We publish a synopsis and analysis of the policy concerning the mountain areas of the EU member states that are a part of a detailed report of the European Commission (EC) about the mountainous areas in Europe. The information laid down below is collected from different European sources, information at national level and case studies about the mountains in each country. With publishing of this chapter from the EC report we are trying to focus on the fact that in most of the European countries there is a national policy targeted to the development of mountainous areas. As an Association of mountainous municipalities we will try to include in the agenda the problems of a significant part of the population of our country that lives in heavy climate and living standards in the mountainous areas. We hope in the debate launched by the President H.E.Mr. Georgi Parvanov concerning the future of Bulgarian mountains to be included all stakeholders. To that end we put at your disposal the web page of the Association of Mountain Municipalities in the Republic of Bulgaria (AMMRB) where we will publish detailed information regarding the debate as at national as well as at European level.
POLICY CONCERNING MOUNTAINS AND MOUNTAINOUS AREAS IN EUROPE
The EU Treaty outlines the economic and social cohesion as one of the three pillars of the European construction together with the Economic and currency union and Unified internal market. Making of policy for encouraging of the entire harmonic development particularly focused on the decrease of difference between the level of development of certain regions and backwardness of the poorly developed regions, including mountainous, by allocation of funds, is an expression of one of the main principles of the Union – principle of solidarity. This policy has a significant contribution to the economic stability in the EU. Understanding and accepting the challenges before Bulgarian mountain municipalities resulting from the EU accession we would like briefly to focus on the problems of Bulgarian mountainous municipalities which need in larger degree the application of solidarity principle.
General economic and social profile of mountainous areas in Bulgaria
The condition and development of mountainous areas concerns directly the entire development and territorial set-up of the country. In these areas live not less than 22 % of Bulgarian people in 40 % of the settlements in Bulgaria – 2172 settlements included in the national settlements network. The population density in these areas is average 49 people per sq. m. including 39 % of agricultural land and 82 % forestry. There is significant potential of minerals, hydro resources, recreation, balneological and other resources. The mountainous areas in the above mentioned territorial scope have potential and their significant place and impact on the local and regional development of Bulgaria. As regards the availability of valuable natural and territorial resources in the above mentioned territories, following characteristics could be mentioned:
ü Main part of the surface water flow by the upper streams of the catching ends of river streams in the country comes from the mountainous areas. This regards entirely the West White-Sea area for basin water management with center in Blagoevgrad; Danube River basin water management with center in Pleven and East West White-Sea area for basin water management with center in Plovdiv.
ü Main reserves for production and primary processing of ore and non-ore minerals are located in the mountainous areas although in total for Bulgaria summarized average content of metals in the ores is significantly lower than in ores produced at world level. Very significant is the producing of non-ore minerals – rocks and facing materials with high building and decoration qualities.
ü Forestry resources are located mainly in mountainous areas as the degree of forest density is from 50 % up to over 70 % compared with averagely for the country about 33 %.
ü Main share of the resort and tourist resources, mineral waters and natural sites are located in mountainous areas as they are a significant potential for development of eco-tourism and exposing of rich natural and cultural-historic heritage, balneological treatment, etc. Very famous are and are to be developed following eco-tourist destinations: South-Western, East and Western Rhodope Mountains, Western Old Mountain, Vitosha-Northern Rila, etc. In the mountainous areas are located also the national parks “Central Balkan”, Pirin, etc., a number of biosphere reserves and natural sites.
In general the mountainous areas are back warded, poorly developed, with high degree of depopulation, mostly with low developed or lack of infrastructure, desolated agricultural lands and settlements with low living quality and standards. In the same time in these areas are located the main part of forestry and minerals in Bulgaria. They have a significant natural potential for development of tourism – mineral springs and unique natural sites. Despite the several attempts during the last years the mountainous areas in Bulgaria still are not a subject of entire and focused state policy.
European national policy and tools
There are a number of tools for supporting the development of mountainous areas in Europe. These tools vary not only according to the importance and diversity of the areas but also according to the conditions in which the institutions of each state operate (centralized, federal, as a part of the EU, new acceded countries, other, etc.). For the purpose of this analysis we use the expression “Policy concerning mountains” in widest aspect as it includes:
ü General measures and policy of territorial importance regarding some mountainous matters (planning);
ü Policy regarding sectors affecting development of mountainous areas (agriculture, tourism);
ü Certain actions or programs including mountainous areas (Interreg);
ü Clearly formulated measures and policy targeted to the mountainous areas in order clarification of their concrete needs;
ü Clearly formulated and integrated policy concerning mountains.
Policy concerning mountains
Almost all states that have mountainous or hilly areas have some type collaterally or directly formulated “policy concerning mountainous territories” or an approach to certain mountainous issues. At national level four types of approaches could be described:
1) States without policy concerning mountains. They include:
- States with no mountains (Denmark, Estonia, Latvia, Lithuania, Malta, The Netherlands);
- States where is a small number or not high mountains (called hills). Even when the situation in this regions is considered as different, the policy concerning the development very often voluntary included in rural policy (Belgium, Ireland, Luxembourg) or included in the regional plans (Poland);
- States mostly mountainous (Greece, Norway, Slovenia) where the policy concerning mountains is effectively harmonized with common development policy.
2) States where the mountainous policy is sectored
In general these are states with average high mountains and/or new acceded countries or applicant states. Mostly the sector where the policy is focused is agriculture (17 countries). This tendency starts from the Directive CEE 75/268 concerning mountains and rarely preferred areas, later Directive ÅÑ 950/97 about improvement of the effectiveness of agricultural areas; ÅÑ 1257/1999 concerning maintenance and development of rural areas from the European Guarantee Fund for management of agriculture as this tendency is enlarged to other states in the enlargement context. The sectored policy in agriculture most often is related with the environment (13 countries) and rural development (13 countries). In Ireland, Hungary, Portugal and Slovakia this policy is focused especially to the agriculture, environment and tourism.
3) States where the mountainous policy has multisectoral development
The starting point always is mountainous agriculture, but in time the relative importance of agriculture in mountainous economy is decreasing as the mountainous policy is enlarged in order to include other economic sectors (mainly tourism), public infrastructure and services and/or environment. The list of policies concerning sectors with specific application now is detailed and includes issues like training, education, regional development, land using and spatial planning due to their complex character. Germany and Spain are included in the group mainly with actions at regional level as well as Austria that has completely integrated policy with long-term initiatives (1960 for agriculture, 1975 for global development) and strong provincial power in the federal state.
4) States which has entirely developed mountainous policy
States that are closest to the sustainable development are most advanced in compensating vulnerable people by agricultural compensatory notes. This process is developing progressively and becomes in a more integrated direction of development. In several states the entirely development of the policy concerning mountains started before 1970, by a consolidation of certain sectors in policy and confirming/approval of specific tools like mountains legal acts and mountain funds.
§ Presently three European states have officially integrated policy concerning mountains: France (establishment of a Commissionery on mountains – 1973; Mountain Act that determines the borders of certain mountains – 1985), Italy (main principles of the special policy in mountainous areas – 1948; mountainous municipalities – 1971; Mountain Act – 1994) and Switzerland (Mountain Areas Investment Act [LIM], 1974). According to the opinion of some of the stakeholders the Swiss Mountain Areas Investment Act [LIM] does not concern entirely development of the policy concerning mountains. In addition we could mention that Norway has integrated policy but it is not focused particularly to mountain areas.
§ Both other European states – Bulgaria and Romania are starting now building an integrated policy concerning mountains based on the French and Italian model. Unfortunately this policy concerning mountains still is not transformed in a draft legal act that to be voted by the legislative body.
As regards it is possible to talk about integrated policy concerning mountains and mountainous areas, it is not clarified as the concept for integrated policy is still not clearly defined and should be deliberated and coordinated. For Switzerland the integrated policy concerning mountains is effective and equivalent to the combination of regional and agricultural policy; in other European countries it is multisectoral. Thus the sectored and territorial coordination of the policy is the main component in that concept.
Finally to the above mentioned in most European countries implementing “mountainous” policy could be considered following: effectively they are mainly sectored action plans (sectored policy) with certain specific adaptations. In point of view of many public and private stakeholders the policy concerning mountains often is equivalent to the local or regional policy.
Tools and their usage
A set of tools is developed for the implementation of this strategy related to the development of mountainous policy.
Definitions for a mountain
It is very necessary when making the policy concerning mountains the exact determining of borders of these areas to be defined. In most countries are implemented the criteria regulated by the European Community Directive (EU-CEE 75/268) and relevant regulations as follows: height combined in most cases with the slope and sometimes with other criteria (climate and topography). As a whole the height threshold in Europe is decreasing from South to North (Table 1.1). The main reason for the vast determining of borders of these mountainous areas is due to the fact that many agricultural lands has limited productivity and need additional grants as this depends on whether they are located in mountainous or plane areas. Thus the decreased continuity of the vegetative period of agriculture in countries located far in the North impacts on the adaptation mechanisms of the regional trends. The definitions for mountain are done based on similar reasons like above mentioned as for the EU applicant states (Table 1.2.) as well as for Norway (600 m.). As regards the researched field the eligible limits are high in most mountainous countries, as an example for that is Switzerland where only 24 % of the territory is mountainous according to the definition laid down in the Swiss Mountain Act [LIM], the population also is a criteria. Many experts that expressed their opinion on that issue consider that mountainous areas should be vastly defined by using social and environmental indicators. In certain cases there are two or three definitions with covering each other borders or not included parts (Section 3.7):
ü Mountains defined as low-fertile agricultural areas (LFA), according to the European Community Directive EU-CEE 75/268 in Regulation 950/97 and later created Art. 18 from regulation 1257/99. This definition is most often met in the EU application documents from the new applicant states as the limitation of the low-fertile agricultural areas is a prerequisite for receiving compensatory notes;
ü Mountains defined as fertile lands before EU enlargement (Austria and Bulgaria);
ü Mountains defined as multisectoral action plans or entire development in regional or national context (ex. Mountain Legal Act in France);
ü Mountain areas determined by international agreements (ex. Alpine Convention);
ü Mountains determined for specific research or purposes (ex. areas over the forestry belt in mountains as mentioned in the Swedish Report for environmental protection).
These limits in determining of borders together with areas included in Structural funds (Table 1,2) make understanding about the mountainous areas development and mountains a complex process.
Determining of mountain massifs’ borders
Only France has a developed concept concerning mountain massifs at political and operational level in order to propose, discuss and implement main trends and measures at transregional level according to the mountain perimeter. The massifs exist as a concept since 1973, but as late as in 1995 are defined according to the “Mountains Act” as a extension of mountainous areas together with neighbor districts connected. Massifs are constant districts but some parts of isolated French mountains (Morvan) are not included in the determination about massifs. In Italy the Mountainous Community (a group or parts of municipalities) is a specific tool that is used for the implementation of policy concerning mountains. The Alpine and Carpathian Convention are implemented at wider transnational level of massifs. Recently the Convention members have adopted a map of the district that is covered by the Alpine Convention. This not concerns the Carpathian Convention.
Specific mountainous legislation
A specific mountainous legislation exists only in states with well developed policy concerning mountainous areas like Italy, France and Switzerland. Initially that was a Swiss Mountainous Areas Investment Act (LIM) adopted in 1974 and amended 1997. In Italy the Constitution from 1948 mentions the mountains as areas with specific needs, in 1971 are defined the mountainous municipalities and the Mountainous Act is adopted in 1994. The first determining of mountains in France was done in 1961 followed by the Mountainous Act in 1985. In Spain the determination of mountainous areas is prepared in 2002 during the International Year of Mountains. As regards the applicant states and new acceded countries the mountain legal acts are at different stage of preparation and approval like in Romania. In Poland the Mountainous Act existing since 1986 was suspended in 1989. Other acts are prepared but no one is approved. The mountainous legislation could be at sub-national level like in the Highland Legal Act of Catalonia (Spain) adopted in 1983 and Apuseni Mountains Act (Romania) adopted in 2000. In Austria the federal Chancellery presented a “Special initiative for Mountainous area” in 1979, further enlarged to other parts of the state in 1985 and renamed to “An Initiative for authentic regional development”. In some countries the legislation concerns particularly mountainous agriculture as a whole like in Austria where the special program for mountainous farmers from 1972 was enlarged in other parts of the countries and Spain where the Mountainous Agriculcultural Act has been adopted in 1982. In other countries the legislation may concern specific agricultural activities like dairying – mainly in mountainous areas in Romania. The countries with most mountainous determinations and legal acts are summarized in Table 8.3.
States with ore developed determinations and legal acts concerning mountainous areas
State | Mountanious determining of borders | Mounainous Act | LFA Nat/Reg Convention |
Austria | Yes | No | Special initiative for Mountainous area; Special program for mountainous farmers |
Bulgaria | No | Yes | NO |
France | Yes | Yes | Alpine Convention; |
Italy | Yes | Yes | Alpine Convention; |
Poland | No | Draft | Carpathian Convention Former Mountainous Act (1986-1989) In process of development |
Romania | Yes | Mountainous Acts pending approval | Carpathian Convention |
Spain | Yes | Mountain Investments Legal Act (1974, 1997) Agricultural Act (including mountainous areas) | NO |
Centers and programs for research and training
In the states with vast mountainous areas are established centers for research and training that are responsible for equipment, analyze the mountainous tendencies and trends, present new ideas for development and offer training as on research as well as on resource management. These centers are exclusively important for improvement of the development and implementation of policies concerning mountainous areas. With the assistance of significant information that they have at their disposal (especially tendencies that require a specific kind of policy and its implementation) contribute to the encouraging of innovations and absorption of management of mountainous resources. The research centers are numerous and solid in Austria, France, Italy, Norway and Switzerland as well as in some of the new acceded countries like Romania and Slovakia. As a whole such institutions are developed mostly in Alpine countries. Training centers are focused mainly to the agriculture, not focused on other mountainous occupations except mountainous guiding and skiing. The strong policy concerning mountainous areas wherever is related to availability of research centers. In order to be improved the understandings about the mountainous areas are needed effective local/national institutions and Centers for training, research and education in different states – both EU members and new acceded ones.