Rapporteur :
Dino VIERIN (Italy)

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EXPLANATORY MEMORANDUM

Introduction

There is currently a substantial increase in interregional co-operation in Europe and in regions’ external activities. There are several reasons for this. Firstly, such activities make a particularly effective contribution to European integration and help to bring Europe’s peoples closer to one another - regional “diplomacy” inevitably operates closer to the citizens in their own surroundings than the national equivalent. Secondly, transnational interregional co-operation is also an important factor in economic development, enabling regions to make economies of scale through networking and to participate fully in the integrated European market.

This report is the result of a survey conducted by the Secretariat of the Chamber of the Regions of the Congress of Local and Regional Authorities of Europe¹, between December 2000 and March 2001. The European regions sent in a large number of replies to the Secretariat, a condensed list of which can be found in the appendix to this report. Many of these replies describe regions’ external activities but very few of them evaluate the results, the spin-off or the obstacles encountered in the field of external co-operation.

Differences in the status and powers vested in the regions obviously have an impact on the opportunities they have to participate in transnational co-operation activities. Member states have a significant influence on whether regions participate in transnational co-operation, either by ratifying European treaties (eg the Outline Convention on Transfrontier Co-operation), through statutory and constitutional provisions relating to the regions’ external activities, or the allocation of grants for interregional co-operation activities.

The regions are involved in several types of international co-operation, which are not mutually exclusive and which need to be examined in greater detail. Co-operation can be bilateral or multilateral, between neighbouring countries or, on the contrary, trans-European. Historically speaking, regions’ external activities have usually been cross-border activities. Only later were these activities extended, leading to trans-European interregional co-operation. Some forms of external co-operation now reach beyond Europe to countries on other continents.

1. Transfrontier interregional co-operation

Much work has already been many done by the Council of Europe on transfrontier co-operation at regional and local level. This report therefore deals with the subject in only a summary manner, highlighting the most recent forms of co-operation and, in particular, the new importance it carries for the central and east European countries.

1.1. Challenges and objectives of interregional transfrontier co-operation

There has been a substantial increase in interregional transfrontier co-operation in Western Europe over the past thirty years or so, not only for the purpose of bringing European peoples closer and healing the scars of history but also to correct a number of malfunctions. These fall into two categories:

- the exogenous problems of border regions, for example problems over different currencies values and their variations, differences in education systems and the recognition of diplomas, the diversity of economic, financial, social and administrative legislation, differing technical standards in the various countries, psychological problems and differences between political systems on either side of the borders in question. In these fields, interregional transfrontier co-operation endeavours to influence the national authorities, on whom the solution to these problems ultimately depends.

- the endogenous problems of border regions. This second category of problems arises from the particular geographical context of border regions. There is a very wide range of such problems and challenges, relating to regional planning, regional economies, cultural differences, transport and communication systems, social and employment issues, environmental management, the value derived from the natural and cultural heritage, the promotion of tourism, etc. Border regions can use their own powers to settle many of their problems through co-operation, provided that member states have removed the institutional obstacles. This is precisely the objective of the Outline Convention on Transfrontier Co-operation and its two protocols. Moreover, in the fields under consideration, transfrontier co-operation is firmly supported by Community bodies (eg through the Interreg, Phare CBC and Tacis programmes).

Political and cultural interests weigh heavily along some European borders. There may be tensions or conflicts between different ethnic groups, and borders sometimes cut through cultural communities, thereby creating a cultural minority within the national community on one side of the border, etc. Such situations are still common in central and eastern Europe, especially in the Balkans. Transfrontier co-operation between these regions has a very specific and very important role to play in preserving peace, defusing cultural tensions and gradually integrating the various communities.

1.2. Constraints and comparative advantages of border areas

Border areas have traditionally been considered to have been penalised by history. The many conflicts that have occurred in Europe over the past two centuries have had especially damaging consequences for border regions (physical destruction, inadequate economic and industrial investment, poor development of infrastructure, depopulation, etc). Other obstacles, linked to the presence of a border (customs controls and police checks, the limited permeability of borders in the economic, cultural and social fields and under-developed service industries in many border towns) have proved to be comparative disadvantages. During the decades in which the central and east European countries were governed by collectivist regimes, many borders were closed. The aim of regional policies at national and Community level is therefore to restore normal economic and social interaction in border areas by fostering economic development and promoting transfrontier co-operation.

It is however important to recognise that, in the context of an increasingly integrated Europe, border areas can also have comparative advantages. This is particularly obvious in the Community context where “firm” borders (with customs controls and police checks, administrative and fiscal barriers, etc) have been abolished. In such a context the only frontiers that cannot be rapidly abolished are cultural frontiers (languages, mentalities, attitudes, work styles, communication networks, zones of influence, consumer habits, etc). In a single market context, regions which have bicultural or multicultural skills have a clear advantage. This applies to many border areas where the populations on either side of the border are familiar with the language, behaviour and work style of their neighbours on the other side. These comparative advantages can be put to good use in transfrontier co-operation to develop cross-border tertiary activities, making it possible, for example for businesses to have easier access to the neighbouring country’s markets and to strategic information (economic intelligence). Industrial estates are already developing along some borders where businesses are trying to benefit from this type of comparative advantage.

1.3 Forms of interregional transfrontier co-operation

a. Bilateral co-operation

The simplest form of, and often the first stage in, co-operation is bilateral co-operation between two regions situated on either side of a border. It is usually centred on areas which constitute the common denominator of the powers of the regions concerned, because these are the areas in which they are able to take and implement decisions. Experience shows, however, that this common denominator is often more limited than was thought and that, in order to be effective, transfrontier co-operation must often refer to the authority (eg legal or financial) of other bodies, such as national or sub-regional bodies. Although the area of co-operation remains bi-regional, the authorities involved in the co-operation are located on two vertical structures between which bridges have been established.

b. The Euro regions

These are generally much wider areas of co-operation, comprising several basic regional units from two or three different countries and often corresponding to historical cultural entities, or at least to areas united by common interests. There are to date more than one hundred Euroregions spread across Europe. For example, on the borders between Switzerland and its neighbours there are five Euroregions: the Upper Rhine, Lake Constance, the Jura Arc, Lake Geneva and Regio Insubrica Euroregions. Over the last few years, many Euroregions have been established along the borders of central and east European countries: Sprewa-Nysa-Bobr, Pro Europa Viadrina, Pomerania, Elbe/Labe, Erzgebirge, Egrensis, Tatry, Carpathians, Silesia, Mesta-Nestos, “Great Lakes Region” (Lithuania/Belarus), “Upper Prut” (Moldova/Romania), etc. One example clearly illustrates the enthusiasm generated by the introduction of the concept of Euroregions: there are 10 Euroregions on Slovakia’s borders.

c. Regions’ participation in interstate transfrontier co-operation structures

Along some borders there are interstate transfrontier co-operation structures in which regional authorities participate - in a more or less systematic fashion. The interstate regional planning committees that have been set up along some borders have brought a definite improvement in the harmonisation of planning. Where these committees exist, it is important to strengthen within their ranks the presence and role of the regions which, in many member states, have acquired significant regional planning powers as a result of the decentralisation process. Where no such committees exist, careful consideration should be given to the need to set them up, or to whether it is preferable to co-ordinate planning authorities direct, outside bureaucratic structures.

Along some borders there are also interstate transfrontier co-operation bodies covering much wider areas. One very clear example is the Franco-German-Luxembourg Intergovernmental Commission, which was set up in 1971 in the Saar-Lor-Lux Region. Regional authorities’ participation in such bodies is ambiguous. For example, the Lorraine Regional Council is not a member of the Intergovernmental Commission but is a member, under the supervision of the state representative (the Prefect), of the Saar-Lor-Lux-Trier/Western Palatinate Regional Commission. In addition to these two interstate bodies, there is a co-operation body comprising the executive organs of the regional authorities concerned (the “Greater Region Summit”) and a co-operation body representing the relevant regional assemblies (the “Interregional Parliamentary Council”). The complexity demonstrated by this example stems mainly from the fact that the regions on the different sides of the border in question do not have the same status and the same degree of political autonomy. The fact that the whole of one member state (Luxembourg), which is the size of a region, is part of the co-operation area makes the situation even more complex as far as co-operation structures are concerned.

Generally speaking, increased decentralisation and regionalisation in Europe mean that regional authorities ought to play a more significant role in such structures, most of which were set up at a time when there were still not very many regions. This problem now exists in central and eastern Europe, where regionalisation is progressing rapidly (for example along the German-Polish border).

2. Interregional co-operation within major geographical areas

Interregional co-operation has also increased and developed substantially over the past few decades, and covers huge areas that share common features and where closer economic, social and cultural ties have been forged. This type of co-operation usually - but not only -concerns coastal and maritime areas or mountain regions: the Atlantic Arc Commission, the Inter-Mediterranean Commission, the Working Community of the Pyrenees, COTRAO (Western Alps), ARGEALP (Central Alps), ALPEN-ADRIA (Eastern Alps), etc. Reference should also be made to the Working Community of the Danube Countries (ARGE DONAU), which links central and eastern Europe to western Europe. These co-operation bodies have a wide range of activities, but most of their work concerns the planning and concerted development of the co-operation area. These working communities often comprise smaller units which may be Euroregions or other bilateral or trilateral decentralised co-operation structures.

The Community’s transnational and interregional co-operation programmes (Interreg IIC, Interreg IIIB) provide crucial support for interregional co-operation within major geographical areas.

3. Trans-European interregional co-operation networks

3.1. Origin of trans-European interregional co-operation networks

In more recent years forms of interregional co-operation have been set up that are not based on geographical proximity but, on the contrary, on complementary features and a willingness to forge ties with regions elsewhere. The emergence of these types of co-operation can be considered as a new stage in the historical process of European integration.

Originally, the main players in the process of European integration in the political and economic sectors were national governments and major business enterprises respectively. As from the mid-eighties, when Europe recovered from the recession caused by the energy crisis, the integration process was given fresh impetus with the appearance of new protagonists: at institutional level these were the regions, and in the industrial sector small and medium-sized businesses wishing to speed up their internationalisation. It should not be forgotten that the progress made within the Community in terms of economic integration was achieved through increased liberalisation (the Single Act of 1986), which encouraged businesses to look for economies of scale in order to remain competitive within the Single Market, and innumerable mergers and takeovers resulted. In this context, many small and medium-sized businesses, keen to remain independent, sought to achieve economies of scale by setting up transnational co-operation networks, involving both transfers of technology and access to new markets.

This was, therefore, the beginning of the gradual setting up of many interregional co-operation schemes throughout Europe, with regional authorities opening up doors to local enterprises and all sorts of economic operators. Of course, it was the strongest regions which set the process in motion (for example, the Four Motors for Europe). The Community bodies very quickly realised the importance of interregional co-operation for economic development and economic and social cohesion, and set up interregional co-operation support programmes to make it easier for poorer regions to become involved in the process. Interregional co-operation has, therefore, become a tool for reducing regional disparities. Financial support has been given to several hundred co-operation networks, under programmes involving either Community states (eg the PACTE programme) or central and eastern European regions (eg Ecos-Opening). This policy was actively pursued during the nineties and is now continuing as part of the INTERREG programmes (Strand C).

3.2. Fields of activity and working methods of the trans-European interregional co-operation networks

Trans-European interregional co-operation networks focus on a wide range of matters:

- co-operation in the public and semi-public sectors in which the regions have specific powers and responsibilities - for example, exchange of know-how and staff, joint training in regional development, promotion and spatial planning. The activities also include management and development of transport systems, waste management and disposal, promotion of tourism, conservation and enhancement of natural and cultural heritage, youth exchanges, etc.

- co-operation activities supported and promoted by regional authorities but concerning primarily the driving forces of the economy. These activities may entail bringing businesses closer together to generate co-operation in the private sector, for example commercial or technological co-operation, or making it easier for regional enterprises to participate in trade fairs and shows in another European region, facilitating collaboration between laboratories and research centres or between tourist operators, developing interregional electronic communication networks (eg telematic networks linking ports).

One important area of inter-regional co-operation is cultural activities, which are an essential vehicle for European integration. Such activities are moreover of increasingly tangible economic worth. Use of cultural resources constitutes an effective means of economic diversification for many regions of Europe. Cultural tourism makes it possible to reduce the harmful effects of mass tourism, to prolong the tourist season, to achieve more balanced geographical distribution of the benefits of tourism and to foster economic take-off in disadvantaged regions. This is an area where inter-regional pooling of experience is of particular importance. Among other things, it helps to highlight cultural resources of which the local population is insufficiently aware, gastronomic assets for instance. Inter-regional co-operation in this field also allows joint tourism promotion.

Inter-regional co-operation activities take quite varied forms. Inter-regional conferences and seminars provide opportunities for contact between partners in various categories. The actual planning and running of co-operation projects often requires the holding of workshops, in particular for projects involving EU funding, since the administrative and accounting regulations applicable to such projects are fairly strict. Implementation of co-operation projects also frequently means calling on specialists in the relevant field. Some projects go far beyond the mere exchange of experience and bring tangible results (joint development of new techniques or technologies, creation of information systems, provision of vocational training, joint development of new tourism products, joint heritage promotion efforts, etc.). Lectures and colloquies are also of use in the final stages of co-operation projects, as a means of presenting the results to a wider audience than that reached through a network and ensuring that co-operation activities have a stimulating effect on civil society.

As the number of co-operation initiatives has grown, a genuine form of "co-operation project engineering" has emerged, aimed, firstly, at increasing the effectiveness of projects and, secondly, at satisfying the ever-greater, ever-stricter EU requirements, which make preparation and method matters of strategic importance to an inter-regional co-operation project's success.

One of the underlying principles of co-operation is the "mutual interest requirement", which means that each participating region or organisation must have something to offer its potential partner(s) if it wishes to receive something from them in return. Each region (or partner organisation within a region) must therefore be capable of pinpointing its own strengths, its comparative advantages, so as to kindle the interest of partners in other regions. Good knowledge of the development potential of the regions concerned is an essential prerequisite in order to be able to define the co-operation measures to be initiated and identify suitable partners.

However, a not insignificant number of inter-regional co-operation initiatives are also based on the principle of solidarity and on the concept of regional development aid, whereby one or more prosperous regions come to the assistance of one or more less developed ones. This is the case with many East-West and North-South co-operation arrangements.

When public authorities launch inter-regional co-operation projects, it is important that they mobilise the driving forces within their regions, in particular SMEs. In this context, the public authorities must focus on promoting and facilitating contacts and establishing good relations and a climate of mutual understanding. However, they must at the same time bear in mind that such co-operation is governed by very specific rules, in which confidentiality assumes far greater importance than is usually the case with co-operation initiatives in the public or semi-public sphere.

3.3. Forms and examples of trans-European inter-regional co-operation

a. Bilateral co-operation

Trans-European regional co-operation first came into being in western Europe, as was only natural. Regions have often developed co-operation links with a number of partner regions:

- the Pays de Loire region in France has bilateral co-operation arrangements with Galicia, Somerset, Schleswig Holstein, Emilia Romagna, North Portugal and Skåne;

- Catalonia is engaged in bilateral co-operation with Lorraine, Wallooon region, Flanders, Wales, Provence-Alpes-Côte d'Azur and a number of Swedish counties;

- Bavaria has bilateral co-operation arrangements with Languedoc-Roussillon, Midi-Pyrenees, Provence-Alpes-Côte d'Azur, Friuli Venezia Giulia and the Basque Country.

Over the past decade, especially during the second half of the nineties, many bilateral co-operation initiatives have come into being between west European and central and east European regions. The primary purpose of such co-operation is to furnish support and know-how to the regions of central and eastern Europe. Examples include the bilateral co-operation existing between:

- the Land of Bremen and the voivodship of Gdansk;
- the Land of Niedersachsen and the voivodships of Wroclaw and Poznan;
- the Conseil Général of Charente-Maritime and the region of Calarasi;
- the Land of Sachsen and the Russian republic of Bashkortostan;
- the Land of Tyrol and the region of Ivano-Frankovsk;
- the region of Haute-Normandie and the voivodship of Pomerania;
- the province of Groningen and the district of Hodonín.

In the same way as western regions often have several partner regions, some regions in central and eastern Europe have established bilateral co-operation with a number of other regions:

- the voivodship of Lower Silesia (Dolny Slask) is co-operating with Alsace, Niedersachsen, the county of Västmanland and the county of Ringkjöping;

- the voivodship of Mazovia is co-operating with Ile de France, Brandenburg, the Land of Sachsen Anhalt, Veneto, Lombardy, Lazio and the region of Smolensk;

- the region of Calarasi is co-operating with Udine, the region of Silistra and the Department of Charente-Maritime.

b. Multilateral co-operation

In this field a distinction can be drawn between:

- co-operation arrangements based on a permanent agreement, such as:

- the "Four Motors for Europe" working community (Baden Württemberg, Rhône-Alpes, Lombardy, Catalonia) established in 1988, which has adopted a new Memorandum of Co-operation for the 2000-2004 period;

- IMEDOC: the inter-regional organisation of the western Mediterranean islands;

- the Baltic Sea Seven Island Co-operation Network (the B7 network);

- ad hoc co-operation in the context of a specific project, more often than not co-financed by EU programmes:

- the Euroceram network (Wallooon region, Centro Portugal, Limousin, North Pas de Calais, Shannon, the Community of Valencia and the region of Tampere);

- the RESKO network (Lorraine, Asturia, Saarland, the region of Ostrava, the voivodship of Katowice, Wallooon region);

- the RDA NET CEDA regional development agencies network in the Interreg IIC CADSES area (Central, Adriatic, Danubian and South-Eastern European Space).

4. Participation of regions in major European inter-regional organisations

European regional authorities have long been forming large Europe-wide co-operation structures to represent their collective interests (in particular vis-à-vis the European institutions) and to serve as for debating common issues. These organisations are either specialist in nature (the Conference of Peripheral Maritime Regions of Europe, the Association of European Border Regions, the Association of European Regions of Industrial Technology (RETI)) or play a more general role (the Council of European Municipalities and Regions, the Assembly of European Regions). They are sufficiently well known for it to be unnecessary to say more about their objectives and working methods here.

On the institutional level, the regions are represented by the Congress of Local and Regional Authorities of Europe at the Council of Europe and by the Committee of the Regions within the European Union.

5. Regions' external activities involving inter-continental development aid and co-operation

A number of European regions are pursuing decentralised co-operation activities with developing countries. As a general rule, the regional authorities concerned provide financial and political backing for NGOs and other organisations specialising in development aid. The measures supported are aimed, inter alia, at improving living conditions for the local population, aiding the decentralisation process, generating conditions conducive to sustainable economic development, providing training and establishing productive activities. Examples are:

- support from the Ile de France region for decentralised co-operation activities in Africa (Mauritania, Mali, Madagascar), Latin America (Brazil, Argentina, Chile) and Asia (Vietnam);

- co-operation between the region of Franche-Comté and Mali and Morocco;

- co-operation between the region of Haute-Normandie and the region of Tamatave (Madagascar).

Certain forms of inter-continental co-operation go beyond development aid and are also aimed at developing lasting economic partnerships. For instance, a number of regions in Europe have established partnerships which have given rise to economic activities, in particular setting up overseas branches of European firms and developing commercial relations:

- Galicia is co-operating with the Andean Community in the framework of MERCOSUR and with the Brazilian state of Santa Catarina;

- Bavaria is co-operating with the region of Shandong (China), the Cape (South Africa) and a number of regions in North America (Quebec, California) and Latin America (the Sao Paolo region);

- Wallonia is engaged in co-operation with Quebec, Maryland, the Congo, Mauritania and Tunisia;

- Catalonia is co-operating with Quebec, Ontario, various Argentine provinces and Mexico.

Development aid projects require extensive support measures. For instance, the Conseil Régional of Franche-Comté is providing backing for an international, decentralised co-operation resource centre, which fulfils networking and reporting functions and fosters the development of balanced relationships between the various regional operators involved (local government authorities, associations active in the field, private firms).

6. Constitutional and legal provisions governing co-operation and regions' external activities

This is a field where there are considerable disparities between the member states of the Council of Europe. Here we will focus on two specific aspects: authority to sign co-operation agreements and authority to participate in public-law co-operation organisations.

a. Regions' authority to sign co-operation agreements

Most European regions sign co-operation agreements with their partners. In the majority of cases these are not public-law agreements, that is to say they are not binding on the state concerned. Regions rarely have authority to sign international agreements coming under public law.

- In Belgium the federated entities (the regions and the Communities) are competent in matters of international relations, in the same way as the federal state. This means that, in the fields under their jurisdiction, they can negotiate and conclude international treaties, just like the federal government. This power to conclude treaties may be used to conclude agreements not only with sovereign states but also with federated entities vested with the same authority, such as the German Länder. Where it is not possible to conclude a treaty proper, in particular because the partner region does not have authority to do so, the regions can nonetheless enter into more or less formal agreements with other regions.

- In Germany the Länder are vested with authority to sign international agreements and treaties with public partners having the same power, subject to the federal authorities' approval.

- In Austria the Länder can conclude treaties with other states (or their constituent entities) having a common frontier with Austria and enter into international or inter-regional agreements outside the sphere of public law. Before beginning negotiations, the governor of the Land concerned must inform the federal government, which subsequently approves the treaty.

b. Regions' authority to participate in public-law co-operation bodies

This right is not solely reserved for regions with legislative powers, and, paradoxically, some of the latter regions are not entitled to participate in public-law co-operation bodies.

- The regions of Belgium may participate in public-law co-operation bodies under the terms of a public-law agreement or treaty.

- The same applies to the German Länder, which are empowered to transfer sovereign rights to trans-frontier bodies under the terms of an international treaty concluded with another party likewise authorised to conclude international agreements. This is subject to the procedural requirement of obtaining the federal government's approval, intended as a preventive supervisory measure so as to ensure that interests at the federal level are protected.

- When it signed the European Outline Convention on Transfrontier Co-operation, Spain made a reservation stipulating that the convention would apply subject to the conclusion of a bilateral treaty with the neighbouring state. This has been done with France. Under the terms of the relevant treaty the legal solutions to be adopted in order to regulate cross-border co-operation between regional or local authorities are the "consorcio" under Spanish law and the "groupement d'intérêt public" under French law. The treaty says nothing about the right of multi-regional trans-frontier co-operation groupings (such as the Pyrenees Working Community) to have legal personality. This right will not be formally recognised until the protocol providing for inter-regional co-operation has been signed and ratified.

- Under certain bilateral treaties resulting from the application of the Outline Convention, French regional authorities, which do not have legislative powers, are nonetheless authorised to participate in public-law co-operation bodies. This is the case of the authorities located along the Franco-Spanish border (see above) and the Franco-German border (the Karlsruhe Agreement of 23 January 1996).

- Strange to say, the Austrian Länder are not entitled to participate in public-law co-operation bodies.

The gradual implementation of the Outline Convention on Transfrontier Co-operation and the two protocols thereto, through bilateral inter-state agreements, should afford a greater number of regions the possibility of participating in public-law co-operation bodies.

7. Regions' relations with the European institutions

a. Individual representation of regional authorities

At the Council of Europe, regions are represented by the Congress of Local and Regional Authorities of Europe (Chamber of Regions), and at the European Union by the Committee of the Regions.

Apart from this collective representation through the Committee of the Regions, many regions of Europe have set up their own permanent representation with the European Union. These "regional embassies" are mainly responsible for keeping track of EU policy developments, helping to prepare applications for EU funding and promoting knowledge of their region's characteristics and problems in EU circles. A number of these representative bodies bring together economic, industrial, cultural, research and other interests under a single roof and strive to ensure proper co-ordination of EU support (at the political and technical levels).

However, the constitutions of certain member states do not allow individual representation of regions vis-à-vis the European Union. Accordingly, some regions arrange to be represented indirectly by an association without the status of a public authority. This applies to the Spanish regions, for instance.

b. Regions' role in decision-making within the European institutions

Only regions enjoying legislative powers under their country's constitution have a direct influence on the decision-making process within the European institutions. Their means of action vary from one country to another.

With regard to the European Union, the following situations can be noted:

- The Belgian regions participate in formation of a consensus on the position to be adopted by Belgium at meetings of the Council of the European Union. In matters under their jurisdiction they are empowered to represent their country at such meetings on a rota basis. They participate in the ratification of treaties affecting their powers and responsibilities. They also have their own delegations within the Belgian permanent representation, so as to keep Council proceedings under close scrutiny.

- The German Länder participate in procedures relating to the European Union through the Bundesrat. The Bundesrat has a right of veto in matters involving the transfer of sovereign rights to the European Union and its institutions. As regards the right of participation in matters coming within the legislative authority of the Länder, the greater the Länders' degree of competence for a subject being dealt with in a piece of legislation, the more weight attaches to the Bundesrat's opinion. Where the Länders' legislative and administrative powers and responsibilities are substantially affected by an EU proposal, the Bundesrat's opinion is binding on the federal government in its negotiations in the Council of the European Union. Where the Länder enjoy sole legislative authority for a given area, the Federal Republic's rights and interests are defended by the Bundesrat representative on the Council.

- The Spanish Autonomous Communities participate in determining Spain's position regarding EU decisions through the intermediary of a State-Autonomous Communities Conference for European Union Affairs, established by law.

- The Austrian federal government is required to keep the Länder informed of EU matters affecting their legislative powers. In such cases, when participating in meetings of the Council of the European Union, the federation is under an obligation to adhere to a joint position determined by the Länder. A Länder representative may take part in Council meetings.

- Italian regions participate in European Union affairs through a conference of state and regional authorities convened at least twice a year. This conference appoints regional representatives to the Italian permanent delegation in Brussels.

With regard to the Council of Europe, it should be noted that the German, Austrian and Swiss delegations participating in the steering committees established by the Committee of Ministers are mixed (made up of both federation and Länder or canton representatives). Moreover, one-third of the Swiss representatives in the Parliamentary Assembly originate from the cantons.

c. European co-operation between regional parliaments

Regions with legislative powers have a regional parliament independent of the regional executive. The heads of these regional parliaments have established a co-operation structure at European level (the CALRE - Conference of Presidents of European Regional Legislative Assemblies), which has become active in promoting regionalism and federalism in Europe. This organisation primarily campaigns for increased recognition of regional legislative powers, according to the subsidiarity principle, in European decision-making procedures, particularly at European Union level. Its objective is to achieve greater co-operation with the European Parliament.

8. Intensifying international co-operation between European regions - prospects and limiting factors

Inter-regional co-operation and regions' external activities have become absolutely vital factors in European integration. They must be regarded as essential to the formation of closer ties between nations and to economic development. Most regions in Europe are engaged in several types of inter-regional co-operation and external activities, whether bilateral or multilateral, local (in the case of frontier regions) or trans-European. A smaller number of regions are actively involved in development aid and intercontinental partnerships. A growing number of regional authorities also have their own representation with the European institutions.

It is encouraging to note the large number of co-operation arrangements established between west European and central and east European regions over the past ten years. As regionalisation advances in central and eastern Europe, this trend should be further enhanced.

European institutions, in particular the EU, have done much to foster inter-regional co-operation. Over the past ten years the European Union has implemented financial support schemes not only for co-operation initiatives involving regions in EU member states, but also for those encompassing regions of central and eastern Europe.

However, there are still a number of impediments to the development of these kinds of activities. For instance, a number of Council of Europe member states have not yet ratified the European Outline Convention on Transfrontier Co-operation and its two protocols. In some countries which have ratified the convention only slow progress is being made with the inter-state agreements often required for the convention to take effect in practice. Such bilateral agreements are frequently a prerequisite for the establishment of trans-frontier co-operation bodies.

In a number of member states, regionalisation has to progress before advances can be made with inter-regional co-operation activities. In this context, it can be seen that there is a need to adopt the Charter of Regional Self-Government as quickly as possible. This is of primary importance for many countries in central and eastern Europe, where regionalisation is a recent phenomenon or is still proceeding.

It must also be noted that not all regions are on an equal footing as regards their powers to engage in inter-regional co-operation or external activities. Regions with legislative powers are normally at an obvious advantage in this respect: they can more easily sign external co-operation agreements, particularly those coming under international public law. There are also significant differences between regions as regards their legal authority to participate in public-law co-operation bodies.

The quality of administrative systems is also of crucial importance to the success of inter-regional co-operation. Administrative weaknesses in certain central and east European regions, for example, have proved an obstacle to the success of a number of East-West co-operation initiatives.

Lastly, inter-regional co-operation requires financial resources, especially when it is a matter of participating in inter-regional co-operation projects receiving EU backing, since these projects must also be co-financed by the regions concerned. In this connection, it is important that member states should give financial support to their most disadvantaged regions, so as to enable them to play a real part in the co-operation networks. The survey showed that in certain member states lack of financial resources and insufficient interest in inter-regional co-operation constituted one of the main impediments to the development of international co-operation at the regional level.

APPENDIX condensed list of interregional co-operation activities (synthesis of the results of the inquiry)

ALBANIA

GERMANY

AUSTRIA

BELGIUM

BULGARIA

DENMARK

SPAIN

ESTONIA

Current Projects

" The Baltic Palette "

Co-operation project of spatial planning with the central part of the Baltic Sea, where participated : Stockholm - Mälar Region | Helsinki Region | Southwest Finland | Häme Region Åland Islands | City of St.Petersburg | Leningrad Region | City of Tallinn | Riga Region

Via Baltica Spatial Development Zone"
Partners

EUREGIO Helsinki-Tallinn. Transfrontier Co-operation between the Uudenmaan region (represented by Uudenmaan Liitto (Finland), the city of Helsinki, the local government of the Harju Department (Estonia), City of Tallinn (Estonia) and the Union des gouvernements municipaux dans la région de Harju (Estonia).

FINLAND

FRANCE

GREECE

HOLLAND

HUNGARY

ITALY

LITHUANIA

MOLDOVA

POLAND

ROMANIA

UNITED KINGDOM

RUSSIAN FEDERATION

SLOVAKIA

SLOVENIA

SWEDEN

SWITZERLAND

CZECH REPUBLIC

UKRAINE

SWEDEN/NORVEGE/FINLAND