Communication from the Commission to the Council and the European Parliament - Scientific and technological research - A strategic part of the European Union's development cooperation with developing countries
COMMISSION OF THE EUROPEAN COMMUNITIES Brussels, 25. 04. 1997 COM(97) 174 final COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT Scientific and Technological Research - a Strategic Part of the European Union's Development Cooperation with Developing Countries 1. THE DEVELOPMENT PICTURE: RISING TO THE CHALLENGE 1. 1 Immense challenges 1. 2 RTD in the developing countries 2. LESSONS LEARNT 2. 1 Europe 2. 2 Developing countries 2. 3 Conclusions 3. OBJECTIVES, PRINCIPLES AND SUBSTANCE OF AN OVERALL STRATEGY 3. 1 General principles 3. 2 Substance of the strategy 3. 3 Defining the partners' roles 4. IMPLEMENTATION: INSTRUMENTS AND AREAS OF WORK 4. 1 Two complementary instruments that should pull together 4. 2 Areas of work 5. GREATER CONSISTENCY AND COMPLEMENTARITY THANKS TO EFFECTIVE COORDINATION 5. 1 Consistency between Community policies 5. 2 Complementarity with the Member States 5. 3 Political dialogue on RTD with the South 4 4 5 7 7 9 10 11 11 12 12 14 14 1 <» 17 18 18 19 z/3 Introduction The importance of research in helping the developing countries to meet both the global challenge of trade liberalisation and their own specific development problems were highlighted at the meeting of development ministers on 1st June 1995. The Council and the Member States asked the Commission to draw up proposals on ways to step up Community aid for developing countries in the research and technology development (RTD) sector. In November 1995, research ministers approved a Commission communication on the prospects for international cooperation on RTD, which acknowledged the need to improve coordination between development aid and research policy. 1 A communication dealing with the specific objectives of scientific cooperation with the developing countries was promised. This communication is the response to these two demands. Before drawing up any proposals, the Commission embarked on an evaluation of its official development assistance (ODA) activities relating to RTD, and undertook a strategic review of the whole area of science and technology for development. To better assess its own approach and compare it with that of the Member States, the Commission hosted a meeting with Member State experts on 3 and 4 December 1996 to discuss development and international scientific cooperation. It also took into consideration the proposals and recommendations of the symposium on international RTD cooperation held on 19 November 1996, which it organized with the European Parliament, and of the Conference "Research Partnerships for Sustainable Development" it organized with the Dutch presidency, held in Leiden (NL) from 11 to 13 March 1997. 1 Perspectives for international cooperation in research and technological development, COM(95) 489. N. B. RDT cooperation including research activities, technological development and demonstration. 1. THE DEVELOPMENT PICTURE: RISING TO THE CHALLENGE Developing countries constitute a non-homogenous group with varying economic conditions. Even those which enjoy rapid economic growth in certain sectors, remain confronted by problems of sustainable development and chronic poverty. , These countries, especially the least developed among them, are faced with serious difficulties, some of which stem from their own specific constraints and some of which are world-wide phenomena. 1. 1 Immense challenges The developing countries are facing three main type of challenges. (i) Problems of society, which mainly concern the participation of civil society in decision-making and the choices affecting it. The access citizens have to information and knowledge conditions progress towards democracy and the rule of law, themselves crucial for the emergence of a modern economy and society, which is one of the overall objectives of the Community's development policy. (ii) Those concerning the capacity of these countries to improve people's standards of living in terms of food, health, housing and education. These are legitimate basic needs and satisfying them is a world-wide challenge because there cannot be progress in managing the global environment nor in political stability while more than half the world's population is living precariously and unable to manage sustainably the resources it uses. Major international conferences, from Rio to the World Food Summit, have looked at the global challenges posed by these problems and outlined policies to tackle them. For the EU, the aims of poverty-alleviation and supporting sustainable development are a contribution to this effort. (iii) Those concerning the ability of developing countries to seize the new opportunities arising from the globalization of trade and the move towards more transparent economic competition, not only in the agriculture and agro-industry sector, but also in other relevant sectors. Globalization is also affecting knowledge and technological know-how. If these countries are to gain easy and speedy access to various sources of scientific and technological information, they will have to greatly increase investment to allow them to make the necessary technological advances. It is widely acknowledged that countries without access to know-how and unable to master these constantly evolving technologies will lose out in the course of globalization. 2 IS AD, Midrands (SouUi Africa), May 1996. 1. 2 RTD in the developing countries For all countries RTD is an ever more crucial tool of economic, social and cultural development, nourishing as it does a spirit of scientific inquiry and a culture of innovation that societies need to understand and master change. Economists recognise that a growing comparative advantage accrues to societies which are knowledge-based, and rapid marginalisation. that others risk Most developing countries, especially the poorest among them, have lagged so far behind in this field that they cannot hope to join tomorrow's world without considerable scientific and technological investment. There do exist, however, niches of scientific excellence on which they can draw. Further more, local economic actors have an increased awareness of the demands of globalization and of the necessity of developing technological partners in order to take part in the ongoing process. 1. 2. 1 RTD investment not up to the challenge The low interest and even suspicion, harboured by many developing country governments about science and technology, plus the burden of debt and structural adjustment constraints, have combined to push RTD to the bottom of their list of priorities. In many countries investment has remained structurally weak and has in some cases declined over the last decade. The figures speak for themselves. The share of GDP allocated to RTD ranges from 2. 8% in Japan and the US to next to nothing in some countries in the South. On average, developing countries (other than emerging economies) devote 0. 5% of GDP to it. 3- The EU spends an average of 2% and, with a view to convergence, is aiming to bring about a rapid increase in the countries devoting less than this average. The figures for human resources are even more striking. The EU has 40 researchers/R&D personnel per 10,000 of the active population, whereas the number is 0. 5 for the developing world, excluding Asia. 4 Furthermore, researchers who remain at, or return, home often find themselves without the means to do high quality research. Box 1: human RTD potential in different countries In 1991 the figures for researchers/R&D personnel per 10,000, activé j persons were: 7$ in Japan, 69 in the US, 40 m the EUa between 2 and 6 (estimated) in India and China and less than 0. 5 in the (non-Asian) developing world. 3 4 Sources: MERIT, EUR 5897 EN Report and UNESCO 1994 Year Book. India and China are investing in training and have ratios of 4 to 6/10 000. RTD investment in the South also comes largely (exclusively in the case of the least-developed countries) from the public purse, which, because public spending in most of these countries is low and unpredictable, reduces its effectiveness and long-term impact. In many developing countries research has not been sufficient to make a real contribution to understanding , solving or predicting of economic, social or political problems, or above all to help anticipate obstacles. there are capacities which can provide economic However, relay mechanisms, and also developing country partners with comparative advantages to exploit them. /. 2. 2 Insufficient capacity for speedy improvement Research capacity in the South is insufficient to tackle a wide range of problems and has remained confined to a few sectors (often as not agriculture) and a few disciplines (biological and physical sciences). Even in these cases, efforts are often too fragmented and too isolated to make any real impact. However, certain countries (China, India and South Africa, for example) or regional groupings in Asia and Latin America are exceptions. It is worth highlighting the main weaknesses without going into excessive detail. The first is the lacuna in the field of economics and social and political sciences, something which is also true of countries with an otherwise considerable RTD potential. This lack reduces these countries' capacity to diagnose problems, formulate future scenarios and establish the public debate which is indispensable for any participatory and democratic process. A second major deficiency is in the engineering sciences leading to shortage of engineers and technicians and, more generally, to a limited technological culture, which in turn causes continuing dependence on external assistance. The provision of opportunities for appropriate forms of cooperation can contribute to limiting this deficiency, as certain recently established bilateral cooperation activities have shown. These first two weaknesses are closely linked to the often dramatic situation of many universities in Southern countries. Furthermore, ignoring or even rejecting traditional forms of knowledge in the scientific approach taken has often led to opposition between the old ways and modern technology, the new replacing the old instead of complementing it. The cause, partially at least, is a cooperation that has focused on a "science transfer" approach rather than "aid for science". Even in the more advanced developing countries, there is a division between research and industry, which diminishes the economic impact of scientific findings. investment RTD the purpose of in economic and social sectors for responding to and anticipating developments through detailed planning is all too rare. Urbanization is an example of this failure to anticipate events. 2. LESSONS OF THE PAST 2. 1 Europe the international cooperation component of The Community's contribution to RTD has been made, on the one hand, research and under on the other, technological development framework programme and, through ODA. The conception and implementation of the two, however, have tended to remain quite separate. the the implementation of scientific cooperation with Significant scientific cooperation confined to a few areas 2. 1. 1 the Since 1982, in the Framework Programme has been mainly developing countries INCO-DC6) implemented as a thematic approach (STD5 followed by addressing all developing countries in the same time. They did, however, only cover sustainable management of natural resources, agriculture and health. those development issues common to all: BOX 3 111111111111111111111 M i. ; 111111, • ^ H HI M ijii n 1. 1. 1,1. 41 i laH il WAWAW P I I » » !! | | | a & & éf l l. l. l l l l l l l l l l l l l l l l l l l l l l l l l l ll §llili»ttfeer {mm ECU 42 m u 1940: 411 nd. STD 2 (1987-91) ECU 85 m 1. 6 STD 3 (1991-94) ECU 125 m 1. 9 INCO-DC (1994-98) ECU 247 m 1. 9 Agri Health Agri Health Agri Health Nacres. Agri Health 75 ' 30 65 25 35 30 70 Other 10 2527 339 2030 297 30 30 partial(*) 1068 132 EU DC EU DC 303 327 787 585 EU 305 DC 303 (*) 1st of three calls for proposals the Framework Programme, by Until 1994 this programme was supplemented, for non-ACP countries and outside International Scientific Cooperation initiative (ISC), which offered a more individualized approach, and covered themes other than those concerning development. For the period 1991-1994, initiative represented a Community contribution of 103 million ECU. the amount spent on this the Science and Technology for Development. International Cooperation with the Developing Countries. The evaluations made of these various actions have been largely favourable, emphasizing the relevance of the themes chosen and the extensive mobilization of research teams in the EU and partner countries in the South. From the developing countries' point of view, they highlight the fact that these programmes have kept the best research teams in the developing world in contact with the international scientific community. The scientific gains have been substantial and they have often made a real contribution to understanding and solving the development problems of the countries and regions concerned. From the EU's point of view, the programme has offered European scientists the chance to work on problems linked to biological and physical environments different to those in Europe, so broadening their professional experience. In turn, this has built-up knowledge of development problems that is needed to improve sectoral development policies. The verdict is thus satisfactory and continuation of this work meets the needs of both the EU and the developing countries. However, some shortcomings have been identified. The main one is the lack of any strategic framework for this work. As a result, in the EU there is little synergy between scientific cooperation actions and development aid projects. In the developing countries the programme has had a low profile and limited legitimacy arising from difficulties in really involving their political leaders in prior consultations on objectives, priorities, selection criteria, monitoring and evaluation. Other weaknesses concern the frequent asymmetry in the partnership, to the detriment of the partners in the South; the fact that cooperation is confined to three areas, mainly for budget reasons (2% of the Community research the difficulty of establishing clear geographical priorities; budget); insufficient and involvement dissemination of the findings linked in part to inadequate opportunities and modalities in the Framework Programme. private-sector (especially industry) The disappearance of the flexible formula provided by ISC, which also offered fellowships, has undoubtedly heightened the dissatisfaction felt by the emerging countries in particular. It has not been compensated by the opening to these countries of certain specific programmes (action 1 of the 4th Framework Programme) because even technologically advanced among them were unable in reality to take part in the absence of proper preparation for such participation. the most 2. 1. 2 Official development assistance, without adequate long term vision has given insufficient attention to RTD The amount of Community ODA invested in RTD has remained very low and operations have been disparate in nature with no common thread. Box 3: some findings of an Development Fund inventory of RTD activities under the European An inventory of the 6th and 7th EDFs identified 166 research projects, or development projects with an RTD component, that accoaut&l for spetidw^ tâ ECU 13$ ifcMoicu Ot these» 57 vme tegfawl (50% research) and 109 national (ïô% research projects and the rest projects with an RTD component). The sectoral breakdown is: Agriculture livestock Forestry * Eçgionai 21 10 5 * , ' ' , National 4&,. " , 9. • - Wy \- \ '. - uatnral resources FisJbejtïôS Other sectors (mining, industry, health and institution building) account for the retraining 19 projects, Thte sectoral approach developed for transport im revealed « need for MB input, v,<M<& mli &e done I» &ture+ Hie aiaia fadings are: - «0% of projects are designed io offer "immediate solutions'* (îniproved plant varieties, etc. ) without 8 4 - , ,. my cotnponent to Smild up focal research capacity; — most projects call GO. external scientific expertise; -+ fewer thai* 5% of agricultural researdi project coyer ecottoiafe aspects, There has also been a marked tendency to look for short-term, "technical" answers to specific problems ("consultancy firm approach") without placing the actions undertaken in an institutional research context. The evaluation also points to the heavy dependence on external scientific and technical expertise, which does not allow local research capacity to build up. cooperation Although significant regional programmes for agricultural research have been mounted under the EDF and interesting programmes such as ALFA (university and MED-CAMPUS (Mediterranean) have been created, ODA has not given RTD the attention it Technology merits as a strategic element of sustainable development. transfers have been preferred over aid to generate technological innovation locally. in Latin America) individual projects of high quality, especially in To sum up, despite agricultural research, the evaluation of RTD projects has highlighted a lack of overall strategy. However, in the new Community food security policy is a welcome recent development. the place given to research 2. 2 Developing countries Over the last thirty years the newly industrializing countries of Asia have steadily both increased and diversified their financing of RTD so that it now stands at some 1. 8% of GDP. The developing world as a whole could only manage a rise from 0. 35% to 0. 50% on average, and some sub-Saharan countries even fell back. Box 4: contrasting trends in different groups of countries Annual growth in RTD spending itt three key sectors over (he period 1983-90 Hi dynamic Asian j&evetooing countries +23,6% +14*1% W8BSËL * * J% University research v +13**% • Mi Box 4 illustrates the coherent effort undertaken by the Dynamic Asian economies for creating knowledge continua on which they base their technological development. The differences in these figures highlight the existence of two development strategies, one based on innovation and the other merely exploiting existing means. Specialized research centres have seen their operating budgets slashed to levels at which they can no longer function properly. Some national agricultural research centres, for instance, have no operating budget other than external project aid, which means that their "cycles" of work are governed successive project cycles, with periods of practically no activity in between. Universities are undoubtedly in the most critical state, their research role dwindling in importance, which also weakens their educational role. Instead, training of researchers is sought in the universities of the developed world, which widens the gap still further. The civil society starting to emerge in the developing countries, has only rarely been involved in the choice of research priorities, with the result that the priorities are perceived as "academic" and without obvious practical use. Furthermore, the way in which results are disseminated, has made only a very limited contribution to the development of any "national" technological culture. Recently, there have been some positive experiences, often based on actions regional cooperation and North-South involving both South-South cooperation in agricultural research, with the emergence of a global research system or the regional experiences acquired from cooperation undertaken by the EU and by certain Members states. in combination. Notably, at international level the 2. 3 Conclusions The main lessons learnt are: 10 • Most activities suffered from a low political profile and a lack of dialogue on sectoral policy upstream of the action. From this situation there results, in part, an absence of adequate methodology for allowing a real association of researchers and entrepreneurs with RTD in developing countries. • ODA operations: - with rare exceptions neither the donors nor the countries themselves had any clear vision of the key role that RTD could play in supporting level of sustainable development policy and consequently investment allocated to it was quite inadequate; the failure to consider institutional aspects reduced the impact of dispersed actions; the - • Scientific cooperation: - despite some excellent work, the lack of an appropriate political framework, an unequal partnership disadvantaging the South, the absence of specific mechanisms for valorising results and the limited number of research areas have muted its impact on development. The new strategy must take on board these lessons and define a coherent overall framework to articulate its various elements and coordinate the actions undertaken. 3. OBJECTIVES, PRINCIPLES AND SUBSTANCE OF AN OVERALL STRATEGY The complexity, scale and urgency of the challenges of development call for new solutions that can only be found through a major research effort. The overall objective is to use RTD for development as a strategic tool to help the developing countries, within an acceptable timescale and at a reasonable cost, narrow the growing technological gap between themselves and the industrialised countries that is marginalising them in world trade. To do this, a proper strategy of support for RTD has to be drawn up which allows the coordinated mobilisation of efforts of the European Union and the developing countries themselves. 3. 1 General principles The strategy will be based on the following principles: Partnership will be the guiding principle of the whole strategy for both the joint definition of priorities and the implementation of EU actions. This principle is especially important in RTD because of the need to enter into long-term reciprocal undertakings. Differentiation is a principle that complements partnership, the aim being to take account of the diversity of needs and cooperation arrangements in individual countries and regions resulting from their economic, social and It is already enshrined in the new international cultural circumstances. 11 scientific cooperation policy7 and is a new element in the thinking on "post-Lomé" cooperation set out in the Green Paper. This principle should help to increase the efficiency of RTD cooperation, to give it more legitimacy and political profile. It should also guarantee that, as well as the general objective assigned to RTD cooperation, a specific objective should be carefully defined for each of the instruments concerned. integrated approach to solving specific problems, based on An clarification of the respective roles of the production of scientific knowledge, on the one hand, and the generation or transfer of technologies, on the other. It will entail a great deal of interdisciplinary collaboration and close liaison with those involved in civil society and various socio-economic groups. 3. 2 Substance of the strategy Development of an RTD policy will call for coordinated action on three different fronts: (i) (ii) (iii) institutional: the formulation of RTD policies as well as the taking of legislative and regulatory decisions necessary for creating a propitious environment for the development and impact of RTD, especially those aimed at facilitating the involvement of the private sector. Action here is a prerequisite for any type of support since it affects effectiveness and viability other activities; research capacity: this refers, in particular, to the infrastructure, human resources, etc. needed to meet the needs of society and the economy, and constitutes a new priority since it will be the basis for the partnership that will take the place of "scientific and technical assistance". scientific and technical cooperation: this provides contact with the outside world and is necessary to ensure access to external knowledge bases and for strengthening scientific excellence. Current reflections on technological innovation should lead to the development of appropriate methodologies for "market-oriented" cooperation. Because of the interaction between all parts of this strategy, coordination is vital, to ensure coherence. 3. 3 Defining the roles of the various actors To make this partnership work, the role of those involved at various levels and at different stages needs to be spelled out clearly. [COM(95 489] Perspectives for international research and technological development cooperation. 12 3. 3. 1 Public authorities in the developing countries Their main role is to formulate and' implement a domestic policy to encourage investment in technology (i. e. regulations concerning intellectual property rights, telecommunications, etc. ) and to plan and finance efforts in the public sector, preferably in association with private investments when this is viable. As the regulatory framework falls into place, regional cooperation will be facilitated. The EU will have to adapt its own position on these issues and specify the conditions attached to its interventions under the Lomé Convention, and the ALA and MEDA Regulations. States are also involved in RTD themselves; this role is more significant in the least-developed countries, where publicly financed research has a proportionately more important role than in more developed countries. Public efforts should focus on strategic research, science-related training and encouraging interaction between public and private research and relations with users under mobilizing national programmes. The choices made should be consistent with a long-term financing commitment. 3. 3. 2 European donors On the basis of these common principles, the EU will enter into dialogue with its partners in the South with the aim of achieving agreement on the principles and priorities for action. The Commission should focus on (cf. chap. 4 below): • establishing or strengthening the basis of political dialogue on RTD, in liaison with Member States; • support for institutional reforms at both national and regional levels (facilitating cooperation and the establishment of priorities, for example); innovation at • stepping up scientific cooperation and technological national, regional and international levels; • better coordination of the EU's positions in the relevant international fora (WHO, UNCTAD, the Consultative Group on International Agricultural Research (CGIAR), the Global Forum on agricultural research, etc. ). the World Bank, In the spirit of strengthening complementarity, the Member States could focus, as they often already do, on bilateral cooperation actions concerning scientific and technical capacity building which tackle national scientific and technological requirements. 3. 3. 3 Civil society and the private sector All actors in civil society and the private sector, whether producers or consumers of knowledge and technology, should play an active part in the establishment of priorities and the implementation of research actions. As from now they should also provide, directly or indirectly, a larger share of 13 RTD financing, and organize themselves for the purpose of identifying their problems and needs. In Europe, the mobilization of public and private expertise should be encouraged with a view to developing innovatory forms of scientific and technological partnerships on the basis of jointly agreed EU-developing country priorities. A prerequisite for this is that the potential partners get organized to coordinate cooperation possibilities. Examples of such coordination are the SHARED initiatives in the field of health research, and ECART and NATURA covering higher education and agricultural research. 8 4. IMPLEMENTATION: INSTRUMENTS AND AREAS OF WORK The proposed strategy constitutes a qualitative leap forward in comparison to previous practices and is based on the principle of scientific and technological "mainstreaming", the aim of which is to take account of scientific and technical aspects if done systematically, will radically change attitudes to RTD among both donors and recipients. the preparation of cooperation programmes, which, in 4. 1 Two complementary instruments that should pull together instruments exist for Community cooperation with developing Two countries in the field of RTD: • economic and technical assistance operations to achieve external policy objectives that are implemented under a number of different financial instruments (the Lomé Convention, the ALA and MEDA Regulations, etc. ) that are specific to particular regions; international scientific cooperation actions in pursuit of Community research objectives which are managed under the RTD framework programme. • These operations should correspond to the specific objectives of each instrument and also be consistent in terms of general principles with the overall strategic objective. 4. 1. 1 Enhancing the role of RTD in EU economic and social cooperation RTD should now assume a much more important place in EU cooperation, to be achieved in two ways: • substantial financial support for institution building and strengthening research capacities (including rehabilitation of universities); • "mainstreaming", meaning that an RTD component is included in focal sectors of programming and which could be lead to a proportion of the SHARED = Scientists for Health and Research for Development. ECART = European Consortium for Agricultural Research for the Tropics. NATURA = Network of European Agricultural Universities and Scientific Complexes Related with Agricultural Development. 14 funds (possibly 3% to 5%) being devoted to science and technology actions. The adoption of these objectives will send a strong signal to the developing countries and encourage them to enter into dialogue on RTD. Actions for supporting RTD capacities will vary in nature depending on the country or region concerned. The Community will be particularly interested instruments and in regional actions since acknowledged experience at that level. it has suitable financial Differing priorities may emerge from the policy dialogues with different regions as a result of the level of development of the countries concerned and the EU's objectives. Some areas, however, would seem to be of common interest to all countries. 4. 1. 2 Consolidation and diversification of science and technology cooperation with the developing countries the S&T cooperation with international scientific cooperation policy and as such must be of mutual interest. It should also underpin development and economic cooperation with these countries and be an integral part of the new strategy. the developing countries comes under The Fifth Framework Programme, currently being drawn up, should contain a specific action covering themes relating to development issues, enabling scientists of Europe and the developing world to work together on true research projects, and associating young scientists by an appropriate fellowship mechanism. The programme should be drawn up taking account of the lessons learnt and in accordance with the objectives and principles of the new overall strategy. This will give it a legitimacy and profile that have been limited up to now. The strengthening of the institutional framework and research capacities in the South will help to bring about a more balanced and enduring partnership. Concertation with the public authorities and civil society will ensure better identification of regional priorities and strengthen the impact and use made of the results. To complement the thematic approach embracing all developing countries, more flexibility is needed in cooperation so that the individual needs of countries and regions are taken into account. Special arrangements will be needed, particularly in respect of the emerging economies, to prepare and facilitate their participation in the vertical thematic programmes of the 5th Framework Programme. 9 [COM(96) 344] Promoting RTD cooperation with the world's emerging economies (communication for the Mediterranean currently being drafted). 15 The financial allocation for S&T cooperation with the developing countries must be sufficient to accommodate this double-pronged approach and be coherent with other instruments used to achieve the objectives of this overall strategy. 4. 2 Areas of work Application of the principle of partnership will entail joint decision-making concerning the areas to be covered by the EU and its partners, taking into account cultural differences. This means that the EU must clearly establish its own priorities before entering into serious dialogue with its partners. These priorities should be established by the EU, in accordance with the following criteria: • • • the key political and cultural objectives, such as the provisions on development cooperation of the Treaty on European Union; the likelihood of speedy impact on development and/or on integration into the world economy; the existence of European scientific know-how that could be sustained or developed through scientific cooperation; • commercial potential to be realised (communications technologies, some spheres of industrial complementarity, etc. ) and strengthening the presence of economic actors in expanding and competitive markets; the need to gain access to physical, biological or social environments that is essential for the progress of knowledge and of use to Europe itself. • These criteria will help identify the right priorities to meet the challenges faced. Without being exhaustive, a number of priorities may be cited that satisfy these criteria in the main sectors concerned by development cooperation, implementation of which will involve one or both Community instruments. • Management of natural resources and agriculture, fisheries and agro- industry. These are areas where there are existing partnerships that can be reinforced and where two major challenges have to be met: the to sustainability of development and food security. local/regional (urban) demand and to the international market will be a key objective of the actions chosen and might concern primarily: - at the institutional level, support for (sub)regional cooperation mechanisms to be built up in the framework of the global system of agricultural research for development;10 at programmes; the operational for supporting level, priority Adaptation regional - 10 National agricultural research systems (NARS) have grouped themselves together in regional forums (FARA for sub-Saharan Africa, LAC for Latin America and the Caribbean, APAARI for Asia and the Pacific and AARINENA for North Africa and the Middle East). Two of these forums are related to regional subregional associations: CORAF, ASARECA and SACCAR in Africa, and PROCCls for Latin America. 16 - - the operational level, priority for supporting at programmes; for S&T cooperation, greater focus on subjects likely to have real impact and mobilize the private sector. regional • Health is a sector where aid is increasing. Biomedical research remains urgent (less than 2% of research done concerns tropical diseases!) and should be supplemented by fresh efforts on the public health front. • Demography and population issues linked to urbanization and land-use problems, as well as related problems such as transport and mobility, must have greater prominence than in the past. • Energy matters are crucial for any prospect of sustainable development in the developing countries and must find its rightful place in development cooperation. • Information and communications must underpin any development policy nowadays11. They play a central role in RTD in allowing the connection of researchers to networks, and in reducing the effects of dispersion of teams. Technology cooperation actions will derive from proposals made pursuant to the draft communication on "the information society and development". Cooperation at a pre-competitive level in other technological and pre- industrial domains (including information and communication technologies and energy) will take place where there is mutual interest. Mechanisms for Community cooperation should take into account the interests of European industry, whose participation should be encouraged, in particular in regard to countries or regions with strong growth. These mechanisms should fmd a satisfactory balance between efficiency and visibility and its modalities should be accordingly defined. The Community should provide support to local research institutions and on-the-spot training in research as a cross-cutting priority. Another is to revive the role of universities as producers and transmitters of knowledge, especially in the least-developed countries, where the situation is dramatic. The conclusion of long-term contractual relationships between universities of Europe and the developing world and their economic partners, on the one hand, and contributing links between universities, on the other, are of major political importance for the EU. They allow the development of cultural links with the South while at the same time controlling the number and duration of stays made by postgraduates and trainee researchers in Europe. This can also contribute to maintaining or re-settling doctoral students and researchers in their home countries after training overseas. to strengthening South-South 5. GREATER COHERENCE AND COMPLEMENTARITY THROUGH EFFECTIVE COORDINATION The proposed strategy must be implemented in accordance with the provisions of the Treaty in respect of coherence and complementarity. 11 cf. COM "Information society and development" in preparation. 17 5. 1 Coherence between Community policies By setting a common overall objective and complementary actions based on priorities agreed with the countries concerned, the strategy provides a coherent framework for both the external policies and the research policy with the developing countries. Its implementation will call for ongoing coordination between departments. The Commission has already started to do this during implementation of the fourth Framework Programme and preparations for the fifth by organizing consultations between the departments involved on the international side. These efforts have to be extended and put on a more permanent footing. To be really effective, internal coordination will have to stepped up and doubtless take on a more institutionalized form with clear terms of reference. One possibility is a scientific "forward planning unit". The recruitment of more RTD skills at Commission headquarters would make for more efficient coordination. 5. 2 Complementarity with the Member States The strategy is based on a complementarity of operations undertaken by the Commission and the Member States, both internationally and in the developing countries. This supposes that the Member States have also taken action to increase coherence of the various RTD steps they are conducting with developing countries. The effectiveness and visibility of the EU will emerge strengthened from this. In this context, the European Initiative on Agricultural Research for Development (EIARD)12 is a coordination mechanism that, among other things, has made the EU's contribution to CGIAR more visible (the Commission and the Member States combined provide 40% of its budget) and raised the European profile. This coordination effort must continue. Mechanism of a similar type contribution in other areas (e. g. health) should also be considered. to coordinate the EU's international The complementarity vis-à-vis Southern countries starts with more transparent and better structured exchanges of information. The INCO-POL study is a good example. 13 The Commission proposes to set up this type of coordination in some regions designated strategic by the Council. 12 There is a Communication [COM(97)126] reporting on this initiative 13 INCO-POL is a study financed by tlie Commission (and agreed by tlie Member States) to make an inventory by region of the Member States' policies on aid for research. 18 5. 3 Political dialogue on RTD with the South The choice of such an integrated overall approach calls for political dialogue with the developing countries, in coordination with the Member States, to establish a framework for action at regional and national levels which is coherent within the overall scope of European Union external relations. The Commission proposes to help conduct this political dialogue, which should establish a common coherent framework for Community RTD activity and a basis for bringing about greater complementarity with the Member States. The experience of the Euro-Mediterranean scientific partnership, both in its achievements and in its limits, provides a useful starting point which might be adopted for other regions in the South. 19 Conclusions In view of the complexity, scale and urgency of the challenges facing us, the Commission underlines the strategic role that RTD has to play in promoting sustainable development in the developing countries and achieving the Community's development cooperation objectives. The lessons learnt show that only a comprehensive approach based on aid for science can ensure a coherent and effective implementation of both development and research policies. The Commission regards the drafting of the fifth Framework-Programme, and the debate opened by the Green Paper on the future of cooperation with the ACP States, as two crucial opportunities for putting into practice what has been learnt. It proposes that RTD now be systematically taken into account in sectoral approaches. It underlines the need to consolidate specific scientific and technological cooperation activities for development within the international cooperation component of the Fifth Framework Programme to make them an integral In addition, it also underlines the interest in part of this strategy. implementing measures which permit improved access of "emerging economies" countries to the Framework Programme,- -and to develop scientific and technological cooperation actions which facilitate access of European enterprises to rapidly growing markets Finally, the Commission proposes that political dialogue in this strategic sector be strengthened, in coordination with the Member States, with a view to establishing a true partnership with the countries and regions concerned. 20 ISSN 0254-1475 COM(97) 174 final DOCUMENTS EN 11 15 Catalogue number : CB-CO-97-163-EN-C ISBN 92-78-18770-4 Office for Official Publications of the European Communities L-2985 Luxembourg 21