1_eu leader approach in 2007 – 2013 jela tvrdonova, 2015
TRANSCRIPT
1_EU LEADER approach in 2007 – 2013
Jela Tvrdonova, 2015
Content
What is Leader approach? How did Leader evolved? How is Leader implemented? Local action groups and local development
strategies Cooperation in Leader Guidelines for Leader What is the future of territorial development? What is CLLD? Is there any future for Leader?
What is the Leader approach?
governance tool
endogenous development tool
innovation tool
territorial tool
integration tool
What is the Leader approach?
Leader/CLLDESI Funds/
Other public and private
funding
LDS/CLLDS
Method
RDP/OP
7 principlesAdded value
Territorial policy tool
Leader as a rural development method
A mode of governance characterized by the combined application of the 7 LEADER features for the elaboration and implementation of local development strategies
Bottom-up approach with decision power for LAGs
Local public – private partnership
Multi-sectorial design and implementation of strategies
Area –based local development strategies
Implementation of innovative approaches
Networking of local partnerships
Implementation of cooperation projects
Evolution of the Leader approach
Community Initiatives:
Leader I (1991-93) – experiment: result of criticism to the individual project approach in the Structural Policy
Leader II (1994-99) - laboratory: limited to disadvantaged rural areas, innovation, pilot actions, introduction of transnational cooperation
Leader+ (2000-06) - maturity phase: eligibility of the whole rural territory; reinforced role of networks and transnational cooperation
(Leader+ type measure for new Member States 2004-2006)„Mainstreamed Leader“ 2007-13:
Leader axis – not any longer specific programmes;
methodological approach to mainstream RD programming
CLLD in 2014- 2020
Possibility to prepare and implement strategies based on funding of several EU ESI Funds
Experience with Leader
Decentralised management, financing and local partnerships need more resources at early stages (capacity building, negotiation time, organisation development)
Accelerated programme delivery in later phases due to enhanced local capital, local ownership.
Concept of Leader Axis
Various policy options within rural policy instruments
Wider thematic and geographical scope of application Application to the 3 axis Geographical application
(application on a wider scale (all rural regions in certain MS )
Leader Axis measures (Art 63)
a) Implementing local development strategies to achieve the objectives of one or more of the 3 axis
b) Cooperation
c) Running the local action group, acquisition of skills and animating the territory
RDP measures implemented via Leader axis – technical options
Selection of measures – menu of RD regulation measures will have to be chosen out
of the European ‘menu’ of measures. Sub option A : measure implemented
exclusively with the Leader method
Sub option B :measure implemented in addition to the top down method
Implementation of own measures (e.g. territorial measures)
Various RDP allocations for leader
Leader axis budget:
At least 5 % of total EARDF contribution in the old MS
At least 2,5% in the new MS.
Romania and Bulgaria (2,5% applying to 2010-2013)
Leader 2007 – 2013 – reality
Programmed expenditure for Leader in the EU:
Public: € 8.9 billion– of which EAFRD: € 5.5 billion– total public: € 13.9 billion
Private: € 5.0 billion
Maximum co-financing rate: 55% in developed regions 80% in convergence regions
Leader 2007 – 2013 – reality
Breakdown of the EAFRD contribution according to the measures for Leader:
Implementation of local development strategies (Measure 41): 77, 5%
Competitiveness (sub-measure 411) : 9,5%
Environment and Land Management (sub-measure 412): 3,0 %
Quality of Life and Economic Diversification (sub-measure 413) : 65,0%
Inter territorial and transnational cooperation (Measure 421) : 5,0%
LAG running costs, skills acquisition and animation (Measure 431) 16,5%
Leader axis implementation steps
Acquisition of skills for new LAGs or existing LAGs
Selection of local development strategies
Contracting LAGs
Implementation of local development strategy
Monitoring and evaluation
Local action groups (LAGs)
Legally constituted
structure in
administrative and
financial matters
Decision making body
(any matters including
project selection): public
interest represented with
maximum 49% of voters
Local action groups should:
Carry out capacity building actions
for local actors (acquisition of skills)
Draw up project selection criteria,
assess and select operations for
financing under the local
development strategy
Monitor and evaluate the
implementation of the local
development strategy and the
operations supported,
Selection of local development strategies
Opened selection procedure ensuring competition between LAGs
RDP contains procedure and timetable for selecting the local action groups, including:
selection criteria (eligibility and quality) and their justification
planned maximum number of LAGs
planned percentage of rural territories covered by local development strategies
Selection of local action groups - minimum criteria
Partnership related criteriaClear responsibility for strategy implementationRepresentative of partners from the various locally based socio-economic sectorsAt decision-making level representation of the economic and social actors and civil society (at least 50 % of the local partnership)Ability to define and implement a development strategy;Ability to administer public funds
Strategy related criteria
Integrated local development strategy
Territory related criteria
Coherent area and critical mass to support a viable development strategy
Local development strategies
Requirements:
Definition of the area and population covered by the strategy;
Elaboration and description of local development strategy
Description of the process of community involvement in the development of the strategy;
Description of the management and monitoring arrangements of the strategy,
Demonstration of the capacity bulding/acquisition of skills activities of the local action group to implement the strategy and
Description of specific arrangements for evaluation;
Reporting and communication
LDS design and intervention logic
LDS as a management tool to address the LAG territory’s needs and improve the situation and covers:
Analysis of the development needs and potential of the area, including SWOT and needs assessment
Description of the strategy and its objectives, a description of the integrated and innovative character of the strategy, including clear and measurable targets for outputs, results and impacts.
Action plan demonstrating how objectives are translated into measures and actions;
Financial plan of the strategy, including the planned allocation of various funds used to implement it .
The heart of the LDS is its intervention logic, which is also the ground for its evaluation
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The base for the intervention logic design
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Context situation analysed with SWOT
Expected impacts
Expected results
Expected outputs
Overall LDSObjective(s)
LDS specific objectives
LDS operational objectives
LDS measures Inputs
Needs of the LAG territory to be addressed with the LDS
LDS contribution to programme objectives and changes in LAG territory
Links to objectives of EFF, EFRD and ESF, financed
programmes if relevant
Links to RDPObjectives, RD priorities
and FA(mainly 6B) and othersif relevant
Elements of LDS intervention logic
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Decision making process in the implementation of local strategy
Bottom up principle to respect : Individual projects/operations selected by local action groups (assessment of project relevance towards the local strategy)
Procedure for the selection of operations by the local action groups, and description of the financial circuits applicable for LAGs is described in the programme.
Eligibility checks (legal control) made by the Managing Authority in the majority of MS
Bottom up and financial circuits
Payments by LAG
LAG pays to final beneficiary (e.g. commune or local enterprise by LAG
LAG asks the reimbursement of EU contribution to the Paying Agency
LAG´s financial management respects conditions approved by Paying Agency
Paying Agency ensures that all eligibility rules and conditions have been respected,
Payments by Paying agency
PA pays to final beneficiary (e.g. commune or local enterprise by LAG
Paying Agency ensures that all eligibility rules and conditions have been respected,
Best bottom up model of administrative, management and financial circuits
Possible use of global grant at LAG level with financial autonomy
Selection and payment of operations by LAG according to the bottom up principle
Good practices : concentration of public funds, advances to LAGs
Cooperation
Inter-territorial cooperation
Transnational cooperation Within EU With rural territories in third countries
Eligibility rules and conditionsfor cooperation
Eligible costs: project development and implementation of a joint action including coordination costs for all areas
Role of Lead LAG
At least one partner selected under the Leader Axis
Cooperation projects
Can be integrated in local development strategy Advantages: coherent with the bottom up approach; quicker
procedure since local action groups select the projects; cooperation is coherent with the strategy
If not integrated in local strategy, authorization by the managing authorities Advantages: better control on the respect of requirements (e.g.
presence of a common action)
Coordination mechanism at EU level for international coordination projects
Cooperation
Procedure (LAG or MA selection) Timetable and
Objective criteria to select inter-territorial and trans-national cooperation projects.
Guidelines on Leader Axis
Assist Member States in the preparation and administrative implementation of Leader axis using past and current experience with the Leader + Community Initiative and Leader+ type measure
LAG internal structure and management not covered
Non binding instrument Complementary to the
Leader Axis fiche Cooperation guide not
presented
Introduction Defining a strategy for
rural areas using the Leader approach
Designing the content of Leader Axis in the programme including planning resources
The selection of the local action groups
How will the administrative, management and financial circuits be organised?
Territorial development in future policy
Europe 2020 strategy => unlocking the EU's growth potential
Part of potential for smart, sustainable and inclusive growth lies in the endogenous growth potential at sub regional level
Sub-regional development policies acting at grass roots level can in particular contribute to the social inclusion targets of Europe 2020
The EU tools in support of the Europe 2020 strategy include levers for growth and jobs such as the EU budget
EU financial support is delivered through the EU funds in shared management (EAFRD, ERDF/CF, ESF, EFF)
a Common Strategic Framework (CSF) is proposed to strengthen the coordination and integration of EU policies for the delivery of the Europe 2020 strategy
CSF contains the strategic guidelines for sub regional/local development including community led local development CLLD
Common agriculture policy – one of horizontal objectives
Rules between the Funds for local development will be harmonised
Community-led local development (CLLD)
CLLD Is based on the experience of LEADER under rural development Complements and enhances the delivery of public policies for all CSF Funds and local level Aims at increasing effectiveness and efficiency of territorial development strategies by delegating decision-making and implementation to a local partnership of public, private and civil society actors.should be implemented in the context of a strategic approach, to ensure that the ‘bottom-up’ definition of local needs takes account of priorities set at a higher level.
Member States will have to define the national approach to community-led local development across the CSF Funds…
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CSF: Requirements for CLLD in the Partnership agreements (PA)
... and should therefore include references to community-led local development in the PA:
detail the main challenges that MS intend to tackle, setting out the main objectives and priorities and indicate the types of territories where this approach should be implemented;
which specific role will be attributed to the local action groups in its delivery;
indicate how the CSF Funds will be used together ;
explain the role envisaged for the different Funds in different types of territories (rural, urban etc.).
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CSF key actions as regards CLLD in the different Funds
ESF: CSF Thematic Objective No. 9 - Promoting social inclusion and combating poverty:
support the preparation, the running and the animation of local strategies;
support the activities designed and implemented under the local strategy in areas falling within the scope of ESF in the fields of employment, education, social inclusion and institutional capacity building
ERDF: CSF Thematic Objective No. 9 - Promoting social inclusion and combating poverty:
fostering community-led local development strategies through support for the capacity-building of the local action groups and the preparation,
running and animation of local strategies, and through support for the activities designed and implemented under the local strategy in areas falling within the scope of the ERDF in the fields of social inclusion and physical and economic regeneration
EMFF specific objectives for CLLD the EMFF Reg., link to Thematic Objectives of diversification, promoting employment in fisheries communities and therefore indirectly also to No. 9;
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Implementation of CLLD in MS
Improving strategic choices at Member State level regarding local development inside of Partnership agreement:
Member States would have to choose/define the part of their territory which would be eligible for LDS (“one area = one strategy”)
Link local development potential with their overall growth strategy
Identify a "lead" Fund (EAFRD, ERDF, ESF or EFF) for each LAG/LDS
Broaden the funding base
Reinforce rural-urban links
Various possibilities to implement CLLD
Rural
Rural and urban
Rural - urban
CSF key actions for CLLD wthin EAFRD
CSF Thematic Objective No. 9: Promoting social inclusion and combating poverty, which reflects RD Priority 6: fostering local development in rural areas by promoting
community-led local development (LEADER local development strategies) and through investments in all types of small-scale infrastructure in rural areas and investments in setting up, improving or expanding local basic services for the rural population, particularly in remote rural areas, together with other actions to improve the quality of life in and attractiveness of rural settlements (‘village renewal’) .
support may also be used to promote social inclusion, particularly through community-led local development (‘LEADER’)
Independently from this CSF focus, all other RD priorities can be addressed with LEADER !
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Europe 2020Europe 2020
CAP generalCAP generalObjectivesObjectives
Possible CAP ImpactPossible CAP ImpactIndicatorsIndicators
Pillar II Pillar II PrioritiesPriorities
Smart, sustainable and inclusive growth
CAP
2. Enhancing farm viability and competitiveness of all types of agriculture in all regions and promoting
innovative farm technologies and sustainable
management of forests
3. Promoting food chain organisation, including
processing and marketing of agricultural products, animal welfare and risk management in
agriculture
4. Restoring, preserving and enhancing
ecosystems related to agriculture and forestry
5. Promoting resource efficiency
and supporting the shift towards a
low carbon and climate resilient
economy in agriculture, food and forestry sectors
6. Promoting social inclusion,
poverty reduction and economic development in rural areas
Intervention logic for Pillar II
1. Fostering knowledge transfer and innovation in agriculture, forestry and rural areas
Viable food production
Balanced territorial development
Sustainable management of natural resources and
climate action
6. Promoting social inclusion, poverty reduction and economic development in rural areas
RD Focus areas 6C Enhancing accessibility to,
use and quality of information and communication technologies (ICT) in rural areas
6A Facilitating diversification, creation and development of small enterprises and job creation
Relevant measures/approaches
Art. 3
6 C
o-o
pera
tion
Art. 4
2 L
ead
er lo
cal a
ction
g
roup
Art. 1
5 K
no
wled
ge
tran
sfer
an
d info
rma
tion a
ctions
Art. 1
6 A
dviso
ry service
s, fa
rm m
an
ag
eme
nt an
d fa
rm
relief se
rvices
Art. 20 F
arm and b
usiness developm
ent
Art. 2
1 B
asic service
s and
villa
ge re
new
al in ru
ral a
rea
s
6B Fostering local development in rural areas
Art. 1
8 In
vestmen
ts in
ph
ysical a
ssets
Art. 2
2 In
vestmen
ts in fo
rest
area
de
velop
me
nt a
nd
imp
rove
me
nt o
f the
viab
ility of
forests
Art. 4
4 L
ea
de
r co-o
pe
ratio
n
activitie
s
Leader in Rural development policy – priority 6B
Management at the level of Member States/regions
Local development strategies are selected for EU funding under the responsibility of the relevant managing authorities
Strategies can be financed from one or several EU Funds in parallel “Multi-funding” as an option
For simplification, a „lead Fund“ can be designated in the case of multi-fund strategies covering for the management costs
choice of the lead Fund depends on the activities foreseen and the area in question
What are the options?
EAFRD
Mono-fund – administrative burden at LAG level
EFF EFRD ESF
LDS LDS LDS LDS
Strategic decisions for CLLD: single mono fund
Solution – only one fund, usually Leader:
Simple solution for administration, lost opportunity for local areas
And:
Exclusion of broader strategies
Threatening the develop territorially integrated strategies
Lowering the probability of solving real problems of rural areas.
Limiting the synergy among ESI Funds
Lessing the money
Strategic decision for CLLD: coordination among funds
Multi-fund, but each separately – coordination of procedures,
Common management of several funds: Capacity building Coordination of procedures e.g. parallel
selection of LAGs, one application form, comparable selection criteria, deadlines, single committee etc.
Common Monitoring Committee
What are the options?
EAFRD
Multi-fund – administrative burden at MA level establishment of „one stop shop“ or cross-fund cooperation
EFF EFRD ESF
LDS
Medzi stupeň – sprostredkovateľ
ský orgán
Strategic decision for CLLD – multi-fund from one place
Advantages
Boarder strategies Better definition of common problems which can be resolved
with support of all funds Refusing artificial demarcation lines Enabling of common utilisation of funds More money
Remember Individual needs and capacities of given area Solid preparation and activity for building capacity Building on existing structures –local development needs
time
Simplification of managing multi-fund strategies
Possibility to create common tool for LAGs operation and animation activities
Common CLLD facility Possibility to delegate tasks of MA„One stop shop“ Satisfied the need for coordination Common control and audit
Local action group
ERDF, CF
ESF EAFRD
EMFF
Local governments Local entrepreneurs Local NGOs, civil society
LOCAL DEVELOPMENT STRATEGY
Project 3EAFRD
Project 3EMFF
Running costs, animation, networking
Possibly though „lead Fund“
Project 1ERDF
Project 2ESF
Example of „multi-fund“ CLLD strategy
Future of Leader
The Leader approach based on its specific features will continue to be an important tool of rural development policy after 2013
Within the EU priorities for rural development unlocking local potential will continue to be an important element
The implementation mechanisms of Leader will be improved in order to be able to better meet the expected added-value of the Leader approach
Future of Leader
…on the basis of the lessons learned from the previous Leader Community Initiatives and the „mainstreamed“ Leader in 07-13:
More guidance to the Member States in the legal framework:
offering flexibility for the implementation without being too prescriptive
Goal: Make Leader fit to better serve innovation and local governance
Future of Leader
Strengthening the role of the local development strategies (LDS) as the central tool to meet objectives: quality of design and implementation (including better monitoring and evaluation)
Ensuring the presence of all Leader specificities especially: more freedom for LAGs to chose those projects, which best fit their strategies
Future of Leader
Concretely: Clearer distribution of tasks between
the authorities and the LAGs (depending on the implementation model followed)
Greater focus on animation and capacity building (also for the preparation of the strategies)
Strengthening the participation of the private sector in the partnerships
Future of Leader
Concretely: Streamlining transnational
cooperation Re-inforced networking tools for
LAGs on EU and national level Synergies with the local
development networking instruments of the other EU Funds
