth and Jobs 2005-2008 as laid down in Art 8 (2 bis)

The indicative annual allocation from each Fund by programme;

For regions of the ‘Convergence’ objective only: the action envisaged for reinforcing the Member State’s administrative efficiency; the amount of the total annual appropriation provided for under the EAFRD and the EFF; the information required for ex-ante verification of compliance with the additionality principle referred to in Art 13

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Art. 25 General Regulation

The national strategic reference framework may also contain, where relevant:

(a) the procedure for co-ordination between Community cohesion policy and the relevant national, sectoral and regional policies of the Member State concerned;

(b) the mechanisms for ensuring co-ordination between the operational programmes and the assistance from the Funds, the EAFRD, the EFF, and the interventions of the EIB and of other existing financial instruments

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NSFR and NRP Correspondences were identified among the axes

of the NRP and the NSFR New actions to be financed are developed under

the SF in relation with the specific priorities and measures of the NRP

Lisbon and Cohesion have common points but are not the same. Special emphasis will be put on the links to those 2 strategies, with the differences among the 2 strategies and trying to offer additional financing lines for some of the NRP measures

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Focus over Lisbon objectives

The strategic guidelines have an obvious orientation through Lisbon objectives. As long as the NSFR will have to follow the Strategic Guidelines this concentration will be ensured

For the programming process, work in on progress on establishing some Lisbon indicators. It is needed to transform the national objectives into regional objectives

The next base for 2007 Funds, the Lisbon indicators will be established at the regional level

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RURAL DEVELOPMENT IN SPAIN:

EU FUNDS COORDINATIONINTERMINISTRY COMMITTEE OF EU FUNDING

M. Agric/Rural Dev.

M. Agric. Fish.

M. LabourAnd Social Affairs

M.Ec

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COORDINATION BETWEEN PROGRAMSSectorial Commitees

M.Env-LIFE +

REGIONS

MIT & TFP PM Competiti

MIT&T7FP R+D

M. EC.

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Planning Spain NSRFEDRF (Convergence)

Axe 1 Development of Knowledge Society (I+D+I, Information Society and ICT)

Axe 2: Development and enterprise innovation Axe 3: Environment, Natural, Hydraulic Resources

and risk prevention Axe 4: Transport and energy Axe 5: Local and Urban sustainable development Axe 6: Social Infrastructures Axe 7: Technical Assistance and institutional capacity

support

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Planning NSRF:ERDF (Competitivenness)

Axe 1: Knowledge and Innovation and entrepreneurial development

Axe 2: Environment, and risk preventions Axe 3: Accessibility to the networks and

transport services and telecommunications Axe 4:Local and Urban sustainable

development Axe 5: Technical Assistance

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Planning the NSRF:

The names and the number of axes can change

Financial weight of each axis change in relation with the current period.

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Rural Development 2007-2013

SPAIN

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Reg. (ECE) 1698/2005, related to the support for

Rural Developmentthrough EFRD

Communitary Strategical Guidelines

National Strategic Plan National Framework

Regional Programmes:

AndaluciaAragonAsturias

Baleares CanariasCantabria

Castilla LeonCastilla la Mancha

CatalunaExtremadura

GaliciaMadridMurcia

NavarraLa Rioja

Comunidad ValencianaPais Vasco

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ProgrammingNational framework Elaborate after the ENP Approved by EC Decision Content: common elements for the regional programs: horizontal measures and

general criteria , very basic

Regional programs Elaborate after the national Framework Approved by EC Decision 17 Regional Programs, one for each Autonomous Community Content:

evaluation a priori Justification of the priorities Axes, measures by axe, objectives and indicators Financial framework of the FEADER contribution, national contribution

and contribution by axe Control, Monitoring and Evaluation mechanism Application of the LEADER approach Ways to give publicity to the Program

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National Strategic Plan1a. General content

General analyse of the environmental and socioeconomic situation.

General strategy of rural development, translation of the EC priorities included in the community directrices to the national level

Strategy by axes including objectives and common indicators to be used in the programming exercise.

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National Strategic Plan (NSP)1b. General content.

The rural development programs (in the case of Spain 17 regional programs) and the indicative allocation of funds, including the amounts to achieve convergence (in Spain for the Autonomous Communities of Andalucía, Castilla - La Mancha, Extremadura y Galicia)

External and internal consistency of the NSP, complementarities with other EU financial instruments

Funds and setting up of the National Rural Network

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Proposal of Horizontal Measures.

•Regulation 1698/05, the EC guidance document and the guide for the NSP allow the existence of regional and horizontal measures

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Regulation structures for the measures - 3 thematic axes

Axis 1: Improving the competitiveness of the agricultural and forestry sector

Axis 2: Improving the environment and the country side

Axis 3: the quality of life in rural areas and diversification of the rural economy

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Proposal of horizontal measuresaxis 1 Setting up of young farmers Modernizing the holdings; direct help and

loan lines Management of the hydraulic resources –

more rational use of water resources in order to fulfill the Water Directive Framework demands

Increase the added value of the agricultural and forestry products

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Proposal of horizontal measuresaxis 2 Agro environmental contract – will simplify the

rural development, facilitate the administrative management, and the improvement of the environment connected with the agriculture. (Some general criteria are established for all the territory. At a national level, awards in monetary incentives, for the lagging development regions and Supplementary help for regions of the Natura Network)

Ecological agri - food stuff, integrated and extensive agro systems

Dryness and prevention of forest fires

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Proposal for Horizontal MeasuresAgroenvironmental Covenant1. Agroenviromental measures

1. …. €

2. …. €

2. livestock welfare 1. …. €

2. …. €

3. Network Natura 20001. …. €

2. …. €

4. Zones with natural difficulties1. …. €

2. …. €

TOTAL: ……...

Horizontal criteria:

Autonomous Community criteria:

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Proposal of Horizontal MeasuresLEADER approach

Management, through Local Action Group of 10 % of the programme financing;

It is up to the Autonomous Community to increase this percentage;

Defined (within the National Framework) the composition of the Groups including also the agricultural associations

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The National FrameworkMust include also the basic characteristics of

the rest of the rural development programming not included inside the horizontal measures and also the percentage of co financing FEADER, General Administration, and The Autonomous Community for each one of the measures

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The National Framework

Monitoring Committee – structured as a plenary assembly and made of by specific working groups, according to geographic criteria, for the convergence regions and regions not included in the convergence objective and according to horizontal measures, and another one by the measure established within the national Framework

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CANTABRIA Surface: 5 231 km² (1 % of the country surface) Number of inhabitants: 530 000 (101inh/km²) 3 % arable land Land use: 27 % meadows and pastures 52 % wooded area Most important products: Milk and dairy products

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CANTABRIA UAA (used agricultural area): 159 000 ha No of agricultural holdings: 16 400 Average size of holdings: 13 ha Agric. area in less favored Area: 78 % Agric. area in Mountain area: 78 % Irrigation: is of minor importance: 2 600 ha

(of which 89 % with sprinkler system) Organic farming: 842 ha - 62 producers and

processors

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CANTABRIA

farm holders younger than 35 years: 9 % farm holders older than 55 years: 52 % How many women among farm holders? 36 % Final agrarian production: livestock farming represents 88 % Forest fires: yearly average 1991-99: 333 fires, covering 3

800 ha Natura 2000: 18 sites – 118 700 ha (23 % of total surface) National Parks: Part of Picos de Europa, 15 200 ha (total area

is 64.660 ha, located also in Castile-Leon and Asturias) Nitrates Directive: (no vulnerable areas)

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CANTABRIA

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FINANCING RURAL DEVELOPMENT IN CANTABRIA

EU FUNDS (FEOGA) 35%

CENTRAL ADMINISTRATION (MAPA) 48,75%

A.C. of CANTABRIA (Consejería de Ganadería, Agricultura y Pesca) 8,12%

Local entities 8,12%

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Local Action Groups

Non profit entity made of a group of public entities (mainly city halls) and social organizations rooted at the local level

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Requirements for the selection of Local Action Groups to implement a rural program for economic diversification

To be constituted as a group with juridical personality, whose final aim is the application of a development strategy for a specific territory

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Composition: public or/and private institutions acting regularly in the territory and ensuring a high level of participation of the people of that area, allowing them to take decisions together with the administration (at least 50% of the members of the decisional bodies in the Local Action Group must be representatives of the socioeconomic field or associations)

Local Action Group

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Local Action Group

The territory where the Local Action Group act must be wider that the municipality area, must have a geographic continuity, including at least 10.000 inhabitants and must be uniform in their physical economic and sociological characteristics

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The characteristics of the projects to be financed:

Basic requirements:

To contribute at the local development, through the guidelines of the strategy of the sub regional development plan

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SELECTION PROCESS

Each Sub regional Plan includes a selection procedure – an evaluation grid - which can be consulted by all the applicants

Each program has particular characteristics:

LEADER PLUS – focus on the innovation actions PRODERCAN – projects addressed to the socio rural

aspects and economic aspects

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CO FINANCINGThe amount to be co financed is established

by LAG, in concordance with the approved evaluation grid – the maximum could be 100% for non profit generating investments

For profit generating investments the amount depends on the sector and the type of investments (e.g. max. 50% for production, transformation of the agrarian products, max. 20% rural tourism, etc)

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Potential BENEFICIARIES

All the local promoters that are contributing to the local development: individuals, companies, associations, city halls, city halls networks, other public or private entities, etc.

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EAFRDEuropean Agricultural

Fund for Rural Development

Some data and conclusions

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Budget

3% / 2 660 Mil Euros for LEADER

0.3 % / 270 Mil Euros Technical assistance

Mil EUROS 2004 Mil EUROS2007 – 2013

Total funds:

GuaranteeGuidanceLEADER

88.75

56.031.01.5

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EU Co Financing:

Axis 1 şi 3 : maximum 50% (75% regions Convergence Objective)

Axis 2 şi 4 : maximum 55% (80% regions Convergence Objective)

5 % additional for ultraperiferical regions

Min. 20% per axis

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Conclusions:

An unique and a simpler, coherent framework for the rural development

Focused on the recognized priorities of the UE

A larger flexibility of programming for the Member State

More responsibility at the regional, national and communitarian level in relation with the obtained results

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General Aspects:POSITIVES:

to gather the learning and the experience of the LEADER model;

The creation of an unique instrument of financing and programming, the Agricultural European Fund of Rural Development with a larger budget.

NEGATIVES: lack of territorial focus; it continues to excessively link agriculture with

the rural development.

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POSITIVE

The establishment of three high-priority axes, financed with a minimum percentage of the global budget (Art.16).

The allocation of a minimum of 7% of the budget for measures executed through LEADER (Art. 66) and the award of 3% for a good management (Art. 92).

The proposal of a level of comunity co financing for the conservation of the environment through LEADER (Art. 71).

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POSITIVE The definition, although rather concise, of the

specific characteristics of LEADER approach (Art. 60).

The recommendation of Art. 58 for the measures anticipated inside the axis on Improvement of the quality of life and diversification (Art 49) are preferably executed through the strategies of local development (by means of LEADER approach or through territorial organizations in a narrow collaboration with national, regional and local organizations)

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POSITIVE The fact that the LEADER approach can be used

not only on the 3rd axis (Art 62.a)

the recognition in Art. 61 of the fact that the Groups for Local Action are the LEADER Groups

the recognition, in that same art. 61, that those Groups are the ones which will make the selection of the local projects/ cooperation projects of (ínter territorial and transnational)

The financing of an European Network of Rural Development (Observatory) and National Networks (Art 68)

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POSITIVE The decision to elaborate a community strategy

of rural development with a greater emphasis on the priorities of the UE, articulated with the national and regional priorities through the national strategic plans of rural development (Articles 9-13)

the recommendation on which the main actors of the rural territories (“the rural stakeholders“) must participate and have a more important role in the design, the execution and the evaluation of the programs from its territories at all the levels (Art. 6).

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NEGATIVE Inside the Regulation there is no particularly

specification related to the capacity that must have the UE in order to force to the fulfillment of the priorities of the Rural Development policy, reason why the Members States could not take fulfill the European strategy of Rural Development

the Members States are not stimulated to adopt the principles of LEADER inside other axes, it is only recommended.

It is not guaranteed that the new MS would obtain a complete training on the practical experience of LEADER approach, neither of a strategy with a territorial view, nor of the application of "mainstreaming" of LEADER.

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NEGATIVE An organized civil society is key for the success of the

policies of rural development, reason why the funds for the efficiency of those organizations and the acquisition of operational competences would be more and more needed for the new MS.

The measures anticipated on the axis 3 - Improvement of the quality of life and Diversification (Art 49) must be executed preferably through local strategies according to LEADER territorial approach

A system of qualification, certification and recognition of the Groups Local Action is needed to be created – for the preparation of the execution of thee measures in all the axes according to the principles of Article 61

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NEGATIVE In all the axes executed through LEADER approach, the

measures would have also to benefit from a greater level of co financing by the UE and of the reserve fund

The list of specific characteristics of the LEADER approach does not include the decentralized financing

The strategic community plans, as well as the national, regional and the local ones must become tools that independently articulate the set of the development actions of the territory, independent on its financing

The diversification measures must also contemplate not only to the micro companies but to the a small companies and cooperatives, essential for this strategy

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IT THIS A TRUE EUROPEAN RURAL POLICY?

A REGULATION OF AGRARIAN DEVELOPMENT MORE THAN OF RURAL DEVELOPMENT

The CAP CONTINUES BEING BASED ON SUBSIDIES, NOT ON THE SUPPORT TO INVESTMENTS.

IT LACKS AN INTEGRAL VISION OF THE TERRITORY

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ELEMENTS OF A TRUE RURAL DEVELOPMENT POLICY

RURAL SOCIAL DINAMIZATION: Human capital and Governance

ECONOMIC DIVERSIFICATION: Agrarian policy, Forests policy, Environmental policy, Tourism policy, Employment Policy, Welfare Policy, Cultural and Educative Policy.

TERRITORIAL BALANCE: Rural infrastructures

A INTERDEPARTMENTAL AGENCY

SUPPORT To the RURAL ASSOCIATIVE MOVEMENT

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ATTITUDE OF THE RURAL ACTORS:

OPTIMISM IN FRONT OF DIFFICULTIES

WILL OF INTEGRATION BETWEEN ALL THE RURAL ACTORS

TO AVOID “RURAL VERSUS URBAN”

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miguel.setuain@adrvest.ro

Resident Twinning AdvisorADR Vest / SODERCAN

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