EVALUATION OF THE MAIN ACHIEVEMENTS OF COHESION … · 2015-03-09 · evaluation of the main achievements of cohesion policy programmes and projects over the longer term in 15 selected

EVALUATION OF THE MAIN ACHIEVEMENTS OF COHESION POLICY PROGRAMMES AND PROJECTS OVER THE LONGER TERM IN 15

SELECTED REGIONS

(FROM 1989-1993 PROGRAMMING PERIOD TO THE PRESENT)

(2011.CE.16.B.AT.015)

CASE STUDY Nord-Pas-de-Calais

Georges Mercier and Estelle Floirac

18 July 2013

European Policies Research Centre

University of Strathclyde Graham Hills Building

40 George Street Glasgow G1 1QE United Kingdom

Tel: +44-141-548 3339 Fax: +44-141-548 4898

E-mail: [email protected]

[email protected] http://www.eprc.strath.ac.uk/eprc/

The University of Strathclyde is a charitable body, registered in Scotland, number SC01526

mailto:[email protected]

mailto:[email protected]

http://www.eprc.strath.ac.uk/eprc/

Evaluation of the main achievements of Cohesion policy programmes and projects over the longer term in 15 selected regions: Nord-Pas-de-Calais

LSE i EPRC

PREFACE

This report presents the case study for Nord-Pas-de-Calais as part of the study ‘Evaluation of the

Main Achievements of Cohesion policy Programmes over the Longer Term in 15 Selected Regions

(from 1989-1993 programme period to the present)’ which is being managed by the European

Policies Research Centre and London School of Economics. The research was conducted between

May and September 2012.

This case study has been drafted by Dr Georges Mercier and Estelle Floirac. The authors are

grateful to a considerable number of individuals in the Nord-Pas-de-Calais who participated in the

study and provided valuable insights as well as assistance in tracking down other interviewees. The

complete list of interviewees is listed in Annex IV at the end of the report.


LSE ii EPRC


LSE iii EPRC

Contents

EXECUTIVE SUMMARY .............................................................................................. 1

1. Introduction .............................................................................................. 5

2. Regional context and analysis of needs ........................................................... 7

3. Programme evolution and relevance ............................................................. 23

3.1 Explicit and implicit strategies and their evolution ................................................. 23

3.1.1 Facing the direct consequences of a severe economic and structural crisis: 1989-93 .... 23

3.1.2 Stronger intervention requires stronger strategies: 1994-99 ................................. 27

3.1.3 Towards diversification and new development perspectives: 2000-06 ...................... 31

3.1.4 Transformation, realism and critical choices: 2007-13 ........................................ 34

3.2 Relevance of programmes to regional needs ......................................................... 36

4. Expenditure analysis ................................................................................. 43

4.1 Financial allocations ...................................................................................... 43

4.2 Expenditure compared with allocations ............................................................... 44

4.2.1 Evolution of actual expenditure over time in the eight selected thematic axes.......... 44

4.2.2 Comparison between intended and actual allocations ......................................... 46

5. Achievements analysis .............................................................................. 49

5.1 Reported & actual achievements ....................................................................... 49

5.1.1 Programme-level achievements .................................................................... 49

5.1.2 Analysis by theme ..................................................................................... 58

5.1.3 Institutional factors affecting achievements .................................................... 84

5.2 Complementarities and synergies................................................................. 85

5.2.1 Complementarity between ERDF-funded programmes ......................................... 85

5.2.2 Complementarity with domestic regional policy ................................................ 86

6. ASSESSMENT OF ACHIEVEMENTS AGAINST OBJECTIVES AND NEEDS (EFFECTIVENESS AND UTILITY) ...................................................................................................... 91

6.1 Overall achievements of ERDF programmes measured against programme objectives (effectiveness) .......................................................................................... 91

6.2 Overall contribution of ERDF programmes to regional development (utility) ................ 103

6.3 Key elements of success and failure ................................................................. 112

6.3.1 Good practices and successes ..................................................................... 112

6.3.2 Bad practices and failings.......................................................................... 114

7. Conclusions ........................................................................................... 117

7.1 EQ1: To what extent did the programme address regional needs and problems over time? (Relevance) ............................................................................................ 117

7.2 EQ2: To what extent do ERDF achievements meet regional objectives and needs in each programme period and across all periods? ....................................................... 122

7.3 EQ3: What are the main lessons learnt on the effectiveness and utility of ERDF interventions? ......................................................................................... 130

8. Annex I – Analysis of project samples ........................................................... 135

8.1 Project: ‘Great Site Operation’ of the 2 Capes (Gris-Nez and Blanc-Nez) .................... 135

8.2 Project: Dourges’ logistic multimodal hub (Delta 3) .............................................. 137

8.3 Project: Roubaix’s ‘Piscine’: Andre Dilligent Museum of Art and Industry ................... 141

8.4 Project: Conversion of mining heap n°9-9 in Oignies (62) ....................................... 143

9. Annex II – structure of programmes 1989-2013 in Nord-Pas-de-Calais .................. 147

10. Annex III: Reported achievements ............................................................... 155


LSE iv EPRC

10.1 1989-93 Regional Operational Programme .......................................................... 155

10.2 1994-99 Regional Operational Programmes ......................................................... 156

10.3 2000-06 Regional Operational Programmes ......................................................... 158

10.4 2007-13 Regional Operational Programme .......................................................... 166

11. Annex IV: List of interviewees .................................................................... 167

12. Annex V: Overview of sourceS used for the case study .................................... 169

13. Annex VI: References ............................................................................... 171

14. Annex VII: Summary of survey results .......................................................... 177

15. Annex VIII: Workshop Participants ............................................................... 181


LSE v EPRC

Figures and tables

Figure 1: Evolution of GDP per capita in Nord-Pas-de-Calais 12

Figure 2: Evolution of unemployment in Nord-Pas-de-Calais (Eurostat) 13

Figure 3: Evolution of the density of motorways and railway networks in Nord-Pas-de-Calais 15

Figure 4: Evolution of the structure of employment in Nord-Pas-de-Calais between 1975 and

2007 26

Figure 5: Annualised actual expenditure (2000 prices 50

Figure 6: Expenditure by measure target/need and programme period (in million Euros, 2000

prices) 51

Figure 7: Allocations and expenditure by thematic axis across regional programmes 51

Figure 8: Expenditure in eight thematic priorities (in million Euros, 2000 prices) 66

Table 1: Structure of programmes between 1989 and 1991 29

Table 2: Summary of programme priorities between 1989 and 1993 30

Table 3: Structure and priorities of programmes between 1994 and 1999 32

Table 4: Summary of programmes priorities between 1994 and 1999 34

Table 5: Summary of programme objectives and priorities between 2000 and 2006 37

Table 6: Summary of programme objectives and priorities between 2007 and 2013 39

Table 7: Comparison of regional needs and programme responses 45

Table 8: Needs and imputed objectives for eight thematic axes 47

Table 9: ERDF and ESF allocations 1989-2013 (in million Euros, 2000 prices) 49

Table 10: 1989-1993 Programme - Main output indicators 58

Table 11: 1994-1999 Programme - Objective 1 - Main output indicators 60

Table 12: 1994-1999 Programme - Objective 2 - Main output indicators (Ex-post Evaluation 60

Table 13: 1997-1999 Programme - Objective 2 - Main output indicators

(Final Implementation Report) 61

Table 14: 2000-2006 Programme - Objective 1 - Main output indicators 63

Table 15: 2000-2006 Programme – Objective 2 - Main output indicators 63

Table 16: Objective 2 (2007-13) – PRESAGE monitoring system 65

Table 17: Priorities of operational programmes versus priorities of CPER 94

Table 18: Programme objectives and targets for Nord-Pas-de-Calais ERDF programmes 1989-2013 and reported achievements 99

Table 19: Achievements compared with imputed objectives for eight thematic axes 108

Table 20: achievements compared with needs for eight thematic axes 114


LSE vi EPRC

List of Abbreviations

AIR Annual Implementation Report

ANRU Agence Nationale pour la Rénovation Urbaine (National Agency for Urban

Regeneration)

ANVAR Agence Nationale de Valorisation de la Recherche (National Research Promotion Agency)

CAP Common Agricultural Policy

CIADT Comité Interministériel d’Aménagement et de Développement du Territoire (Interministerial Committee for Planning and Territorial Development)

CIFRE Convention Industrielle de Formation par la Recherche

CPER Contrats de Projet Etat-région (State-Region Planning Contracts). Contrat de Plan Etat-région before 2007

CNRS Centre National de la Recherche Scientifique (National Centre of Scientific

Research)

CRRP Centre Regional de Resources Pédagogiques et de développement de la qualité de la formation (Regional Centre for Educational Resources and the promotion of

quality of training)

CSF Community Support Framework

DATAR Délégation à l’Aménagement du Territoire et à l’Attractivité Régionale (Territorial

Development and Regional Attractiveness Delegation of the French Republic)

DGCIS Direction Générale de la Compétitivité, de l’Industrie et des Services (General

Directorate for Competitiveness, Industry and Services)

DREAL Direction Régionale de l’Environnement, de l’Aménagement et du Logement

(Regional Directorate for Environment, Planning and Housing)

DRRT Délégation Régionale à la Recherche et à la Technologie (Regional Delegation for Research and Technology)

EAFRD European Agricultural Fund for Rural Development

EAGGF European Agricultural Guidance and Guarantee Fund

EC European Commission

ECU European Currency Unit

ERDF European Regional Development Fund

ESF European Social Fund

EU European Union

FDI Foreign Direct Investment

GDP Gross Domestic Product

ICT Information and Communication Technology

INSEE Institut National de la Statistique et des Etudes Economiques (National Institute for

Statistics and Economic Studies)

PRCTE Programme Régional de Création et de Transmission d’Entreprises (Regional

Programme for Creation and Transfer of Businesses)

PRES Pôle de Recherche et d’Enseignement Supérieur (Research and Higher Education

Pole)

RTDI Research, Technological Development and Innovation

SMART Specific, Measurable, Achievable, Results-oriented and Time-bound criteria

SME Small and medium enterprise

SPD Single Programming Document


LSE vii EPRC

SRDE Schéma Régional de Développement Economique (Regional Economic Development

Scheme)

RIS Regional Innovation Strategy

ZUS Zone Urbaine Sensible (Sensitive Urban Area)


LSE viii EPRC


LSE 1 EPRC

EXECUTIVE SUMMARY

The regional development context

Nord-Pas-de-Calais is a European region which contributed substantially to the industrial revolution

and experienced strong industrial development until the middle of the 20th century. This

development was mainly based on mining, steel, metallurgy and the textile industry, and was

accompanied by dynamic demographic and urban growth.

This historical legacy generated a socioeconomic context characterised by the predominance of

large industrial firms, limited entrepreneurship and limited innovation practices in SMEs, and the

employment of a large part of human resources on specialised industrial jobs. Heavy industries also

had a strong impact on the natural and urban environment in a region that is a densely populated.

In the 1970s, the region was strongly hit by the economic crisis, resulting from the decline of

traditional industries. Hundreds of enterprises closed, generating extensive layoffs.

In this context, national, regional and local authorities had to provide solutions to immediate

socioeconomic problems in order to avoid a greater economic and social collapse. From a longer

term perspective, however, the transition process also necessitated support to new economic

sectors, development of human resources and promotion of better quality of life.

Development strategy and its implementation

Since the first programme period in 1989, Nord-Pas-de-Calais set up a regional development

strategy characterised by the desire to counter massive unemployment and improve the living

conditions of the population. Measures in favour of enterprises included support to industrial

activities, modernisation of productive assets, promotion of innovation and improvement of skills

and competences. Since 1989, the support to firms has been one of the main ERDF intervention

fields, whereas the ESF brought significant support in favour of training and social cohesion.

In the 1990s, traditional industries still represented an important stake in terms of employment.

Investments in infrastructures were also considered necessary to improve attractiveness, quality of

life and foster local and regional economic development (industrial and urban renewal,

communication infrastructures, promotion of tourism and culture).

At regional level, however, establishing clear and focused priorities proved challenging, given the

very diverse territorial needs and expectations (e.g. unemployment, social difficulties, lack of

services, low education level). Further, at times, contingent local needs, territorial competition to

access public funds and economic emergencies hampered the implementation of longer term

development measures. This was not the case in the French Hainaut, however, where the creation

of an Objective 1 area in 1994 contributed to focusing funds and initiatives on the territories

particularly concerned by the economic crisis.

If national authorities (the Ministries of Industry and Equipment) and domestic public policies

(State-Region Planning Contracts) still had a strong influence on the design of ERDF programmes in

the 1990s, this diminished with the devolution process, the reduction of State financial

contributions and the alignment of EU Cohesion policy to the priorities of Lisbon and Gothenburg

Agendas, in later periods. In the ERDF programmes, this determined a strategic and financial shift


LSE 2 EPRC

from the theme ‘enterprise’ to that on ‘structural adjustment’. As state authorities became

confronted by financial constraints, the ERDF programmes strengthened the influence of local and

regional bodies. They were also a means to accelerate the transition process, as they introduced

more targeted strategic objectives (e.g. in the fields of innovation and entrepreneurship), better

project design and more effective management and monitoring.

The effectiveness of ERDF spending

With regard to overall programme objectives, the achievements of ERDF funds in allowing the

region to accomplish the desired economic transition process were limited during the 1990s. The

transformation of the regional economic fabric was slow and traditional industries persisted, in the

context of a productive fabric characterised by large firms surrounded by numerous sub-

contractors. Over time, the share of industry decreased gradually and steadily in favour of tertiary

activities, but this was mainly due to a reduction of industrial activities and a strong increase in

public spending and public services.

Identifying the specific contribution of ERDF programmes is quite challenging, as many domestic

policies and schemes were implemented over the past twenty years to counter the economic crisis,

reduce unemployment and promote economic renewal. Nevertheless, in the field of employment, it

is estimated that ERDF programmes contributed to the creation of 10,000 direct jobs plus 30,000

indirect ones since 1989. With important ESF support, they also contributed to the training of more

than 200,000 people. This included hundreds of training sessions as well as large investments in

upgrading training facilities (colleges, high schools and universities). There was, however, no

adequate monitoring tool able to provide data which would allow evaluating the longer term

impact in terms of net job creation or the direct effects of training measures on the economy. The

objective of avoiding stronger economic decline by supporting traditional economic sectors

certainly saved businesses and jobs, but also delayed the implementation of more structural

economic change.

The ERDF programmes also delivered important achievements in relation to the reduction of the

impact of former industrial activities and the improvement of quality of life, through the treatment

of at least 8,000 hectares of brownfield sites (greening, restoration or regeneration) and over 600

urban renewal projects. ERDF interventions have also been effective in extending protected areas

and preserving the natural heritage, which constituted important programme objectives.

The ERDF programmes promoted activities that would not have been developed in a comparable

way without them. This is the case with the field of ‘culture’: this entailed several local initiatives

that progressively led to a new image and a new ‘brand’ for what is now known as ‘the region of

museums’.

Intra-regional disparities changed over time. A catch-up process could be observed between the

mining area and the rest of the region, which was one of the main objectives of ERDF funds with

the setting up Objective 1 status. However, despite successes in the field of transport and the

development of new economic sectors, the French Hainaut still remains more sensitive than the

rest of the region to economic downturns.


LSE 3 EPRC

In the social field, ERDF programmes have been especially effective in urban areas through a

combination of investment in housing and infrastructure, whereas the ESF supported more socially-

oriented projects targeting disadvantaged demographic groups (with themes including education,

culture, poverty reduction and health). However, despite the fact that the region has the fourth

highest GDP in France, GDP per capita was still one of the lowest in 2007 (€23,800 representing 80

percent of the French average). In 2010, the unemployment rate reached 13 percent and the region

had one of the highest rates of individuals claiming social support.

What learning has taken place?

One of the main questions regarding the implementation of EU funds in Nord-Pas-de-Calais is the

extent to which ERDF can influence overall regional socioeconomic development and or the

development of specific sub-regional territories. On the whole, EU financial support has been too

limited, when compared to regional GDP, to generate substantial achievements in term of GDP per

capita, employment or poverty rate (EU contribution represented less than 1 percent of the

regional GDP between 1989 and 2013).

In Nord-Pas-de-Calais, strategy formulation in the 1990s was characterised by ambitious objectives,

but also by difficult implementation conditions (lack of entrepreneurship culture, social difficulties)

and inadequate evaluation and monitoring systems. More positively, the flexibility of EU

programmes afforded local authorities the possibility to support projects that would have been

difficult to finance solely with domestic funds (for instance in the field of culture).

When local authorities were well coordinated and pursued relevant development priorities, this led

to successful projects with positive regional impact, such as an improvement of socioeconomic

conditions in the Objective 1 area, successful development projects in the area of Lille (e.g. Zone

de l’Union, Eura Technologie), achievements in the environment and tourism fields in the coastal

areas, and others.

However, monitoring and control requirements of ERDF programmes still represent specific

difficulties for public authorities and project managers, especially for private bodies and economic

operators that need clear, simple and stable administrative rules. With increasing expectations

regarding the achievements and performance of EU programmes, more capillary and focussed

technical assistance and more qualitative monitoring would probably be needed to reach

programme objectives.

Conversely, increasing EU requirements for the monitoring of projects also triggered a ‘learning

process’ and incited stakeholders (public authorities, intermediary bodies, etc.) to improve their

management skills (e.g. with regard to project engineering, management, partnership engagement,

evaluation, monitoring and control capacities).

From a strategic point of view, one can observe a rising influence of Cohesion policy in the

definition of the regional development strategy. In a difficult socioeconomic context, ERDF

programmes helped identify and streamline common regional priorities. This is perceptible since

2000, with the implementation of the Lisbon strategy, and has become more pronounced since

2007, with the earmarking of funds on employment, innovation and competitiveness.


LSE 4 EPRC

If this evolution is considered as rather positive by stakeholders, as a means to foster the

socioeconomic transition of the region, it also resulted in the decrease of overall public financing

for other intervention fields, like culture or tourism, that present important development potential

at local level.


LSE 5 EPRC

1. INTRODUCTION

The region and its Cohesion policy eligibility over time

Nord-Pas-de-Calais is a paradoxical region. It is the fourth French region in terms of population and

GDP (4 million people and €97 billion GDP in 2009) and is well connected to other European regions

and metropolises. However, it still suffers the consequences of its past industrial history, with net

outmigration, a high unemployment rate and enduring social difficulties.

Since 1986, the region has been strongly supported by EU funds. It is one of the French regions that

has received the highest level of Structural Funds (at least €3.5 billion ERDF and ESF funds in

current prices). A specificity of this region is that it benefited from Objective 1 funds for three

employment areas between 1994 and 2006 (Douai, Valenciennes and Avesnes), which significantly

increased EU support during this period. Until 2006, a large majority of the region was covered by

Objective 2 programmes (65 percent of the population), but the employment areas of Montreuil,

Saint Omer, Arras and part of Hazebrouck were not eligible on account of their better

socioeconomic conditions at that time.

Since 2007, the programme has been simplified, with one single programme applied to the overall

area, which has improved strategy setting and project implementation.

Brief summary of the work carried out

This study is based on the following main sources of information: programme documentation

(programme documents, annual and final implementation reports, and evaluations), literature and

research studies other than programme evaluations, interviews, and an online survey.

Limited information on programme documentation was available for the first programme periods

(1989-1993 and 1994-1999), particularly for the Objective 2 programmes. After 2000, the general

use in France of the PRESAGE electronic system for the monitoring of funds facilitated access to

detailed Excel databases. As a result, evaluation documents from this period are more detailed and

better structured (notwithstanding gaps and the use of inconsistent definitions).

Four categories of interviewee were identified: strategic interviewees (directly in charge of the

management of funds); operational interviewees (in charge of implementation); external

interviewees (authorities, structural funds specialists); and beneficiaries. This last category

includes four specific case studies for which targeted interviews have been carried out (Delta 3

multimodal platform, environmental and touristic project Site des Deux Caps, Musée piscine of

Roubaix, and renewal and development of the former mining area of Oignies). In total, 38 persons

were interviewed. The full list of interviewees is provided in Annex IV.

The online survey was undertaken to complement fieldwork and desk research, and enhance

triangulation. This questionnaire was directed at 339 email addresses, comprising the interviewees,

plus representatives from local authorities, firms, regional and local socio-economic partners and

interest groups. The questionnaire returned an overall response rate of 21.8 percent and a

completion rate of 14.5 percent. The questions and a summary of responses are presented in Annex

VII.


LSE 6 EPRC

Structure of the remaining parts of the report

The report is structured in five main parts.

After this introduction, Chapter 2 describes the evolution of the regional socio-economic context

over the four programme periods, highlighting the weight of industrial activities and the challenges

of the transition process.

Chapter 3 aims to analyse explicit and implicit programmes content and strategies, to identify

implementation factors influencing these strategies and assess the overall ‘relevance’ of such

strategies as compared to regional needs.

With the support of statistical work, the report then provides an analysis of ERDF funding

implemented since 1989 (Chapter 4), highlighting the general evolution of funding and the trends

that can be observed between thematic priorities.

Chapter 5 details the concrete achievements of the programme taking into account contributions in

eight thematic axes chosen for the 15 case studies: enterprise development; structural adjustment;

innovation; environmental sustainability; labour market; social cohesion; regional infrastructural

endowment; and spatial distribution of economic activities.

Chapter 6 focuses on two main issues. It compares programme achievements to the objectives set

out in the programme documents, in order to assess effectiveness. It then takes into account

regional needs as assessed by the regional case study teams, with the aim of testing the ‘utility’ of

programmes, i.e. their capacity to contribute to the overall social, economic and environmental

development needs of the region.

To conclude, Chapter 7 provides conclusions and answers to the evaluation questions.


LSE 7 EPRC

2. REGIONAL CONTEXT AND ANALYSIS OF NEEDS

In the 19th century and at the beginning of the 20th century – during the industrial revolution and

the development of mining, steel and textile industries - Nord-Pas-de-Calais was one of the most

prosperous French regions. It had strong economic activity, a dynamic demography, and occupied a

strategic position between some of the most important cities in Europe (London, Paris, Brussels,

and Rotterdam).

With four million inhabitants in 2009, the region is ranked fourth in France (accounting for 6.6

percent of the French population). It is also one of the more densely populated, with more than

320 inhabitants per km2, a figure closer to that of Belgium or the Netherlands than to the French

average (112 inhabitants per km²). In 2007, up to 95 percent of inhabitants were living in

‘predominantly urban areas’ compared to a national average of 82 percent.

Today, Nord-Pas-de-Calais is an important economic actor in France, with the fourth highest level

of GDP after Ile–de-France, Rhône-Alpes, and Provence-Alpes-Côte d’Azur.1 However, due to its

demography and high unemployment rate, regional GDP per capita remains below the national

average (€23,800 per capita in 2007, representing 79 percent of the French average).

In Nord-Pas-de-Calais, socioeconomic development has been the subject of constant discussion over

the past 20 years due to the need to support existing activities, jobs and social cohesion

(exacerbated by recent economic difficulties) and the necessity to better with a fast-changing

environment. This duality can be easily observed between 1989 and 2010. The first of these two

decades was still strongly influenced by industrial activities, whereas the second one was more

open to socioeconomic changes.

Economic performance

The beginning of the 1980s saw stagnation in Nord-Pas-de-Calais’s GDP per capita, following the

transition process started in the 1970s. From the mid-1980s until 2010, GDP per capita increased,

but less dynamically than national or EU averages. This belies the challenge inherent in enabling a

sound convergence process in an economy strongly influenced by traditional industry, a pyramidal

economic fabric dominated by large businesses, and a limited culture of innovation and

entrepreneurship.

1 In 2009, the regional GDP of Nord-Pas-de-Calais reached €97 billion.


LSE 8 EPRC

Figure 1: Evolution of GDP per capita in Nord-Pas-de-Calais

Source: Eurostat, 2009.

In this context, one of the main concerns during the 1980s and 1990s was the avoidance of a full

collapse of the regional economy. Another imperative was to stabilise the gap between national

and EU indicators. Support to traditional industries and increasing public spending for infrastructure

and services helped to support the economy, but further structural changes were also needed in

order to increase national and international competition in the long term. Changes started to occur

in a more significant way at the end of the 1990s, and were further enforced during the 2000s with

a better focus on the knowledge economy, innovation and a stronger articulation between

territorial development stakeholders (local and regional, public and private).

Labour market

As a direct consequence of the closure of mining industries, Nord-Pas-de-Calais lost around 45

percent of its industrial jobs between 1975 and 1995. From 1962 to 1999, taking into account other

industrial sectors such as steel and textiles, the region lost about 325,000 jobs.

Even though the major loss of employment occurred in textiles (80 percent) and steel and coal

industries (50 percent), almost all industrial activities were affected. This was only partially

compensated for by new jobs in the service sector (Veltz, 2004). At regional level, the

unemployment rate reached 19 percent by the end of the 1980s with a particularly high rate for

young people (25 percent). It started to decrease from 1996 onwards, until the economic crisis of

2008 with a level of 13 percent in 2010 (9.6 percent at national level).

Over the long term, an increasing gap can be observed between regional and national indicators

(see Figure 2 for the evolution of unemployment between 1980 and 1996). The decrease in

unemployment was stronger in Nord-Pas-de-Calais, indicating a rapid catching up process.

However, the recent economic crisis shows that the region is still fragile, given the external

economic turmoil, and that efforts must be pursued to strengthen its endogenous development

potential.


LSE 9 EPRC

Figure 2: Evolution of unemployment in Nord-Pas-de-Calais (Eurostat)


During the 1990s, public authorities played a strong stabilisation role with an important increase in

public-sector jobs. During this decade, when employment decreased by 24 percent in the private

sector, it increased by 37 percent in the public sector (Veltz, 2004). The fact that unemployment

continued to increase despite public support during this period shows the magnitude of the

economic recession and the necessity of sound economic restructuring.

Given the high unemployment rates, the capacity of human resources to adapt to modernisation

and transition processes was a major concern. In Nord-Pas-de-Calais, traditional industries did not

require a high level of training and skills. For decades, this situation had a strong influence on the

training system and on the preference for short studies. At the beginning of the 1990s, the Nord-

Pas-de-Calais region had one of the lowest schooling rates in France. Training facilities and

programmes had to be adapted to develop new competences, train thousands of jobless people,

and promote long-term initial training for a growing young population (people under 20 represented

27.8 percent of the regional population in 2008, compared to 25.1 percent at national level).

Despite significant improvement of training facilities and qualification in the region, there is still a

higher rate of young people going through vocational courses and apprenticeship in Nord-Pas-de-

Calais than at national level (40 percent against 32 percent at high school level). In parallel, with

more than 150 000 students, this region is now sixth in France in terms of the number of students

per 1,000 inhabitants (23.74 in 2009). However, young people still have difficulty finding jobs and

often have to migrate to other French regions to be recruited.

Infrastructure

In Nord-Pas-de-Calais, industrial activities and proximity to densely populated areas in Southern

England, Belgium, the Netherlands and Germany have fostered strong infrastructure development

since the 19th century.2 Nord-Pas-de-Calais is one of Europe’s main regions for the transport of

2 Around 100 million people live in an area of 300 km around the Nord-Pas-de-Calais region.


LSE 10 EPRC

goods, given its strategic position between North-West European regions, the major ports of the

north of Europe, and the Paris region.

However, in the mid-1970s, when the first consequences of the economic crisis had already become

tangible, public infrastructure in Nord-Pas-de-Calais lagged behind that of other French regions.3 In

this context, infrastructure constituted both a need (through the necessity to achieve higher

standards) and a means (to boost activities to counteract the economic crisis and limited private

investment).

For decades, infrastructure has been developed according to the requirements of large industries

with a focus on the transportation of goods and raw materials. At the local level, urban and inter-

urban mobility was not well developed. Under the ‘paternalist’ management system, the strategy

was not to promote mobility but to maintain labour forces in specific geographical areas in which

the means to support them were available (housing, education, health services, leisure, etc.).

At the national and regional levels, the 1970s also marked the beginning of large investment

dedicated to highway development in France. The first highway was built between Paris and Lille in

the 1960s (Autoroute A1 or Autoroute du Nord) and is now one of the busiest in France. In 1985,

the density of the highway network in Nord-Pas-de-Calais was four times higher than the national

average. In 2010, 627 km of highways were built in the region, compared to an average of 514 km

in other French regions.

Map 1: Transport and logistics infrastructure in Nord-Pas-de-Calais in 2010

627 km of highways

1,552 km of railways

145 km of coastal lines

3 large maritime ports

576 km of freight waterways

20 river ports with traffic exceeding 100,000 tonnes

1 international airport

Source: CRCI, 2010.

The density of the railway network in Nord-Pas-de-Calais was double the French average in 1985,

and two-and-a-half times higher in 2010. The main change has related to the increase in electric

lines and a parallel reduction in non-electric ones. Overall, railway density remained stable

between 1985 and 2010 in the region, whereas it dropped by 15 percent in France in the same

period (see Figure 3).

3 In 1975, public infrastructure in Nord-Pas-de-Calais constituted 6.5 percent of French total. The region accounted for for 7.5 percent of the total population (Veltz, 2004).


LSE 11 EPRC

However, despite 1,552 km of railways, railway transport remains underused, only accounting for

11 percent of the transport of goods in 2012 (compared to the national average of 14 percent)

(CRCI, 2010). Taking into account the ongoing development of road infrastructure and persistent

congestion problems in the vicinity of the main urban areas, the promotion of intermodality and

alternative transport systems constituted an increasingly important issue for local and regional

authorities during the 2000s.

Figure 3: Evolution of the density of motorways and railway networks in Nord-Pas-de-Calais


Another characteristic of the region is its 680 km of waterways, including 576 km capable of use for

commercial purposes. This places the region first in France in terms of the density of its

waterways. Nevertheless, in 2012, waterways only accounted for three percent of the total

transportation of goods in the region. This is comparable to the national average, despite Nord-

Pas-de-Calais’s better infrastructural endowment in this field. This rate is especially low compared

to the use of waterways in other countries of North-West Europe (43 percent in the Netherlands, 12

percent in Belgium, and 15 percent in Germany). The opening of the wide-gauge ‘Canal Seine Nord

Europe’ has the potential to create direct connections between Paris and the North of Europe but

recent government decisions postponed this project.

The port of Dunkirk occupies fourth place in France and its activities represent 7.5 percent of

regional GDP. The port of Calais specialises in Channel transport for passengers and goods and ranks

first in France for passenger numbers). However, the performances of both Dunkirk and Calais have

tended to stagnate or decrease in recent years, whereas maritime traffic has increased in ports in

Belgium and the Netherlands.

In terms of infrastructure, the port of Boulogne is strongly focused on fishery activities (it is the

leading French fishing port). Boulogne has been the European leader for years in the field of

transformation of sea products - this led to the establishment of the Aquimer competitiveness pole

in 2005.

Economic activity depends upon factors additional to transport infrastructure, including available

land, premises and logistics systems. As such, one of the main challenges for Nord-Pas-de-Calais


LSE 12 EPRC

was to convert its considerable stock of infrastructure dedicated to former industries, into new

facilities and a new working environment more appropriate for higher value-added, knowledge-

based and/or service-oriented activities.

Since the 1980s, and with regard to business premises and industrial space, local and regional

actors have pursued a process of brownfield renewal and the upgrading of facilities aimed at

attracting enterprise. This led to an increase in investment, moderated by the challenge of

maintaining an overall coherence and balance between different sub-regional areas with different

territorial assets (accessibility, services, logistics, etc.) and which were often competing to

promote their own local development projects.

The upgrading of business infrastructure also required new means of information management and

communication. Increasing economic and social needs related to the knowledge economy also

incentivised information and communication technology development. Since the early 2000s, this

has led to stronger involvement from public authorities and private bodies in this field. In 2006, 96

percent of enterprises with more than 10 employees were connected to the internet. There is a

high level of access to ADSL in Nord-Pas-de-Calais, but it is estimated that the development of

optic fibres will require €500 million of investment up until 2025.

Spatial distribution of economic activities

The economic geography of Nord-Pas-de-Calais is structured around various territorial levels, with

two sub-regional local authorities (the Départements) and 15 employment areas.

The presence of only two Départements creates a duality in the region that has often been

problematic for the decision making process, necessitating trade-offs in decisions governing the

location of territorial development projects. One key geographical aspect is the presence of Lille in

the ‘Nord’ that has played a strong attractive role in the region over the past 20 years. In 2012,

Lille is the second city in France behind Paris in terms of the number of international headquarters

located there.

In 2007, 1.16 million inhabitants lived in the urban area of Lille (almost 30 percent of the regional

population), which was twice the population of the second urban area (Douai-Lens), which had

546,300 inhabitants. Other urban areas such as Valenciennes, Béthune or Dunkirk had fewer than

300,000 inhabitants.

With regard to the spatial distribution of economic activities, Nord-Pas-de-Calais is primarily

characterised by the consequences of the industrial transition process in the former mining area.

There are declining activities in Valenciennes, Douai, Lens and Béthune. The economic crisis also

affected the other main urban areas in which specific industries were concentrated, such as

Roubaix-Tourcoing and Cambresis (textiles) or Dunkirk and Avesnois (steel).

In the employment area of Béthune-Bruay, where the transition process started sooner than in the

rest of Nord-Pas-de-Calais (due to a steep decline in the mining and steel industries in the 1970s),

the economic situation became less critical than in other areas in the 1980s. with a better

diversification of activities (agri-business, food sector, capital goods for car industry). Béthune-

Bruay saw improved industrial performance and better development of the tertiary sector.


LSE 13 EPRC

Map 2: Main cities and employment areas of Nord-Pas-de-Calais

Source: Author’s elaboration.

In the coastal area, Boulogne and Calais benefited from stronger development in tertiary and

tourism activities, with the presence of ports, tourism facilities, attractive natural areas and

proximity with England. Boulogne also developed activities in the transport and wholesale trade

sectors, with a higher concentration of SMEs than the rest of the region.

In each of these areas, the 1990s were characterised by a steep decline in traditional industries and

the deterioration of territorial assets (specifically, the environment and living conditions) which

strongly reduced their capacity to attract new population and businesses. Their main challenge was

to be able to diversify their economies or generate new opportunities by transforming traditional

industries. For example, this occurred in Valenciennes with the transport sector and the knowledge

economy during the 1990s and the 2000s.

Since the end of the 1990s, different patterns and different types of needs concerning

attractiveness and economic activity have been observable at sub-regional level. According to a

recent study (INSEE Nord-Pas-de-Calais, 2012a), the majority of employment areas show only

limited productive and residential attractiveness (see Maps 3 and 4). Within Nord-Pas-de-Calais,

only the Lille area can be considered as strongly attractive to workers and businesses. Since the

1990s, an increase in residential attractiveness has taken place in Flandre-Lys and Berck-Montreuil,

two areas with more diverse economies. Although the situation was also favourable in Saint-Omer

in the 1990s, it deteriorated during the 2000s as a primary result of increasing economic difficulties

related to the glass industry.


LSE 14 EPRC

Map 3: Demographic and business attractiveness of employment areas (end of 1990s)

Source: INSEE Nord-Pas-de-Calais, 2012a.

Map 4: Demographic and business attractiveness of employment areas (end of 2000s

This situation illustrates important sub-regional disparities, and the difficulties in creating new

economic development opportunities in former industrial areas such as Douai, Lens or Béthune.

Conversely, Valenciennes’ experience with the transport industry demonstrates an interesting

perspective, in that territories managed to enhance existing assets with economic, institutional and

political support.

Apart from the (difficult) conversion of former industrial areas, it should also be pointed out that,

in the last few years, there has been an increase in the attractiveness of less urbanised areas such

as Berck-Montreuil and Artois-Ternois, which have favourable environments for tourism, leisure

activities or retired people. This demonstrates the increasing importance of non-manufacturing

activities in territorial economies, and the need for territorial assets to include environment,

services, culture and non-technological innovation (Davezies, 2008).

In a different manner, the case of Lille highlights the necessity of further improving metropolitan

services which contribute to development and represent attractiveness for actors located within

and outside the region. Despite its increasing role, Lille remains a ‘regional’ metropolis that still

has difficulties in competing with other large European cities. To do so, it would be necessary to

establish Lille as a centre for top metropolitan jobs4 that are still more developed in other French

4 Top metropolitan jobs contributed one-third of job growth in France since the 1990s.


LSE 15 EPRC

cities such as Lyon, Toulouse, Montpellier and Grenoble. Developing complementarities with Paris

or Brussels could also be further investigated (i.e. moving beyond territorial competition).

Environment

In Nord-Pas-de-Calais, the protection of the environment was identified in the early 1970s as an

essential condition for economic development. The first regional park in France was designated in

Nord-Pas-de-Calais in 1968 (Parc naturel regional Scarpe-Escaut). Two others were designated more

recently; the Avesnois regional park in 1998, and the Caps et Marais d’Opale in 2000. These three

parks cover 25 percent of the regional territory, which is one of the highest proportions in France.

Besides natural areas, one central issue for local and regional authorities in the context of

industrial transition has been the land management of increasing brownfield sites, derelict urban

areas and a high level of pollution. The environmental and geographical impact of former mining

industries is especially strong, given that the mining area in the middle of the region covered 2,000

km² in area, and was 100 km in width.

Environmental problems were exacerbated by the relatively dense urban environment and the

considerable overlap between residential and industrial areas. Besides mining industries, metal

working and textiles were strongly integrated within urban areas, and had a major impact on cities

and urban planning (in Lille, Roubaix, Tourcoing, and Dunkirk). Half of the brownfield sites were

located in suburbs close to natural areas and had a very negative effect on the environment.

Since the 1980s, a key issue has been the treatment of 300 mining spoil heaps, which have

constituted one of the most visible remnants of the former industrial activities. Public authorities

intervened to support greening activities, environmental protection measures and the

implementation of new economic and leisure activities.

In 2010, the Nord-Pas-de-Calais region still accounted for half of the nation’s industrial brownfield

sites. In 2006, 1,500 sites required specific agreements (Installations classées), including 81

‘Seveso’ sites presenting high-level industrial risks. In the region overall, mining subsidence

resulted in around 6,000 hectares of depressions requiring pumping and drainage (DREAL, 2012).

In this specific context, a public body was been set up (Etablissement Public Foncier, EPF) tasked

with supporting municipalities in their land management strategies, assisting in cleaning processes

and promoting local development activities. Since the 1990s, the EPF has planted over 10 million

trees on thousands of rehabilitated brownfield sites. These interventions have also contributed to

realising the regional framework of green and blue corridors.

In Nord-Pas-de-Calais, these environmental improvements represent a significant factor in the drive

to attract people and economic activity. This has been a major concern over the past 30 years and

represents specific challenges in a highly urbanised region. The need for environmental

improvement and enhancement is highlighted by the recent development of the Site des Deux Caps

natural area, which constitutes a regional landmark for tourism activities.


LSE 16 EPRC

Social cohesion

The Nord-Pas-de-Calais region differs from other French regions because of its industrial profile, its

demography and the consequences of successive economic shocks.

In 1989, economic and social indicators were well below national and EU averages. Unemployment

was 19 percent, wages were about 80 percent of the national average, and GDP per capita was only

80.3 percent of the EU average. During the 1990s, unemployment constituted one of the main

preoccupations for regional authorities, with ongoing layoffs in industry that had direct

consequences on levels of poverty, social cohesion and health for families facing long-term

unemployment.

At the national level, one of the main tools used to support Nord-Pas-de-Calais has been the social

transfer system. It directed high levels of public funding to the unemployed, to combat poverty,

protect fragile populations and to develop social housing. It also required stronger involvement

from local and regional authorities in social issues, for which ESF programmes constituted an

important support.

In addition to a depressed economic situation, the regional population was confronted with

insufficient public services and a degraded natural and urban environment. At the start of the

1990s, there were considerable needs in the fields of housing and urban planning for populations

living (and often isolated) in a large number of small towns. Spatial planning and urban

development strategies had to encompass around 560 mining boroughs (cités minières) spread

throughout 138 municipalities. This pattern of urbanisation was not favourable for economic and

territorial development, and it generated pockets of poverty and social exclusion.

Addressing these development challenges required important urban renewal projects running

parallel to the strengthening of local social services. In 2007, there were 74 ‘sensitive urban areas’

(Zones urbaines sensible, ZUS)5 in the region, this being the second highest regional concentration

of problem suburbs after Ile-de-France (IRS, 2007). Since 2003, the ‘National Agency for Urban

Regeneration’ (Agence Nationale pour la Rénovation Urbaine, ANRU) has supported regeneration

projects in the most derelict urban areas. Economic, social and environmental difficulties were

major reasons for out-migration, with most employment areas experiencing out-migration between

1989 and 2010. The migratory deficit was -0.40 percent between 1990 and 1999, and 71,000 people

left Nord-Pas-de-Calais between 1999 and 2004.

This was partly compensated for by natural growth, which was (and is still) one of the highest rates

in France (a birth rate of 13.7 percent in 2005, compared to 12.6 percent at national level). Since

the 1980s, Nord-Pas-de-Calais has been one of the most dynamic for natural population increase. In

any case, sub-regional differences have always been strong between attractive areas such as Lille

or Arras, and less dynamic ones such as Avesnes-sur-Helpe, Dunkirk or Lens. The latter lost

population between 1999 and 2007 (INSEE Nord-Pas-de-Calais, 2010).

5A ZUS is characterised by degraded living conditions due to geographic, economic or social factors. It

generally features disequilibrium between housing and employment. It is an ‘infra-urban’ territory defined by the public administration as eligible for interventions within the framework of urban policy.


LSE 17 EPRC

These territorial disparities can be confirmed by the Human Development Index elaborated for

infra-regional areas in Nord-Pas-de-Calais (Conseil Régional, 2009b). Three areas have especially

weak indicators: the former mining area, the South East of the region (more rural), and the

Boulogne area (facing a difficult transition process). Conversely, the Lille and Arras area have

human development indicators well above the regional average (see Map 5).

Map 5: Human Development Index in Nord-Pas-de-Calais (IDH2)

Source: Conseil Régional, 2009b.

This situation illustrates the difficulties inherent in generating sound socioeconomic improvement

in areas confronted with structural problems. It also demonstrates the need to coordinate existing

intervention tools, and to improve synergies between governance levels.

During the 2000s, despite a strong reduction in unemployment between 1997 and 2008 (from 19

percent to 13 percent) and despite important public investment in local development projects,

social indicators in Nord-Pas-de-Calais still lagged behind national averages. In 2010 regional GDP

per capita, at €20,270, was still 10 percent lower than the national average (ranking Nord-Pas-de-

Calais 20th among 26 French regions). The structure of households contributed to maintaining this

situation, because of the fragmentation of families, an increase in single-parent households, and

greater numbers of retirees.

In 2010, a national comparative study showed that Nord-Pas-de-Calais was amongst the French

regions with the lowest social health indicator (see Map 6).6 These indicators were especially

negative regarding health (life expectancy), poverty and indebtedness. In 2004, life expectancy in

the region was the lowest in France at 77.7 years (compared to 80 years at national level).

However, with significant support provided by public authorities during the 1990s, the situation

improved in the field of education. Today, the economic and social situation of young people

6 The social health indicator calculation takes into account incomes (inequality, indebtedness, poverty, and salaries), employment, education, health, housing and social integration.


LSE 18 EPRC

remains a major concern, especially with regard to social exclusion and unemployment (Nord-Pas-

de-Calais had a youth unemployment rate of 19.5 percent in 2010). This is accentuated by

demographic trends; 28.2 percent of the population of Nord-Pas-de-Calais is under 20 years old.

This is the highest equivalent percentage of all French regions, and is 4.5 percent higher than the

national average.

Map 6: Regional disparities according to the social health indicator in 2004

Source: Conseil Régional Nord-Pas-de-Calais, 2010c.

The situation also improved with regard to overall quality of life, basic social infrastructure and

urban renewal. In 1992, 16 percent of low income households were living in housing lacking internal

sanitation or WCs. This rate fell to four percent in 2006, which can be linked to the increase in

social housing - which is especially prevalent in Nord-Pas-de-Calais (in 2006 there were 78 social

housing places for every 1,000 inhabitants in the region, compared to the French average of 69)

(INSEE Nord-Pas-de-Calais, 2006).

Enterprise

For a long time, the business environment in Nord-Pas-de-Calais was strongly influenced by the

domination of large industrial enterprises and numerous specialised sub-contractors, which

constituted the core of the regional economy.

During the 1990s and in parallel with the transition process, this profile had a dual effect on

regional socioeconomic development. The closure of large enterprises had direct and immediate


LSE 19 EPRC

consequences for the subcontractors who had constituted their supply chains, and whose

production was usually dependent upon a limited number of contracting companies. Due to this

hierarchical system, small and medium-sized enterprises were not accustomed to seeking out other

clients, or to developing new products, which in turn reduced their innovative and adaptive

capacities.

However, the situation differed between sectors. For example, the textiles industry maintained an

entrepreneurial culture that enabled transformative and innovative strategies. This sector was

heavily impacted by the economic crisis and international competition, but it has been able to

improve its competitiveness through new products with greater added value.

Conversely, coal and steel industries turned to administrative activity such as management

systems, locating decision making and innovation centres outside of the region. This strategy has

been a major handicap to their transition process.

During the 1990s, business creation rates were quite low, in an economic environment which was

not favourable to entrepreneurship. The weight of large businesses was an obstacle to promoting

entrepreneurship and a more diversified economy, but it was also part of a mass employment

approach, aimed at providing as many jobs as possible to a large number of industrial workers. In

the region as a whole, there were major difficulties in enacting structural economic adjustment, as

generations of entrepreneurs and workers had only experienced traditional industrial activities.

In early 2006, Nord-Pas-de-Calais had 130,000 businesses for a population of 4,019,000. This was

one of the lowest rates per 1,000 inhabitants in France (32.3, against 48.4 at national level). This

structure was also characteristic of other regions in the North and East of France (Picardie and

Lorraine), in which large businesses are predominant in the economic landscape.

In the Nord-Pas-de-Calais region, the number of businesses in relation to the population is

especially low in the employment areas of Valenciennes, Douai, Sambre-Avesnois, Béthune-Bruay

and Lens-Hénin, which shows a correlation with the former mining areas. Conversely, the

concentration of businesses in 2006 was much higher in the Lille and Berck-Montreuil areas.

However, since 2003, there has been a significant increase in business creation in this region, with

especially positive trends in sectors such as real estate, trade (retail businesses) and consultancy.

From a geographical point of view, this tendency has been stronger in the Lille and Roubaix-

Tourcoing areas. It is also positive in industrial areas such as Valenciennes, Lens-Hénin, Calais and

Douai, which have a higher rate of business creation than the national average (INSEE Nord-Pas-de-

Calais, 2009a).

This evolution is related to specific factors such as the high unemployment rate that encouraged

people to create their own start ups, aided by recent laws in favour of entrepreneurship: the ‘law

for economic initiative’ (loi pour l’initative économique - loi Dutreil in 2003), the ‘law for SMEs’

(loi en faveur des PME - 2 August 2005), the ‘law for the development of services for individuals’

(loi relative au développement des services à la personne - 26 July 2005), and the ‘law for the

modernisation of the economy’ (Loi de modernisation de l’économie - 4 August 2008). Collectively,

these laws created the status of ‘auto-entrepreneur’ and greatly simplified the administrative

process required to set up a business.


LSE 20 EPRC

At the regional level, this has also been supported by the establishment of the ‘Regional Plan for

Creation and Transfer of Businesses’ (Programme Régional de Création et Transmission

d’Entreprises, PRCTE) that coordinates activities supporting business creation.

Nevertheless, SMEs (and, in particular, self-employed people) remain vulnerable, given the

economic difficulties. They require further support that could be also fostered with the

development of an innovation culture and the promotion of new economic sectors.

Innovation

As mentioned above, the business environment in Nord-Pas-de-Calais was not initially favourable to

entrepreneurship and innovation, with large firms and dependent subcontractors.

During the 1990s, the economic crisis and the transition process incentivised firms to improve their

competitiveness, refine their processes and adapt their production methods. There was a need for

stronger innovation and research activity in both the private and the public sectors. On the public

sector side, ‘research’ has the potential to contribute to the overall catch up process, in a period in

which public spending and public services lagged behind in the Nord-Pas-de-Calais region.

Largely through public sector efforts, the R&D workforce increased by 50 percent between 1990

and 1999 (compared to +30 percent at the national level). However, despite high levels of public

funding, investment levels in research did not significantly increase in relation to regional GDP. In

addition, in parallel with the greater attention paid to public research, the share of investment in

private research declined.

In 2005, investment in research activity in Nord-Pas-de-Calais was €555 million. This only

represented 0.7 percent of regional GDP. By comparison, €4 billion was allocated for research in

Rhône-Alpes, and €2 billion in Midi-Pyrénées and Provence-Alpes-Côte d’Azur (INSEE Nord-Pas-de-

Calais, 2005). As per the previous decade, the focus on public sector research remained significant,

with an increase of 10 percent in human resources between 1999 and 2005 (when it stabilised in the

private sector).

This situation highlights the problems resulting from insufficient investment in private research,

and the difficulties encountered in initiating new processes with private actors, who have not

always considered research to be a key strategic issue, or have not had sufficient human resources

to promote internal research activities. In 2010, the share of engineers in SMEs in Nord-Pas-de-

Calais remained lower than the national average, and only a small proportion of SMEs in the region

possessed human resources specifically dedicated to innovation.

In the public sector, universities in Nord-Pas-de-Calais were important contributors to research and

innovation, but only limited investment was dedicated to other bodies such as the ‘Scientific and

Technologic Public Body’ (Etablissement Public à Caractère Scientifique et technologique, EPST)

and the ‘Public Body with Industrial and Commercial Vocation’ (Etablissement Public à Caractère

Industriel et Commercial, EPIC), which are essential for developing fundamental and applied

research and promoting innovation to the private sector. In 2002, regional universities represented

71 percent of R&D public spending, compared with only 35 percent at the national level (INSEE

Nord-Pas-de-Calais, 2005).


LSE 21 EPRC

Accordingly, high expectations were placed on the capacity and excellence of competitiveness

poles to trigger research activities in the main regional economic sectors.

In Nord-Pas-de-Calais, the promotion of innovation has been a crucial issue in a period of high

economic risk, following the 2008 economic crisis and in the context of increasing international

competition. In addition to the competitiveness poles, the region set up a ‘Regional Innovation

Strategy’ (Stratégie Régionale de l’Innovation, SRI) in 2010 with the support of the EU Commission.

It also launched a series of initiatives in favour of innovation and entrepreneurship, through the

‘Platform for Innovation and Enhancement of Research’ (Plateforme innovation-valorisation de la

recherche) and the ‘2000 SMEs Scheme’ (Plan 2000 PME) dedicated to the promotion of innovation

in SMEs.

Structural adjustment

In Nord-Pas-de-Calais, structural adjustment began after the Second World War, with the

nationalisation of the coal industry. The steel industry was restructured in 1948 with the

establishment of Usinor. A large-scale modernisation process was launched at that time, with the

first highway between Lille and Paris in 1954, the development of the steel industry in Dunkirk, and

the development of the Renault industry in Douai in 1972.

The economic crises in 1973 and 1979 accelerated the transformation process. The last blast

furnace was closed in 1978 in the Valenciennes area, the last steel plant was closed in 1984 in

Denain, and the last mining pit was closed in 1990 in Oignies. Whereas these industries represented

42 percent of regional GDP in 1975, they fell to 27 percent in the mid-1990s and further decreased

to 18 percent in 2008 (compared to the 14 percent national average).7 These changes, however,

progressed slowly. Traditional industries still accounted for a large share of regional employment in

the 1990s (in, for example, metallurgy, chemicals, textiles, and the automotive industry).

‘Substitution’ industries such as the car industry also presented interesting opportunities for the

reclassification of workers. In this sector, support was provided by public authorities until recently.

In 2004, Nord-Pas-de-Calais ranked as the second French region, and the third in Europe, for the

automotive sector, with seven car manufacturers and a labour force of around 55,000 people.

This demonstrates that structural adjustment is not a one-way process. For Nord-Pas-de-Calais, a

major issue during the last 20 years has been the transformation of its industrial profile whilst also

taking into account short-term economic consequences (unemployment) and existing socioeconomic

assets (its industrial and working-class regional profile).

In line with the arguments of some economists (Veltz, 2004), rather than moving towards a ‘post-

industrial’ economy, Nord-Pas-de-Calais developed an ‘industrial and service economy’ promoting

new sectors such as information technology and health, and also maintaining activities connected

to more traditional sectors such as transport, food and textiles.

7 CCI - Chambre de Commerce et d’Industrie Région Nord de France (2012a), Livre Blanc sur l’Industrie du Nord-Pas-de-Calais, Lille.


LSE 22 EPRC

In this context, the continuous increase (since 1975) in the service sector’s share of regional

employment must be highlighted (see Figure 4). This trend has been due to the externalisation of

services that were formally managed by industrial firms, as well as to a significant increase in

public services. The latter represented 16.6 percent of regional employment in 1975 and 33.3

percent in 2007. Although the evolution of this sector is not exclusive to this region, the extent of

its transformation is exceptional in comparison with other French regions.

Figure 4: Evolution of the structure of employment in Nord-Pas-de-Calais between 1975 and 2007

Source: INSEE Nord-Pas-de-Calais, 2011.

This trend illustrates the necessity of pursuing the extension of market services, and supporting

private sector actors in the development of new economic activities and new products. Changes

from the end of the 1990s include the greater attention paid by regional authorities to ICT and the

knowledge economy.

More recently, the establishment of seven competitiveness poles contributed to the structural

adjustment, with innovative clusters launched in the fields of transport (I-Trans), textiles (UP-Tex),

maritime industry products (Aquimer), the trade and retail industry (PICOM), nutrition and health

(NSL), materials and applications for sustainable use (Maud), and recycling technology (TEAM 2).


LSE 23 EPRC

3. PROGRAMME EVOLUTION AND RELEVANCE

3.1 Explicit and implicit strategies and their evolution

The implementation of ERDF regional programmes in Nord-Pas-de-Calais began in a period in which

various tools and policies aiming at countering socioeconomic decline and fostering territorial

development were already being implemented.

During the 1970s and 1980s, one of the aims of public policies in France was to avoid the economic

collapse of industrial regions such as Lorraine and Nord-Pas-de-Calais. This was supported by short-

term policy in favour of business and the population, to aim of which was to reduce the direct

economic and social impact of the economic crisis. The process of transition, initiated by DATAR in

1983 in former mining areas (conversion du basin minier), supported more competitive production

means, but tended to maintain an economic structure based on large enterprise and a low-wage

workforce.

Between 1975 and 1990, the region was ranked second in France in terms of development of public

infrastructure (almost doubling in that period) with strong support from local and regional

authorities. As early as 1986, specific actions were implemented - with the support of EU funds -

for the steel, textiles and clothing industries. An Integrated Development Operation (IDO) of €54.74

million (2000 prices) was launched in the mining area at that time.

From 1989 on, programmes evolved in two main ways.

First, the catching up process and the evolution of the regional context was manifested

through the adaptation of the regional industrial profile, the modernisation of

infrastructure, the protection of landscape, and the structure of the employment base

(with a strong increase in services). Underlying the objective of triggering the transition

process - which required significant structural adjustment - regional and local authorities

also implicitly tried to support existing industrial assets, which still accounted for numerous

jobs and economic activities.

Second, the content of EU regulations provided recommendations and guidelines for the

elaboration of regional programmes. Under this influence, the establishing strategies

required continuous negotiation. EU regulations frequently expanded their requirements of

regional authorities which could find relevant means and processes in ERDF programmes to

tackle territorial development challenges.

3.1.1 Facing the direct consequences of a severe economic and structural crisis: 1989-93

As explained in Chapter 2, the economic crisis in Nord-Pas-de-Calais began in the 1960s and 1970s

with the sudden closure of mines and a rapid increase in unemployment. To address this situation,

the first ‘hors quota’ ERDF funds were mobilised between 1984 and 1989 in favour of the textile

and steel industries. In 1989, the economic situation had not improved. Nord-Pas-de-Calais suffered

from high unemployment rates, a concentration of workers in low-demand sectors, weak

development in high-technology activities, and net annual emigration rate of around 10,000 from

the labour force.


LSE 24 EPRC

In this period, the reform of the Structural Funds allowed the establishment of regional transition

strategies and expanded to involve a broader range of local and regional stakeholders in the

process of economic and social renewal. Between 1989 and 1993, Nord-Pas-de-Calais received the

largest allocation of EU funds of all French regions (around €485 million of ERDF and ESF, in 2000

prices). State authorities played a strong role in the orientation of regional strategies and EU

programmes through the definition and implementation of State-Region Planning Contracts. The

Ministries of ‘Equipment’ and ‘Industry’ had particular influence in the fields of infrastructure and

enterprise, using ERDF programmes to support major investment projects.

As specified in the industrial and social transition plan, the main objectives at that time were:

to improve the image and attractiveness of the region by resolving the effects of past

industrial activities (dealing with industrial and urban brownfield sites);

to better promote its favourable geographical position (with regard to transport, the

environment, and tourism);

to support businesses and economic diversification (employment, productive investments);

and

to improve research, education and skills (through the modernisation of training facilities

and programmes).

These objectives, set up more than 20 years ago, acted as guidelines for subsequent programme

periods, although there were significant variations in the allocation of funds. From the first

programme period, the challenge was presented by the need to set up coordinated and effective

strategies among territories in Nord-Pas-de-Calais which were strongly influenced by their industrial

histories, and which faced severe economic and social difficulty.

Two aspects of the establishment and implementation of programmes must be highlighted in order

to clarify the scope and effects of EU funds. The 1989-1993 period has been divided in two sub-

periods, each with its own Community Support Framework (1989-1991 and 1992-1993). This division

did not assist the strategy-building and the coordination efforts of stakeholders. In addition, each

programme included a large number of measures and sub-measures, intended to allow local actors

to finance projects in their own respective territories.

Between the first and second sub-period, the Community Support Framework was simplified,

moving from four distinct programmes (three ERDF and one ESF) to one single multi-fund

programme. The programme period began with a strong emphasis on labour market and training (32

percent of the total CSF including ERDF, ESF and co-financing), support to SMEs (25.8 percent) and

infrastructure and communication (25.7 percent). Other priorities such as tourism, R&D technology

and innovation, the environment and living conditions each accounted for between two and eight

percent.


LSE 25 EPRC

Table 1: Structure of programmes between 1989 and 1991

CSF 1989-1991 CSF 1992-1993

Main objectives of the programme:

- To improve the image and attractiveness of the region

- To better foster the favourable geographic position of the region and its infrastructure

- To strengthen the capacity for diversification and innovation of the regional economy

- To improve training programmes and skills


- As compared to 1989-1991, to maintain the main objectives with stronger focus on Tourism, training and research activities

Three ERDF programmes

1: Planning, attractiveness and environment (Priorities 1 and 2)

2: Economic development, competitiveness and development (Priority 3)

3: Training and Research (Priority 4)

One ESF programme

Transversal training actions for each specific Priority

One ERDF/ESF programme

Priorities:

1. Support for SME start-ups and development

2. Labour market and training

3. Infrastructure and communications

4. Environment and quality of life

5. Tourism

6. R&D, Technology and Innovation

The ESF played an important role during this period by supporting vocational training, investing

more than €134 million through Objectives 2, 3 and 4. In 1993, as in 1992, vocational training

operations with a more innovative content were implemented in fields such as; training in new

occupations; the training of instructors; and training courses for new entrepreneurs.

The ESF supported the establishment of ‘employment and training centres’ which provided various

reception and consultation services, and made it possible to compile records of trainees’ skills

before training courses commenced. The ERDF, for its part, contributed to the financing of

infrastructure and facilities for these training centres.

An ongoing difficulty in this evolution was whether to develop activities directly in favour of

economic actors (and so decrease funding dedicated to SMEs), or to support R&D and innovation in

a region that was lacking an entrepreneurial and innovative culture. It should be emphasised that

the overall economic climate during this period was not favourable towards measures dedicated to

economic development, with enterprises adopting a ‘wait and see’ attitude and avoiding risk-taking

with new investment. Also evident was a tendency to concentrate funds on activities and fields of

intervention which local and regional authorities were more familiar with, this having a more direct

short-term impact (and included, for example, local investment, spatial planning, and

infrastructure).


LSE 26 EPRC

Table 2: Summary of programme priorities between 1989 and 1993

Priorities Evolution between 1989 and 1993

1. Support to SMEs (creation and development): productive investment, seedbeds, services, craft, access to financing

2. Labour market and training: support to universities, technology, facilities for vocational training, training centres, secondary schools

3. Infrastructure and communications: industrial renewal, accessibility of renewed areas, road infrastructure

4. Environment and living conditions: water, rivers, urban renewal, local development projects

5. Tourism: hostelry; international promotion of the region; social sheltering; tourism and leisure facilities

6. R&D Technologies: transfer of technology; public research

- Reduction in the number of measures between 1989-1991 and 1992-1993 (rationalisation)

- Reduction in funds dedicated to SMEs

- Stronger focus on training facilities (infrastructure) and less on training programmes

- Increase in infrastructure projects (communications)

- Stronger programme focus on environmental issues

- Stronger programme focus on tourism

- Slight decrease in EU funds dedicated to R&D, technology and innovation

It should be pointed out that from the outset the strengthening of innovation and R&D was

considered to be a strategic issue for the Nord-Pas-de-Calais region. It helped to improve

technology transfer between businesses and contributed to developing public sector research, in

universities whose development during the next decade was to be significant (with the support of

ERDF). This trend can also be observed in initial training and the development and modernisation of

colleges and high schools. With the devolution process started in the early 1980s, this became one

of the key competencies of regional and departmental self-governing authorities.

Efforts in the field of tourism were also made, with an increase in funding between 1989 and 1993

(from 1.95 percent to 6.12 percent of the CSF). The financial allocation for tourism remained

modest in general terms, but tourism has been identified as a permanent theme in all four

programme periods, parallel to local and regional authorities’ increasing interest in culture.

Despite trade-offs which have increased attention directed towards other economic and social

issues, tourism was a key element of local and territorial development strategies, especially from

the perspective of increasing the ‘attractiveness’ and ‘visibility’ of the region.

Reference should also be made to the long-term focus of INTERREG programmes on the promotion

of tourism and culture between France, England and Belgium (through the expansion of hotel

capacities, the creation of new facilities and services, and so on). At the regional level, one

interesting example of this was the promotion of a ‘tourism de mémoire’. Dedicated to military

sites and monuments, such as the Canadian memorial in Vimy or the Coupole d’Helfaut (sites for V2

rockets in WW2), it is now based upon several cultural and tourism routes across the region. The

INTERREG programmes have also represented an opportunity for beneficiaries to pursue activities in

this field when it was not considered to be a priority for regional programmes.

In parallel with ERDF programmes, Community Initiatives such as RECHAR, RENAVAL and RESIDER

(1989-93) or KONVER and RETEX (available for 1994-99) focused on the conversion of traditional

industries (specifically, the steel, naval, coal, defence and textile industries). These programmes,

implemented between 1990 and 1999, encompassed the diversification of activities, environmental

clean-up, and the renewal of industrial sites. They allocated around €110 million (FF598 million)


LSE 27 EPRC

during this period and were strongly connected to regional programmes through common

monitoring and programming committees.

When comparing implicit and explicit strategies in Nord-Pas-de-Calais, the will to implement the

transition process by supporting businesses, industrial and urban renewal, education and training,

etc. can be identified on the one hand. On the other hand, despite economic difficulties,

traditional industries persisted as an important source of employment and were symbolic to a

generation of workers and local authorities.

Taking into account the great difficulty of converting a the labour force adapted to the mining and

steel industries into one orientated towards higher value-added activities and services, the actual

objective was not so much to promote a new development model, but was more to alleviate the

effects of the economic crisis, improve the environment, and support businesses and jobs that

could still be saved. Where difficulties were encountered, such as lower fund absorption capacities

in innovation and business creation, funds could be reallocated to other measures without

fundamentally changing the strategic orientation of programmes.

During this period there was no significant modification in the programme, and the focus remained

upon three main fields: support to businesses, support to human resources, and

rehabilitation/modernisation of brownfield sites, including communication infrastructure.

3.1.2 Stronger intervention requires stronger strategies: 1994-99

In the 1994-99 period, the main change concerned the classification of three employment areas

within Objective 1 (Douaisis, Valenciennois, and Avesnois). The Objective 1 programme was

implemented through one Single Programming Document (SPD) for the whole period.

As per the 1989-93 period, two different Objective 2 programme documents were elaborated for

two different sub-periods (1994-96 and 1997-99). Once again, this created a challenging situation

with regard to the overall coherence of activities. The large number of measures implemented in

the four Objective 2 SPDs between 1989 and 1999 (126 measures in total) belies the clear difficulty

in targeting funds at a limited number of shared priorities.


LSE 28 EPRC

Table 3: Structure and priorities of programmes between 1994 and 1999

Objective 1 Objective 2


- To reverse the downward economic trend

- To promote a culture of innovation

- To promote economic cohesion and competitiveness


- To build on the development capacities enabled by major infrastructure (high-speed train, Channel Tunnel, European teleport, universities and research centres)

One Single Programming Document

Priorities:

1. Research development and technology

2. Human resources development

3. Territorial regeneration

One Single Programming Document 1994-1996

Priorities:

1. Support and revival of economic activity

2. Training, research and technology

3. Quality of life, image and natural environment

One Single Programming Document 1997-1999

Priorities:



3. Quality of life, image and natural environment

From a statistical point of view, the Nord-Pas-de-Calais region was not eligible for Objective 1

funding. However, the Objective 1 status of the bordering region of Hainaut in Belgium was

considered to be a source of potential imbalance for the industrial and mining areas of Nord-Pas-

de-Calais. To address this situation, the regional and local authorities asked for a modification of

the EU regulation, which they obtained despite the reluctance of DGXVI and the French authorities.

Although this contributed to rebalancing development perspectives at the cross-border level, one

consequence was the shifting of the Objective 1 border inside Nord-Pas-de-Calais. The employment

areas of Cambrai, Lens and Béthune, which were also facing difficulties, could not benefit from

Objective 1 status because they were not contiguous with the Belgium border. This reduced

intervention possibilities favourable to businesses and territorial development in these areas,

despite their having comparable needs to the eligible mining areas.

From a financial point of view, this new classification brought significant additional means to the

region, with €488.69 million for the three employment areas encompassing 21 percent of the

population. In comparison, the Objective 2 area received €352.9 million for 65 percent of the

population.

For statistical reasons, the employment of areas of Hazebrouck and Saint Omer, as well as the main

parts of the employment areas of Montreuil and Arras, were eligible for neither Objective 1 nor

Objective 2 subsidies. With regard to Lille, the southern part of the employment area was not

eligible (see Map 7).


LSE 29 EPRC

Map 7: Eligible areas for Objectives 1 and 2 (1994-1999)

Source: Nord-Pas-de-Calais Region.

From a strategic point of view, the two Objectives highlighted similar issues, leading to a focus on

stimulating economic activity, R&D and innovation, human resources (combating unemployment

and providing training) and territorial development (infrastructure, the environment, and urban,

rural and industrial renewal). In 1989-93, the main strategic guidelines had also included less

explicit objectives aimed at supporting traditional industries, minimising unemployment and

maintaining social cohesion, which had been strongly threatened by the ongoing transformation

process.

For Objective 2, one priority was to improve the coherence of existing and new infrastructure with

other large projects such as the High-Speed Train, the Channel Tunnel, the coastal ring road

(rocade littorale), the A16 highway, and the Euralille project. ERDF programmes had only a limited

international dimension and were essentially focused on regional or sub-regional development.

Major interregional and/or international infrastructure was recognised as advantageous to

territorial development, but not as an objective that could (or should) be pursued to improve the

socioeconomic development of the region.

The declining industrial areas on the coast (Dunkirk, Calais and Boulogne), which were already

eligible for assistance during the 1989-1993 period, were now joined by: the cantons of Montreuil,

Etaples and Berck; the coalfield which extended to the cantons of Vimy and Vitry-en-Artois

(previously eligible for assistance under RECHAR I); the Lille-Roubaix-Tourcoing conurbation (with

the exception of its most rural areas); and Cambrésis.

One characteristic of this period was the stabilisation of the economic situation in Nord-Pas-de-

Calais (and in France). In this context, EU and national financing dedicated to the revitalisation of

economic activity were reduced slightly, taking into account the progress observed in the

restructuring of small and medium-sized industries. This choice raised the question of short-term


LSE 30 EPRC

versus long-term strategies, and highlighted the difficulties in precisely assessing the evolution of

fundamental strengths and weaknesses of a region facing structural change. This also exacerbated

the difficulties faced by local authorities dealing with economic issues that were not within their

usual fields of intervention.

Despite this evolution, ‘support for and revitalisation of economic activity’ remained a major

investment field, with 42 percent of the budget It was close to the second main priority - ‘living

conditions, image and the environment’ - with 37.8 percent. With regard to the latter, the

upgrading of urban areas was a major concern, but was supported by the launch of the URBAN

Community Initiative (1994-99), which significantly increased intervention capacities for the most

derelict urban areas.

Training, research and technology were less significantly subsidised (19.5 percent) in this period.

Nevertheless, support to public research, training, and training facilities still constituted key issues

for public bodies pursuing convergence with national development indicator averages in the

development of colleges, high schools and universities.

Table 4: Summary of programmes priorities between 1994 and 1999


Priorities:

1. Support for and stimulation of economic activity: industrial competitiveness, endogenous development

2. R&D and technology: promotion of a culture of innovation, business support

3. Human resources development: training and employment for young people, combating unemployment and exclusion

4. Local regeneration: economic, industrial and urban renewal, transport and environmental protection

Priorities:

1. Support and revitalisation of economic activities: business support, SMEs, technology, accessibility and energy efficiency

2. Training, research and technology: support for centres of excellence and networks, cooperation between education and industry, training facilities and training programmes

3. Living conditions, image and environment: industrial and urban renewal, communication infrastructure, tourism, natural and cultural heritage

The Objective 1 strategy was to complement and significantly increase efforts to reduce disparities

with the rest of the region. For former coal and mining areas, a key objective of the programme

was to improve the physical, economic and social environment through major investment in urban

and industrial renewal. This is reflected in the focus on Priority 4 - ‘Territorial renewal’

(accounting for 37 percent of the budget) - which addressed the principle of ‘territorial

attractiveness’, encompassing brownfield site renewal, transport, and protection of the

environment, amongst others. Until recently, this Priority remained emblematic of the will to

change the urban, industrial and environmental fabric in conjunction with strong support from the

Structural Funds.

In a context of transition, the focus on infrastructure represented various positive aspects for local

and regional authorities. It was a source of employment for the building sector and related

economic fields. It corresponded with the familiar institutional capabilities of public authorities

and generated direct and visible results for the population (including, for example, improvements

in quality of life and the fight against pollution).


LSE 31 EPRC

In Nord-Pas-de-Calais, there has been ongoing discussion about the expected and real economic

consequences of infrastructure development, and the difficulties in elaborating integrated

strategies which take into account the promotion of services, new competences, mobility, business,

and the marketing of major public investment. The Objective 1 programming process was an apt

illustration of the difficulties and contradictions that can take place when defining explicit and

implicit programme strategies. The first draft presented by the French authorities was judged by

the Commission as not being fully coherent with regional diagnoses, lacking an integrated strategy,

and not presenting satisfactory solutions to regional needs. The Commission also pointed out that

excessive attention was paid to communication infrastructure. The main consequence of this

feedback was the modification of the general structure of the draft programme (finally adopted in

July 1994), an increase in the ESF contribution (from 16 percent to 19 percent), a reduction in ERDF

funding for road infrastructure (from €79.49 million (16.31 percent) to €33.28 million (6 percent)

and the addition of a new Measure focused on ‘urban deprived areas and the fight against

exclusion’ (€8.9 million).

This process demonstrates the difficulties in establishing integrated territorial development

strategies for local and regional actors who were confronted with immediate and short-term

difficulties. Alongside the progressive reduction of the State contribution, the scope to use EU

funds bolster budgets for costly investments (such as infrastructure) should also be mentioned. In

such cases, taking into account their direct socioeconomic effects, allocations could be part of a

more implicit strategy aimed at maintaining public investment in areas affected by economic

recession.

A main distinction between the Objective 1 and Objective 2 programmes during this period was the

sizeable support of Objective 1 for human resources in Nord-Pas-de-Calais (Priority 3, accounting

for 21 percent of the total budget). It supported interventions in favour of initial training,

combating unemployment, and supporting vulnerable socioeconomic and/or demographic groups

(such as young people and/or the long-term unemployed). The ESF played a strong role alongside

the ERDF in improving industrial productiveness (through developing labour force skills), the living

conditions of the population (through social support in coordination with urban planning initiatives)

and health (especially through the fight against alcoholism, drug use, and related healthcare

facilities).

The explicit strategy described in programme documents tended to support a transition process

through the promotion of training activities, infrastructure, environmental protection, research and

economic revival. However, an ‘implicit strategy’ could also be identified, the aims of which were

to support local public policies and maintain a precarious balance in sub-regional territories

strongly affected by the economic crisis. The implicit strategy also included support for declining

industries and the launch of investment projects which, until the end of the 1990s, sometimes

lacked in overall coordination between regional development authorities and partners.

3.1.3 Towards diversification and new development perspectives: 2000-06

In the 2000-2006 period, Nord-Pas-de-Calais remained eligible for the Objective 1 and Objective 2

programmes with a territorial coverage similar to that in 1994-1999. Objective 2 included two sub-

areas: one ‘nominal area’ dedicated to the economic and social transition of industrial, rural or

urban areas (45 percent of the regional population) and one ‘transition area’ comprising


LSE 32 EPRC

municipalities which were able to progress without the support of EU funds (and in which 19

percent of the regional population resided).

Map 8: Eligible areas for Objective 2 (2000–2006)

In this new period, Nord-Pas-de-Calais received around €1.3 billion for Objectives 1, 2 and 3,

representing 10 percent of Structural Funds in France (€405.67 million for Objective 1 and €636.18

million for Objective 2). With this budget, the EU became the main external contributor to the

region, preceding the State authorities’ participation in the State-Region Planning Contract. Nord-

Pas-de-Calais entered a ‘transitional phase’ in anticipation of the cessation of the Objective 1 ERDF

contribution at the end of the period (due to the statistical effect of EU enlargement to include

Central and Eastern European countries). Between 2000 and 2006, the region maintained strong

continuity with the previous period, through a focus on economic recovery (Priority 1), training,

employment and solidarity (Priority 2) and territorial development (Priority 3). Its contribution was

significant in the three selected employment areas, especially for the financing of major projects.

In Nord-Pas-de-Calais overall, new investment took place to develop and open up business areas

and economic development poles (roads, logistic platforms, waterways, transport services, public

transport, and so on).

From a strategic and operational point of view, a challenge during this period was the spatial

fragmentation of intervention areas. This was especially the case for urban policies, which had

varying eligible EU programme areas on and for domestic public policies on the other. This

generated a dispersion of means and projects and reduced the coordination capacities between

these different tools.


LSE 33 EPRC

Table 5: Summary of programme objectives and priorities between 2000 and 2006



- To increase socioeconomic convergence with national and EU development levels (employment, sustainable economic development)


- To promote economic development in favour of employment

- To lay the foundation for sound socioeconomic cohesion

- To promote territorial sustainable development activities

Priorities:

1. Keeping the economic upturn going: to support economic diversification, centres of excellence, the creation of firms, technology transfer, the improvement of research capacities, communication infrastructure

2. Training, mutual assistance and employment: to integrate unemployed people and excluded persons, to promote education, training, apprenticeship and vocational training

3. Spatial improvement and upgrading: to improve territorial attractiveness and quality of life, to protect natural areas and upgrade industrial wastelands, to promote tourism and cultural facilities, to promote energy saving

Priorities:

1. Promotion of job-creation and economic development: to support information society, research, technological development, and tourism, to promote networking, financial engineering and training

2. Laying the foundation of economic and social cohesion: to support measures for young people and employees, to improve access to information and communication technologies, to update communication networks and infrastructure

3. Promoting territorial initiatives for sustainable development and solidarity: to promote local development activities, craft, services, and business areas, to support ports and technology platforms, urban policy and health

4. Diversifying suburban agriculture

Since 2000, the regional government has been directly involved in programme and monitoring

committees, becoming a true ‘co-pilot’ of EU regional policy in the region. During this period, State

authorities and the regional government provided almost the same public contribution of around

€346 million each. This led to a strengthening of the regional partnership and a more balanced

share of responsibilities. From 2000 onwards, a progressive change in the local and regional

governance process could therefore be observed, manifested in the desire to better structure

regional priorities and regional intervention tools. Despite some difficulties with the selection of

eligible areas, as already mentioned, overall programme coherence was increased by the fact that

programmes could be implemented through a single seven-year programme period.

In comparison with previous periods, the content of strategy also evolved, as can be highlighted in

the intervention of the Commission after the mid-term review in 1997, which led to an increase in

the budget dedicated to ICT. This was an expression of growing attention paid to the priorities put

forward by the Lisbon agenda. At the regional level, the validation of the Global Grant for ANVAR8

in 2000 was going in the same direction.

In terms of strategy, this created a stronger focus on the necessity to better accompany and

support ongoing structural changes. For example, it included setting up a strategy for a ‘digital

region’ consisting of the promotion of ICT technologies and services in Objective 1 employment

areas. ICT constituted a priority for the Objective 2 programme as well. In parallel, a regional

8 ANVAR : Agence Nationale de Valorisation de la Recherche (National Research Promotion Agency).


LSE 34 EPRC

initiative in favour of ‘economic intelligence’ helped to structure EU-funded projects for

partnership-building and cooperation in industrial sectors.

The Objective 2 programme emphasised the necessity to strengthen SMEs that remained quite

vulnerable as subcontractors of large businesses. In the field of research and innovation, the

strategy showed a greater consciousness of the lack of connection between research and economic

actors. In particular, there was a reduction of 19 percent of private spending in research between

1998 and 2002 in the region, whereas spending for public research, especially in the fields of

biology-health, informatics ICT, transport and environment, increased by 36 percent.

During this period, the initiative of State authorities to support ‘competitiveness poles’ in French

regions must be mentioned as a key driver for ongoing innovation and research initiatives. Although

the direct effect for the ERDF programme was not very significant initially, it contributed to

structuring the regional strategy towards a few industrial and economic sectors. This would have

stronger implications for strategy-building and the projects programme after 2006, with seven

competitiveness poles developed in Nord-Pas-de-Calais with the support of ERDF programmes.

The development of tourism also remained a key preoccupation in ERDF programmes, with for

example the strengthening of ‘culture’ as a shared endeavour between local and regional bodies. In

2004, the selection of Lille as a European Capital for culture was a good expression of the overall

explicit strategy aiming, since the 1990s, to improve the visibility and attractiveness of the region.

Between 2000 and 2006, the way ERDF funds were used is in line with explicit strategies stated in

the programmes. This is due on the one hand to the catching up and learning process at sub-

regional level, which gave local actors the scope to envisage longer-term territorial development

perspectives. It is also due to more targeted strategic guidelines provided at EU and national levels

that helped these actors better coordinate their actions around new fields of intervention (ICT,

knowledge economy, technology centres or competitiveness poles, etc.).

3.1.4 Transformation, realism and critical choices: 2007-13

For the 2007-2013 period, Nord-Pas-de-Calais received €700.9 million ERDF (including a ‘bonus’ of

€70 million for Hainaut), €380 million ESF and €61.5 million EARDF. These amounts show a clear

decrease in comparison with 2000-2006 (more than 30 percent).

The suppression of infra-regional area designation and the implementation of measures through a

single ERDF programme constituted a positive environment for setting up a coherent strategy and

the mobilisation of local and regional stakeholders.

According to interviewees, the most significant example of strategic change in the implementation

of EU funds since 1989 was the strong shift towards Lisbon priorities in 2007. This orientation was

considered on the one hand as an ‘external’ impulse from the EU level with the obligation to adapt

the regional strategy and working methods to people and institutions that were not fully prepared

for such a change. On the other hand, it was considered as an opportunity to move forward and

accelerate the change process with the active mobilisation of regional authorities.

In 2007, ambitious objectives were defined, with 67 percent of ERDF and 100 percent of ESF

targeted on Lisbon priorities, which is above the national average. Innovation was not absent from


LSE 35 EPRC

domestic public policies, but the new programme period increased the mobilisation of public

authorities and public funds. This has become especially obvious with the aim of the regional

government to obtain and manage a Global Grant dedicated to Priority 1, representing 33 percent

of the budget of the overall programme.

Table 6: Summary of programme objectives and priorities between 2007 and 2013


- To promote knowledge economy, innovation and sustainable development

- To consolidate economic revival

- To overcome the legacy of the past

- To provide inhabitants with equivalent opportunities throughout the territory

Priorities:

1. Research and development, innovation, support to businesses

2. Environment, sustainable practices and risk prevention

3. Accessibility (transport and Information Society)

4. Territorial strand (sustainable urban and territorial development)

In the continuity of 2000-2006, the ‘competitiveness poles’ contributed by focusing domestic and

EU strategies towards better-targeted sectors (transport, textiles, trade, sea products, nutrition

and health, etc.). For local and regional actors, the key issue was not only to promote new

economic sectors, but also more generally to generate a favourable environment for innovation

with a focus on human resources, support to SMEs, networking between business, and research and

training centres.

Complementing the competitiveness poles, the elaboration between 2007 and 2010 of a ‘Regional

innovation strategy’ with the support of the EU Commission was the occasion to mobilise experts,

public authorities and private bodies in a global discussion on innovation in the region (Conseil

Regional, 2009a). It was elaborated in close coherence with the Contrat de Projet Etat-Région and

the Regional Economic Development Scheme (SRDE, 2005).

The work on the Regional Innovation Strategy (RIS) was also an opportunity to update domestic

tools such as the ‘Platform for Innovation and Promotion of Research’ (Plateforme Innovation-

Valorisation de la Recherche) and the ‘Innovation Promotion Plan’ (Plan Innovation-Valorisation -

2008). The RIS is implemented with the support of a specific body, the NFID (Nord France

Innovation Development) funded by State and regional authorities and the ERDF programme.

Concretely, the Regional Innovation Strategy has been a key aspect of the mid-term evaluation and

clearly influenced the strategy of the second part of the period.

The thematic concentration, however, is considered carefully in a region that suffered from

excessive economic and industrial specialisation. In particular, the concept of ‘smart specialisation’

constitutes a useful strategic and methodological tool but requires sound expertise to be

implemented in a constructive and long-term fashion.

Regarding other priorities, the 2007-2013 ERDF programme maintained a focus on accessibility with

a stronger interest afforded to sustainable urban transport and services. Accessibility also includes

information society, with the intention to develop better e-services including health and open data

systems to improve the relation between people and public administration. In line with the


LSE 36 EPRC

‘knowledge society’, e-services and information technologies are also identified by local and

regional authorities as a source of growth and employment.

In the field of environment and land restoration, the focus is no longer on the basic treatment of

brownfield sites and former industrial areas. The programme promotes a more qualitative approach

with the requirement to include the development of new activities. Water management,

biodiversity and natural risks remain subjects of concern, but energy (renewable or energy

efficiency) constitutes an emerging issue regarding its environmental and potential economic

impact.

The social dimension of EU programmes remains a difficult issue. The clearer separation between

the ESF and ERDF programmes led to more economic and territorial development approaches in

ERDF objectives. The idea is to maintain the attention on the former Objective 1 area and to use

territorial development projects as a source of economic and social inclusion. The question of the

articulation between ERDF and ESF remains challenging, especially with the increasing social

difficulties following the 2008 economic crisis.

With the strong involvement of regional authorities in innovation (Global Grant for the management

of Priority 1 and setting up the Regional Innovation Strategy) and the multiplication of activities in

favour of entrepreneurship at regional level, there is a strong convergence between projects

implemented and the overall strategy of the programme. This can also be illustrated by the

satisfactory programme level of ERDF funds, showing the adaptation capacity of local and regional

stakeholders to these new priorities.

3.2 Relevance of programmes to regional needs

This Section appraises the relevance of programmes across the different programme periods.

Relevance is defined as the appropriateness of programmes (in terms of strategic goals, objectives,

priorities, and expenditure allocation) in meeting regional needs as perceived at the time in which

the programmes were drafted.

1989-1993

In this first period, there were needs in economic and social support because of a dramatic loss of

jobs in industries and lack of perspectives in an overall weak economic context. It was decided to

focus strategies on the direct consequences of transition with support to businesses (productive

investments, transfer of technology, improvement of productivity), treatment of the most polluted

areas, and support to human resources (initial and vocational training). In a short-term fashion, this

strategy was relevant to save businesses and jobs, even though the situation of enterprises (SMEs or

larger ones) remained quite fragile.

In a more structural way, the region needed investments in basic infrastructure in the fields of

communications (modernisation of railways and roads), environment (environmental clean-up,

sewage plants), initial training and higher education (new premises, modernisation of existing

buildings). With EU programmes, this development and modernisation process (started in the 1970s)

could be pursued and strengthened with stronger intervention capacities.


LSE 37 EPRC

Regarding regional needs and the regional development process, coordination between actors and

setting up coherent development strategies appeared as key issues from the outset. On the side of

‘needs’, it was difficult to articulate the priorities of local actors that lacked expertise and who

were often in a position of competition in the access to subsidies. On the side of programmes, the

‘partnership’ principle and the objective of promoting regional economic and social cohesion

brought positive perspectives. A first aspect is related to the obligation to involve a wider set of

local and regional partners in discussions and negotiation (municipalities, social partners,

intermediary bodies, etc.). This contributed to broaden the exchange and negotiation processes to

a wider set of actors including local authorities, public bodies, civil society, etc. A second aspect

relies on the change in relations between regional and State authorities. Whereas negotiations for

the elaboration of State-Region Planning Contracts were based on a face-to-face interaction

between local and regional authorities on one side and State authorities on the other, the setting-

up of EU programmes pushed these different partners to discuss and find consensus in front of a

third actor, the EU Commission. This increased the ‘regional’ point of view as compared to a

‘national’ approach that was influenced by the strategies of ministries. As a result, the diversity of

socioeconomic situations in the different employment areas was taken into account better and

activities were fine-tuned according to territorial and local needs.

However, the multiplication of programmes and sub-programmes, as well as the implementation of

tens of intervention measures contributed to reduce the coherence of the overall strategy and of

its impact on the regional and sub-regional territories. The launch of ERDF programmes in a context

of economic and social emergency generated a lot of expectations. Each local actor wished to

provide support to specific sub-regional territories, which reduced the capacity to generate a

coherent strategy at regional level.

1994-1999

Between 1994 and 1999, Nord-Pas-de-Calais benefitted from major inputs with the opening of the

Channel Tunnel, the high-speed train and the creation of Euralille, which represented opportunities

for the region to strengthen its development potential. EU programmes took these opportunities

into account with significant efforts on infrastructure to improve the coherence between existing

and new infrastructure. In addition, regional and local authorities agreed on the necessity to

improve the ‘image’ and the ‘attractiveness’ of the region.

With the slight economic improvement during the second part of the 1990s, the pressure on

enterprises decreased. The need for direct support was less urgent, and as a consequence the

allocation of EU funds on economic renewal was reduced in the Objective 2 area (1997-1999). The

ex-ante evaluation highlights however the necessity to avoid too high a concentration of funds on

infrastructure (urban development, communications, industrial renewal) and to better prioritise

local development, networking or promotion of market services. In the face of this need for local

development and support to SMEs, one of the main difficulties remaining was the capacity of

‘small’ partners (SMEs) to get involved in ERDF projects, due to a lack of experience and expertise

capacities (European Commission, 1997).

In the new Objective 1 area, funding was significantly increased. The drafting process of the

programmes is a good illustration of the different perceptions of needs between local, regional,

national and EU authorities. As for Objective 2, local and regional authorities insisted on


LSE 38 EPRC

infrastructure which could have direct and visible impact on territories. For the Commission, taking

into account the already well-developed regional infrastructure network, there was a need to pay

greater attention to human resources, training, employment and social inclusion (which were taken

into account in the final draft of the programme).

Whereas economic restructuring remained a major priority during this period, there was a difficulty

in setting up tools and strategies that were able to modify the socioeconomic situation. Local and

regional actors tended to intervene on issues where they had competences, and the social approach

was promoted with a sense of emergency to support fragile populations. For this reason, although

the financial allocation was quite coherent with regional needs, the challenge was to implement

projects in coherent territorial development strategies and avoid a spread of local and isolated

initiatives. Strategy-building was still insufficient during this period, while the use of two distinct

implementation areas contributed to better mobilise public authorities, especially in the Objective

1 area.

2000-2006

From a strategic point of view, the 2000-06 period is a continuation of the previous one for

Objective 1, with a focus on economic recovery, employment and territorial development in

employment areas still facing heavy structural difficulties. One of the main objectives remained

the catching up process, with a focus on large projects and infrastructure, including upgrading of

industrial wastelands, local development facilities for tourism and cultural activities, and the

promotion of intermodality in communications.

This catching up process also required a capacity to adapt the economic and industrial fabric to

socioeconomic changes. This was not an explicit objective during the previous periods. From the

end of the 1990s (1997-99 programme), a slight change could be observed with more attention paid

to innovation, connection between businesses and research, and the knowledge economy. In the

field of accessibility, ICT, sustainable transport and intermodal platforms progressively took the

lead.

These specific needs, oriented towards prevention rather than cure (with the support of a

‘sustainable development’ approach), were better taken into account with measures in favour of

information technologies and the knowledge economy in the Objective 1 and 2 areas. However,

programmes could not provide an adequate answer to the lack of investment in private research,

whereas public research and especially universities were explicit objectives.

During this period, external factors such as the launch of the national policy of competitiveness

poles helped to better adapt strategies to needs in the field of innovation and competitiveness. In

Nord-Pas-de-Calais, six competitiveness poles were selected in 2005: Pole Aquatique (fisheries

industry), Industries du Commerce (distribution, ICT, logistics), Up-Tex (textiles), I-Trans

(transport), Matériaux domestiques (chemicals, materials, food), and Nutrition, Longévité, Santé

(nutrition, health, longevity).9

9 The selection process occurred within the Inter-ministerial Committee for Planning and Territorial Development (CIADT) of 12 July 2005.


LSE 39 EPRC

Concerning culture, local and regional authorities used EU programmes from the perspective of

modifying the image of the region and improving its attractiveness for individuals and businesses. In

this case, EU programmes brought a relevant contribution in the way that they opened up

possibilities that would not have been supported by regional development strategies alone.

2007-2013

In Nord-Pad-de-Calais, research and innovation have been supported in a more effective way since

2000, preparing the ground for further development. In addition to the catching up process that

occurred in public research, programme authorities insisted on the necessity to improve research in

and for enterprises and to pursue technology transfer. However, the main change was clearly

observed in 2007 with the earmarking of funds for innovation and competitiveness, which required

a more explicit involvement of businesses, and public and private research bodies.

In 2012 and despite this progress, regional and local authorities highlighted the risk of a regional

decline in the face of increasing international competition and insufficient regional performance in

the fields of research and innovation.

Beyond strategic choices, one key issue remains the coordination of public authorities, private

bodies, entrepreneurs, research centres, universities and training centres towards new

development perspectives. This requires stronger entrepreneurship, high levels of skills, innovative

financial means, and specific management and governance processes between public and private

stakeholders.

In this regard, questions in Nord-Pas-de-Calais concern the mobilisation capacities of SMEs and the

way they consider their participation in ERDF funded projects. SMEs have often been dependent

upon larger enterprises, with limited entrepreneurship culture and limited internal expertise

capacities. In a difficult economic context, they cannot afford to take risks unless they can rely on

clear rules with enough visibility.

Generally speaking, businesses in this region express their need for well-identified sources of

financing, clear rules, and limited legal uncertainty (even if they accept economic uncertainty).

For many of them, the administrative burden and the uncertainties related to the respect of the

competition rules reduces the relevance of participating in ERDF programmes.

The respect of the earmarking principles shows that the higher the expectations and concentration

of funds, the higher is the level of support and expertise needed, since public authorities often

intervene in fields up to the limit of their traditional competences. One example would be the

concept of ‘smart specialisation’.

Considering the objectives set at the start of 2007-2013 and the work achieved at mid-term, there

has been a mobilisation of stakeholders regarding the necessity to promote a more flexible

development model, more adaptive and reactive in the face of economic difficulties. Regarding the

‘relevance’ of programmes, there is a greater consciousness that financial means and strategies

also require an adequate political, institutional and administrative setting.

Especially in the case of innovation, difficult choices must be made that necessitate leadership and

political commitment. More technically (as will be mentioned later in the report), the improvement


LSE 40 EPRC

of skills, competences, entrepreneurship, competitiveness and innovation often rely on a multitude

of ‘intermediary bodies’ whose contribution to the process should be better specified and

rationalised. If a ‘relevant’ programme also needs to take these aspects into account, there is an

indirect ‘collateral positive impact’ of the operational programmes on the overall administrative

setting (professionalisation of intermediary bodies and final beneficiaries, stronger monitoring and

evaluation capacities, consolidation of skills and means).

Table 7: Comparison of regional needs and programme responses

Regional needs Response Project focus

1989-93 Increasing industrial and urban brownfield sites; closure of industries; increasing unemployment; insufficient territorial strategies

In line with domestic policies with a focus on infrastructure and businesses

Industrial and urban renewal; productive investments; infrastructure; initial and vocational training

1994-99 Need for industrial and urban renewal; potential with new infrastructure (Channel Tunnel, high-speed train) but still low structural adjustment, low dynamism of SMEs and high unemployment

More efforts on former mining area (Objective 1 area); efforts on infrastructure but stronger emphasis on human resources and social issue; desire to improve the ‘image’ and ‘attractiveness’ of the region

Large-scale projects (infrastructure, logistic, communication…); environment; vocational training and improvement of training infrastructure; continuous support to businesses

2000-06 Slight catching up process but social and economic indicators still below national and EU average; low entrepreneurship, low private research, high unemployment

Still focus on large projects and infrastructure but increasing concern about innovation, ICT, sustainable development issues

Continuity on infrastructure with more sustainable development approach (transport, environment, culture…), project on ICT and knowledge economy

2007-13 Risk of economic ‘drop off’ due to insufficient competitiveness and innovation; still low socioeconomic figures (employment, entrepreneurship, education…)

Strong influence of EU regulations on Lisbon strategy. Stronger coordination with domestic policy (competitiveness poles); more qualitative approach of industrial renewal

Increase of projects on innovation, networking and entrepreneurship

Longitudinal view

The relevance of programmes to regional needs cannot only be assessed with regard to general

strategies and objectives set. In the case of Nord-Pas-de-Calais, the confrontation between short-

term and long-term needs shows that ‘relevance’ requires coherence between various actors,

priorities and intervention means.

Some of the best examples are related to the development of SMEs in the promotion of innovation.

If there was a strong need to progress these two issues since the 1980s, it would have been relevant

to provide high levels of funds only if target groups (SMEs, research bodies) were able to mobilise

and generate expected projects. However, these potential stakeholders were not ready for this,

and the overall socioeconomic environment was not favourable to a rapid shift in this direction. EU

programmes have not been elaborated as ‘independent’ or ‘external’ tools, but as part of a

complex interconnection of local, regional, national and EU public policies. In that sense, the


LSE 41 EPRC

evaluation of ‘needs’ shall take into account parameters that include economic, social, historical,

geographical or environmental factors.

In Nord-Pas-de-Calais, programmes have generally been relevant to regional needs, as they took

into account challenges that were obvious priorities for a large majority of local and regional actors

(fight against unemployment, support to businesses, urban and industrial renewal, improvement of

life quality, etc.). In that case, authorities were able to identify the fields of intervention where

synergies could be easily generated between EU and domestic funds. This was generally related to

their traditional intervention fields or to issues that could produce short-term and visible results in

favour of local communities (such as local facilities improving life quality and services).

However, a divergence might be observed in the way this programme intended to address these

needs. During the first programme periods, the influence of ministries and State services remained

strong with, on the other hand, an increasing desire by local actors to influence the programming

process and obtain contributions in line with their own needs (as perceived at local level).

Objectives were relevant, but the methodology and decision-making process barely led to a genuine

and well-structured regional/territorial strategy and implementation process.

From the first to the current programme period, the programmes evolved with the EU Commission’s

intention of tightening the scope for intervention and increasing qualitative requirements. One of

the first aspects was the EU Commission’s preference to reduce to focus on communication

infrastructure in the first Objective 1 programme (1994-1999) with a better target on economic and

social issues. This led also to a more qualitative approach to industrial renewal, with the need to

add social or economic development activities to demolition or cleaning projects. The Lisbon

agenda played a structuring role by providing local and regional bodies with additional means and

stronger legitimacy to intervene in a field (innovation and competitiveness) that corresponded to

strong needs but which was politically sensitive (risk of increasing layoffs to improve business

competitiveness).

This gave regional actors the opportunity to modify their approach to ‘regional needs’ with a

stronger prospective view and the capacity to elaborate better-structured development strategies

(which was one basic regional need).

This change shows an improvement of the relevance of programmes in their capacity to take into

account current and future needs and create conditions for better adaptation capacities of local

and regional actors. The drafting process of strategies also improved, with better coordination and

stronger methodology, more in line with SMART evaluation criteria.10 In particular, programmes

became more specific and targeted. They experienced a clear improvement of evaluation

capacities from 2000 with the implementation of the centralised PRESAGE system in France. The

objective of ‘performance’ or ‘result-oriented’ programmes has been taken into account more

recently and should become more consistent in the next programme period (2014-2020).

10 SMART evaluation criteria refer to Specific, Measurable, Achievable, Results-oriented and Time-bound criteria.


LSE 42 EPRC

Table 8: Needs and imputed objectives for eight thematic axes

THEMATIC AXES 1989-93 1994-99 Objective 1

1994-99 Objective 2

2000-2006 Objective 1

(phasing-out)


2007-present

Needs Obj. Needs Obj. Needs Obj. Needs Obj. Needs Obj. Needs Obj.

Enterprise development + 5 + 5 + 5 + 5 + 5 = 4

Structural adjustment ++ 4 ++ 4 ++ 4 + 4 + 4 + 5

Innovation

++ 3 ++ 4 ++ 4 + 4 + 4 + 5

Environmental sustainability ++ 4 ++ 4 ++ 4 + 5 + 5 + 5

Labour market

++ 5 ++ 4 ++ 4 ++ 5 + 4 + 2

Social cohesion

+ 3 + 4 + 4 + 5 + 5 + 2

Spatial cohesion

+ 3 + 5 + 3 + 4 = 3 + 3

Infrastructure

+ 4 + 5 + 4 = 5 = 4 = 3

Needs Scale (evaluation of the region at the start of the period) ++ Very high need: the region is highly deprived on this axis + High need: the region is somewhat deprived on this axis = Average need: the region is around the national mean on this axis - Low need: the region is above the national mean on this axis -- Very low need: the region is already a European frontrunner on this axis Imputed Objectives 5 Very high effort, this axis is a central aspect of the regional development strategy 4 High effort, this axis is an important element in the regional development strategy 3 Average effort, this axis is included in the regional development strategy but is not particularly important 2 Low effort: this axis is only marginally considered in the regional development strategy 1 No effort at all on this axis


LSE 43 EPRC

4. EXPENDITURE ANALYSIS

4.1 Financial allocations

It is estimated that over the past 40 years the Nord-Pas-de-Calais region received nearly €5 billion

of Structural Funds including the ERDF, ESF and funds dedicated to agriculture and fisheries. It is

one of the French regions that received the highest amount of EU funding.

EU support increased significantly in 1994 when the employment areas of Avesnes, Douai and

Valenciennes were designated as Objective 1 areas (doubling the ERDF contribution) (see Figure 5).

The ERDF allocation was maintained at a high level until 2007-13 due to persistent structural

difficulties. Alongside ERDF, the ESF played a major role to support fragile populations and the

unemployed, and to improve competences that remain a key issue for this region.

After 2006, even though the employment areas of Hainaut received a specific allocation of €70

million (ERDF+ESF), there is an overall reduction in the Structural Funds allocation due to the

phasing-out process and the suppression of Objective 3. As the 2007-2013 programme period is not

yet complete, Figure 5 provides only a partial picture of expenditure per year.

Table 9: ERDF and ESF allocations 1989-2013 (in million Euros, 2000 prices)

Programme Period ERDF ESF TOTAL

Objective 2 1989-91 €98.70 €57.03 €155.73

Objective 2 1992-93 €154.13 €41.96 €196.09

Individual projects (infrastructure)

1989-91 €15.74

€15.74

Individual projects (infrastructure)

1992-93 €23.53

€23.53

Total

€292.1 €98.99 €391.09

Objective 1 1994-99 €372.68 €91.43 €464.11

Objective 2 1994-96 €292.65 €60.20 €352.85

Objective 2 1997-99 €332.95 €68.88 €401.83

Total

€998.28 €220.51 €1218.79

Objective 1 2000-06 €271.90 €97.26 €369.16

Objective 2 2000-06 €556.20 €78.70 €634.90

Total

€828.10 €175.96 €1004.06

Objective 2 2007-13 €602.44 €327.26 €929.70

Total

€602.44 €327.96 €929.70

TOTAL €2,720.92 €822.72 €3,543.64


LSE 44 EPRC

Figure 5: Annualised actual expenditure (2000 prices)

As mentioned above, the Nord-Pas-de-Calais region has been one of the French regions that

received the highest amounts of EU funds. Due to the fact that this region also has the fifth highest

GDP in France in absolute value, expenditure did not exceed 0.8 percent of regional GDP. For 2007-

2013, this amount will decrease with a less important contribution of EU funds as well as stronger

targeting of available public financing on Lisbon priorities.

4.2 Expenditure compared with allocations

4.2.1 Evolution of actual expenditure over time in the eight selected thematic

axes

The analysis of the evolution of expenditure over time shows both regularity in the evolution of

thematic axes and clear influence between them since 1989. In the following graphs, expenditure

includes ERDF, ESF (in the case of multi-funds programmes) and domestic counterparts. It must be

noted that figures for 2007-2013 are not complete, as all available funds have not yet been spent

for this period.


LSE 45 EPRC

Figure 6: Expenditure by measure target/need and programme period (in million Euros, 2000 prices)

Source: Authors’ analysis of programme documentation.

From the outset, ‘enterprises’ constituted a major source of expenditure with significant expenses

in favour of productive investment and technology (modernisation of machinery and processes,

transfer of technology). The objective was to improve productivity and update tools and products

in a very competitive environment. This theme also includes the location of new enterprises that

could generate high levels of expenditure, with for example the implantation and development of

international firms such as Toyota (€900 million of investment) and Toyotomi from the end of the

1990s to the present. In the case of enterprises, the importance of private and other public

investments parallel to the ERDF contribution that generate high levels of global expenditure

should also be noted.

The decrease of expenditure for ‘enterprises’ in 2007-2013 must be connected to the progressive

increase of expenses in favour of ‘structural adjustment’ dedicated to the strengthening or

development of new industrial sectors and networks (enterprises, research, training). This

increased after 2007 with the focus on Lisbon priorities and the implementation of competitiveness

poles. From a methodological point of view, this shift does not mean that ‘enterprises’ benefit

from a lower level of support. They receive support through a different heading which focuses more

on innovation and networking.

‘Innovation’ follows a similar trend to ‘enterprises’ in a much more modest way, with almost no

expenditure in 1989-93, and progress until 2007 when ‘structural adjustment’ projects take the

lead. In this category, an increase in expenditure can be expected in the current period with a high

mid-term programme level.

Expenditure related to ‘environmental sustainability’ has regularly and constantly increased. This is

related to the importance of environmental projects in Nord-Pas-de-Calais, which has been boosted

by sustainable development objectives (Gothenburg Agenda). This issue should also be considered

in connection with ‘structural adjustment’ which, in some cases, includes treatment and renewal of

former industrial areas.


LSE 46 EPRC

‘Labour market’ has been a priority in Nord-Pas-de-Calais with a strong mobilisation of the ESF in

favour of vocational training throughout the four programme periods. Between 1994 and 1999, the

high levels of expenditure were also matched by ERDF investments in favour of initial training

(infrastructure, high schools) and a specific accompaniment of ESF for the development of

‘competence poles’.

Expenditure in favour of ‘social cohesion’ increased continuously until 2006 with, for 2000-2006,

the combination of ESF projects in favour of fragile population and a stronger focus of ERDF

expenses on ‘urban and rural regeneration’ (local development, accessibility, health, social

support, handicap, gender equality). Between 1994 and 1999, €26.5 million ERDF were invested,

which constituted the highest expenditure rate in French regions in this field. This included

diagnoses, restoration of urban wastelands, accessibility, anti-noise measures in the vicinity of

motorways, etc.

It is more problematic to evaluate the expenditure related to the ‘spatial distribution of economic

activity’ (rebalancing economic activity and income across different areas within the region), as

many actions that would have territorial affects are registered under different items (enterprises,

structural adjustment, infrastructure endowment, etc.). However, this issue increased in

expenditure until 2006, with a focus on infrastructure for businesses in Objective 1 areas.

4.2.2 Comparison between intended and actual allocations

For the four programme periods, the differences between intended and actual expenditure have

different origins.

From one period to another, the influence of project size on programmes is important. Large

projects, which have been numerous in Nord-Pas-de-Calais, have sometimes encountered

implementation difficulties, forcing authorities to modify the programme in order to ensure good

implementation conditions or avoid disengagement. Such a change could have significant impact on

budgets. One of the recent examples is the Louvre-Lens. The project was programmed in the

course of 2000-2006, requiring the transfer of funds from different measures. However, the

difficulty in launching the project and implementing it in due time meant that its implementation

was postponed until after 2007. For this reason, funds had to be reallocated to different measures,

creating delays in the programme.

In this situation or in the case of delays in the implementation of a large number of projects,

authorities could ask the EU Commission to postpone payments, as happened in 1995. At that time,

delays in projects implementation represented 14.2 percent of the total ERDF allocation.

A second reason is related to the ‘absorption capacities’ in the related intervention fields, namely

the availability and capacities of potential beneficiaries. Usually, the mid-term evaluation was the

occasion to observe the use of funds in the different Priority Axes and to transfer funds from the

‘less successful’ to the ‘more successful’ ones in order to ensure that all ERDF funds were used.

These changes did not necessarily have a strategic purpose, but they usually amount to less than

five percent of the overall budget.

Between 1989 and 1993, the region benefitted from additional ERDF under the ‘Community reserve’

(or Windfall) by €5.9 million. It has been more specifically used in favour of ‘research’, ‘technology


LSE 47 EPRC

transfer’, ‘tourism’ and ‘industrial and urban renewal’ that constituted successful measures. The

overall economic context also influenced the spending of funds. With the slowdown of economic

activity in 1992-1993, funds were transferred from measures such as ‘business incubators’ towards

productive investments for companies (including existing and new ones).

Between 1994 and 1999, adjustments occurred in the Objective 1 area, for it appeared that some

measures were more successful than others: among the successful measures was the support to

mixed housing development zones (from €18 million initial support to €20 million), business real

property (from €5.5 million to €11 million), and urban regeneration (the initial programme was

tripled).11 Some actions in this sector even had to be re-planned in 2000-06.

In other respects, the funding forecasted for social and health measures (Measure 5 of Sub-

programme IV: Alcoholism and drug addiction prevention) was partly transferred to other measures,

in view of the lack of project holders able to lead the projects. Regarding funds, planning delays in

the farm sector and a certain lack of dynamism led to a transfer of about €8 million from the

EAGGF to the ERDF.

From a more strategic point of view, large projects such as the Louvre Lens highlight the

willingness of regional authorities to intervene during the course of the programme when they

consider that an issue or a project constitutes a major interest for the region.

Between 1994 and 1999, some changes occurred in the strategy, as for instance the addition of a

Measure on Telecommunication and Information Society in 1997 on the initiative of the regional

authority. In the following period (2000-06), decisions were taken to modify initial allocations of

funds in favour of projects or priorities that were particularly important for regional or local

authorities. This was the case with ‘urban and social restructuring’, which benefitted from

transfers from other Priorities and from the entire performance reserve. It included projects for

local public transport that were especially costly for municipalities. In the Objective 1 area, even

though it was not explicitly mentioned in the programme documents, there was a shift of

expenditure from economic development (Priority 1) to catching up priorities focused more on

infrastructure. This also tended to reduce the overall ERDF budget dedicated to the environment.

11 In the district of Valenciennes, this was due to the arrival of the automobile firm Toyota in 1997. The Japanese firm attracted other enterprises and investments in R&D.


LSE 48 EPRC

Figure 7: Allocations and expenditure by thematic axis across regional programmes

(expressed as percentage)

For 2007-2013, the mid-term evaluation highlights a strengthening of measures related to research

and innovation, with €40.8 million indicating a good mobilisation capacity on this issue. In the field

of environment, although the overall Priority 2 remains stable, there is a transfer from different

measures to ‘energy efficiency in housing’, which constitutes one of the main changes during this

period (€18 million).

As mentioned for the 2000-2006 period, the project ‘Louvre-Lens’ was launched with contributions

from Priorities 1, 2 and 3 to Priority 4 (‘Territorial strand’). It benefited from €10 million in

additional funds.

In the field of ICT, funds of €18 million are reoriented towards the general improvement of ICT

accessibility for SMEs and population (accessibility and use of ICT).

Beyond strategic choices and strategic changes, it must be kept in mind that local and regional

stakeholders also have a more pragmatic preoccupation with the need to adapt to concrete

difficulties and ensure a good programme and degree of implementation. In this regard, a change in

‘strategy’ can result in trade-offs between institutions, each one taking into account the ability of

the others to properly manage and monitor funds that they control (especially with the increase in

Global Grants). The articulation between ESF and ERDF is one example, among others, of the

difficulty in ‘changing the boundaries’ between institutions that operate under different systems

and which can have different approaches to regional needs and priorities.


LSE 49 EPRC

5. ACHIEVEMENTS ANALYSIS

This chapter focuses on achievements of ERDF programmes in Nord-Pas-de-Calais since 1989. It

highlights achievements recorded in programme evaluation documents over each period and their

effects on regional development, on regional needs and on subsequent ERDF programmes. It also

takes into account complementarities and synergies with other EU and domestic programmes and

policies.

5.1 Reported & actual achievements

This part provides an analysis of the reported achievements for each programme since 1989, by

thematic axis, as well as unreported achievements, unexpected effects and implementation issues

that have affected the nature of reported or actual achievements. Each period benefited from the

achievements of the preceding period with an improvement in regional assets and governance

practices for the implementation of EU and domestic policies.

The analysis is based on data reported in final implementation reports, the PRESAGE monitoring

system, and evaluation reports (especially mid-term and final evaluation reports) that illustrate the

achievements of projects including what they delivered (outputs) and their immediate effects in

the region (results). The outputs can include the number of businesses that have been supported,

the number of people trained, the number of hectares of urban or industrial land that have been

subject to regeneration or restoration, etc. Results refer to economic activities, labour market and

job creation, and improvement of environmental quality as a direct consequence of these outputs.

However, the level of information varies significantly from one period to another depending on the

monitoring and evaluation processes used at that time. For a large number of measures before

2000, there was no clear mention of quantified targets, outputs or results in the programming and

evaluation documents. Apart from financial data, monitoring documents during this early period did

not provide much information on the achievements of programmes, such as the successes and

difficulties encountered. The results that are mentioned can also vary substantially from one source

to another (Managing Authority, monitoring authority, sectoral bodies), and the split of programme

periods into different phases makes it difficult to provide consolidated data when measures change

from one phase to another. The situation improved significantly in 2000 with the implementation of

the national electronic monitoring system PRESAGE.

This section starts with an overview of reported achievements at programme level. It is followed by

an analysis by theme and by comments on the institutional factors that affected achievements.

5.1.1 Programme-level achievements

Figures mentioned in the following paragraphs are taken from the programmes’ formal evaluation

reports. Summary tables of the main figures used for each programme period are provided. More

extensive data taken from evaluation reports are available in Annex III ‘Reported achievements’.

When no data is provided in the tables, this means that no information was available in the

evaluation documents (for example, no initial target or no evaluation of outputs).


LSE 50 EPRC

1989-93

Information available on achievements significantly varies from one period to another. Between

1989 and 1993, reporting focused mainly on financial progress rather on results. The lack of sources

limited the scope for aggregate assessment of the reported achievements.

According to the 1989-93 ex-post evaluation (European Commission, 1996b), 1,500 small and

medium sized firms benefited from ERDF support during this period. This represented 30 percent of

all businesses of 10 to 500 employees in the region and a total of €153M of ERDF support.

Interventions included 80 technology transfer projects, material and non-material investment,

support for executive recruitment, and external expertise. Through the modernisation and

adaptation of productive assets the regional economy became better able to face the economic

crisis, but evaluation reports do not specify the number of businesses that could be ’saved’, or

their survival rates, over the following years.

With regard to human resources, the ex-post evaluation specifies that more than 110,000 people

benefited from training measures, which far exceeded the programmes’ objectives (84,699)

(European Commission, 1996b). Around 6,700 persons benefited from training measures for the

creation of new economic activities, but no information is available concerning the real effect of

these measures on business creation.

In the catching up process, local, regional and national authorities put the emphasis on

strengthening educational and training facilities that led to the modernisation of 100 training

centres with ERDF support. This represents an important tangible achievement for regional

socioeconomic development, taking into account the lack of training facilities at that time in

comparison with other French regions.

In terms of cost per job created, Nord-Pas-de-Calais belonged to the group of the best-performing

regions (better than national average) between 1989 and 1993, which can be linked to investments

in training and technological development. However, most jobs created were in large industrial

units in specialised sectors such as the steel industry, textiles or the railway industry, which could

not lead to significant economic diversification. At the same time, the growth of the service sector,

supported by the slow increase in market services and strong support to public sector jobs was not

sufficient to compensate for the loss from industrial restructuring.

A significant achievement of ERDF in this period (and in those which followed) was its intervention

capacity on brownfield sites and urban derelict areas, which constituted a priority for local and

regional authorities (300 actions on urban areas were implemented during this period). In five

years, around 3,000 hectares of wastelands were subject to environmental clean-up, lot servicing

(530 hectares) and greening processes.

More than 110,000 m² of premises were created or rehabilitated. This is far below initial

expectations (250,000 m²), but the ex-post evaluation provides no further information about this

figure. This might be related to the limited success of activities in favour of ‘incubators’, in a

period in which it was still easier to save a large number of jobs in traditional industries than to

create new ones via support to entrepreneurship and SMEs.


LSE 51 EPRC

For these reasons, ERDF and domestic counterparts had a limited effect on economic diversification

during this period, and the extension of the tertiary sector proceeded with a progressive increase in

market services and the continuous growth of public services.

Between 1989 and 1993, large areas of land and premises remained to be renewed or developed.

The difficulty for local authorities was to set up relevant territorial development projects

addressing infrastructure, services, and accessibility. Through the following programmes,

qualitative requirements increased to ensure that interventions affecting land or real estate would

have real impacts on socioeconomic development.

Interventions in favour of culture and tourism, which would have increasing effects in the future,

can be identified. During this first programme period, projects supported the upgrading of tourism

services, hostels and catering. The launch of large projects such as Nausicaa benefitted from EU

funds, and it still represents a major tourism asset today. Culture and tourism were constant

considerations for local and regional authorities and were maintained as important intervention

fields until recently, when EU regulations put the emphasis on innovation and competitiveness.

Table 10: 1989-1993 Programme - Main output indicators

SPD Target (A)

Actual Output Approved Projects (C)

C:B as %

N° of SMEs concerned by support measures

2,000 1,500 75%

N° of projects dealing with technology transfer

- 80 -

N° of risk capital studies 60 - 0 %

N° of R&D projects 11 - -

N° of beneficiaries of training measures 84,699 111,102 131%

N° of training centres modernised - 100 -

Wastelands treated 2,200 ha 3,000 ha 136%

Lot servicing - 530 ha

Surface of premises created or rehabilitated

250,000 m² 115,800 m² 46%

N° of km of roads 60 km - -

N° of water treatment plants - 2 -

N° of urban operations - 360 -

N° of km of treated rivers - 41 -

Social sheltering : N° of bed spaces created or modernised

2,500 - -

Tourism: N° of hostels rooms created or modernised

500 259 52%

Source: Commission Européenne (1996b)

1994-99

With the classification of French Hainaut in the Objective 1 category, important additional means

were available to support the catch-up process.


LSE 52 EPRC

Concretely, employment increased by 12 percent in the Objective 1 area during this period. This

was higher than the regional and national average (+8.4 percent and +5.6 percent). This is due in

part to the creation of jobs in the public sector but also to businesses that increased their

production and employment capacities. The contribution of ERDF projects is difficult to evaluate

due to a lack of data, but it is estimated that these projects contributed to the creation of 3,220

direct jobs, 4,508 indirect jobs and to the retention of around 7,000 additional ones (European

Commission, 2003a). Documents do not provide further information on the way figures have been

calculated.

However, ERDF programmes have often been more successful in attracting large firms interested in

the available workforce and infrastructure in Nord-Pas-de-Calais than in generating endogenous

development on the basis of existing human resources and businesses. As mentioned in the ex-post

evaluation report (European Commission, 2003a), the initial programme was based on supporting

employment, but it proved to be much more successful in exogenous than in endogenous terms,

with numerous foreign or non-local firms coming to settle in the area (in particular with the support

of the Special Fund for Establishment).12 It must be noted that reports do not provide detailed

information on the way these amounts were calculated. For jobs safeguarded, they correspond to

enterprises that were in difficult situations and that could maintain their employment due to new

investments and new development perspectives with the contribution of ERDF funds. However, it is

not possible to figure out whether these enterprises would have really reduced their activities and

dismissed workers (or how many) without ERDF support.

Until 1997-1998, ERDF projects were more involved in supporting traditional and declining

industries than in promoting new economic sectors. Entrepreneurship remained low. The influence

of large companies on subcontractors remained unchanged.

Interventions in favour of brownfield renewal continued with the treatment of 2,020 hectares of

industrial land in the Objective 1 area and approximately 1,400 hectares for Objective 2. In 1994, it

was estimated that the remaining stock of brownfield sites represented about 5,000 ha. Until this

date, interventions were focused on the largest brownfield sites. From the end of the 1990s (1997-

98), projects have been targeted on smaller and more urbanised areas (with higher interventions

costs), explains the decrease in hectares treated as compared to initial objectives (1,400 hectares

for an objective of 2,400). In parallel, projects progressively evolved towards a stronger emphasis

on business property rather than only cleaning and renewal activities. However, evaluation

documents do not provide detailed information on the proportion of achievements corresponding to

‘greening’ activities, infrastructure development, housing, real estate building, or

commercialisation.

Nevertheless, complete renewal accompanied by the location of new businesses has been quite

rare, generally due to the unequal involvement of local actors and to the fact that many derelict

areas were located far from the main communication infrastructure. In this case, the improvement

of accessibility with local ERDF project (roads, bypasses) was not always sufficient to increase

territorial attractiveness.

12 The Nord-Pas-de-Calais region benefited from a Special Fund for Business Location (Fonds Spécial d’Implantation - FSI), created in order to help big companies to settle on local territory. This support has been notified to the EU Commission.


LSE 53 EPRC

The effects of ERDF projects have been especially noticeable in the field of urban renewal. Three

hundred projects were implemented in 131 cities in housing improvement, social support, health

and cultural activities. Nord-Pas-de-Calais is one of the French regions with the highest amount of

villages, cities and boroughs benefitting from interventions including roads, facilities and

amenities, and social support. However, the final evaluation report does not provide much detailed

information on these outputs (location of activities, share of the different kinds of interventions,

etc.). Information is also lacking on their direct socio-economic consequences (results).

Regarding environmental indicators, it is estimated that ERDF projects directly contributed to sort

and recycle 162,000 tons of industrial waste each year and participated in the improvement of air

quality (reduction of gas emissions). In the industrial transition process, it is essential to also take

into account the effect of the closure of many polluting industries, as long-term problems remained

concerning water quality due to soil pollution. In 2009 and despite progress, Nord-Pas-de-Calais was

still the second French region for the highest number of polluted sites (559) behind Rhône-Alpes

(599).


No data available for initial targets in the SPD

OP Target (A)

(no data available) Actual Output Approved Projects (B)

Direct jobs created (gross) - 3,220

Indirect jobs (gross) - 4,508

Jobs safeguarded (gross) - 7,000

N° of train stations renovated - 16

Development and maintenance of

water streams (km) - 30

N° of redeveloped hectares (industrial brownfield sites)

- 2,020

N° of m² renewed / demolished - 191,000 / 450,000

Urban renewal - 131 cities and 102,000 inhabitants

N° of beneficiaries of training measures - 81,500

Source: European Commission (2003a).

Table 12: 1994-1999 Programme - Objective 2 - Main output indicators (Ex-post Evaluation)

OP Target (A)

Actual Output Approved Projects (B)

B:A as percent

N° of ha of wasteland renewed 2,400 out of

4,000 Approx. 1,400 58 percent

N° of projects dedicated to environment and energy savings

50 - -

N° of firms informed about innovation and technological support

More than 150

- -

N° of new labs 4 - -

N° of additional students in high schools 16,000 75,000 in total

N° of jobs created thanks to firm real estate 500 - -

Source: European Commission (2003b), Annex 3.


LSE 54 EPRC

Table 13: 1997-1999 Programme - Objective 2 - Main output indicators (Final Implementation Report)

OP Target (A)

Actual Output Approved Projects

(B) B:A as %

N° of direct jobs created thanks to the measure dedicated to the support for

strategic set-up projects 500 805 160%

N° of jobs maintained thanks to the measure dedicated to the support for strategic set-up projects

- 3,934 -

New areas of business premises (m²) - 455,200 -

Rehabilitated areas of business premises (m²)

- 134,300 -

N° of jobs created thanks to the measure dedicated to business premises

500 3,888 617%

N° of jobs created or maintained thanks to the measure dedicated to financial

engineering - 1,422

N° of ha concerned by the measure dedicated to business areas

- 2,087 -

N° of places created or renovated for high-skilled technicians

7,000 3,576 51%

N° of MWh/year of classical network energies substituted with renewable

energy - 230,000 -

N° of TEP/year energy savings 10-30% of energy

savings 32,200 -

N° of t/year of business waste treated - 378,288 -

N° of m3/year of saved water - 412,686 -

N° of t/year of pollutants avoided (COV, HCl, NO...)

- 8,187 -

N° of protected sites

No quantified target

7

-

N° of km² of natural areas having benefited from ecological operations

861

N° of people concerned by sensitisation actions linked to environmental education

82,198 / year

N° of km. of rivers remediated 298

N° of studies carried out 49

Source: SGAR Nord-Pas-de-Calais (2003).

2000-06

Between 2000 and 2006, a modification in the regional development strategy can be observed. As a

result of the guidelines provided by the Lisbon Agenda and persistent economic difficulties, local

and regional authorities realised that stronger efforts needed to be made in favour of

entrepreneurship, the knowledge economy and R&D.


LSE 55 EPRC

Regional priorities remained focused on support to enterprises but with a stronger focus on business

creation as compared to previous programme periods. At the regional level, ERDF funds were

mobilised in coordination with the activities of the Regional Plan for Creation and Transfer of

Businesses (Programme Régional de Création et Transmission d’Entreprises, PRCTE). These

activities led to the creation of around 3,000 firms and more than 150,000 people benefited from

support measures and information promoting entrepreneurship through Objective 1 and Objective 2

OPs. Around 1,500 firms were set up through ERDF support. EU funds also contributed to improving

entrepreneurship, with the development of ‘collective actions’ involving groups of entrepreneurs.

More generally, this period showed a growing interest in services, tourism, health, environment and

ICT which contributed to structural adjustment (an example being the financing of IT laboratories

for digital schools). 160,000 people were reached by ‘health’ measures (support and awareness-

raising). In the field of ICT, there was difficulty in structuring activities around a regional strategy,

as projects tended to develop on diverse intervention fields. Nevertheless, progress was made with

initiatives such as ‘Digital Region’ and ‘Digital University in the Region’, which benefitted from

ERDF support.

This was also stimulated by the contribution of ERDF projects to the setting-up of new

competitiveness poles. The focus on ICT was particularly important, with almost 60 projects

dedicated to broadband loops. In line with this evolution, the shift towards greater integration of

R&D and innovation into businesses was also significant, even if the region remained below the

national average concerning R&D performance during this period. Nearly 5,000 R&D jobs were

created between 2000 and 2006 through both ERDF programmes. Around 16 percent of ERDF

projects were implemented on issues related to innovation, which is one of the highest rates among

French regions. One structural difficulty was the presence of a sizeable proportion of large

companies with insufficient focus on design, research and innovation activities. Amongst the SMEs,

most subcontractors still depended on these companies, and this situation was not favourable for

entrepreneurship initiatives.

The final evaluation report and PRESAGE DATA during this period show that around 9,400 direct

jobs and 3,916 indirect jobs were created in the Objective 1 area in Nord-Pas-de-Calais. This was

mainly due to Measures 1.5 (animation of economic fabric, financial engineering), 1.1 (creation and

transmission of businesses) and 1.2 (attraction of external businesses), representing 70 percent of

the expected jobs. With regard to Objective 2, the global result was close to 3,579 direct jobs and

20,160 indirect jobs created.

During this period, very large regional infrastructure projects were also pursued, such as the Zone

de l’Union in the Roubaix-Tourcoing area, which is a substantial urban renewal project

encompassing the ‘European Centre for Innovative Textiles’ (CETI), innovative housing, economic

activities, the regeneration of the Oignies brownfield site into a major economic and cultural site

based on the enhancement of industrial and mining infrastructure, and the multimodal and logistics

hub in Dourges. These projects corresponded with the will to support higher quality urban renewal

activities, with longer term socioeconomic impact.

Efforts for the reclamation of former industrial sites were maintained in 2000-2006, with more than

400 hectares of wasteland sites treated, with a more important focus on finalised projects

dedicated to the development of new activities. Overall, the ERDF contributed to the development


LSE 56 EPRC

of more than 1,000 hectares of business areas (zones d’activité) during this period. However, the

evaluation and monitoring systems do not provide precise data on the longer term achievements of

these projects. As has been mentioned, successful initiatives are well identified but there is no

integrated evaluation covering all employment areas of the region.


Target (A) Output (B) Comments

N° of temporary regional jobs linked to the realisation of projects

- 11,661 theoretical estimation

N° of direct and indirect jobs created

8,620 Between 13,000 and 18,000

N° of jobs maintained 8,430 - Evaluation method not reliable enough

Source : ADE (2005a), Evaluation finale du programme Objectif 1 2000-2006 de la Région Nord-Pas-de-Calais,

Rapport final.

Table 15: 2000-2006 Programme – Objective 2 - Main output indicators


N° of estimated temporary regional jobs linked to the realisation of the projects

- 16,000

N° of estimated direct and indirect jobs created

Around 20,000 Between 20,000 and 25,000

N° of estimated maintained jobs

- - Method not

reliable enough

ADE (2005b), Evaluation finale du programme Objectif 2 2000-2006 de la Région Nord-Pas-de-Calais, Rapport

final.

2007-13

The main characteristic of the 2007-13 programme period is the strong strategic shift towards

innovation and competitiveness objectives. Since 2000, local and regional authorities have been

aware of the necessity for stronger structural change. The EU regulations clearly accelerated this

process.

However, with the PRESAGE monitoring system, only a limited amount of data is available regarding

ERDF achievements due to the small amount of projects completed in 2010. The mid-term

evaluation is focused on expenditure and does not provide much information on project outputs and

results.

In the mid-term, the PRESAGE monitoring system specifies that between 2007 and 2012 around

18,600 projects managers were aided in the creation or transfer of businesses (50 percent of the

target for the overall period).


LSE 57 EPRC

Even though it is too early to form a clear picture of the overall achievements during this period, it

is of note that by the end of 2010, 95 percent of ERDF dedicated to the creation and transfer of

businesses had been programmed.

In terms of structural adjustment, one of the most significant ERDF achievements has been its

capacity to foster local and regional authorities towards better structured-development strategies,

especially in emerging sectors. Measures dedicated to creating a positive environment for growth

and competitiveness, as well as supporting actors and territory, have a high level of programme

funding, with projects addressing the promotion of partnerships, the implementation of sustainable

development policies, exploitation of new economic fields (renewable energy, biotechnologies),

protection of the environment, risk management, sustainable transport, etc.

In terms of innovation, the region strengthened its research capacity in order to catch up with more

skilled regions through the implementation of the Regional Innovation Strategy. At the same time,

ERDF projects contributed to the process of industrial restructuring through support to the creation

and transfer of businesses. But from 2009, a decrease in the number of R&D projects linked to

competitiveness poles can be noticed, certainly due to the economic crisis.

With regard to sustainable development, this issue became a major transversal objective during

this period and was more strongly taken into account in ERDF projects. In particular, rather than

increasing conditionality, project managers benefitted from stronger support to take sustainable

development criteria into account in their projects, whatever their field of intervention. In relation

to ERDF project outputs, progress must still be made in 2012 to reach the objectives set for the

overall programme. Since 2007, 262 km² of natural areas have been preserved as compared to an

objective of 402. In the same way, 9,968 TEP/year of energy have been saved against an objective

of 18,861, and 859 tonnes of waste have been recycled against a total objective of 3,464 (which is

rather low).

The effect of the 2007-2013 OP on the labour market is more difficult to analyse, since this was no

longer a central issue in the programme. The situation is similar for social cohesion, except for the

specific measure dedicated to energy efficiency in social housing, which is currently used to

support innovative and pilot actions in this sector.

In the field of infrastructure, the current period continues the significant achievements with a set

of large projects increasing the visibility and attractiveness of the region, such as the Louvre-Lens

Museum, the ‘Zone de l’Union’ in Roubaix-Tourcoing (mixed development area), the second phase

of the Valenciennes’ tramway, the public transport project ‘VIAVIL’ on the Val de Sambre territory,

and the LICORNE project (Lille International Campus Opportunities for Research and innovation).

Concerning the Louvre-Lens, the ERDF contribution is significant with €30 million from a total

budget of €150 million. In the ‘Zone de l’Union’, the ERDF is providing €5 million for the

development of the CETI (European Centre for Innovative textiles) representing almost 23 percent

of the budget (€22 million). In the field of communication infrastructure, the implementation of

the second phase of the tramway in Valenciennes represents a budget of €42.7 million including €7

million of ERDF (16.4 percent). Another large project, ‘VIAVIL’, presents a comparable overall

budget (€40.4 million) with €12.8 million ERDF (31.7 percent). For the LICORNE project, the ERDF

budget is much smaller (€3 million from €30.6 million), with a significant contribution from private


LSE 58 EPRC

partners (77 percent of the total budget). In total, the ERDF appears to be a major contributor in

the implementation of these large territorial projects. It not only contributes to the financing but

also plays a significant role for the programming of such infrastructure, which represents

considerable investment for local partners.

From a geographic and spatial point of view, efforts are largely concentrated on urban areas with

projects such as the conversion of the Boulon industrial site aimed at promoting ‘street arts’ in a

cross-border approach, or the re-industrialisation of the SELNOR site in Lesquin, close to Lille.

The spatial influence of ERDF projects is becoming more significant with the support for excellence

or competitiveness poles set up in the region. The fundamental change as compared to an approach

based on the designation of discreet areas (zonage) is the focus on networking and the articulation

of competences that can be located in various cities or employment areas. However, it should be

mentioned that competitiveness poles in Nord-Pas-de-Calais did not develop many connections with

partners in other French regions (with the exception of I-Trans with Picardie).

Table 16: Objective 2 (2007-13) – PRESAGE monitoring system

Target (source: projects’ tender - not the OP)

Output (source: projects’ final

report)

% of achievem

ent

N° of sensitisation actions 8,632 17,948 207%

N° of collaborations inter-enterprises labs 21 6 28%

N° of cooperation between enterprises and research institutes

306 36 12%

N° of ‘creation and transfer of enterprises’ project managers

accompanied 36,402 18,598 51%

Tonnage of waste recycled(t / year) 3,464 859 2.5%

N° of long-term jobs created 2,204 227 10%

N° of km of public transport implemented 32.4 8.1 25%

Ecological corridors 876 166 19%

Natural areas preserved (km²) 402 262 65%

N° of R&D jobs created 695 35 5%

Saved energy (TEP/year) 18,861 9,968 53%

Rehabilitated surface (m²) 682,836 603,756 88%

N° of TEP saved 54,740 23,916 44%

Source: PRESAGE monitoring system 2012.

5.1.2 Analysis by theme

When considering actual achievements of ERDF programmes and the expenditure per theme over

the four programme periods, a significant focus can be identified on enterprises and structural

adjustment that represents 39 percent of the total spending over the last 20 years. For these two

themes, domestic counterparts have usually been higher than for the others due to significant

contributions from businesses (in cases of large modernisation, development or implantation

projects).


LSE 59 EPRC

Environmental sustainability, labour market and social cohesion presented comparable expenditure

levels (around 12 percent each), which is in line with the relative importance of these three themes

in the transition process in Nord-Pas-de-Calais.

Less expenditure has been dedicated to innovation, which received greater attention only from

2007 with the earmarking of funds on Lisbon priorities (8 percent). Regarding the spatial

distribution of economic activities, this has been an implicit objective within the implementation of

two specific intervention areas in the region (Objectives 1 and 2). However, even though the

spatial dimension of investments was a strong issue, projects were also taken into account under

other headings (enterprises or structural adjustment).

Figure 8: Expenditure in eight thematic priorities (in million Euros, 2000 prices)

Source: Authors’ analysis of programme documentation.

(i) Enterprise development

Support to enterprises evolved considerably between 1989 and 2007, though this theme was always

present in programme strategies. During the four programme periods, it represented the most

important field of intervention with 21 percent of overall expenditure representing around €2.4

billion. With the evolution of the regional development strategy and the improvement of the

socioeconomic context, the support to enterprises moved from a focus on productive investments

and the attraction of large businesses, to the improvement of the economic environment,

innovation and, more recently, stronger emphasis on the development of an entrepreneurial

culture more oriented towards the creation of SMEs.

During the 1990s, measures in favour of businesses were an important means of adapting the

economic fabric, maintaining productive assets, transferring technology, improving competences

and safeguarding jobs in industrial sectors confronted with massive layoffs. This industrial


LSE 60 EPRC

environment could not be changed radically in the short term and projects were more dedicated to

adapting existing activities than promoting a new industrial model.

Although the regional strategy and ERDF programme mentioned the need to innovate and create

new businesses, evaluation reports do not provide detailed statistics and mainly refer to

‘enterprises supported’ in a broad sense.

The decision by Toyota in 1997 to set up its factory in Valenciennes with the support of domestic

and EU funds is a good example of this process. Activities started in 2001, and by 2008 it

represented €909 million of investment and 3,950 jobs. Considered to be a substitution industry,

investment was motivated by the available workforce and a favourable geographic position in

Europe.

The effect of the ERDF on the (re)location of such large businesses (as more recently with

Sevelnord) is questionable, as this only represented a very small amount of the initial investment

(less than 5 percent). Deadweight effects cannot be excluded, but specific studies on the

motivations of entrepreneurs would be necessary to assess the importance of EU financing in firms’

decision making processes.

Between 1989 and 1993, EU and domestic support generated around €1.2 billion of private

investment in more than 700 enterprises that contributed to the employment of 800 managers and

technicians. Around 890 actions of consultancy were also supported for development or adaptation

processes (European Commission, 1996b). Entrepreneurial successes can be acknowledged for

example in the fields of agro-food, glass and large retailing, but they remained too limited to foster

regional dynamics. According to the ex-post evaluations (SGAR NPC, 2003) the support to businesses

and industrial sectors had positive effects with direct creation of jobs between 1994 and 1999

(3,256 jobs created and 8,275 maintained in Objective 1 and 1,031 created and 3,934 maintained in

Objective 2 areas). These figures must however be treated with care, as the evaluation documents

provides no further indication on the way they were calculated or on the contribution of domestic

policies.

Despite these efforts, the modernisation of traditional industries was only able to ‘soften’ the

ongoing transition process. Sectors like textiles continued to lose jobs and enterprises (for

example, the textile industry in Roubaix). Nevertheless, the 1990s were characterised by a catching

up process in the service sector with the development of public services or the development of

other sectors like financial services. In this last case, 666 enterprises benefited from ERDF support

up until 1999, with the creation of 2,713 direct jobs. The development of financial services

continued, with an increase of 41.3 percent of jobs between 1993 and 2010.13 However, evaluation

reports do not provide detailed information on the specific contribution of ERDF to this evolution.

Concerning SMEs, an effort was made to support enterprise creation (more than 500 projects

funded under Objective 1), but no figure is available concerning job creation. Actions within

Objective 2 promoted access to micro-funding for dozens of SMEs improving entrepreneurship and

the professionalisation of managers. However, without longer term monitoring, it was not possible

to assess the survival rate and provide additional support when necessary. The impact of ERDF 13 Source: Unédic 1993 to 2010.


LSE 61 EPRC

measures on very small enterprises, in particular, was reported to be particularly low during the

1990s. Economic indicators remained worse than national figures in the early 1990s, such as firm

creation rate (- 0.7 percent between 1992 and 1993) especially in the building trade (-3.1 percent)

and services (-2.2 percent), while the enterprise failure rate increased between 1992 and 1993

(+1.6 percent). It has been necessary to wait until 2000 to see a more obvious focus and influence

of domestic policies and ERDF programmes on entrepreneurship. The Lisbon Agenda encouraged

local and regional authorities to go in this direction and fostered the setting-up of new intervention

tools financed by domestic and EU funds.

For a few years, entrepreneurship was especially supported by the ‘Regional programme for

creation and transfer of businesses’ (Programme régional de création et de transmission

d’entreprises, PRCTE) or the Regional Plan for Craft Development (Plan régional de développement

de l’artisanat). The influence of ERDF projects on entrepreneurship increased in parallel with this

focus, and, between 2005 and 2007, more than 34,000 project holders were reached by

information, awareness-raising and support initiatives in Objective 2 employment areas. In 2010,

the level of business creation for Nord-Pas-de-Calais was even slightly higher than the national

average (18.7 percent against 18.1 percent). However, the density of entrepreneurs for 10,000

inhabitants remains much lower than the national average (59 against 90) (CCI, 2012b).

It must be noticed that the increase of entrepreneurship between 2003 and 2007 was supported in

France by different legal initiatives: the ‘law for economic initiative’ (loi pour l’initative

économique - loi Dutreil in 2003), the law for SMEs (loi en faveur des PME - 2 August 2005), the ‘law

for the development of services for individuals’ (loi relative au développement des services à la

personne - 26 July 2005), and the ‘law for the modernisation of the Economy’ (Loi de

modernisation de l’économie - 4 August 2008) created the status of ‘Auto-entrepreneur’ and

greatly simplified the administrative process to set up businesses.

After a strong increase of business creation in Nord-Pas-de-Calais between 2006 and 2007 (+13

percent), which benefitted from ERDF support, there was stabilisation and a decrease in the

economic crisis (-12 percent in 2009). Moreover, only a low number of innovative businesses were

created during this period (between 2 percent and 4 percent of the total in France), and a low

survival rate was observed after 5 years. One direct consequence has been to maintain significant

ERDF support in favour of entrepreneurship with more than 18,600 business managers being

involved in projects related to creation or transfer of enterprises since 2007.

ERDF projects continued to provide support for the PRCTE activities14 that is considered by

beneficiaries as a key tool in the decision making process for business creation.15 It contributed to

better structure intervention strategies in favour of SMEs (networking, improvement of

competitiveness, financial engineering, training). ERDF projects also contributed to strengthening

14 PRCTE: Regional Plan for the Creation and Transfer of Businesses (Programme Régional de Création et Transmission d’Entreprises).

15 Conseil Régional Nord-Pas-de-Calais (2010), Evaluation du Programme Régional de Création et de Transmission d’Entreprise, Rapport Final.


LSE 62 EPRC

regional initiatives such as ‘Je crée en Nord-Pas-de-Calais’, 16 reaching several thousand individuals

willing to develop their own business.

Regarding business creation or development of new activities, one unexpected achievement of

ERDF programmes has been to push beneficiaries to improve their project management skills and

be able to address strict requirements regarding methodology and financial monitoring. This

consequence at the project level reflects a larger learning process that also had positive

consequences at programme level with the promotion of a project management culture and the

improvement of monitoring and evaluation capacities.

However, as highlighted by interviewees, SMEs and entrepreneurs have often been confronted with

administrative burdens and legal uncertainty when engaging with ERDF projects. One consequence

of this has been to motivate potential beneficiaries to look for other source of financing. In this

regard, ERDF is often more suitable for intermediary bodies supporting SMEs than for SMEs directly.

However, companies are faced with a wide dispersion of intermediary bodies and numerous systems

elaborated to support SMEs in France. Enterprises and laboratories can receive relevant support

from more than 70 operators, and around 314 different tools can be identified for business support

in France (Cour des Comptes, 2007). In Nord-Pas-de-Calais, according to evaluation documents, one

ERDF achievement has been to highlight this situation, to push for a better rationalisation of the

institutional setting and a reduction of the number of intermediary bodies.

(ii) Structural adjustment

Since 1989, structural adjustment in Nord-Pas-de-Calais has been considered as both a necessity

and a concern regarding its potential direct consequences for business and employment. This issue

was particularly crucial in a region where addressing the main development challenge depended on

its capacity to modernise and transform its traditional industrial fabric or develop new economic

sectors to cope better with changing economic constraints and needs. This is illustrated by the

important share of expenditure that reached €2 billion (18 percent of the total expenditure)

between 1989 and 2010.

During the first two programme periods, one of the main ERDF achievements was to maintain

businesses and jobs with productive investments, support to human resources, and improvement of

competitiveness and adaptation capacities. This had positive effects in the Objective 1 area in the

field of transport and railways around Valenciennes, which became a leading industry at national

and international level. One of the most significant achievements in the field of transport was

setting up a competitiveness pole (I-Trans), supported by EU funds. Today, this pole is considered

as a ‘world class competitiveness pole’ and is among the best-performing ones in France, according

to the 2012 national evaluation.

16 ‘Je crée in Nord-Pas-de-Calais’ is an initiative of the regional council that aims to reach every regional actor concerned with the creation and development of businesses. The project is structured around a website providing information and support to entrepreneurs or people willing to set up their own business. Institutions involved propose workshops, expertise, information on business opportunities, etc.


LSE 63 EPRC

ERDF programmes also contributed to strengthen the car industry, saving jobs and subcontractors

with for example the support for the siting of Toyota near Onnaing, the development of Sevelnord

and Toyotomi. However, the adaptation of these industries in continuity with former productive

activities represents only partial achievement in terms of structural adjustment when Nord-Pas-de-

Calais needs higher added-value and stronger conception activities.

In the process of structural adjustment, ERDF funds have also been mobilised in the Objective 1

region in order not to ‘lock’ the area of Valenciennes into transport industries. Local authorities

decided to provide specific support to the development of ICT at the end of the 1990s, which led to

the setting-up of the ‘Digital Image Pole’ (Pôle Image), which became another promising innovative

development initiative at regional level.

By the end of this period, the weight of traditional sectors in the regional economy declined, due to

jobs losses, but also to the development of new sectors that were partly accompanied by Structural

Funds. In line with R&D projects, ERDF supported economic growth poles with an increasing

involvement of local authorities, as can be seen with EURASANTE (health) and DIGIPORT (ICTs) in

Lille, Transports in Bruay, environment in Dunkirk, and the food-processing industry in Cambrai.

Food processing, which accounted for 13.4 percent of regional employment in 2010, has become

one of the most important economic sectors in the region.

ERDF projects must be considered as part of an overall process. From a methodological point of

view, evaluation documents analysed since 1989 do not provide relevant indicators that could be

used to precisely quantify the specific contribution of ERDF to ongoing structural changes. As

mentioned previously, ERDF funds contributed to maintain, modernise and attract businesses in

traditional industrial sectors. Beyond financial support, ERDF programmes also contributed to

modifying the economic and industrial culture in the region.

Since 2000, the transition process continued with a progressive change in ERDF projects. A good

illustration is the textile industry and its transition towards more innovative, competitive and

higher value-added activities. ERDF support to this industry during the 1990s and 2000s contributed

to new developments around ‘technical textiles’ with the setting-up of the competitiveness pole

Up-Tex in 2005. However, the textiles sector in Nord-Pas-de-Calais is still facing economic

difficulties with international and even national competition with the promotion of other high

value-added textile activities such as in the area of Lyon in France. Apart from ERDF or domestic

funds support, the ability of economic actors in France to organise themselves in the face of

increasing international competition is a key issue.

The focus on ICT has been significant since 2000, with a stronger positioning of regional authorities

and a stronger mobilisation of ERDF projects in this field. In 2003, Lille had over 20,000 jobs and

4,000 businesses in the ICT sector and is now ranked as one of the most attractive places in France

for ICT activities. The concrete contribution of ERDF to this trend can be measured on the one hand

by the direct support to ICT businesses and on the other with the financing of ICT infrastructure

and services (broadband local loops, ICT services digital public points, etc.).

In line with these improvements, Nord-Pas-de-Calais was one of the first regions to take part in the

EU-funded IRISI programme (Regional Information Society Initiative). This led to the setting-up of

the Excellence Pole EuraTechnologie in 2009 in Lille, which is especially dedicated to ICT


LSE 64 EPRC

businesses from start-ups to large companies (€3 million ERDF from a €30 million global cost). This

pole offers 150,000 m² of premises for businesses specialised in information technologies. It

provides them with support to develop technologies, marketing and activities at international level.

In 2010, EuraTechnologie hosted 100 ICT businesses representing 1,500 jobs.

This case of ICT development is an expression of a deeper movement that led local and regional

authorities to increase their scope for intervention by creating better-structured development

strategies. The influence of ERDF programmes in this regard has been obvious since 2000, with the

orientations towards the Lisbon strategy that recently led to the setting-up of the Regional

Innovation Strategy (RIS) with the support of the EU Commission. This contributed by giving a

stronger impulse to economic poles and by better promoting economic sectors representing good

development potential (ICT, health, agro-industry, digital industry).

Besides technological industries, structural adjustments in Nord-Pas-de-Calais also include services

with specific reference to sectors such as tourism or culture that benefitted from ERDF support

from the first programme period. In terms of surveyed investment, tourism represented a

significant percentage of the final allocations of surveyed expenditure, 1.48 percent in 1989-1993,

4.74 percent in 1994-1999 and 4.28 percent in 2000-2006. Regarding achievements, tourist

infrastructure and accommodation have been improved, increasing the attractiveness of major

tourist areas such as the regional parks of Cape et Marais d’Opale and Scarpe-Escaut.

It must be noted that more than 50 percent of tourists in Nord-Pas-de-Calais come from abroad,

with a majority from Great Britain, Belgium, Germany or the Netherlands. However, although Nord-

Pas-De-Calais was ranked as eighth amongst French regions for tourism activities in 2003 (based on

number of nights in hostels), this sector represents only 2.6 percent of regional paid-employment,

which is one of the lowest rates in France.

In this sector, the difficulty for local and regional authorities has been to promote activities able to

generate synergies and economic dynamism. In many cases, initiatives and ERDF projects were too

modest and too local to have a measurable impact on regional attractiveness and regional

development. EU funds, however, contributed to some major achievements, such as the National

Sea Centre Nausicaa in Boulogne-sur-Mer, the Kursaal (Congress hall) in Dunkirk, the Site des Deux

Caps or the tourist station Val Joly in Avesnois. Whereas facilities located close the coast prove to

be quite attractive, the situation is mixed regarding the Val Joly. One main difficulty is the

seasonality with quite weak frequentation during winter time, as well as a strong competition with

other tourist centres in Belgium.

The situation with regard to culture is noted in the regional development strategy, and had clear

interest from local and regional bodies since the first programme period. EU funds intervened at

different territorial levels over the past 20 years with significant achievements in terms of

territorial identity, innovation and local development. Despite a context of competition for the use

of EU funds between local and sub-regional territories, ERDF projects generated cultural amenities

that progressively constituted a coherent fabric at the regional level with a direct impact on the

image of the overall territory. In this context, special reference must be made to regional, national

and international museums such as the Musée Piscine of Roubaix (1998-2001), the Musée Matisse of

Cambrai (2002), the Musée de la Dentelle in Caudry (2006-2009), the Métaphone of Oignies (2010-

2013), the Regional Pole of Street Arts (Le Boulon), and more recently the Louvre-Lens (2012),


LSE 65 EPRC

which expects 800,000 visitors in the first year. Nord-Pas-de-Calais is the second region in France

for the greatest number of museums per inhabitant.

With the Musée –Piscine (picture on the first page of the report), the objective was to create a

Museum of Art and Industry in Roubaix, a city deeply marked by its industrial past (textile

industry). This museum is located in a former spectacular art Deco swimming pool built in 1932 and

closed in 1985 for safety reasons. In the early 2000s, a project was launched to renovate the

building, producing a unique atmosphere that has no comparison in other French museums. The

museum is dedicated to several artistic disciplines representative of local skills and industrial

traditions and had more than 220,000 visitors in 2011 (first tourist facility for the number of visitors

in the region).

The development of the museum also triggered a large movement of urban regeneration. It

illustrates the extent to which a single cultural project may turn into a real local development

dynamic, with impacts on the local economy, housing, and regional attractiveness. The same

knock-on effect is expected in Lens with the Louvre-Lens Museum. This successful experience is a

particularly good example of changes and structural adjustment which can be observed today in

Nord-Pas-de-Calais as a result of support from EU funds.

With the recent shift in ERDF programmes towards Lisbon priorities, expenditure dedicated to

culture and tourism decreased, and this is a matter of concern for local and regional actors for

whom it constitutes a part of territorial and regional development strategies. Culture proved to

have positive effects on the image of the region and on territorial attractiveness, such as tourism

activities that still represent a significant and under-exploited development potential.

Regarding this issue, growing interest is raised by projects connecting innovation and culture, as is

the case with the promotion of information technologies in the Louvre-Lens or the setting-up of a

cluster dedicated to the use of digital technologies for culture such as the Digital Cluster in Lens.

(iii) Innovation

In the fields of R&D and innovation, ERDF achievements remained modest until recently. Even

though this issue was clearly raised in the regional development strategy and in the first ERDF

programmes as a priority, investments in innovation required favourable socioeconomic conditions

that were not fully met during the 1990s. More recently, the focus was stronger with an evolution

at EU, national and regional levels. Between 1989 and 2010, innovation-related expenditure

represented almost €800 million (8 percent of overall expenditure).

Between 1989 and 1993, projects dedicated to innovation contributed to improve facilities, transfer

of technology and productive tools, but they represented only one percent of the expenditure (see

Figure 6). In the early 1990s, the few measures that were specifically dedicated to innovation had

trouble generating enough projects (European Commission, 1996b; SGAR, 2003a & 2003b).

However, until 1999, development perspectives increased in specific sectors such as biotechnology,

agro-food processing or ICT that benefited from stronger domestic and EU support. In Objectives 1

and 2 areas, more than 400 enterprises received ERDF support for activities dedicated to

technology dissemination, support to innovation or emergence of R&D businesses.


LSE 66 EPRC

Globally, the number of firms involved in a R&D strategy increased significantly with more than

1,000 in 1997-1998. During this first decade, ERDF projects supported initiatives such as the

Technological Centre in Ground Transports (Centre Technologique en Transports Terrestres –

Valutec), and the Railway Testing Centre (Centre d'Essais Ferroviaire) in the Objective 1 area. They

represented significant R&D investments at local level and strengthened the pole of competence on

transport in the Valenciennes area.

Achievements have also been noticeable in the support to the Centre for Experimentation and

Enhancement of Sea Products (CEVPM - Centre d’Expérimentation et de Valorisation des produits

de la Mer). Technological support led to the development of new products with a wider range of

quality control and technical services. Important links have been established with the fishing

industry, and the Centre developed an incubator for new technology companies in the sector.

However, during the 1990s, the number and scope of innovation projects were too limited to have a

significant effect on investment, patents or to generate a wider knock-on effect on the overall

regional economy.

This is confirmed with the implementation of domestic tools such as the Regional Fund for

Technology Transfer (Fonds Régional d’Aide au Transfert Technologique, FRATT) and the Aid to

Innovation and Dissemination of Technologies (Aide à l’Innovation ou à la Diffusion des

technologies, ATOUT), which did not have the expected success in the Objective 1 area, with only

39 SMEs supported between 1994 and 1999.

The business fabric based on large companies and sub-contractors was not favourable for the

promotion of independent innovation and R&D strategies.

According to interviewees, ERDF projects played a more significant role in the catching up process

for universities and public research between 1990 and 1999. They especially supported human

resources contributing to the overall increase of 50 percent of the number of researchers,

engineers, technicians and administrators (+30 percent at national level). Between 2000 and 2005,

this increase of human resources in science and technology continued.

With 3,300 researchers, Nord-Pas-de-Calais was seventh amongst French regions at the beginning of

the 2000s. However, the increase in public researchers mainly concerned universities, and few

investments were dedicated to other bodies such as EPST (Scientific and Technologic Public Body)

and EPIC (Public Body with Industrial and Commercial Vocation), which are essential for the

development of fundamental and applied research and promoting innovation in relation to

businesses.

The discrepancy between human resources dedicated to research and private sector dynamism is

highlighted by the profile of CIFRE contracts signed between young researchers and private

businesses.17 Between 2001 and 2006, 78 percent of these contracts were signed with businesses

located outside of the Nord-Pas-de-Calais Region.18

17 CIFRE: Convention Industrielle de Formation par la Recherche.

18 Source: Association Nationale de la Recherche et de la Technologie, 2007.


LSE 67 EPRC

In parallel, a limited increase can be identified in the number of patents and private R&D expenses

between 1995 and 2005. With 250 patents registered in 2005, the region was in 74th position in

Europe.

In 2005, 56 percent of R&D investments in Nord-Pas-de-Calais were financed by public bodies and

54 percent by private actors. In this regard, ERDF achievements remain weak in favour of private

investments that represent more than 60 percent of R&D investments in EU regions such as

Vorarlberg, Stuttgart, Darmstadt, Luneburg or in French regions such as Picardie and Aquitaine.19

As for the 1989-1999 decade, the weak innovation and R&D indicators at the regional level

understate the significant influence of ERDF projects at local and sub-regional level (

Important contributions include the creation of the Genopole in 1999 (one of the first 5 French

poles on genomics) and the INRIA (National Institute for Research in Computer Science and

Automatics) which was set up in Villeneuve d’Ascq near Lille in 2001 (ERDF €890,000 for premises).

In the Objective 1 area, EU funding dedicated to R&D was especially oriented towards excellence

poles with more limited effects on SMEs.

However, with €570 million of R&D expenses in 2004, Nord-Pas-de-Calais was still ranked in 14th

place among other French regions.

Since 2007, EU regulations have played a strong role in substantially increasing the importance of

innovation in the regional development strategy. The focus in the new programme period on

innovation and competitiveness constitutes a major change for local and regional actors. In terms

of strategy, the shift certainly exceeds what could have been initiated by regional stakeholders

without EU support, as many interviewees considered that this orientation was going too far or too

fast for the regional economy.

However, this took place in a period characterised by a stronger mobilisation of public and private

bodies, as can be seen with the launch of the competitiveness poles policy in 2005. At regional

level, the political and institutional environment also improved with the setting-up of the Regional

Economic Development Scheme (SRDE) in 2005 that created a more favourable context for future

ERDF projects.

One of the main regional initiatives was the setting-up of a Platform for Innovation and

Enhancement of Research (Plateforme innovation-valorisation de la recherche) in 2006, in order to

support the creation of innovative businesses, regional attractiveness, financing of innovation,

mobilisation of researchers, improvement of technology enhancement and transfer, etc. A regional

innovation fund has also been set up for the financing of innovation (246 projects supported in 2008

for €24.8 million).

Regarding the ongoing 2007-2013 programme, the mid-term evaluation highlights the fact that

Priority 1 ‘Research and development, innovation and support to businesses’ is the best-performing

one (46 percent in September 2010) among the four Priorities of the programme. ERDF provides

direct support to businesses or to larger initiatives such as competitiveness poles.

19 Source: Eurostat and Ministry of Research for France.


LSE 68 EPRC

It must be noted that this priority is directly managed by the regional government through a Global

Grant and that these results demonstrate the ability of regional authorities to intervene in favour

of innovation and competitiveness.

In terms of achievements, the 2012 national evaluation on competitiveness poles revealed that the

functioning and activities of four poles in Nord-Pas-de-Calais among the six existing ones could be

improved (Maud, Industrie du commerce, Up-tex and TEAM 2). This will require discussion and

trade-offs between the poles, local, regional and national authorities to identify difficulties and

make recommendations. On the other hand, the poles of I-Trans (world-class competitiveness pole)

and Aquimer (national-class competitiveness pole) constitute good results in term of organisation

and economic activities and generate positive knock-on effects on businesses involved in their

respective intervention fields. They increase research potentialities, dissemination of information,

coordination and exploration of new markets.

Beyond the promotion of competitiveness poles, the Regional Innovation Strategy provided an

opportunity to mobilise local and regional partners and build up a conceptual and strategic

framework for the promotion of innovation in the region. The Regional Innovation Strategy was

produced with the support of the EU Commission, and benefits from €12 million ERDF support

between 2007 and 2013.

One of its main contributions is the identification of Strategic Action Fields (Domaines d’Action

Stratégiques, DAS) structured around three priority orientations:

- Sectors with strong international potential: railway transport, trade, health, nutrition and food;

- Sectors with important regional and national economic potential: car industry, advanced materials, building and eco-construction, mechanics;

- Sectors with strong growth potential: energy, waste treatment and environmental clean-

up, image and digital creation, e-health.

The objective of this approach is to foster new collaboration activities and new projects between

economic actors and to better target public support on their specific needs. It also includes a

broader reflexion on innovation with the awareness that ‘innovation cannot be ordered’ and that

specific accompaniment is necessary to generate high-quality innovative projects.

In particular, the analysis of business needs revealed the crucial role played by human resources for

the promotion of innovation, especially in SMEs (ADE, 2010). This need includes the availability and

competence of managers and staff, the innovation culture or the necessity to make better use of

innovation as a management tool, etc.

In Nord-Pas-de-Calais, this led regional authorities to provide stronger support to innovative SMEs

with initiatives such as the ‘2000 SMEs Scheme’ launched in 2010 (Plan 2000 PME). The objective

was to improve the capacity of intermediary bodies to foster innovation in SMEs through

information, awareness-raising, support towards innovation projects, etc.

Concerning the economic promotion of R&D, dozens of projects have been financed by ERDF in

relation to the ‘Maturation’ call for projects (technology transfer between businesses and


LSE 69 EPRC

universities) and the creation of a specific tool focused on a collaborative loan for non-

technological innovation. However, it is too early to have a clear picture of their achievements.

These different levels of intervention supported by EU funds, from the elaboration of strategic

orientations to the concrete support to innovative projects in SMEs, show positive achievements,

with innovation now being considered as a growing asset for the Nord-Pas-de-Calais region.

This is well illustrated by the success of EuraLille in ICTs, and the favourable development of the

digital economy, trade, food industry, energy sector and e-commerce, despite a weak economic

environment.

(iv) Environmental sustainability

In the Nord-Pas-de-Calais region, environmental sustainability is at the crossroads of different

major issues related to the economic development and industrial transition process. Thus, in order

to assess the achievements of this thematic objective, it would be necessary to take into account

projects implemented in the fields of social cohesion (urban renewal) and regional infrastructural

endowment (generation or restoration of derelict areas). Nevertheless, projects explicitly

dedicated to this thematic objective generated a significant part of the overall expenditure with

around €1.3 billion (12 percent of total expenditure).

In the Nord-Pas-de-Calais region, continuous attention has been paid to environmental issues since

the 1960s with the creation of the first French regional park of Scarpe-Escaut. Since the end of the

1980s, ERDF funds contributed to strengthening an overall strategy aiming to protect natural areas

in the face of continuous urban sprawl and the increasing footprint of economic and communication

infrastructure. Concretely, this can be measured with the protection of 22,000 hectares of natural

areas, the setting-up of contractual protection for 360,000 hectares of land and the preservation of

2,500 hectares of coastal areas.

Between 1989 and 1993, projects dedicated to environment already represented more than 6

percent of programme expenditure. Even though achievements remained modest in the

remediation of rivers and the management of marine pollution, interventions in urban areas have

been more significant with the upgrading of public spaces and the extension of green areas (360

interventions in urban areas during this period).

This trend increased in 1994-1999 with wider achievements with for example the protection of 365

hectares of natural areas, the development of 76 km of nature trail, and the remediation of 204 km

of rivers and waterways.

ERDF contribution can be more precisely identified at different territorial scales with on the one

hand small-scale improvements for municipalities (town planning, greening and on the other hand

larger emblematic achievements such as the Site des Deux Caps in the coastal area between Cap

Gris-Nez and Cap Blanc-Nez. It includes 7,000 hectares of protected areas, 23 km of coastline and

five Natura 2000 sites. The concrete outcomes of this project included environmental protection,

the improvement of amenities, tourist facilities, ecological enhancement, embankments, and soft

transport systems between Ambleteuse and Audresselles.


LSE 70 EPRC

Nowadays, the Site des Deux Caps is recognised as a model project in terms of protection and

enhancement of natural and built heritage. According to interviewees, it could not have been

carried out to the same magnitude without ERDF support. It was an occasion for local authorities to

work in a partnership way and represented a challenge for a better articulation between economic

development and preservation of natural and fragile areas. At a wider scale, ERDF funds

contributed to this project to improve the visibility of the region and its attractiveness, putting

emphasis on an especially rich natural heritage in the region.

In a different way, ERDF programmes brought in a significant contribution for industrial and

brownfield renewal. Their impact has been especially important with environmental clean-up

activities, treatment or greening of thousands of hectares of derelict areas. Since 1989, it is

estimated that ERDF funds contributed to depollute and green more than 7,600 hectares of land.

This is a major issue in Nord-Pas-de-Calais that still accounts for half of the brownfield sites in

France.

For interviewees, these interventions contributed to upgrading the quality of life of a large part of

the population concentrated in the main urban and industrial areas. It also contributed to

improving the image of former mining sites and of the overall region (for example the classification

in 2012 of the mining area as World Heritage by UNESCO). Mining areas and mining heaps have also

been considered as lands of specific environmental interest with the development of unique

biodiversity (heat radiated by coal remains).

In connection to brownfield renewal, ERDF projects significantly contributed to the reduction of

industrial pollution since 1994. Especially in the Objective 1 area, studies and analyses dedicated to

‘industrial pollution’ have been used to reduce the impact of iron and steel industries on the

environment. Between 1994 and 1999, ERDF projects contributed to saving 21,300 TOE/year,

reducing the emission of 67,000 t/year of CO² and treating 162,000 t/year of waste.

It must be noted that the decrease of industrial pollution in the region is also largely due to the de-

industrialisation process and the closure of the most polluting activities since the 1980s.

Since the 2000s, the environment has been more clearly considered in Nord-Pas-de-Calais as a field

of investigation mixing environmental purpose and new economic perspectives. With projects

dedicated to environmental technologies, the ERDF contributed to better integrating environmental

issues and energy management into firms’ strategies. It supported the development of green

technologies (purification, recycling and co-generation), energy savings (renewable energies, heat

networks, energy efficiency) and the setting-up of recycling networks for industrial waste. ERDF

funds also supported the implementation of a network measuring atmospheric pollution

(AREMASSE). They financed 160 actions raising public and firms’ awareness and supported 150

environmental pre-diagnoses for businesses.

All these activities represent specific expertise needs, competences, and potentially new markets

for businesses, e.g. the creation of the National Research Centre in the field of soil pollution and

the European Dioxines Study Centre in Douai.

Since 2000, there has also been a shift towards more prevention-oriented ERDF projects with the

objectives of better informing the population, public and private actors, adapting behaviour and


LSE 71 EPRC

preventing risks (information, education and awareness-raising). This is related to the

generalisation of a ‘sustainable development’ approach that is directly promoted by EU regulations

and programmes.

With the focus on Gothenburg priorities, public authorities in Nord-Pas-de-Calais increased their

expertise capacities and developed their technical assistance to better inform and accompany

beneficiaries in the conception and implementation of projects respecting sustainable development

principles, setting-up the ‘Environmental Support Mission’ (Mission d’appui environnementale) in

2008.

The most recent achievements of ERDF projects in the field of environment include the integration

in the 2007-2013 ERDF programme of a new priority dedicated to energy efficiency in social

housing. Taking into account the important regional needs and the hundreds of millions of

investments it represents, the strategy of regional authorities is to support a limited number of

innovative or pilot projects whose achievements could be more widely disseminated with the

support of other public or private financing tools.

(v) Labour market

Labour market, especially the fight against unemployment and the support to human resources,

constituted a major stake in a region confronted with widespread layoffs and the need to

restructure a large part of its economic fabric. This has been supported by ERDF projects but also

by ESF measures that played a strong role in training activities. For these reasons, expenditure

dedicated to the labour market has been high, with 12 percent of overall expenditure representing

close to €1.3 billion.

Between 1989 and 1993, with a slacking economy and high interest rates, businesses adopted a

wait-and-see policy, reducing the numbers of permanent jobs and increasing low-quality/temporary

contracts. The number of unemployed people increased by 65,000 between 1990 and 1994 (+3.8

percent). It mainly affected old industrial sites (Valenciennes, Sambre-Avesnois, Roubaix-Tourcoing

and Lens), whereas other parts of the region benefitted with a stronger increase in services.

In this field, concrete ERDF achievements are especially hard to measure due to the lack of

relevant figures and the various domestic public policies that were implemented in favour of the

unemployed. EU funds have been mainly oriented towards the development of training facilities

(modernisation of 100 initial and vocational training centres) and improvement/adaptation of skills

and qualification with the support of ESF (around 100,000 people benefitting from training

activities during this period).20

Beyond these measurable outputs, the direct effect on education and increase of competences is

more difficult to evaluate given persisting economic and social difficulties. Regarding vocational

training, results have to be read having in mind the especially complex French institutional system

20 From an institutional point of view, the regional self-government had a general competence in the field of vocational training and apprenticeship since 1983. Then, the 2004 law (Loi du 13 août 2004 relative aux libertés et aux responsabilités locales) strengthened this position, the region becoming a major actor for vocational training activities.


LSE 72 EPRC

characterised by a multiplicity of intervention tools and a complicated share of competences

between public authorities and intermediary bodies.

From 1994 to 1999, there was stabilisation in the unemployment rate after a strong increase since

1990. Against a backdrop of persisting economic difficulties, EU and domestic funds were impelled

to protect traditional industries in order to avoid or reduce massive layoffs. During this period,

3,220 direct jobs and 4,508 indirect jobs were created with the support of ERDF (European

Commission, 2003a). According to the ex-post evaluations, ERDF projects contributed to safeguard

around 7,000 additional jobs. However, these figures are especially hard to confirm due to the

insufficient evaluation and monitoring tools used before 2000 (a lack of indicators and no

systematic and harmonised data collection).

With economic restructuring and available work force, Nord-Pas-De-Calais represented an

opportunity for foreign investors, the region becoming the leading French region for foreign direct

investment between 1996 and 1998 (54 decisions of FDI representing 2,855 jobs). Up until this

point, ERDF constituted a means to provide attractive places for businesses and support their

development.

This trend shows the limit of local (endogenous) development possibilities and the persisting

importance of external factors on job creation. Within the region, the slight economic recovery

during the 2000s concerned mainly services and has been mostly profitable for the area of Lille.

In the Objective 1 area, ERDF projects dedicated to ‘infrastructure supporting training and

apprenticeship’ contributed to reducing unemployment through the development of innovative

training tools and of individual pedagogy.

This evolution is however characterised by disparities due to the fact that new industries and new

services hire a well-trained and young workforce, whereas almost no jobs are available for the less-

skilled people. This tendency was even stronger in Lille with a large immigration of young people

from other parts of the region.

Generally speaking, up to 2003 employment improved but the gap of 3 to 4 points with the national

average remained. This raises the question of the effective contribution of ERDF projects to the

convergence process with persistent low macroeconomic figures.

As mentioned previously (Section 5.1), evaluations carried out on employment in 2000-2006 showed

that around 9,400 direct jobs and 3,916 indirect jobs were created in the Objective 1 area and

3,579 direct jobs and 20,160 indirect jobs in the Objective 2 area (PRESAGE monitoring system,

2012).

Since 2007 however, the focus on innovation and competitiveness reduced the ERDF contribution to

job saving and job creation. This happened in a difficult period with strong effects of the economic

crisis in 2008 (unemployment increased up to 13 percent in 2010 compared to 9.2 percent at

national level in 2011).

With the focus of the regional development strategy and of the ERDF on Lisbon priorities,

stakeholders also raised questions over the capacity of measures dedicated to human resources to

contribute to the objectives of innovation and competitiveness. Looking at the way the ESF has


LSE 73 EPRC

been implemented since 1989, and also considering domestic policies dedicated to employment, a

rather ‘social’ approach can be observed. Beneficiaries of support and training measures are mainly

low skilled people aiming to improve their employability. As a result of the Lisbon strategy, it was

instead necessary to provide stronger support to entrepreneurs and highly skilled people committed

to innovation and competitiveness processes. This highlights the difficulties in coordinating ERDF

and ESF funds, even in the framework of multi-fund programmes. Interviewees expressed that their

experiences of multi-fund programmes in Nord-Pas-de-Calais were not always fully satisfactory, and

that closer strategic orientation between funds is required in order to meet current expectations.

(vi) Social cohesion

In the field of social cohesion, ESF projects made an important contribution especially in the Nord-

Pas-de-Calais region whose population has been strongly hit by the consequences of economic crisis

and industrial transition. However, ERDF projects have also been of primary importance, as social

cohesion also includes urban renewal activities for which ERDF has been a strong contributor. For

these reasons, the overall expenditure dedicated to social cohesion reached 12 percent of overall

expenditure between 1989 and 2010.

In 1989, ‘Social cohesion’ was not identified as a direct and explicit objective of the regional

development strategy and of ERDF programmes, but appeared as a transversal target with the

improvement of education and training, the fight against unemployment, urban renewal measures,

etc. This was possible during the first programmes with an interconnection between ERDF and ESF

measures that were implemented under common strategic frameworks.

On the side of ERDF, key achievements can be observed in the field of urban development with

hundreds of urban renewal projects implemented over the last 20 years. Since the early 1970s,

economic difficulties reduced the activities of the building sector with very limited new building

operations and insufficient upgrading of older housing (except in the areas of Lille and Côte

d’Opale). The reaction of public authorities in 1994 was to focus projects on social housing where

around 40 percent of the building stock had to be renewed. Considering the large investments

needed and the decreasing support from State authorities, ERDF funds represented an opportunity

for local actors.

Evaluation documents lack details on the specific ERDF contribution in this field, but it is estimated

that at the end of the 1990s 60 percent of housing stock in the mining area was refurbished, which

constituted one of the most significant performances among French regions. In the area of Lille-

Roubaix-Tourcoing alone, around 8,000 slum housing units were demolished in 20 years and

thousands of houses built or refurbished during this period. This directly improved the living

conditions of the population and contributed to boost the local economy in former derelict

boroughs that became more attractive for services and shopkeepers.

Besides housing, ERDF renewal projects upgraded public areas, green and leisure areas, roads,

public facilities and public services, etc. In quite dense urban contexts, municipalities also

mobilised ERDF projects to fight against noise with the setting-up of numerous anti-noise systems

close to the main traffic roads. In port cities, this included heavier renewal operations in dock

areas, including destruction of unfit housing and provision of new ones.


LSE 74 EPRC

For local and regional authorities, these interventions on housing and infrastructure constituted

only one dimension of the process that had to be associated with specific support measures for

fragile populations. On this point, ‘urban policy’ certainly constitutes the main intervention field

where interrelated ERDF and ESF achievements can be found.

In the field of health, ERDF and ESF projects contributed to improving local services for people with

drug or alcohol addiction that constituted the main public health issues in the region. They

especially contributed to raise awareness with large information campaigns aimed at specific

populations such as students, professionals, and people at risk.

From the end of the 1990s, the use of ICTs also contributed to improving social cohesion with

better information and communication systems for youth, people at risk or elderly people. At

school, initiatives such as ‘class pupitre’ (digital school) have been promoted in coherence with

wider initiatives aiming to improve education and training systems (‘Digital Region’ and the ‘Digital

University in the Region’).

However, even if it is possible to identify the number of people reached by ERDF projects, their

achievements in terms of social improvement is much more difficult to assess. This is especially the

case prior to 2000, because of the limited evaluation tools, and even after this date because of the

difficulties in monitoring individual situations over the mid-to-long term.

Improvement can be observed in education and initial training in relation to large investments

achieved with the support of ERDF projects in favour of colleges, high schools and universities. In

2009, the level of education for people between 20 and 24 was getting closer to the national

average with 82.8 percent gaining their high school degree (Baccalaureat) as compared to 84.1

percent at national level.

Beyond education, social issues highlight the difficulty of evaluating interconnected achievements

between ERDF and ESF, whose programmes tend to follow different objectives and methodologies.

Taking into account various experiences conducted through mono-funds or multi-fund programmes,

it appears that their respective implementation systems (regional for ERDF and national for ESF)

constitute a permanent obstacle for their coordination.


LSE 75 EPRC

Map 9: Nord-Pas-de-Calais region. 2000-2006 eligible areas

Source : DG Regio.

Coordination difficulties also increased in Nord-pas-de-Calais between 2000 and 2006 with the

selection of small sub-regional eligible areas that did not match the eligible areas of national urban

policy (‘politique de la ville’). As with ESF, ERDF and domestic funds could not be coordinated on

common boroughs or common neighbourhoods, which significantly hampered their achievements.

In Nord-Pas-de-Calais, there has also been a focus on the field of ‘culture’, considered since the

early 1990s as a relevant tool to improve the quality of life, social inclusion and the image and

attractiveness of the region. As can be seen with the recent classification of the mining area as

world heritage by UNESCO, culture has been a permanent tool to change the relationship between

the population and its past industrial history.

ERDF projects improved cultural endowment and cultural activities for local and regional

populations with an increase between 1994 and 1998 including cultural services in deprived areas,

animation, and specific activities dedicated to fragile population. The ‘culture approach’ reached a

peak with the selection of Lille as the European capital of culture in 2004. EU programmes

contributed to structure cultural activities in the region with special attention paid to museums

that became a symbol of regional socioeconomic change and to the establishment of what is now

called ‘the region of museums’.

In the 2007-2013 programme period, despite the focus of funds on Lisbon priorities, opportunities

remain on social issues through the ‘territorial strand’ (volet territorial). This is the case with ERDF

projects implemented in ‘isolated areas’ and the support for local development projects in the

French Hainaut, for example. In particular, the inclusion in the Regional Operational Programme of

a Measure dedicated to improving energy efficiency in social housing concretely contributes to

reducing ‘fuel poverty’ (précarité énergétique) for this category of population.


LSE 76 EPRC

In terms of achievements, there could however be a better connection between ERDF and ESF

activities whose respective contributions could generate stronger synergies. As an example, sub-

regional authorities (‘Départements’) tend to make better use of public procurement and the

building of public infrastructure to favour professional inclusion of specific populations.

Achievements on this issue have not yet been very convincing with ERDF-funded projects, but

changes in domestic policy requirements could help progress in this direction.

(vii) Spatial distribution of economic activity

In Nord-Pas-de-Calais, one of the main issues regarding the ‘spatial distribution of economic

activity’ concerns the redevelopment of the mining area which was one of the sub-regions most

strongly hit by the economic crisis. Unlike other French regions, this took the form of a specific

and limited Objective 1 area between 1994 and 2006. It can therefore be assumed that ‘spatial

distribution of economic activity’ is an implicit objective of a large part of economic development

projects dedicated to the Objective 1 area. For this reason, the 7 percent of expenditure explicitly

dedicated to this thematic priority is certainly an underestimate compared to overall programme

achievements.

The economic, social and urban geography of Nord-Pas-de-Calais is strongly marked by former

mining areas but also by the presence of more rural territories in the South and West of the region,

and the presence of Lille as the main regional metropolis. This strong geographical contrast has

been considered a major issue since the 1970s, with the desire to avoid the collapse of industrial

territories and promote more balanced territorial development.

It must be noted from the outset that despite the explicit intention to use ERDF funds as a means

to correct territorial disparities (as clearly illustrated with the creation of the Objective 1 area),

the EU funds also generated competition between local and sub-regional authorities willing to

improve their intervention capacities in territories hit by the economic crisis.

In this context, ERDF support must be considered as one aspect of the regulation game that also

involves local, regional and national public financing. As an example, the creation of the Objective

1 area in 1994, on which a significant volume of EU funds would be concentrated, was also used by

the Objective 2 sub-regional authorities in seeking stronger support from domestic policies (State

Region Planning Contract).

For this reason, and considering the large set of parameters influencing territorial dynamics, the

analysis of ERDF achievements regarding the spatial distribution of economic activities should be

done cautiously.

Since the 1980s, the 15 employment areas of Nord-Pas-de-Calais show clear geographical

specificities on which ERDF projects had different influence.

The ‘mining area’ was very active until the mid-1970s. It covered the employment areas of

Valenciennes, Douai, Lens and Bethune and provided energy for metallurgy and steel industries,

creating high geographical concentration of heavy industries. With the end of mining activities, part

of the steel production moved to the coast (Dunkirk), which was also supported by shipyard

activities.


LSE 77 EPRC

In 1994, the ERDF directly contributed to a continuous catching up process evidenced by a decrease

in unemployment and a higher concentration of investment compared to the regional average.

Examples of progress include the creation of new firms, the development of the car industry and

the innovative transport industry, the implantation of the European Railway Agency and the

establishment of the European Institute for Technological Research in Railway Infrastructure –

Railenium - in Valenciennes in 2011.

Another sector where ERDF contributed to the development of Hainaut is the digital economy with

the promotion of businesses specialised in animation, design, images, video games, and support for

research, technology transfer and incubators.

However, results in this area are mixed, with a polarisation process and difficulties for successful

industries to trigger wider development processes. As can be seen with the annual variation of

population, former mining areas are still experiencing a negative trend even though the situation

has slightly improved around Valenciennes. The situation remains difficult around Douai/Lens Hénin

in the western part or Maubeuge in the east, despite efforts to rebalance economic activities. The

negative trend in Dunkirk, Calais and Boulogne must be highlighted, where the situation

deteriorated between 1999 and 2006. In Nord-Pas-de-Calais, the large majority of boroughs still

have negative migration rates, except for the employment areas of Berck-Montreuil, Flandre-Lys

and Artois-Ternois, which proved to be the most attractive between 1999 and 2006.

Map 10: Annual variation of population density 1982 and 1999

Sources: INSEE Nord-Pas-de-Calais, 2009b.


LSE 78 EPRC

Map 11: Annual variation of population density 1999 and 2006

Source: INSEE Nord-Pas-de-Calais, 2009b.

From a demographic point of view, these maps show the continuous concentration process in the

area of Lille that has been further promoted by the opening of the Channel Tunnel, the high-speed

train, the coastal ring road (rocade littorale) and the A16 highway. However, from an economic

point of view, Lille must still strengthen its position as a regional metropolis between Paris,

Brussels and London, which would require a greater development of high-level metropolitan

services. Whereas this was not a priority for EU funds until 2007, it has been better promoted with

the recent focus on competitiveness and integrated urban development.

Besides the steel industry, textile and clothing industries were especially developed in Lille-

Roubaix-Tourcoing and Cambrésis. However, unlike Valenciennes, Douai, Bethune-Bruay and

Dunkirk, which managed to maintain strong industries, Roubaix moved towards a more service-

oriented economy (see Map 12).

Achievements such as the Technological Centre for Ground Transport and the Railway Testing

Centre in Valenciennes show the importance of territorial assets (economic, social, institutional

and political) for the successful development of ERDF projects. This raises the question of the

capacity of ERDF to address the needs of territories and actors that lack expertise, strategic and

methodological support to promote economic development activities.

The analysis of ERDF achievements related to traditional industries (car industry, railway and

textiles) can be complemented with the specific case of the Audomarois employment area

(Arrondissement of Saint-Omer). This area did not benefit from significant EU support as it was not

eligible before 2007. The glass industry (Arc), which has been a growth engine for years, prevented

the local economy from achieving an early transition process. This territory is now under strong

economic pressure with the obligation to adapt its industrial activities. As highlighted by


LSE 79 EPRC

interviewees, despite the absence of experience with ERDF projects, local authorities have shown

good mobilisation capacities with financing opportunities offered since 2007. As for other sectors in

the region, ERDF funds contributed to redevelop activities as can be observed with the recent

support to Alphaglass, whose development in Arques has generated 370 jobs since 2008.

Map 12: Evolution of employment structure per sector (1975 to 2007)

Source: Recensement de la population 1975 à 2007 (INSEE).

Other employment areas in the south of the region had a more rural profile and lost population

until recently, when a move from urban centres to suburban or rural areas can be observed.

On the coastal area, Boulogne and Calais benefitted from a stronger development of the tertiary

sector with the presence of ports, tourism facilities, attractive natural areas and the proximity with

England. ERDF projects were implemented in these different sectors and contributed to the support

of tourism activities with improvement of facilities or better environmental management.

The Site des Deux Caps is a significant achievement of the desire to promote natural resources,

regional visibility and attractiveness in this area. However, the creation of new businesses remains

lower than the regional average (54 against 70 for 10,000 inhabitants in 2011), requiring stronger

efforts from public authorities. In a general way, the difficulty is to better promote existing assets

that have good economic potential (Site des Deux Caps or the 13 golf courses in the Côte d’Opale).

Here, the question is related to the long-term management of ERDF investments in order to

maximise benefits, especially when initial projects are successful in terms of attractiveness and

sustainable territorial development.

Regarding territorial restructuring, structural difficulties still exist, despite important measures

taken with the support of ERDF and ESF to reduce regional disparities. The employment areas of

Artois and Hainaut still have a low level of revenue per capita when compared to the regional

average (below €19,000 against €20,150 per annum in 2011). Forty percent of employment in

Hainaut is still related to industrial activities and unemployment remains high in Maubeuge, Calais,

Lens or Boulogne-sur-Mer (between 13 percent and 16 percent).


LSE 80 EPRC

In this context, it is questionable whether it would have been necessary and relevant to maintain

stronger support for former Objective 1 areas. Differences between Nord-Pas-de-Calais and national

socioeconomic indicators persist. The manner in which the Objective 1 area has been defined

demonstrates that other surrounding employment areas could have been included, but were not

because they were not contiguous with the Belgium border. Besides statistical eligibility, the

classification of the overall region in one single category (as a competitiveness and employment

area or as a future ‘transition area’) seems more appropriate for the implementation of an

integrated regional development strategy. The main issue would be the capacity of local and

regional stakeholders to define territorial priorities despite competition between sub-regional

areas.

Concerning ERDF achievements, it might be necessary to develop a different view of regional

balance which, until recently, relied on geographic comparisons to identify the most- and the least-

developed areas. The ‘cluster’ approach, which can be observed for example with the ‘Digital

Image Pole’ (Pole image) between Lille, Valenciennes and Wallers (regional cluster on movies and

digital technologies), pushes towards a different approach to the spatial distribution of economic

activities linked to the predisposition to connect competences, technological means and human

resources from different parts of the region. As for competitiveness poles, they might currently be

positively promoted by initiatives such as the Regional Innovation Strategy.

(viii) Regional infrastructural endowment

Regarding the eight thematic priorities chosen for the analysis, the development of ‘infrastructure’

also corresponds in a broader sense to achievements recorded under the ‘environment’ or

‘enterprises’ headings (land regeneration, brownfield site renewal, accessibility, etc.). For this

reason, the 7 percent of total expenditure dedicated to ‘regional infrastructural endowment’ since

1989 is certainly an underestimate, taking into account the important investments in these three

different categories.

One particularity of Nord-Pas-de-Calais is that it is one of the most urbanised and one of the best-

connected French regions with a dense railway network (2nd freight railway network in France) and

a well-developed road network (see Map 13).

However, the urban fabric and the development of transport infrastructure have been strongly

influenced until the 1970s by the need for industrial activities, the location of enterprises, of

workers, the movement of goods and raw materials. At the national and international levels, the

region recently benefited from large projects such as the TGV Nord or the Channel Tunnel, which

improved connections with London and Paris and increased the national and international position

of Lille.

In the 1980s, regional infrastructure had to be modernised and adapted to changing economic and

social needs, including the necessity to avoid congestion in a very densely populated region.


LSE 81 EPRC

Map 13: Urban areas and transport infrastructure in Nord-Pas-de-Calais (2002)

Source: Région Nord-Pas-de-Calais, Direction des transports.

Beyond communications, the regional infrastructural endowment was lower than the national

average in this period requiring stronger investments (public services, schools, culture, etc.).

Whereas Nord-Pas-de-Calais saw its share of population or GDP decrease compared to the national

level, its weight regarding the stock of infrastructure continuously increased during the 1990s.

For regional authorities, ERDF funds were an opportunity to increase their investment capacities,

triggering a catching-up process and using projects as a support for local economic development.

However, in a context of economic crisis, local and sub-regional interests prevailed in the 1990s,

local authorities often being in a position of competition to access to EU funds. This generated

numerous ERDF projects that had positive social and economic effects at local level, but that often

missed coordination at wider territorial level. In parallel, selection criteria for ERDF projects were

not very strict and required only limited analysis of future potential economic and territorial

impact.

For this reason, the contribution of sub-regional road infrastructure to regional socioeconomic

development was more subject to discussion between DG Regio and the regional authorities (urban

bypass, national road 49 between Valenciennes and Maubeuge, national road 2 between Maubeuge

and Avesnes-sur-Helpe, etc.).

Concerning railways, ERDF projects contributed to improving existing services and reducing travel

time for passengers between urban centres such as Maubeuge and Lille, for example. As identified

in operational programmes, inter-urban and urban transport facilities have been identified as key

issues to improve quality of life and labour force mobility. ERDF achievements are especially


LSE 82 EPRC

important with tramway infrastructure that could not be entirely paid for by local authorities, as

can be seen with ongoing projects in Valenciennes and Douai. In this case, with the promotion of

collective and non-polluting urban transport, the ERDF has a direct influence on the quality of life,

the mobility of people and local development.

ERDF projects also contributed to promoting sustainable accessibility with multimodal and logistic

platforms that proved to be especially important for the regional economy, taking into account the

position of the region at the crossroads between France, England and Belgium. Reference should

also be made to ports infrastructure in Dunkirk and the hub of Dourges, launched in 2003. For the

region, a major issue was to ‘capture’ the traffic going through the North of France and propose

logistic services or even transformation activities with higher added value. This strategy was

implemented with major achievements with the support of EU funds.

The hub of Dourges (also called Delta 3) is a multimodal logistic hub connecting roads, railway and

waterway infrastructure. Its mission is to attract manufacturers and logistic service providers and

to create a development pole in the centre of the region. From an economic point of view, the

ERDF generated a significant leverage effect with a contribution of €21 million to a total of €69

million. It contributed to the creation of around 1,000 jobs in regional, national and international

businesses located in the 300 hectares of the entire site. This platform maximises the key

geographic position of the region and the potential it represents for businesses.

Other effects include the development of environmentally friendly modes of transport, the

decrease in traffic density and road accidents, and the decrease in CO2 and SO2 emissions. Delta 3

was implemented with regard to high environmental criteria encompassing building norms,

landscape and urban development.

Despite the example of Dourges and other multimodal platforms in the region, it must be specified

that ERDF infrastructure has seldom been oriented towards interregional or transnational

accessibility, which is nonetheless a key aspect of regional economic development. On this

question, as highlighted by interviewees, the connection between regional ERDF and INTERREG

projects has always been quite limited, despite the potential mutual benefits of more integrated

strategies and implementation processes between these programmes.

In terms of achievements, ERDF funds contributed to increasing the stock of available land or

directly financed real estate and development projects in former industrial areas. Given the very

large volume of brownfield sites to be dealt with, one option in the 1990s was to focus on

environmental improvements and ‘greening’ thousands of hectares of land. Even if the

improvements were not always accompanied by economic development strategies, they contributed

to the overall environmental clean-up and restoration process that was indispensable to improve

the image of the region and attract new businesses from outside the region.

Enterprises also benefited from investments in infrastructure for business areas and ports, with

more than 250 projects financed between 1994 and 1999, which exceeded initial objectives. In

Objective 2, ERDF financed 455,200 m² of new areas and 134,300 m² of rehabilitated areas

corresponding to 3,888 jobs. During this period, there was still an important focus on the

quantitative offer of premises and real estate for businesses. However, the evaluation documents


LSE 83 EPRC

do not provide more precise information on the profile of beneficiaries, the location or the

sustainability of jobs created or supported.

Regarding business areas, feelings are often mixed with on the one hand ‘extensive projects’ that

did not always have the expected results and on the other hand successful ones such as the

scientific park of the ‘Haute Borne’ near Villeneuve d’Ascq that benefited from EU funds. This site

is characterised by a favourable geographical situation, a scientific context oriented towards high

technologies, a preserved natural environment and high-quality facilities. The site of 300 hectares

contains a concentration of 60 research centres with around 1,300 researchers. It was conceived on

the basis of high environmental quality principles, and nine hectares were dedicated to innovative

housing.

The improvement of infrastructure for businesses in parallel with the promotion of regional

excellence poles (business clusters) contributed to improving the attractiveness of the region. It

should be highlighted that in 2009 the Nord-Pas-de-Calais region was among the top five French

regions for the location of international businesses (6 percent of projects and 7 percent of

employment in France). However, these businesses are generally characterised by low technology-

intensive activities (Conseil Régional Nord-Pas-de-Calais, 2009).

Other significant achievements of ERDF in Nord-Pas-de-Calais include projects such as the Zone de

l’Union or EuraTechnologie which benefited from ERDF support. The Zone de l’Union in the

Roubaix–Tourcoing area (80 hectares) is based on an extensive urban regeneration project. It was

awarded the ‘Grand Prix national EcoQuartier 2011’. It is a formerly dense industrial area that

included industries and housing for workers, but it was turned into an industrial wasteland in 1990-

2000, following the metallurgy and textile crisis.

The project consists of the conversion of wasteland into an ambitious project of a sustainable ‘city

re-invented’, within the framework of Lille’s Agenda 21. It has been turned into an ‘eco-district’,

with a strong social dimension (3,000 inhabitants and 3,000 jobs), mingling innovative housing,

economic activities and a large urban park integrated into the Green and Blue Belt, with an

important role played by associations. It also encompasses the ‘European Centre for Innovative

Textiles’ (CETI).

In the same way, the mining area of Oignies has been successfully transformed into a major

economic and cultural site based on the promotion of the industrial and mining heritage.

The mining pit in Oignies was the last to be closed at the beginning of the 1990s in Nord-Pas-de-

Calais. The local authorities decided to renew the mining heap in order to improve the

environment, to maintain cultural heritage, and to promote another image of the mining area. A

large part of the transition and rehabilitation activities has been dedicated to music.

Future achievements cover several aspects. High-level logistic activities will be located in the

‘EuraTechnologie Business Park’ between Delta 3 and Oignies. Business tourism will be supported

with attractive facilities (hotel, housing, restaurant, seminar rooms), and 3,000 to 6,000 m² of

offices will be open to any activity.

For these two main examples, the Zone de l’Union and the former mining site of Oignies, ERDF

funds created the opportunity to intervene on the different dimensions of a territorial development


LSE 84 EPRC

project (land management, infrastructure, real estate, housing, etc.), which was essential to

trigger effective development dynamics and increase territorial attractiveness as can be observed

in both cases.

5.1.3 Institutional factors affecting achievements

The implementation of ERDF programmes can be perceived as a continuous ‘learning process’ for

local, regional and national bodies since 1989.

During the 1990s, technical and administrative requirements were less binding than today for

managing bodies and beneficiaries. From an institutional point of view, State services played a

strong role providing strategic guidelines and technical expertise in the joint implementation of

State-Region Planning Contracts and ERDF programmes. With the decentralisation process, the

regional authority of Nord-Pas-de-Calais rapidly strengthened its management capacities regarding

international and EU affairs.

In France, these authorities benefitted from the creation of DATAR in 1963. This was a significant

move forward towards the setting up of regional development strategies and for the

implementation of EU funds. DATAR provided growing assistance for the promotion of evaluation

activities with technical support and training sessions. One important contribution since 2000 has

been the setting up of the national data processing monitoring system (PRESAGE).

This overall institutional and professional environment played a strong role in the implementation

of EU funds and showed good adaptation capacities with the increase of EU requirements related to

evaluation, monitoring and control activities (European Commission, 2009a). In particular, joint

committees have been progressively set up between State-Region Planning Contracts and ERDF

programmes to improve coordination and efficiency. However, as highlighted during interviews with

regional actors, debates still go on concerning the modality of this coordination process, for

example with mixed arguments regarding the constitution of transversal or thematic committees.

Between 2000 and 2006, the effectiveness of programme was improved with initiatives taken by the

Managing Authority concerning monitoring tools (updating of indicators, monitoring and alert

systems, strengthening cooperation with the authority in charge of statistics (INSEE), strengthening

human resources for monitoring activities, animation and consultation with beneficiaries, especially

with municipalities, etc.) (ADE, 2005a and 2005b).

At the local and regional levels, ERDF projects benefitted from an increase in competences and

professionalism in public institutions. However, the question of technical support and project

engineering has been a permanent concern for municipalities, small towns and rural areas of Nord-

Pas-de-Calais over the last 20 years (from interviews with regional actors). Especially when

programme requirements increase, local bodies do not always have the necessary expertise to carry

out analyses, to set up strategies, or to gather relevant public and private actors to design and

implement ERDF projects.

Moreover, the superposition of three layers of self-government and State services (municipalities,

departments, regions) with proper and sometimes shared responsibilities generates rather

complicated decision-making processes. Even though ERDF programmes did not have effects on this


LSE 85 EPRC

organisation, they pushed for the rationalisation of intermediary bodies (support to SMEs,

vocational training, etc.).

With the increase of EU administrative requirements, one counterproductive effect might have

been the determination of monitoring and control institutions to avoid any kind of administrative or

legal risk. As mentioned by regional actors, these authorities have been progressively pushed to

increase their own requirement to reduce legal uncertainty, thus creating administrative burdens

for other partners and beneficiaries. On this point, the issue of ‘simplification’ appears as a crucial

one, especially from the perspective of mobilising private actors that are particularly sensitive to

administrative processes.

5.2 Complementarities and synergies

Over the past 20 years, complementarities between the ERDF and the ESF funds that have been

allocated under common programming documents in different periods have been especially

important. The connection between ERDF and other funds such as the EAFRD is less significant,

especially when compared with other French regions such as Champagne-Ardenne, Aquitaine,

Centre, Picardie and Poitou-Charente, all of which benefited more from the Common Agricultural

Policy.

Relations have been a bit stronger with the EFF, fisheries constituting an important activity in the

coastal area and especially in Boulogne (largest fishing port in France). Community policies have

contributed a great deal to the development of fisheries in Nord-Pas-de-Calais with the

modernisation of the fleet and support to shore infrastructure, including the support to fish-

processing industries. They accompanied the industrial change and economic difficulties met by

this sector.

In term of complementarity and synergies, the strongest connections are to be found between ERDF

and domestic programmes and especially with the State-Region Planning Contracts. Since the end

of the 1980s, these programmes have been conceived and implemented in close relation with a

growing influence of ERDF on domestic strategies. Regarding expenditure and achievements, they

brought comparable support with, once again, a growing influence of EU funds.

5.2.1 Complementarity between ERDF-funded programmes

Complementarity with the European Social Fund

In Nord-Pas-de-Calais, a major issue regarding the complementarity between funds concerns the

connection between ERDF and ESF. This region has been and still is facing important social

challenges regarding employment, education and health.

Since 1989, ERDF and ESF had to intervene on quite close issues, with for example the fight against

unemployment. ERDF projects provided support to businesses with productive investments, while

ESF intervened to improve or adapt competences with vocational training activities. It must be

noted that in the Objective 1 area the ESF intervened mostly in favour of the unemployed, which

was one of its priorities. In Objective 2 areas, the ESF intervention was more in favour of

employees and SMEs. However, the leverage effect of EU funds on SMEs confronted with

modernisation challenges remained rather low.


LSE 86 EPRC

Another striking example of complementarity relates to the improvement of training systems with

strong ERDF support for training facilities (colleges, high schools, universities) and ESF contributions

to the adaptation of programmes and support to fragile populations.

Besides specific cases such as these (a combination of hard and soft investments), comments on the

articulation of these two funds are mixed. The fact that ERDF programmes have been implemented

on a regional basis and that ESF was steered at national level was considered as an obstacle to

stronger cooperation. In this regard, the implementation of ESF through decentralised State

services or the use of multi-funds programmes did not bring a radical change, these two funds

having specific intervention logics. The use of multi-fund programmes could even create opposition

between State authorities concerning budget allocations, as occurred between 2000 and 2006.

In some cases, the ESF has been a means to mobilise fragile populations to work on ERDF

infrastructure through professional integration projects (chantiers d’insertion). However, social

actors consider that this possibility has not been sufficiently used, taking into account the large

amount of ERDF projects that have been implemented in the region. Recently, the two

‘Departments’ of Nord and Pas-de-Calais decided to include the participation of this category of

people more systematically in infrastructure projects (through ‘Territorial Contract’ (contrat de

territoire) in Pas-de-Calais and through ‘Integration Clause’ (clauses d’insertion) in Nord.

Since 2007, the shift towards competiveness and innovation accentuated discussions on the

compatibility between the ESF, which will remain quite ‘socially’ oriented, and the ERDF, which

must support more innovative projects and industries. In particular, there would be a need to

support entrepreneurs better through training measures, but this group does not constitute a

priority for the ESF. On the other hand, with the socioeconomic consequences of the 2008 economic

crisis, the ESF was influenced by the necessity to maintain significant support in favour of social

cohesion measures.

Even if the tools continue to be managed under two distinct institutional systems, progress is

expected on some issues for which closer or better-coordinated objectives could be set up.

Reference might be made to ESF support not only for fragile populations and employees but also for

entrepreneurs, alongside a stronger integration of professional integration activities in

development, investment or infrastructure projects financed by the ERDF.

5.2.2 Complementarity with domestic regional policy

State-Region Planning Contract (CPER)

Launched in the mid-1980s, State-Region Planning Contracts have progressively replaced the former

centralised Five-Year Plans (plans quinquennaux). Based on a ‘contract’ between the State and

regional authorities in each region, they carry out analyses, set up priorities, and fix the respective

financial contribution of each partner to reach common objectives.

Since their creation, the CPER have been strongly connected to the implementation of the

Structural Funds. They are implemented on the same multiannual basis as the ERDF and their

priorities are set in close relation with the EU programme documents.


LSE 87 EPRC

In Nord-Pas-de-Calais (as in many other French regions), the ERDF regulations during the 1990s

allowed scope to include a broad set of activities in the programme documents. The influence of

the French ministries was strong (especially ‘Equipment’ and ‘Industry’), and the CPER provided

guidelines that had to be taken into account by regional partnerships in the definition of CSFs and

SPDs.

Since 2000, the national authorities are becoming less involved in regional development policies

parallel to the strengthening of regional authorities. On the side of EU funds, programmes are more

targeted and the requirements related to implementation and monitoring of projects are stronger.

During this decade, there has been a clear increase in the influence the EU programmes on the

content of CPER, which is less influenced by national priorities, and the ERDF can be considered as

‘compensating’ for the reduction in the State contribution.

Since 2007, the regional contribution to the CPER exceeds the State contribution. For 2007-2013,

the EU funds represent €1.13 billion (ERDF, ESF, EAFRD and EFF) and the CPER €3.076 billion in

Nord-Pas-de-Calais (€3.063 billion for 2000-2006). The region is financing 48 percent of the CPER,

the State 27 percent, and the two ‘Departments’ 25 percent

Table 17 below provides a precise idea of the connection between the priorities of the CPER and

the EU funds for this period.

Table 17: Priorities of operational programmes versus priorities of CPER

2007-2013 Operational programmes CPER priorities

ERDF

1. R&D – Innovation – support to businesses 1. To promote a regional economy that is efficient and innovative

2. Environment, sustainable development and risk prevention

2. To protect the environment and preserve natural heritage

3. Accessibility, transport and ICT 3. To make Nord-Pad-de-Calais a hub in the heart of Europe

4. Territorial axis 4. To strengthen territorial attractiveness

ESF Adaptation of labour force and unemployed, social inclusion, human capital

5. To promote lifelong learning

EAFRD / EFF

EAFRD: Competitiveness, preservation of natural areas, quality of life and diversification, LEADER

EFF: Adaptation and development of sea products sector

See priorities 1 and 2

Competitiveness poles

In France, 71 competitiveness poles (Pôles de compétitivité) have been selected since 2004. They

benefitted from €1.5 billion from State authorities between 2009 and 2011.

The seven competitiveness poles launched in the Nord-Pas-de-Calais region have been listed in Part

2 ‘Regional context and analysis of needs’. On the domestic side, projects can be financed through

a ‘Single Interministerial Fund’ (fonds unique interministériel) (R&D projects and innovation

platforms), with the contribution of local/regional government, the Caisse des dépôts et


LSE 88 EPRC

consignations or the support of intermediary bodies dedicated to innovation and competitiveness

(National Research Agency, OSEO).

On the EU side, different tools are used to support the activities of competitiveness poles. In the

framework of the regional OP, sub-priority 4 of Priority 1 ‘to support R&D project of

competitiveness poles’ highlights the complementarity between this domestic policy and the EU

priorities.

However, many beneficiaries prefer to use other possibilities which are more specifically dedicated

to research and innovation such as the Eurêka programme, the 7th Framework programme and the

Competitiveness and Innovation programme (CIP). Especially for businesses, ERDF is considered as

more complicated to use and less adapted to the requirements of the private sector.

‘Grenelle de l’environnement’

In Nord-Pas-de-Calais, the ‘Grenelle de l’Environnement’ and the focus on sustainable development

took the form of a specific working group during the elaboration of the regional OP 2007-2013. The

connection with the orientation of the EU regulation is strong, but specific influence of the

‘Grenelle’ can be highlighted:

- The implementation of ‘Trames vertes et bleues’ (green and blue corridors), which aim to

reduce the decline of biodiversity. They are based on a regional plan of reservoirs of

biodiversity and corridors that connect them. In Nord-Pas-de-Calais, a specific target for

ERDF or EARFD projects is dedicated to the protection of biodiversity.

- The creation of a ‘Mission d’Appui Environnemental’ that supports beneficiaries to

elaborate ERDF projects that respect sustainable development principles.

- The improvement of energy efficiency for social housing. This measure is supported by the

French government and took the form of a new priority in the Nord-Pas-de-Calais OP after

the mid-term evaluation (sub-priority 6 of Priority 2. ‘Energy efficiency in social housing’).

The issue is particularly strong in this region with a large amount of social housing and the

risk of energy insecurity for a growing part of the population

- The setting-up of a ‘Plan Fret Ferroviaire’ in 2009 (Rail Freight Plan) with €7 billion to be

invested in France until 2020. In Nord-Pas-de-Calais, it concerns sub-priority 1 ‘Transport’

of Priority 3 ‘Accessibility’ of the OP, with projects related to the modernisation of

networks and promotion of interoperability. Even though rail freight remains important in

Nord-Pas-de-Calais (strong activities in Dunkirk, Dourges and Marquion Platform), the ‘Plan

Fret Ferroviaire’ does not meet expectations in France with a decrease of its activities.

National Economic recovery plan

The global economic crisis started to have a strong impact on the French economy in the second

half of 2008. The consequences are different depending on the region and its economic structure.

Regions with ‘traditional industries’ such as Lorraine and Nor-Pas-de-Calais have suffered more

than others, with an increase of social disparities, unemployment and poverty.


LSE 89 EPRC

In this context, the French government took a range of measures concerning the implementation of

ERDF OPs as part of its ‘Plan de relance’, in particular to accelerate the implementation of the OPs

and better target Lisbon priorities, sustainable development, digital infrastructure and energy

efficiency in housing (circular dated 24 Nov. 2008 and 29 Jan. & 22 June 2009).

From a financial point of view, the State allocated €38.8 billion between 2009 and 2010 with the

objective to ‘support today’s activities and prepare tomorrow’s competitiveness’.

The Nord-Pas-de-Calais region has been especially concerned by two main aspects of this plan. The

‘Plan Campus’ and the ‘Programme d’Investissement d’Avenir’ (PAI). For the ‘Plan Campus’, €110

million was allocated for the ‘Campus Grand Lille’ project (universities/higher education) and

€384.7 million for 31 projects of the ‘Programme d’Investissement d’Avenir’ (research facilities,

laboratories, transfer of technology, etc.).

These programmes have been elaborated taking into account coordination possibilities with the

ERDF regional OP. They especially contribute to strengthening Priority 2 ‘strengthening

international attractiveness of training and research system’ and sub-priority 4 ‘support R&D

projects of competitiveness poles’ of Priority 1 ‘Research and development, innovation and

businesses’.


LSE 90 EPRC


LSE 91 EPRC

6. ASSESSMENT OF ACHIEVEMENTS AGAINST OBJECTIVES AND NEEDS (EFFECTIVENESS AND UTILITY)

The notions of effectiveness and utility raise the question of the assessment of the extent to which

achievements met programme goals (effectiveness) and needs (utility). As will be demonstrated,

the achievements of ERDF on regional development are mixed and do not always match the explicit

objectives and expectations formulated in programme documents. Similarly, the identification of

‘needs’ can significantly vary depending on economic, social or political considerations.

As discussed in Section 5.1, the difference between reported and actual achievements might be a

way to broaden the perception of the ERDF contribution to socioeconomic development, including

the Fund’s capacity to alter intervention processes and the perception of regional development

needs.

6.1 Overall achievements of ERDF programmes measured against programme

objectives (effectiveness)

In this section, effectiveness must be understood as the extent to which programmes achieved their

goals and whether, or to what extent, the intended results (as set in programme documents) were

achieved through the intervention of the programme.

From a methodological point of view, programmes implemented before 2000 provide often a poor

or vague definition of objectives. Objectives were not well identified and quantitative targets were

specified only for a few intervention fields, with gaps in statistical series. Without this information,

evaluators miss the landmarks and references that are necessary for a full and accurate assessment

of effectiveness.

Reported results detailed in final reports or ex-post evaluation documents provide information on

only a limited amount of issues. Even when outputs (and sometime results) are measurable,

evaluation reports provide only a partial (and more or less accurate) view of the reality.

Socioeconomic analysis and triangulation between different kinds of sources (including interviews)

provide a richer picture with the identification of ‘actual’ achievements. The assessment of actual

achievements requires a wider approach of explicit objectives and quantifiable outputs and results.

In Nord-Pas-de-Calais, EU programmes identified different levels of needs and objectives

corresponding to the overall ‘catching up’ process or general socioeconomic development, but also

to more specific constraints related to local and sub-regional development challenges.

Generally speaking, when differences can be observed between intended objectives and actual

achievements in this region, the following main explanatory factors can be highlighted.

- The first one refers to the modification of strategic choices during a programme period

and the change of initial objectives. One recent illustration was the integration of an

objective related to energy efficiency in social housing after the 2007-2013 mid-term

evaluation.


LSE 92 EPRC

- The second one is the appropriateness (or not) of initial objectives with regard to the

socioeconomic context. This was the case for example in the early 1990s with measures

dedicated to incubators and entrepreneurship that generated only a very limited number of

projects.

- The third one is the programming of large projects (especially important in a transition

region such as Nord-Pas-de-Calais) that can be faced with technical, financial or

administrative difficulties. This happened with the Louvre-Lens project that was de-

programmed in 2000-2006 and re-programmed in 2007-2013.

- The fourth one concerns budgetary trade-offs between Measures or Priority Axes in order

to ensure satisfactory programming of funding levels. In this case, the will to improve

programme efficiency is motivated by budgetary and administrative purpose more than by

strict regional development considerations.

- The fifth one refers to the case in which authorities involved in drafting programme

priorities do not explicitly mention objectives that remain ‘hidden’ behind explicit

priorities. Beyond ‘transition’ and ‘conversion’ objectives that necessitate structural

change of the economic fabric, there may be a desire to also support traditional or large

businesses for economic, social and political reasons.

Before 2000, the ERDF monitoring system was not complete enough to allow a very accurate

analysis of the interplay between objectives and achievements and any possible discrepancies or

inconsistencies.

To assess the ‘actual’ achievements, interviews have played an important role in allowing the

research team to specify more exactly what changes occurred as a result of the ERDF interventions

concerning the objectives set in programme documents. However, the same shortcomings can be

observed as with the assessment of reported achievements when it comes to distinguishing the

specific contribution of ERDF against others kinds of EU or domestic support (for businesses or

employment created, for example). This has been particularly true for the achievements realised in

the period from 1989 to 1999, when the project-specific objectives were not precisely quantified.

Table 18 below illustrates some main achievements against targets for programmes from 1989

onwards, showing that the degree of achievements is very variable from one topic to another and

that successive OPs lack definition of clearly quantified targets. The comparison between intended

and reported values is not always relevant though, as the method for establishing these target

values was not always rigorous or based on a reliable methodology shared by all actors.


LSE 93 EPRC

Table 18: Programme objectives and targets for Nord-Pas-de-Calais ERDF programmes 1989-2013 and reported achievements

Programme Aggregate objectives/targets Reported achievements

1989-93 Objective 1

- 2,000 SMEs supported

- 84,699 people trained

- 2,200 ha of wasteland treated

- 500 hostel rooms created or modernised

- 1,500 SMEs supported



- 259 hostel rooms created or modernised

1994-99 Objective 1

- no available target for job creation

- no available target for wasteland renewal

- no available target for urban renewal

- no available target for training activities

- no available target for firms waste recycled

- 3,220 direct jobs created


- 131 cities reached by urban renewal projects


- 162,000 t/year of firms waste recycled

1994-99 Objective 2


- N° of new labs

- 1000 direct jobs created (1997-1999)

- no available target for new business premises

- no available target for firms waste recycled

- no available target for areas benefiting from ecological protection measures


- no available achievements for new labs

- 4,693 direct jobs created

- 455,200 m² of new areas for business premises

- 378,288 t/year of firms waste recycled

- 861 ha benefiting from ecological protection measures

2000-06 Objective 1

- 8,620 direct and indirect jobs created

- 867 project manager accompanied for creation or transfer of businesses

- 116 enterprises created or transferred

- 6,948,046 m² of gross area

- 336,965 people reached by health measures

- 64,400 tourists visiting supported facilities

- 57 territorial sustainable development initiatives

- 1,110,000 tons of building waste treated

- Between 9,400 and 12,500 direct jobs created

- 491 project manager accompanied for creation or transfer of businesses

- 115 enterprises created or transferred

- 5,490,131 m² of gross area

- 161,277 people reached by health measures

- 60,872 tourists visiting supported facilities

- 69 territorial sustainable development initiatives

- 1,108,596 tons of building waste treated

2000-06 Objective 2

- Around 20,000 (direct and indirect) jobs created

- 307 firms created or transferred

- 224,292 users of tourist accommodations

- 2,967 km² of areas benefitting from ecological protection measures

- 420,960 tons of usual waste recycled

- 65,818 people reached by health measures at work

- 3,600 direct jobs and 20,160 indirect jobs created

- 307 firms created or transferred

- 223,527 users of tourist accommodations

- 5,447 km² of areas benefitting from ecological protection measures

- 357,429 tons of waste recycled

- 185,616 people reached by health measures at work

2007-13 - 2,204 long-term jobs created

- 92 digital services implemented

- 21 inter-enterprises labs

- 306 cooperative collaborations between enterprises and research institutes

- 3,464 t/year of waste recycled

- 402 km² of natural areas preserved

- 227 long-term jobs created

- 15 digital services implemented

- 6 inter-enterprises labs

- 36 cooperative collaborations between enterprises and research institutes

- 859 t/year of waste recycled

- 262 km² of natural areas preserved


LSE 94 EPRC

In the early 1990s, a major objective of the regional development strategy and of ERDF

programmes was to support businesses and economic diversification so as to save jobs and create

new ones, in a context of decreasing industrial activities. A second objective, strongly correlated to

the first, was to improve the image and attractiveness of the region by resorbing the effects of the

past industrial activities. This could also be related to the development of communication

infrastructure, the protection of the environment and the development of tourism or cultural

activities. A third objective was to improve research, education and skills, with a more explicit

focus on innovation and entrepreneurship later on.

These objectives sum up the main explicit goals of ERDF programmes that have been implemented

since 1989 with different balance, articulation or focus from one period to another. Since 2000, this

overall balance has changed under the influence of EU regulation (Lisbon priorities) and the

stronger intervention of the regional government in defining the regional development strategy.

Enterprise development

Since 1989, enterprise development has been one of the key objectives of the regional

development policy and of ERDF programmes. Expectations were high in terms of people and firms

to be supported, as well as in terms of socioeconomic development perspectives.

Regarding business support, ERDF programmes have been quite effective in their capacity to reach

a high number of enterprises during the 1990s, in line with the quantitative objectives set in the

programme documents (excepting Objective 1 1994-1999, in which quantitative targets were

missing). In a general way, it can be observed that outputs (number of businesses and people

supported) have been quite coherent with objectives across the four programme periods.

Businesses improved their competitiveness with productive investments, modernisation of facilities

and with large-scale measures in favour of labour forces through the strengthening of initial and

vocational training. This is reflected in the GDP level that rose regularly between 1980 and 2008. If

the GDP per capita remains much lower than the national average (80 percent in 2007), a catching

up process has occurred since the mid-1990s (+1.5 percent every year against +0.9 percent at

national level). Besides the support to existing businesses, business creation has been more difficult

to monitor. There was a lack of quantitative targets and reported achievements before 2000.

Outputs focused on the promotion of entrepreneurship and the development of incubators have

been below expectations, partly because of a particularly difficult socioeconomic context in that

period (a lack of entrepreneurial culture, a lack of innovation culture, the economic activities of

SMEs being dependent on larger firms, etc.). Figures concerning larger measures dedicated to

business support (business creation, business modernisation, and business development) are very

general and do not differentiate between support provided to existing businesses and support

provided to new firms.

At the regional level (taking into account ERDF-funded and domestic programmes) business creation

represented only 3.4 percent of the total in France in 2000. Between 2000 and 2006, ERDF projects

exhibited more positive achievements concerning the number of project managers ‘sensitised’,

‘supported’ or ‘accompanied’ in the creation continuation of firms (more than 180,000 in Objective

1 and Objective 2 areas). When referring strictly to the number of firms created or supported,


LSE 95 EPRC

achievements are in line with initial objectives but they remain quite modest when compared to

what would be necessary at regional level (115 enterprises created in Objective 1 and 307 in

Objective 2 with ERDF support).

The effectiveness of ERDF-funded programmes in 2007-13 has been mixed. Until 2012, around

18,000 project managers were supported in the creation or continuation of firms for an overall

objective of 36,402. However, no data is available for the net number of business created during

this period.

Though business creation and entrepreneurship was confronted with an unfavourable socioeconomic

context in the 1990s, the situation has evolved since 2000 and public authorities have increased

their intervention capacities in these areas. ERDF objectives have been more strongly connected to

domestic initiatives like the ‘Regional Programme for creation and transfer of businesses’ (PRCTE)

and by the end of 2010, 95 percent of ERDF aid dedicated to the creation and transfer of businesses

had been programmed. In parallel, business creation reached 4.5 percent of the total in France,

indicating a catching up process during the last decade.

In 2008, the creation of the ‘auto-entrepreneur’ status in France stimulated the creation of small

and very small businesses in Nord-Pas-de-Calais despite the worsening economic situation.

However, because of the will to provide support to new entrepreneurs, ERDF programmes and

domestic policies accepted some projects with weak economic perspectives. Despite some

improvement, the situation remains fragile and to increase the effectiveness of EU funds it would

be necessary to improve the monitoring of entrepreneurs and to propose longer term support

combining innovative financial tools and technical expertise.


In the regional development strategy and ERDF programmes, structural adjustment is mainly

equated with the need to innovate and to diversify the regional economy. This is stated in a broad

sense for public and private actors and until recently, there was no clear strategic orientation or

guidelines on how to achieve this objective. In ERDF programmes, structural adjustment did not

constitute a quantitative objective and no evaluation has been made of the specific contribution of

EU funds on this issue.

The ERDF contribution to ‘economic diversification’ during the 1990s remained quite modest, due

in part to the persistence of traditional industries and weaknesses regarding entrepreneurship and

business creation. The main structural change during this period concerned the strong decrease of

industrial jobs and in parallel the significant increase of services, especially public ones (+37

percent between 1989 and 1999). The influence of ERDF funds on this overall change has however

been limited, even though the ERDF supported the increase of human resources in public research

and universities.

The influence of ERDF on economic diversification and structural change is more recent and

depends on wider socioeconomic and political criteria. From a strategic point of view, the focus on

diversification and innovation increased in the 2000s as a result of the Lisbon Agenda.

Correspondingly, there was stronger local and regional authority mobilisation in this area. This had

an effect on ERDF effectiveness as the mobilisation of key players helped to put in place a more


LSE 96 EPRC

positive environment for innovative projects. Reference can be made to the stronger focus of

public authorities on specific fields such as ICT and knowledge economy, which created a ‘pull

effect’ on this sector.

At a different scale, competitiveness poles played a structuring role in Nord-Pas-de-Calais. They

contributed to better focus ERDF funds on diversified economic sectors such as transport, textile,

trade, or sea products and to developing new ones in the fields of nutrition and health, advanced

materials and recycling technologies. However, in these different cases, the effectiveness of ERDF

funds is difficult to evaluate as there is no precise assessment of their contribution to the overall

diversification process.

A specific case must be highlighted with tourism and culture, which have been permanent concern

since 1989. Even with a limited share in the regional GDP (3.3 percent in 2010), tourism

represented an opportunity for local development and territorial attractiveness and was identified

as such in ERDF programmes.

During the 1990s, ERDF contributed to local improvements in the fields of hostelry, services or

leisure facilities. However, quantitative objectives were often only approximately determined and

evaluation tools were not accurate enough to precisely assess the contribution made by the ERDF to

the different tourism activities. Even though tourism represented only a limited share of regional

employment, it increased in a quite dynamic way representing 3 percent of jobs created in the

region between 1996 and 1999 (INSEE Nord-Pas-de-Calais, 2002). This trend continued during the

2000s, Nord-Pas-de-Calais being the 12th region in France for the number of tourists (3.6 million) in

2011.

Beyond direct frequentation of individual sites or facilities, ERDF programmes have been effective

in their capacity to use tourism and culture as a means to increase attractiveness and change the

image of the overall region. This has been possible with the support to emblematic projects such as

Nausicaa in Boulogne, the Kursaal in Dunkirk, the Site des Deux Caps, the natural regional parks,

and the development of museums that now constitute major regional landmarks (Musée piscine in

Roubaix and Louvre Lens).

Innovation

The objective of economic diversification in Nord-Pas-de-Calais is strongly related to the promotion

of innovation for which similar remarks can be made regarding ERDF effectiveness.

Since 1989, innovation has been an objective in the regional development strategy and of the ERDF

programmes. However, as for ‘structural adjustment’ the route to realising this objective was not

clearly identified. Businesses were encouraged to innovate, which in many cases was pursued

through the modernisation of productive assets and the transfer of technology aimed at improving

competitiveness in the face of national and international competition. In this field, innovation

activities have generally been taken into account as ‘support to businesses’ without differentiating

between innovative and non-innovative activities. Across successive periods, a few figures can be

found about ‘technology transfer’, ‘firms informed about innovation and technological support’ and

‘number of R&D jobs’ but data are insufficient to form a clear view about the effectiveness of ERDF

programmes.


LSE 97 EPRC

During the 1990s, objectives in terms of innovation were too vague and the socioeconomic context

was not favourable enough to generate substantial achievements. One of the most noticeable

results was the strengthening of human resources in public research bodies and mainly in

universities with an increase of 50 percent of the number of researchers, engineers and technicians

between 1990 and 1999. At local level, innovation increased development perspectives in specific

sectors like biotechnology, agro-food processing and ICT. Achievements were also in line with

expectations concerning support to activities dedicated to technology dissemination or firms

involved in a R&D strategy.

However, there was a decline in the number of patents until 1996, with patents per million

inhabitants falling to 32 percent of the national value. Afterwards, and despite high levels of

variation, the situation has stabilised until the economic crisis of 2008. In 2011, patents produced

in Nord-Pas-de-Calais represented only 1.6 percent of the overall patents in France (270 for

16,757). This trend demonstrates the fragile innovation situation in Nord-Pas-de-Calais and the

difficulty faced by ERDF programmes seeking to generate long terms results, even where outputs

are generally in line with expectations.

Since 2000 and above all since 2007 – which saw the earmarking of innovation and competitiveness

funds - the expectations on ERDF programmes increased, generating a knock-on effect on domestic

policies. Besides quantitative targets, ERDF programmes implemented since 2000 have had a direct

influence on the regional development strategy and on the mobilisation of local and regional

stakeholders, as can be seen with the introduction of the Regional Innovation Strategy. From the

interviews, changes that are observable today (competitiveness poles, innovation processes,

development of a digital economy, etc.) would not have been conceivable 15 years ago.

The improving economic situation until 2008 created a more favourable environment for

innovation. When considering the current programme period, Priority 1 (‘Research and

development, innovation and support to businesses’) appears to be the best performing one.

However, the projects implemented are too recent to evaluate the overall effectiveness of the

programme in this field.

In terms of effectiveness, it is noticeable that progress in the field of innovation in Nord-Pas-de-

Calais required a socioeconomic evolution more favourable to new economic development, a strong

“top down” impulse from EU and national level able to mobilise domestic resources and the

commitment of regional authorities on an ambitious regional innovation strategy.

Environmental sustainability

In the field of the environment, ERDF programmes have been especially effective in the support

provided to environmental clean-up, restoration and brownfield renewal that was a major

challenge for the region with the closure of mining and other heavy industries. It was especially

noticeable in the mining area and in most of the urban areas with measures specifically focused on

urban renewal implemented on a large scale until 2006.

With ERDF support, the objective to preserve the natural heritage has also been partly fulfilled

with an extinction of natural sites, the restoration of rivers and the setting-up of blue and green

corridors. However, ERDF programmes did not bring specific contributions to the fight against urban


LSE 98 EPRC

sprawl that is an important issue in a region where housing, economic activities and infrastructure

continued to expand during the last decades.

These interventions contributed to changing the image of the region and to improving territorial

attractiveness, which has been an important objective of ERDF programmes since 1989. Even

though the achievements of ERDF programmes at the regional level are difficult to quantify (as

compared to the contribution of domestic policies), effects have been quite tangible for local

populations. ERDF environmental intervention is considered to be one of its most significant

achievements since 1989.

Recently, the development of sustainable transport systems with ERDF support (tramway, gas

buses) constitute an improvement, but the ‘effectiveness’ of EU funds is hindered by the large

scale investment that would be necessary to have a significant environmental impact. In particular,

the development of railway services or waterways could be further explored but constitute

investments going beyond ERDF possibilities.

In a more horizontal manner, ERDF programmes fostered the extension of sustainable development

principles to numerous types of intervention, which increased the environmental sustainability of

public policies. Even this achievement is more difficult to evaluate than projects directly

implemented on environmental issues, it is considered by interviewees as one of the most effective

means of promoting environmental sustainability.

Labour market

Over the past 20 years, the employment situation in Nord-Pas-de-Calais has been quite critical. This

issue has been a key priority mobilising important ERDF and ESF resources. Despite these efforts,

the unemployment rate stood 3 to 4 percentage points above the national and EU average.

Final evaluation reports indicate that ERDF programmes contributed to saving and creating around

20,000 jobs during the 1990s, in line with their initial objectives. For 2000-2006, ERDF evaluations

showed that direct and indirect job creation largely exceeded expectations, be it in terms of long-

term jobs or jobs related to projects implementation. However, the overall influence of ERDF

programmes at regional level is rather limited. According to the evaluation reports, ERDF

contributed to creating 20,000 jobs during the last 20 years (excepted “indirect jobs” or “jobs

safeguarded”), but this represents only 1.2 percent of the active population in 1999 (1,675,000

people).

In terms of effectiveness, longer-term impacts can be noticed in the field of training and

education. The ESF brought a major contribution within multi-fund programmes with training

activities provided to around 190,000 people during the 1990s (which exceeded initial objectives).

The ERDF also brought significant support with the upgrading of training facilities during the 1990s

and the 2000s (colleges, high schools, universities) with a catch-up in the proportion of people

getting high school diplomas and an increase in university students (third French region in 2009 with

159,000 students).

However, the Nord-Pas-de-Calais region has a limited attractiveness. Even though all higher

educated people do not leave the region to find jobs, the overall migration rate is negative due to

the low entrance level. From this point of view, the effectiveness of ERDF funds should be


LSE 99 EPRC

considered with care, as trends have remained negative for the majority of employment areas

during the past 20 years.

Taking into account the efforts made in the fields of initial and vocational training, this raises the

question of the articulation between activities dedicated to the labour market and human

resources on the one hand, and activities dedicated to business development on the other. The

effectiveness of these measures cannot be observed separately and would probably necessitate a

better articulation between ERDF and ESF activities.

Social cohesion

In the field of social cohesion, a distinction must be made between the contribution of the ESF that

has been essential to promote social services and help the most fragile populations, and the

contribution of the ERDF (more focused on the improvement of overall living conditions).

ERDF programmes have been especially effective in upgrading the urban environment and housing

and the improvement of local social support complementing the significant ESF contribution. As for

brownfield renewal, urban renewal was well identified in public policies which facilitated the

definition of quantitative targets and the evaluation of achievements.

Regional actors consider that ERDF programmes brought a major contribution to the transformation

of the built environment which is an important dimension of social life. One recent example was

the classification by UNESCO of the mining area as a World Heritage site. Beyond potential

economic benefits, it constitutes a change in the way the population sees its industrial past and

therefore its future.

In terms of effectiveness, ERDF, in complementarity with ESF, contributed to maintaining social

cohesion in the face of strong socioeconomic difficulties (unemployment, poverty, education,

health). However, achievement and effectiveness remain mixed in terms of catching up, and high

levels of disparities remain between regional and national indicators.

As for the labour market the coordination between ERDF and ESF appears to have been crucial to

improving their effectiveness. In Nord-Pas-de-Calais, some measures have already been

implemented at sub-regional level to better connect social and economic needs but the strategic

and technical articulation between financial resources must still be improved.

Spatial cohesion

Regarding spatial cohesion in Nord-Pas-de-Calais, one main objective was to save the mining

industry from socioeconomic collapse and avoid a further decrease of activities in the major urban

areas. The classification of the mining area as Objective 1 in 1994 increased the intervention

capacities and improved ERDF effectiveness with larger support to businesses, land planning and

infrastructure.

However, the strong discrepancies within the mining area itself show that ERDF effectiveness

strongly depended on local and territorial initiatives and on the capacity of actors to generate

endogenous development dynamics. Then, urban renewal projects did not reverse demographic

flows, which are still negative for the majority of middle-sized cities.


LSE 100 EPRC

Apart from the improvements observed in the employment area of Valenciennes, the situation is

less favourable in Douai, Lens and Béthune, which have greater transition problems. The Louvre-

Lens is a source of great expectations, but it is too early to assess the real effectiveness of ERDF

investments on this specific project (INSEE Nord-Pas-de-Calais, 2012b).

Within the region, the area of Lille remains the most attractive one for people, students and

economic activities. Apart from the identification of specific intervention areas (as with the

Objective 1 area), ERDF programmes have only limited opportunities to modify the territorial

balance. For this reason, the definition of eligible and ineligible areas at local level, and the

changes that occurred in Objective 2 categories between 1989 and 2006, do not seem to have

played a major role in alleviating sub-regional disparities. In that regard, the definition of one

single eligible territory since 2007 simplified the drafting of strategies and the coordination of EU

and domestic policies.

The geographic concentration of activities and the predominance of Lille are part of the

development process, with, for example, the need to further strengthen the position of Lille to

improve regional attractiveness in comparison with the surrounding international metropolises

(which has never been an explicit objective of ERDF programmes).

Infrastructure

In the field of infrastructure, a key issue in Nord-Pas-de-Calais was to provide to people and

businesses with upgraded services and facilities to improve their living and working conditions in

the face of a continuous degradation of existing ones. ERDF programmes had ambitious objectives

and different levels of effectiveness can be observed.

There have been important achievements in brownfield renewal and regeneration, usually in line

with objectives set in programme documents. This constituted an important intervention field for

public bodies. From an economic point of view, even though results were limited at the beginning

of the 1990s with basic land restoration, successive OPs gave way to convincing, robust and

integrated projects of national and even international visibility, combining housing, economic

activities and social dimensions.

However, the support to infrastructure and the promotion of ‘business parks’ showed different

results according to territorial contexts. Although some ERDF-funded projects were not fully

satisfactory with low business development usually due to insufficient expertise and market

analysis at the local level, ERDF programmes proved to be quite effective in their capacity to

support major initiatives as has been the case with the logistics platform of Dourges, the Union

Zone and the area of EuraTechnologie in Lille.

Regarding land-use planning, the surface of land renewed tended to decrease after 1999 because of

the reduction of very large areas (already renewed) and the increasing cost for intervention on the

remaining smaller ones.

In the case of communication infrastructure, the effectiveness is subject to debate. Goals have

usually been met in the way that important investments could be made (urban bypasses, national

and regional roads). However, the effectiveness in terms of territorial development is mixed, with

remaining congestion of transportation networks around the main urban areas. Thus, the


LSE 101 EPRC

connection between communication infrastructure and economic development strategies could be

improved to maximise the effects of investments on socioeconomic development.

Overview

An overview of the comparison between objectives and achievements is provided in Table 19

below. This illustrates the extent to which particular thematic axes’ achievements have been above

or below what was expected taking into account the levels of expenditure and commitment.

Overall, there are few thematic axes across the programmes where achievements have exceeded

expectations. Enterprise development, innovation, environment and large infrastructure are the

four topics that have been quite regularly taken into account in strategies.

It is of note that this assessment is influenced by the availability of initial targets and measurable

achievements, which in turn are determinants of ability to evaluate each programme period.

Generally, the effectiveness of programmes is evaluated according to the funds spent with limited

capacity to assess mid-term results. The reliability of assessment increased after 2000 with the use

of the PRESAGE system, though this can also differ according to the types of achievements that are

measured. The recent focus on performance and more qualitative evaluation systems could provide

more accurate data to assess the effectiveness of ERDF programmes.


LSE 102 EPRC

Table 19: Achievements compared with imputed objectives for eight thematic axes

THEMATIC AXES

1989-93 1994-99 Objective 1

1994-99 Objective 2

2000-2006 Objective 1 (phasing-

out)


2007-present

Obj. Ach. Obj. Ach. Obj. Ach. Obj. Ach. Obj. Ach. Obj. Ach.

Enterprise development ++ 3 ++ 3 ++ 3 ++ 4 ++ 4 + 3

Structural adjustment + 4 + 3 + 3 + 4 + 4 ++ 3

Innovation = 3 + 3 + 3 + 2 + 3 ++ 4

Environmental sustainability + 3 + 4 + 4 ++ 4 ++ 4 ++ 4

Labour market ++ 3 + 4 + 4 ++ 2 + 3 - 2

Social cohesion = 3 + 4 + 3 ++ 3 ++ 3 - 3

Spatial cohesion = 3 ++ 4 = 3 + 4 = 3 = 3

Infrastructure

+ 3 ++ 4 + 3 ++ 4 + 4 = 3

Imputed Objectives ++ Very high effort, this axis is a central aspect of the regional development strategy + High effort, this axis is an important element in the regional development strategy = Average effort, this axis is included in the regional development strategy but is not particularly important - Low effort: this axis is only marginally considered in the regional development strategy -- No effort at all on this axis Achievements scale (end of period with respect to beginning of period) 5 Very high achievement, the results for this axis are much above expectations given the effort put in it and ex-ante

conditions 4 High achievement, the results for this axis are above expectations given the effort put in it and ex-ante conditions 3 Average achievement, the results for this axis are those which could be expected given the effort put in it and ex-

ante conditions 2 Negative achievement, the results for this axis are below expectations given the effort put in it and ex-ante

conditions 1 Very negative achievement, the results for this axis are considerably below expectations or even nil


LSE 103 EPRC

6.2 Overall contribution of ERDF programmes to regional development

(utility)

‘Utility’ is defined as the extent to which the overall achievements (reported and actual) meet the

needs of the region.

With the end of the mining industry and the decline of traditional economic sectors such as

metalworking, the steel industry, shipyards or textiles, Nord-Pas-de-Calais is one of the EU regions

that have experienced the strongest economic recession during the last 20 years. Successive

external economic shocks accentuated the recession in territories that were characterised by a

strong industrial specialisation.

The transition process could not only rely on the adaptation of productive tools and the

development of new economic sectors. It required the reorganisation of the overall territory with

the requalification of former mining areas, brownfield sites, urban areas, the adaptation of

workforce and competences, the upgrading of infrastructure, the promotion of a new economic

culture and entrepreneurship, etc.

These tasks represented significant financial efforts for public authorities and required a

coordinated contribution between local, regional and national levels. In this transition process, as

has already been highlighted, the overall expenditure generated by the ERDF programmes

represented less than 1 percent of the regional GDP. This needs to be borne in mind when

appraising the utility of ERDF programmes: due to the significant financial effort that would have

been necessary to trigger economic renewal and to the relatively ‘limited’ volume of resources that

they entailed, the ERDF programmes were able to address regional needs only in part and were

able to do so unevenly across intervention types.

On the whole, the utility of ERDF programmes was quite limited in the first two programme

periods, particularly in the field of economic development (enterprise, innovation and structural

adjustment), due to the very important needs faced and the scale of the weaknesses in key fields –

innovation, entrepreneurship and skills - which were crucial for economic transformation. In these

early years, the programmes have had a more noticeable impact on employment. The utility of

ERDF programmes improved during the 2000,thanks to better synergies between EU and domestic

public policies, and an improved ability to trigger structural change. The contribution of EU

projects to environmental improvements has been quite steady across all four periods. This is

probably the one key achievement in relation to regional needs.

Enterprise development

In the field of enterprise development, Nord-Pas-de-Calais needed to improve competitiveness and

promote diversification. ERDF funds contributed initially to maintain productive plants and save

jobs, which was a key issue for the region. In this sense, the contribution of ERDF was significant

for public and private bodies requiring rapid support. Taking advantage of existing industrial assets,

ERDF supported ongoing investment activities and promoted new ones, generating large private

investments in sectors such as the transport industry, logistics or the car industry..

From a longer-term perspective, however, it was necessary to modify the economic profile of the

region, realising a transition from heavy industry to higher added value activities better


LSE 104 EPRC

corresponding to the globalisation process. However, economic diversification could not merely

occur with additional financial means and strategic guidelines. It required an overall socioeconomic

context, which was not in place during the 1990s. For this reason, ERDF was not able initially to

address this issue. Improvements became more tangible from the end of the 1990s, thanks to more

effective intervention capacities in favour of innovation and structural changes (see below).

There was a necessity to modernise the industrial fabric, which was traditionally dominated by

large businesses with many dependent sub-contractors. This pyramidal structure hampered the

innovation capacity of SMEs and accentuated the consequences of the economic crisis.

Business creation and the promotion of entrepreneurship have constituted an important regional

need since 1989. However, for the reasons mentioned previously, measures implemented had only a

limited impact during the 1990s.

Since the early 2000s, there has been an increase in business creation, in direct relation to the

domestic support measures implemented. The utility of ERDF funds increased during this decade

due to synergy effects between EU and domestic interventions. Even though the situation has

improved, the region is still characterised by a low rate of very small businesses. This is particularly

true for very small businesses with no employees, which in 2006 represented a share of 53.4

percent in the region, against a national average of 58.1 percent (INSEE Nord-Pas-de-Calais, 2009a).

Thus, the overall utility of ERDF support in this area has been limited, as the programmes have not

been able to unlock the potential of smaller businesses for the development of the region.


In Nord-Pas-de-Calais, and in line with previous observations, structural adjustments have been

dependent on the weight of the industrial sector and of large businesses, which was not favourable

to radical short/medium-term transformations.

Even though there was a need since the 1980s to modify the balance of the economic fabric - by

reducing the share of industry and developing higher added value activities and the tertiary sector -

it appears that ERDF achievements have been only limited during the 1990s as compared to the

overall transformation need. Achievements of ERDF programmes have been more convincing in the

up-grading or development of public services that were lagging behind at that time, in the

education and higher education sectors for example. In the private sector, the increase of services

during this decade was more the consequence of outsourcing from industries than the result of EU

or domestic interventions.

The utility of the ERDF programmes has been more tangible in specific sectors - such as

biotechnology, health, energy, food industry and, from the 1990s, ICT - that needed incentives to

develop their activities.

ERDF achievements and utility became more important in the mid-2000, thanks to the selection of

six competitiveness poles in Nord-Pas-de-Calais (transport, textiles, nutrition and health, advanced

materials, sea products, trade and recycling technology). These poles have been mainly supported

by domestic policy initiatives. The ERDF programmes funded business investment projects but

contributed especially in methodological and strategic terms, for instance providing guidelines and


LSE 105 EPRC

knowledge that was previously missing (e.g. the Regional Innovation Strategy met a need for a

better knowledge and understanding of the regional profile and innovation potential).

Tourism and culture constituted important components of the region’s development potential,

partly due to their ability to modify the industrial profile of the region. From the first programme

period, ERDF projects contributed significantly to the emergence of local initiatives when the

image, the attractiveness and the quality of life in sub-regional territories was declining. They met

a social, territorial and economic need that could not be entirely supported by domestic funds and

delivered a long-lasting legacy as many of the investments realised constitute today important

landmarks for the regional identity and regional economy (e.g. the Musée Piscine of Roubaix,

Louvre Lens museum, Site des deux caps, the classification of the mining area as World Heritage by

UNESCO).

Innovation

In Nord-Pas-de-Calais, innovation constituted a key element of the economic and business

restructuring process. As such, it has been identified as an important issue since 1989. During the

first programmes, ERDF and domestic support mainly contributed to improving innovation in

traditional economic activities (productive investment, technology transfer). Whereas needs were

significant in terms of regional restructuring and modernisation, initiatives in favour of innovation

were encountering a limited absorption capacity on the side of enterprises that often lacked

relevant human resources (low rate of engineers and low entrepreneurship). The ‘utility’ of ERDF

programmes in this sphere needs thus to take into account the wider socioeconomic context.

During the 1990s, ERDF funds contributed to increase public research that was strongly lagging

behind at that time, compared to national and EU averages, particularly by strengthening of human

resources and through the development of university research centres.

At the regional level, there was a strong need for a better interaction between research and

businesses in order to generate innovation capable to trigger sound socioeconomic development.

However, during this decade, only a limited number of projects were implemented to support

institutions focused on applied research and innovation in businesses did not correspond to clear

and well identified regional needs.

In this context, the utility of ERDF programmes was more significant in relation to a few major

projects, like the Technological Centre in Ground Transport (Valutec), the Railway Testing Centre

(Objective 1 area), the Centre for Experimentation and Enhancement of Sea Products (CEVPM) in

Boulogne sur Mer and the Genopole in Lille. However, during this decade, the scope of innovation

projects was too limited to have had a significant effect on investment or patents, or to generate a

wider knock-on effect on the overall regional economy.

Since the early 2000s, the launch of the Lisbon Agenda and the persisting economic difficulties

increased the need for deeper and more ambitious measures in favour of innovation. During this

decade, beyond financial support and territorial projects, the utility of ERDF programmes has been

especially important from a strategic point of view, since they provided references and guidelines

to foster overall regional initiatives. In terms of utility, some local and regional actors considered

that this evolution in favour of innovation was too fast and too strong for the regional


LSE 106 EPRC

socioeconomic environment which continued to lack innovation and entrepreneurship culture.

Concerns were especially expressed before 2007 with the earmarking of funds on Lisbon priorities.

In this regard, EU regulations urged local and regional authorities to take measures that would not

have been implemented in such a way without the ERDF programme.

Operationally, the ERDF programmes supported the implementation of the Platform for Innovation

and Enhancement of Research in 2006. They contributed to promoting a culture of innovation with

a stronger requirement for project engineering, a broader approach to innovation (technological

and non-technological) and the provision of a methodological and strategic framework in

connection with the Regional Innovation Strategy. Despite this progress, two limitations must be

highlighted. On the one hand, territorial disparities remain regarding project engineering and the

culture of innovation that would require more support in favour of specific actors or specific

employment areas. Here, ERDF programmes have not yet provided an adequate answer.

On the other hand, the capacity of ERDF programmes to foster innovation in the private sector (in

businesses) has proved to be too limited. This often shows a difficulty to precisely identify the

specific needs of these actors and also the fact that ERDF, as a financing means, is not fully

adapted to the needs and requirements of private bodies. One of the main remarks from economic

operators is that involvement in ERDF projects results in excessive administrative burden and too

much legal uncertainty, linked to the changing requirements and the obligation to respect complex

competition rules (an external constraint that does not pertain to the policy per se). In this regard,

the simplification of procedures and the implementation of new financial tools in favour of

innovation constitute positive developments for local and regional authorities.

Environmental sustainability

Interventions in favour of environmental improvement constitute one of the fields where the utility

of EU funds has been the most important in Nord-Pas-de-Calais.

For this region, the protection of the environment represented a strong concern. The region had

densely urbanised employment areas and numerous large polluting enterprises. The first main need

was to preserve the natural heritage and extend protected areas in the face of the increasing

urbanisation of land. On this issue, ERDF projects since the first programme contributed to the

extension of natural parks, the protection of coastal areas (site des Deux Caps) up to the recent

setting up of blue and green corridors (22,000 hectares of natural areas benefited from ERDF

support since 1989).

Besides strict environmental concerns, the utility of ERDF was to contribute to a wider

socioeconomic approach especially in connection with tourism activities as mentioned earlier. The

need in Nord-Pas-de-Calais was not only to protect the environment against anthropogenic

activities and to improve quality of life, but also to promote the environment as a source of

attractiveness for tourism, individuals and businesses.

Needs pertaining to the reduction of brownfield and environmental clean-up were especially high.

ERDF aid has been used for clean-up measures and for the promotion of new activities for leisure

and culture. ERDF directly contributed to the cleaning and restoration of thousands of hectares of


LSE 107 EPRC

land (more than 7,600 since 1989) with specific protection measures for former mining heaps where

unique biotopes had developed due to the heat radiated by the coal.

Local actors largely used EU funds in favour of environmental clean-up and greening with a direct

visible impact in terms of quality of life for populations and economic actors. The ERDF

contribution was essential for local bodies that could not bear the full costs of restoration, which

represented an emergency for most of the former industrial sites.

However, the region still accounts for half of the brownfield sites in France and the pressure on

natural areas remains strong, with continuous urban sprawl. On this point, solutions rely on political

choices made for town and country planning and future territorial development strategies, which

exceed the scope of ERDF programmes.

Labour Market

Concerning the labour market, there was a strong need to upgrade competences of labour forces

that were traditionally mainly focused on low-skilled and industrial jobs. This appeared to be

indispensable in the fight against a high unemployment rate with two-thirds of the employment

areas having between 10 and 15 percent unemployment between 1989 and 2010.

In this region, the modernisation of skills constituted a challenge for people with low initial training

or with very specialised competences, or for workers who had lost their jobs after the age of 50.

The ERDF and (especially) the ESF provided intervention tools that helped to improve the situation.

Training and support measures were provided to more than 90,000 people during the 1990s. They

have been especially useful to update competences and, in a more structural way, to improve

training facilities that were lagging behind (colleges, high schools and universities). They had a

direct effect on the number of young people who could go through higher education, thus adapting

skills to the development of the service sector and to the diversification of industrial activities.

In 2012, with 159,000 students, Nord-Pas-de-Calais is the third French region. However, despite

improvement and a slight catching up process, the share of people having at least a high school

degree (Baccalaureat) is still 5 points behind the national average (24.5 percent against 29.7

percent in 1999, and 30.9 percent against 36.2 percent in 2005). Despite investment and training

measures supported by EU funds, the professional integration of the youth population remains

especially problematic in a region where 35 percent of the population is under 25 years old (2010

figures), with a national average of 30 percent.

Improving the competences and skills of entrepreneurs, and generating innovative activities

represent additional needs. EU funds did not adequately address these - training projects mainly

focused on initial training or vocational training for the workforce. This highlights the issue of

coordination between ERDF and ESF programmes in the context of improving the competitiveness

and innovation capacities of businesses.

Social cohesion

Due to the economic crisis and worsening economic situation between the 1970s and the 1990s,

Nord-Pas-de-Calais has been faced with important social difficulties including constant high levels


LSE 108 EPRC

of unemployment, a high poverty rate and a worsening health situation. Even the region benefitted

from important national social transfers, they could not however solve the problems related to

long-term unemployment, low wages or professional integration of young population.

In this context, EU funds (and mainly the ESF) increased the scope of population and target groups

reached by social support actions in the different employment areas. However, in the field of social

support, measures have often been essentially curative, the main issue being economic

development and the reduction of unemployment on which social measures have only limited

impact.

An important social issue for Nord-Pas-de-Calais was housing, with an increasing poverty rate and a

continuous degradation of the urban environment since the 70s. In addition to brownfield renewal,

which was usually strongly interconnected with urban areas, ERDF funds concretely contributed to

upgrading housing and improving life quality. These interventions were particularly important for

the region in the 1990s and up to 2006 by reducing precariousness and supporting local

development opportunities including real estate operations, development of social services and

local infrastructure. ERDF programmes presented an advantage in that they were able to generate

concrete achievements in fields that corresponded closely with local and sub-regional authority

competences.

Despite this important ESF and ERDF support, there have still been persistent low socioeconomic

indicators in the region as compared to the national and EU averages. This must be connected to

ongoing economic difficulties and also to the challenge represented by the social and economic

integration of individuals and families that have faced uncertainty over a long period of time.

These difficulties demonstrate the need to improve the synergy and coordination between different

EU funds and public policies dedicated to economic and social development. Until now, this has not

been fully satisfactory and the recent focus of the ERDF on competitiveness and innovation raises

the question of how to improve cohesion in territories still confronted with important

socioeconomic challenges.

Spatial cohesion

Regarding spatial cohesion, a major regional need was to avoid the collapse of the former mining

area and eventually generate a catching up process to reduce disparities with other employment

areas.

From a socioeconomic point of view, a stronger focus of domestic and EU funds proved to be

necessary regarding the scope of the difficulties encountered in Objective 1 area. The utility of

ERDF was obvious, as it contributed to a progressive catching up with a greater increase of GDP and

decrease of unemployment compared to the regional level. The case of Valenciennes is a good

illustration of the capacity of the ERDF to respond to the mobilisation of local authorities and

public and private actors and to generate development perspectives as was the case with the

transport sector.

In terms of needs, there is however a tension between the necessity to reduce sub-regional

disparities in employment areas confronted with major economic difficulties and the concentration

of economic activities in the main development poles.


LSE 109 EPRC

Strong needs were also identified in cities such as Boulogne, where ERDF contributed to the

modernisation of fisheries and the seafood industry, Boulogne being one of the main EU ports for

fisheries activities today. ERDF also intervened in Dunkirk and Calais, but in these cases there has

not been sufficient development of new economic sectors to compensate for the decrease of

traditional ones.

In a different way, the absence of EU funds in employment areas such as Saint-Omer, which was not

eligible until 2007, raises questions regarding the economic difficulties that the glass industry is

now facing. During the 1990s, there was no obvious ‘need’ to provide it with specific public or

private support. Since 2007, the area is eligible for EU funds and there is a strong mobilisation of

public authorities to save the glass industry, as can be seen in the mobilisation of ERDF for the

development of Alphaglass.

Generally speaking, the utility of ERDF funds is tangible with concrete achievements at local level

that contributed to counter economic crises and trigger new development perspectives. The

support to the Objective 1 area constitutes a good example of the ERDF’s potential where local

authorities are strongly mobilised. It also exemplifies limits at the larger territorial level with

persisting discrepancies within and between employment areas. Besides the Objective 1 areas, the

utility of the definition of sub-regional eligible areas for the allocation of EU funds is questionable.

ERDF funds had only a limited impact on sub-regional disparities and the area designation system

sometimes complicated the coordination between EU and domestic actions.

Infrastructure

As highlighted in the regional context and analysis of needs, Nord-Pas-de-Calais benefited during

decades of very important economic activities in a region of Europe characterised by a dense

network of cities and communication infrastructure.

For these reasons, investments in infrastructure did not initially appear as the most important need

at regional level, even though the region had to cope with old networks and facilities tailored

according to the needs of industrial activities. Then, national and international projects were

providing opportunities that could be developed without ERDF financing such as the Channel Tunnel

or the High-Speed Train (TGV Nord). At local level, the development or upgrading of infrastructure

was however necessary to trigger wider economic development processes. If one can observe a

clear utility of ERDF projects with the development of infrastructures that were lagging behind

(better accessibility, reduction of congestion, etc.), achievements in terms of economic and

territorial development are however not always very tangible. This is for example the case with

local roads projects whose impact on economic development was uneven from one employment

area to another.

Conversely, support provided to railway infrastructure and services could have been stronger in a

region where the use of railways for the transport of goods or passengers has important

development potential. The necessity to increase the modal shift from road to other transportation

means has more recently been taken into account at local level, with the contribution of ERDF to

the development of tramways in cities such as Valenciennes or Douai.


LSE 110 EPRC

When considering economic activities, the support to logistic platforms such as Delta 3 in Dourges is

more in line with the development potential of a region located at the crossroads of international

transport systems. In the same, way, ERDF achievements regarding waterways could have been

stronger in a region that is far below the surrounding countries in its use of this transport system.

The development of logistic platforms also relates to real estate and business infrastructure. Here,

there was a strong need in Nord-Pas-de-Calais to upgrade facilities and develop new ones on former

industrial brownfield sites. In this case the utility of ERDF funds has been significant with the

support to projects around the Dourges logistic Platform or with the Zone de l’Union economic

area, which have direct impacts on regional socioeconomic development.

In some cases, local ERDF projects were not fully relevant for territorial potential and had only

limited socioeconomic development effects. Especially during the 1990s, this was due to a situation

of competition between local authorities willing to attract economic activities without clear

territorial development strategies. This improved since the 2000s with higher requirements for

ERDF projects in terms of socioeconomic impact and with a clearer view of territorial development

potentialities (waterways ports in Arras, Béthune and Douai; logistic platforms in Lille, Lens and

Valenciennes, etc.).


LSE 111 EPRC

Table 20: Achievements compared with needs for eight thematic axes

THEMATIC AXES

1989-93 1994-99 Objective 1

1994-99 Objective 2


(phasing-out)


2007-present

Needs

Ach.

Needs

Ach.

Needs

Ach.

Needs

Ach.

Needs

Ach.

Needs

Ach.

Enterprise development + 3 + 3 + 3 + 4 + 4 + 3

Structural adjustment ++ 3 ++ 3 ++ 3 + 4 + 4 + 3

Innovation ++ 3 ++ 3 ++ 3 + 2 + 3 + 4

Environmental sustainability ++ 3 ++ 4 ++ 4 + 4 + 4 + 4

Labour market ++ 3 ++ 4 ++ 4 ++ 2 + 3 + 2

Social cohesion + 3 + 4 + 3 + 3 + 3 + 3

Spatial cohesion + 3 + 4 + 3 + 4 = 3 + 3

Infrastructure

+ 3 + 4 + 3 = 4 = 4 = 3

Needs ++ Very high need: the region is highly deprived on this axis + High need: the region is somewhat deprived on this axis = Average need: the region is above the national mean on this axis - Low need: the region is above the nation mean on this axis -- Very low need: the region is already a European front runner on this axis Achievements scale (end of period with respect to beginning of period) 5 Very high achievement, the results for this axis are much above expectations given the effort put in it and ex-ante

conditions 4 High achievement, the results for this axis are above expectations given the effort put in it and ex-ante conditions 3 Average achievement, the results for this axis are those which could be expected given the effort put in it and ex-

ante conditions 2 Negative achievement, the results for this axis are below expectations given the effort put in it and ex-ante

conditions 1 Very negative achievement, the results for this axis are considerably below expectations or even nil


LSE 112 EPRC

6.3 Key elements of success and failure

6.3.1 Good practices and successes

A number of good practices and successes can be identified in relation to capacity building,

programme delivery (evaluation, monitoring, stakeholder involvement, animation and project

selection), and programme achievements realised in specific fields.

From the outset State services played a strong role in the definition of strategies and in the

implementation of EU funds through the intervention of Ministries and the involvement of

specialised services in Prefectures at regional level. They brought institutional support,

organisation and competences which were necessary for the launch EU programmes requiring

strategic orientations, coherence and management capacities.

The implementation of ERDF programmes necessitated however an evolution in the management

culture of state services towards more inter-sectoral cooperation and increased collaboration with

local and regional bodies (in parallel with the devolution process started in the 1980s). The

promotion of the partnership principle has been a key aspect in the region with, on the one hand,

state services willing to find new partners for the financing of EU and domestic programmes (like

the State-region planning contracts) and regional authorities obtaining stronger political

endowment.

In the region, one good practice has been the early setting-up of a ’Pole Europe’ (that became

’Direction Europe’ in 2000) and the appointment of a Vice-President for Europe and technical

advisers for ERDF and ESF within the regional council. This contributed to strengthen the multi-

level cooperation for the implementation of EU programmes. From 1990, the regional council has

been able to manage ESF projects directly. During this period, the ‘co-presidency’ of EU funds was

set up between regional State services and the regional government and this improved the

collaboration between the two. From a strategic point of view, this cooperation has been

strengthened with the setting up of regional framework documents, such as the Regional Scheme of

Economic Development (SRDE), the Regional Innovation Strategy (SRI), the Regional Strategy for

Initiatives and Entrepreneurship (SRIE) or the Local Plans for Economic Development (PLDE).

Within this partnership, State services in charge of the management of EU funds brought significant

expertise in all relevant intervention fields (employment, economic development, communication,

environment, etc.). The close relation between EU programmes and State-Region Planning

Contracts contributed to the rationalisation of this expertise and increased the cooperation

between local, departmental and regional stakeholders (common transversal or sectoral evaluation,

and programme or steering committees).

At the regional level, the delegation of a Global Grant to the regional government for the

management of Priority 1 in 2007-2013 is a good example of the strengthening of competences and

illustrates the potential for the transfer of further responsibility from state services to the region.

The expertise and professionalism of intermediary bodies also improved alongside increasingly

stringent control and monitoring requirements. In Nord-Pas-de-Calais, EU programmes helped to


LSE 113 EPRC

identify redundancy and organisational difficulties, and encouraged the rationalisation of public

and intermediary bodies, improving their project management capacities.21

With regard to the delivery of EU programmes, good practices can be observed in the 1990s. The

SGAR was responsible for drafting the SPD and overseeing its implementation in coordination with

national ministries (notably DATAR) and regional and sub-regional authorities. In this period, the

State administration created an evaluation unit within the SGAR with qualified staff in charge of

socioeconomic analyses and public policies.

The evaluation unit developed a grid of indicators (Tableau de Bord) for measures and sub-

measures financed by the SPD. All agencies and services in charge of the implementation of

individual measures were requested to fill in a standardised information sheet for every project.

The system was at that time more developed than the national software that only focused on

financial management indicators. At the same time, the evaluation unit carried out econometric

analysis of public policies such as assessments of grant aid schemes to enterprises and studies of

the economic situation (degree of technological development of enterprises for example).With the

multiplication of local evaluation and monitoring systems in France, the idea at national level was

to set up a standardised national tool that would be applicable in every single region. In the early

2000s, this took the form of the PRESAGE system, which regional authorities must now use for

monitoring ERDF programmes and state-region projects contracts. The development of this tool in

Nord-Pas-de-Calais has been accompanied by information and training sessions, and one person in

the SGAR has been appointed to deal with its implementation (correspondant PRESAGE). The

PRESAGE software in widely integrated in working practices in 2012, which constitutes an asset to

comply with future EU requirement regarding the integration of evaluation and monitoring systems.

Further, it was also necessary to increase the qualitative support to stakeholders. In 2002, this

evolved with the setting up of a unit of two officers especially dedicated to animation and support

activities at territorial level (Mission d’Animation et d’Appui Territorial – MAAT). This contributed

to accelerate the implementation of measures where mobilisation or expertise was missing in sub-

regional areas.

Further good practice examples can also be identified in the sphere of project selection. Since

2007, the selection and monitoring of projects improved with the setting up of thematic

programming and monitoring groups, comprising experts and stakeholders specialised on

socioeconomic development issues. This contributed to streamline the evaluation process before

final decision by the programming committee.

Some initiatives proved to be successful in specific areas. Important cultural projects contributed

to changing the identity of the region. Significant achievements included the establishment of a

network of museums and the recent opening of the Louvre Lens. Promoting culture in an industrial

21 At present there is a willingness at national level to transfer the management of ERDF

programmes from State services to the regional authorities. However, it is too early to assess what

the concrete consequences of this would be on the design and implementation of future

programmes. One key issue is the transfer of expertise and the increase of staff costs for regional

authorities.


LSE 114 EPRC

region was very challenging, but the consensus of local and regional actors on this issue created an

overall coherence that progressively modified the regional profile.

Two industrial development successes can be mentioned, each based on different contexts and

strategies. The transport industry capitalised upon long term experiences and generated

development in the former mining area near Valencienne. This industry and its innovation

capacities generated an industrial pole of international importance. Information and

Communication Technologies constitute another success, with more recent but strong involvement

from public authorities and the promotion of Lille as an attractive metropolitan area.

6.3.2 Bad practices and failings

Since the first ERDF programme in 1989, one key challenge has been to establish coherent and

integrated development strategies at local and regional level. In front of economic difficulties,

local stakeholders were often more concentrated on their own local priorities (local infrastructures,

unemployment and environmental challenges) than on the promotion of wider development

perspectives. The focus on local priorities generated a situation of competition between actors for

the access to public funds which was not favourable for more strategic and longer term discussions.

The lack of strong criteria for the selection of operations in the first programmes or the focus on

eligibility or administrative criteria also reduced the coherence with the strategic objectives set

out in the ERDF programmes. More recently, the application of N+2 decommitment rule, despite

improving financial discipline, increased the pressure on programming committees and led to a less

strict selection of projects to avoid automatic decommitment.

Over the long term, one recurrent weakness has been the difficulty to assess the needs of

beneficiaries, to identify (and quantify) clear objectives and to propose strategies and measures

really adapted to needs. Firms in particular did not always find in ERDF programmes solutions to

their problems. The lack support for small beneficiaries also reduced their participation to

measures dedicated to innovation and entrepreneurship for example.

Institutionally, collaboration between the main stakeholders (State services, regional bodies, local

authorities, civil society, etc.) improved over time. However, the complex administrative and

institutional setting of public bodies involved in the implementation of EU funds also increased the

administrative burden both for managing and monitoring authorities and for beneficiaries. The

heavy workload on services in charge of projects assessment was also not conducive to a more

qualitative monitoring.

The subdivision of responsibilities and competences between public authorities (or between

administrative departments) has remained a sensitive issue until today (with the current transfer of

the managing authority from state services to the regional authority), requiring time consuming and

politically sensitive negotiations, which hampered the efficiency of delivery. Further, the overlap

of administrative and political layers between local, sub-regional and national authorities, and the

multiplication of the number of people involved complicated the decision making process.

The division of responsibilities between sectoral administrations can be considered as one of the

main difficulties for the coordination of ERDF, ESF or EAFRD programmes in the region. Up to now,

and notwithstanding the improvements realised (noted in the previous paragraph), this coordination


LSE 115 EPRC

has not been fully satisfactory, and is both cause and effect of difficulties in articulating

programmes based on common strategies and objectives.

Concerning the implementation of programmes, numerous specialised public services are involved

in the monitoring and evaluations of projects. In Nord-Pas-de-Calais, 13 different services were

involved in project appraisals between 1994 and 1999 and 16 services between 2000 and 2006. Even

though they provided high-level technical competences, this generated compartmentalisation of

activities and potential competition between authorities and services for the programming and

monitoring of funds.

With regard to institutional arrangements, the duplication of intermediary bodies and the existence

of numerous support measures were not always favourable to the implementation of effective and

coherent actions at territorial level. This is true for support to SMEs and to vocational training,

which would deserve to be rationalised at the regional level.

Administrative burdens have also been evident in the implementation of ERDF funds, especially for

private actors who need clear and simple administrative rules (on application procedures,

monitoring, audit). EU requirements sometimes pushed potential beneficiaries towards other types

of financing in order to reduce administrative constraints and legal uncertainties. The regular

changes in the regulations, and the different rules applicable to individual funds and programmes

(from EU or national regulations) have also been sources of confusion for authorities and

stakeholders (as frequently mentioned during interviews).

Lastly, large projects have been sometimes confronted with specific difficulties in relation to

project deadlines and decommitment rules. In some cases they had to be subdivided in different

operations to cope with programming and monitoring requirements. For the same reasons, complex

projects could not always be achieved and had to be de-programmed.


LSE 116 EPRC


LSE 117 EPRC

7. CONCLUSIONS

7.1 EQ1: To what extent did the programme address regional needs and

problems over time? (Relevance)

EQ1a: What were the initial regional needs and problems and how have they evolved?

In Nord-Pas-de-Calais, the main regional need in the 1990s was to counter the effects of the

economic crisis and to set up the conditions to enable the region to face national and international

economic constraints to socioeconomic development. This included the adaptation of productive

assets and of skills and competences, the need to promote higher added value activities, and the

provision of social support to the people and areas confronted with a particularly difficult situation.

A second major need related to the consequences of urban and industrial development on the

environment. Nord-Pas-de-Calais is a densely populated region. Mining and steel industries had a

major impact on the urban and natural environment and represented risks for the population. They

also contributed to reducing the overall attractiveness of the territory. The closure of industries

created thousands of hectares of wasteland that had to be restored. Urban renewal measures were

also indispensable to improving the quality of life of a population which had decreased in size with

the economic crisis.

Regional needs evolved in response to achievements realised by the public policies that have been

implemented to accompany the socioeconomic transition process. With the emergence of

globalisation during the 1990s, it became more obvious that traditional industries, even when

modernised, could not survive and that it would be necessary to support new economic activities

and new economic sectors. The change in the production base and the evolution of competences

also facilitated the development of services. Regional needs evolved from the necessity to reduce

the immediate consequences of the economic crisis (unemployment) to the adaptation and

modernisation of the economic and industrial model. This has been especially noticeable since the

early 2000s with the implementation of the Lisbon Agenda and the stronger involvement of

regional-level authorities in the definition of the regional development strategy. One key challenge

was the necessity to improve innovation and entrepreneurship, in a region characterised by a low

innovation and entrepreneurial culture.

Needs regarding the environment and quality of life evolved from emergency management of

wastelands, pollution and social problems, to the necessity to improve social and geographic

mobility and territorial attractiveness. Although the overall situation of the region has clearly

improved over the last 20 years, there is still scope for Nord-Pas-de-Calais to strengthen its identity

with the support of cultural projects and land use planning.

EQ1b: What was the strategy of ERDF programmes of each programme period? How have the

strategies evolved?

Globally, when considering the different periods since 1989, the orientation of ERDF programmes

has been quite coherent with the main regional needs and challenges of the Nord-Pas-de-Calais

region. Priorities have been established in coordination with the State-Region Planning Contracts

throughout the four programme periods, involving a broad set of technical competences.


LSE 118 EPRC

From the outset, the explicit strategy of ERDF programmes was to promote territorial and regional

development with measures in favour of businesses (productive investments, transfer of

technology, business creation), urban and industrial renewal (environmental clean-up, reclaiming

and development of new facilities), modernisation of infrastructure (communication infrastructure,

training infrastructure, research, leisure, tourism and cultural amenities) and support to human

resources (initial and vocational training).

A feature of the first two programme periods was the large number of measures chosen. This

demonstrated the difficulty faced by local and regional authorities in seeking to establish a

common, well-structured regional strategy (notwithstanding the correct identification of the main

challenges). Strategy building was also hampered by the implementation of short-term programmes

(1989-1991/1992-1993/1994-1996/1997-1999) that exacerbated implementation difficulties.

In 1994, the creation of the Objective 1 area also complicated the strategy building process through

the setting up of new intra-regional boundaries for the allocation of funds. The definition of eligible

areas at sub-regional level led to a situation where employment areas of Hazebrouck and Saint

Omer, as well as the main parts of the employment areas of Montreuil and Arras, were not eligible

for Objective 1 or Objective 2 subsidies. In the long term, this raised questions over the articulation

between territories and the relevance of strategies conceived for sub-regional and local areas.

During this period, State authorities still played an important role in the design of regional

strategies with, for example, a significant influence of the Ministries of Equipement and Industry

(support to communications infrastructure and industrial projects). In this context, strategy

building was subject to important trade-offs, ERDF programmes and State-Region Planning

Contracts being conceived to strengthen or to compensate each other in the allocation of funds

(between Objective 1 and Objective 2 areas for example).

For the regional-level authorities, industrial transition was a key issue in coherence with the

Community Initiatives dedicated to the conversion of steel, naval, coal, defence or textile

industries in the region (RECHAR, RENAVAL, RESIDER, KONVER and RETEX). The focus on transition

was complemented by a desire to reduce the environmental impact of transition through

programme measures dedicated to industrial and urban renewal.

In a more modest way, regional strategies since the early 1990s included the necessity to intervene

in favour of tourism and regional attractiveness. This also constituted a challenge in an industrial

region. The mobilisation of local and regional authorities and the promotion of existing heritage

(natural, cultural and industrial) constituted an asset to progress in this direction.

From the outset the strengthening of innovation and R&D was also considered to be a strategic

issue in the region. The main differences between the successive programme periods have been:

first, the importance granted to this theme in the regional development strategy (increasing after

2000); and, second, the capacity of public and private bodies to generate enough high quality

projects to absorb available funds.

Between 1989 and 2006, there was an evolution towards a better structuring of strategies. Local

and regional authorities were strengthened, there was a decrease in the contribution made by

national authorities, and stronger guidelines were provided alongside ERDF regulations. By being a


LSE 119 EPRC

driver for this evolution, the EU programmes contributed to a better design and articulation of the

regional development strategy.

By the end of the 1990s, with the implementation of the Lisbon Agenda, a progressive evolution in

strategy can be observed. Stronger attention was paid to the themes of the knowledge economy

and innovation, and a different approach to infrastructure was introduced (less focus on road

infrastructure and more brownfield renewal projects). With progress already achieved and with

increasing environmental and monitoring requirements, there was a desire to promote more

sustainable activities. The issue was not only to solve immediate economic or social problems, but

to propose solutions which were better adapted to longer term development (to trigger future

economic activities and reduce the environmental impact of investments).

Since 2000, the regional government has been directly involved in programming and monitoring

committees, becoming a true ‘co-pilot’ of EU Cohesion policy in the region. Since this date, the use

of a single seven-year programme period has simplified the elaboration and implementation of

programmes. The suppression of sub-regional eligible areas in 2007 also contributed to simplifying

the conception and implementation of other public policies.

Besides the stronger emphasis on ICT already mentioned, the strategy of the ERDF programme

between 2000 and 2006 has focussed especially on specific structural problems, like the weaknesses

of SMEs and the lack of connections between research and economic actors. At the regional level,

there was also a willingness to continue to invest on cultural development (with the Louvre Lens

project that was finally completed in 2012).

This tendency has been strengthened since 2007. ERDF programmes have been imparted a strong

and explicit focus on innovation and competitiveness. This strategic evolution has been confirmed

by domestic policies and the implementation of seven competitiveness poles in Nord-Pas-de-Calais

since 2005, and with significant effort made by regional authorities to promote entrepreneurship.

EQ1c: What were the priorities and objectives of ERDF programmes in each programme

period? How did they evolve? Where the objectives SMART?22

The Nord-Pas-de-Calais region is characterised by a strong socioeconomic crisis that started more

than 30 years ago, the consequences of which are still perceptible. For this reason, programmes

implemented since 1989 exhibit continuity in their main priorities and objectives. On the one

hand, there is the necessity to reducing the socioeconomic impact of the crisis, and on the other,

there is the imperative to shape the conditions for a sound economic transition.

During the first period (1989-1993), one of the priorities was to support businesses seeking to

maintain their economic activities (or create new ones) and employees. This was pursued through

financing productive investments, supporting technology transfer, research and innovation, services

and access to finance. In close relation, human resources constituted a second focus, aiming to

improve competences and skills through the provision of initial and vocational training. This was

22 SMART criteria refer to the fact that objectives have to be: Specific, Measurable, Attainable, Results-oriented and Time-bound.


LSE 120 EPRC

considered to be an indispensable accompaniment to the modernisation of the production base and

the development of other sectors like the service sector.

A second main priority concerned the socioeconomic ‘environment’ (people and businesses). This

included, in a broad sense, industrial heritage, wasteland, pollution, communications

infrastructure, the natural environment and water management. In this field the objectives were to

reduce the impact of deindustrialisation (through brownfield and urban renewal and environmental

clean-up), to adapt infrastructures to new needs (through developing communications and

logistics), and to make the region more attractive for people and for economic activities (with a

specific focus on tourism).

These priorities and main objectives were maintained during the second programme period (1994-

1999) with a slight evolution according to the economic context. A short term stabilisation in the

economy acted to slightly reduce the attention paid to revitalising economic activity and supporting

business. This raised questions over the prioritisation of objectives and their strategic dimension,

especially where large investments in infrastructure were concerned. During this period,

environmental renewal remained a significant objective, with specific attention paid to urban

renewal measures. The support to public research, training and training facilities also constituted

key issues for public bodies seeking to pursue convergence with national average indicators.

Between 2000 and 2006, priorities and objectives showed clear continuity with the previous period.

There was a focus on economic recovery (Priority 1), training, employment and solidarity (Priority

2) and territorial development (Priority 3). However, objectives had been influenced by the Lisbon

Agenda and the stronger attention paid to innovation and competitiveness. In Nord-Pas-de-Calais,

this was easily perceptible, with the greatest importance afforded to the development of

information technology, the digital economy and applied research. A Global Grant was also

entrusted to the National Research Promotion Agency (ANVAR). The development of centres of

excellence and clusters was more explicitly mentioned among regional development objectives,

signifying a shift in the strategic approach to economic development.

In the 2007-13 period, priorities and objectives have evolved further in an important way under the

influence of the EU regulations. Innovation and competitiveness became the first priority with more

than 30 percent of the total ERDF budget. At the same time, other priorities embody a pragmatic

approach with, on the one hand, the necessity ‘to consolidate economic revival’ and, on the other

hand, that ‘to overcome the legacy of the past’. This demonstrates the weight of the legacy of the

industrial history of the region in shaping the regional socioeconomic development process. During

this period, a focus has been placed on strengthening competitiveness poles and innovation. This

evolution is confirmed by the Regional Innovation Strategy set up under the supervision of the EU

Commission and the regional authorities.

The extent to which the objectives where SMART has varied over the study period and progress and

gaps can be summarised as follows:

During the first two programme periods, the drafting of strategies and programmes was

characterised by a lack of specificity with a tendency to address quite diverse priorities,

which were all considered as essential at local level. The specificity of priorities and

objectives increased since 2000 with clear strategic orientation since 2007.


LSE 121 EPRC

During the 1990s, the objectives of programmes were not easily measurable because

targets were not clearly identified and because the monitoring system and procedures were

not sufficiently developed. This improved since 2000 with the promotion of an evaluation

culture and the use of a centralised monitoring tool and specific sets of indicators.

Although objectives set in the 1990s were relevant according to regional needs, they were

not always attainable, especially when taking into account the socioeconomic situation of

the region. This was especially the case with regard to the promotion of innovation, private

research and the development of an entrepreneurial culture. Objectives became

progressively more achievable thanks to the improvement of the socioeconomic context and

a stronger mobilisation of local, regional and national public policies on these specific

issues.

The objectives of programmes can be considered to have been relevant as they generally

corresponded to regional needs. The main difficulties concerned their achievability,

especially where socioeconomic emergency incited authorities to look for short term

effects rather than longer term solutions.

Programmes were not very timely during the first two periods, which were divided in

several sub-periods of two or three years. This created difficulties for the implementation

of projects and also reduced the coherence of strategies and objectives that needed to be

implemented over longer periods of time. Since 2000, programmes have been certainly

more timely thanks to the longer programme periods.

EQ1d: What has ERDF support been spent on in each programme period? Have there been

significant transfers from initial allocations of ERDF resources to other priorities in any

period?

Over the past 40 years, it is estimated that the Nord-Pas-de-Calais received nearly €5 billion of

Structural Funds including the ERDF, ESF and the funds dedicated to agriculture and fisheries. It is

one of the French regions that received the greatest amounts of EU funding.

When considering programmes implemented since 1989, ERDF support has been spent mostly on the

themes of ‘enterprise’, ‘infrastructure’, ‘human resources’ (significant contribution of ESF within

multi-funds programmes) and ‘structural adjustment’, with a progressive increase over the four

programme periods for environment and innovation.

During the first programme period, ERDF and ESF were mainly spent on three priorities that

represented around 74 percent of the total budget: labour market and training (32 percent),

support to SMEs (26 percent), and infrastructure, communications and industrial renewal (26

percent). Other priorities such as tourism, R&D technology and innovation, environment and living

conditions each represented between 2 percent and 8 percent.

In the second part of the 1990s (1994-1999), the concentration of ERDF on business, economic

revitalisation, infrastructure, and urban and brownfield renewal remained quite strong (70 percent

of ERDF) in line with the needs of the time.


LSE 122 EPRC

Support for tourism and cultural activities remained limited, but was quite constant from this

period until 2007. Support for innovation and R&D was initially stronger for public sector research,

with limited spending for private research and innovation in SMEs. ERDF spending in support of

innovation and structural adjustment increased during the 2000s with currently 67 percent of the

ERDF budget focused on Lisbon priorities.

In each of these periods, significant transfers of ERDF resources between priorities took place. One

of the first instances of this followed difficulties in spending budgets dedicated to innovation and

entrepreneurship during the first programme periods, which led to a reallocation of funds in favour

of larger businesses and infrastructure. It is rather difficult to state whether there was an implicit

objective behind these changes but it is true that the socioeconomic context was more favourable

to supporting traditional industries and large investments than it was to promoting less tangible

investments (innovation, incubators, entrepreneurship, etc.).

During the second programme period, the EU Commission insisted on reducing the focus on

infrastructure to improve the effort on human resources and social support, whilst in the third

programme period (2000-2006) a change occurred following the mid-term evaluation in favour of

the project ‘Louvre-Lens’, which was de-programmed to be finally launched under the 2007-2013

programme. For 2007-2013, a change has been the integration of the objective of energy efficiency

in social housing in the middle of 2007-2013 programme period, with a total of €26M dedicated to

energy efficiency in the programme.

7.2 EQ2: To what extent do ERDF achievements meet regional objectives and

needs in each programme period and across all periods?

One main difficulty with the evaluation of ERDF achievements is the access to precise and accurate

data. Particularly before 2000, programmes provided only limited information on quantitative

objectives and targets. Statistical series spanning successive periods were not coherent enough and

evaluation tools were not sufficiently developed in order to enable longer-term qualitative

assessments.

For example, various types of figures are provided for employment (direct and indirect jobs, jobs

consolidated and safeguarded, etc.). It is estimated that around 72,000 jobs benefited from ERDF

support between 1989 and 2010, and evaluation reports indicate that ERDF programmes directly

contributed to the creation of 20,000 direct jobs.

The situation is comparable with brownfield renewal and areas ‘treated’, ‘renewed’ or

‘developed’. Around 7,000 hectares of brownfield sites have been ‘treated’ during the last 20

years. Most of them benefitted from decontamination and greening measures and a more limited

amount from successful redevelopment projects (prioritised since 2000). Within each programme

period, figures relating to brownfield renewal are generally coherent. Brownfield renewal projects

tended to decrease in number in the most recent periods due to a shift towards more costly

interventions in smaller areas.

In the same way, the indicators on the achievements in the interventions in real estate include ‘m²

of buildings rehabilitated or demolished’, ‘surface of premises created or rehabilitated’, ‘new

areas of business premises’, amongst others. At least 4,800 hectares of land has been redeveloped


LSE 123 EPRC

into business areas and more than 1,000 hectares of premises has been developed or converted for

businesses with the support of ERDF since 1989. These categories are however not always coherent

from one period to the other and existing monitoring tools are not adapted to assess their

socioeconomic effects on a mid-term perspective.

In relation with the transition process, achievements are nevertheless quite convincing for large

integrated operations that combined land management, urban development, infrastructure and

services around ambitious industrial and territorial projects. For example, this is the case with the

Zone de l’Union in Roubaix-Tourcoing or EuraTechnologie.

The assessment capacities improved after 2000 as a result of increasing EU requirements for

project monitoring and with the implementation of integrated evaluation systems.

The available data and evaluation reports undertaken over the last 20 years show that ERDF

programmes had mixed results in meeting their objectives. Discrepancies between initial objectives

and achievements had different reasons.

Objectives can change during a programme period due to new regulations, as has been the case for

the integration of an energy efficiency objective in social housing in 2007-2013. Some objectives

can be modified because they are not achievable (such as the promotion of entrepreneurship and

incubators in the 1990s, or the difficulties in implementing large scale projects like the Louvre-Lens

between 2000 and 2006). Competition between authorities and territories also generates trade-offs

in the allocation of funds between priorities and measures, which has an impact on projects and

achievements. Explicit objectives can also mask hidden or implicit ones, as has been observed in

relation to the desire to modify the industrial profile of the region whilst at the same time

protecting traditional industries and the related jobs.

EQ2a: What are the reported achievements of each programme period?

Information available on achievements significantly varies from one period to another. Between

1989 and 1993, reporting focused mainly on financial progress rather on outputs and results. The

lack of sources limited the scope for aggregate assessment of the reported achievements.

Nevertheless, the sources available report that 1,500 small and medium firms benefited from ERDF

support during this period, through projects for technology transfer, material and immaterial

investments, support for executive recruitment or external expertise. Modernisation and adaptation

of productive assets helped businesses to face the economic crisis faced during the period, but no

detailed data are available on survival rates over the following years. More than 110,000 individuals

benefited of training for businesses, aimed amongst others at the creation of new businesses.

However, it is not possible to assess the results of these training activities due to the absence of

data on this. ERDF programmes also contributed to the modernisation of 100 education and training

centres which was a priority for the region. In the field of research and higher education,

achievements have been especially significant regarding the modernisation of universities and the

strengthening of human resources in public research in the 1990s (+50 percent of researchers,

engineers, technicians and administrators during this period). Achievements have also been

significant on brownfield sites and urban derelict areas: clean-up activities for 3,000 hectares of

wastelands, servicing of 530 hectares of land, 115,000 m² of premises created or rehabilitated and

300 urban regeneration projects. ERDF programmes contributed also to the development of


LSE 124 EPRC

communication infrastructures with urban bypasses, the national road 49 between Valenciennes

and Maubeuge, and the national road 2 between Maubeuge and Avesnes-sur-Helpe. In terms of jobs

creation, ERDF programmes supported a positive dynamic during this period, with better

performance in Nord-Pas-de-Calais than nationally, a trend that can be linked to investments in

training and technological development. However, the effects of ERDF remained limited during this

period on entrepreneurship and economic diversification. During this first period ERDF funds also

generated impetus at local level for the development of tourism and culture activities. Even though

achievements were modest at first, emblematic initiatives like NAUSICAA in Boulogne Sur Mer and

the Musée Piscine in Roubaix contributed to support wider and longer term initiatives.

Between 1994 and 1999, one important change was the classification of the French Hainaut as

Objective 1 category which brought significant additional financial support. With ERDF support,

employment increased by 12 percent in this area, which was higher than the regional or national

average (estimation of 3,220 new direct jobs and 4,508 new indirect jobs). In this period, ERDF

programmes mainly contributed to support jobs in existing businesses or to attract new businesses

from other regions or countries. Endogenous regional development and entrepreneurship continued

to remain weak, despite the implementation of specific measures until the end of the period. In

1994, it was estimated that the remaining stock of brownfield sites represented about 5,000

hectares: interventions in favour of brownfield renewal thus continued with the treatment of 2,020

hectares of industrial land in the Objective 1 area and approximately 1,400 hectares in the

Objective 2 one. The effects of ERDF projects were especially noticeable in the field of urban

renewal. Three hundred projects were implemented in 131 cities in housing improvement, social

support, health and cultural activities. Information is however lacking on their direct socio-

economic consequences. In the environmental field, it is estimated that ERDF projects directly

contributed to sort and recycle 162,000 tons of industrial waste each year and contributed to the

improvement of air quality. However, despite progress, still in 2009 Nord-Pas-de-Calais was the

second French region for the highest number of polluted sites (559) behind Rhône-Alpes (599).

In 2000-2006, a shift can be observed in ERDF achievements. EU programmes brought a stronger

contribution to the regional policy in favour entrepreneurship which led to the creation of around

3,000 firms. More than 150,000 people benefited from support measures and information promoting

entrepreneurship. This period showed a growing interest in services, tourism, health, environment

and ICT which contributed to structural adjustment (an example being the financing of IT

laboratories for digital schools). Progress was made with initiatives such as ‘Digital Region’ and

‘Digital University in the Region’, which benefitted from ERDF support. However, despite a stronger

interest in innovation since 2000, achievements are less convincing concerning investments in

private research and the connection between research and businesses. The increase in public

researchers mainly concerned universities and only a limited number of projects involved other

bodies such as Scientific and Technologic Public Body (EPST), which are essential for the

development of fundamental and applied research and the promotion of innovation in relation to

businesses. At territorial level, ERDF contributed to the development of the new competitiveness

poles. The shift towards greater integration of R&D and innovation into businesses was also

significant, even if the region remained below the national average concerning R&D performance

during this period. Nearly 5,000 R&D jobs were created between 2000 and 2006 through both ERDF

programmes. During this period, efforts in favour of business creation, animation, financial

engineering or territorial attractiveness contributed to the creation of around 9,400 direct jobs and


LSE 125 EPRC

3,900 indirect jobs in the objective 1 area (3,579 and 20,160 jobs for Objective 2). In line with

business development, ERDF supported large regional infrastructures like the Zone de l’Union in the

Roubaix-Tourcoing area (encompassing the ‘European Centre for Innovative Textiles’, CETI), the

regeneration of the Oignies brownfield site into a major economic and cultural site based and the

multimodal and logistics hub in Dourges. These projects corresponded with the willingness to

support higher quality urban renewal activities, with longer term socioeconomic impact.

The 2007-2013 programme period was characterised by a significant shift towards innovation and

competitiveness objectives. However, not all projects have yet been completed and the mid-term

evaluation focused on expenditure rather than achievements, and does not provide much

information on projects’ outputs and results. In the mid-term, the PRESAGE monitoring system

specifies that around 18,600 projects managers have been supported for the creation or transfer of

businesses. The ERDF programme incited local and regional authorities to set up better structured

development strategies with a stronger focus on emerging sectors such as renewable energies,

biotechnologies and sustainable transport. It is difficult to appraise achievements in the fields of

labour market and social cohesion, since these themes are no longer a central issue for the ERDF

mono-fund programme. Achievements are more tangible in the field of infrastructures, as the

programme is supporting the continuation of some large projects increasing the visibility and

attractiveness of the region (notably the Louvre Lens Museum, the “Zone de l’Union in Roubaix-

Tourcoing, the tramway of Valencienne, the ‘VIAVIL’ public transport project or the Lille

International Campus Opportunities for Research and Innovation (also known as LICORNE).

Achievements are still largely concentrated on urban areas with projects such as the conversion

project of the Boulon industrial site or the re-industrialisation of the SELNOR site in Lesquin.

EQ2b: To what extent were objectives achieved in each programme period?

Since the first programme period a strong focus was placed on enterprise in order to maintain

economic activities and fight against unemployment. ERDF programmes incorporating business

support demonstrated their capacity to reach a high number of enterprises during the 1990s, in line

with the quantitative objectives set in the programme documents. This continued during the 2000s,

with increased capacity to reach SMEs and to promote entrepreneurship (which was not a success

during the 1990s).

Although ERDF projects were effective in their contribution to reducing the impact of the economic

crisis, they could not however generate a significant convergence process in the 1990s. Despite the

estimation of 20,000 jobs creation with the support of ERDF programmes between 1989 and 1999,

this was not sufficient to compensate for losses in industrial activities. Beyond the need to save

employment and support overall regional socioeconomic cohesion, it has been difficult to trigger

structural changes and transform the economic fabric in a region that lacked innovation and

entrepreneurial assets.

For the programmes of the 1994-1999 period, programmes were implemented in two different areas

(Objective 1 and Objective 2). Some achievements are provided for the Objective 1, but there is

little information concerning initial targets. The situation is comparable for the Objective 2 area.

The only comparison that can be made, between initial targets and actual achievements for

Objective 2, relates to the area of wasteland renewed which has been lower than expected (less

than 50 percent) and to the outputs relating to the training of new highly skilled technicians, which


LSE 126 EPRC

have been below expectations but also very positive regarding jobs created thanks to measures

dedicated to business premises (+617 percent). Once again the lack of data and of information

regarding the way indicators are calculated does not allow sound evaluation of achievements.

Regarding labour market, skills and competences, EU programmes have been especially useful for

upgrading and developing training facilities which were lagging behind in the 1990s. Training

measures and investment continued in line with initial objectives between 2000 and 2006, which

represented significant support for public authorities confronted with budget constraints.

Achievements in the field of environment have been quite significant, taking into account the

objectives set in the programme documents. Challenges were especially substantial in a region in

which there was pressure from industrial development, environmentally harmful activities and

urban sprawl. Since 2000, ERDF programmes insist on the necessity to support more qualitative

projects with higher added value in terms of economic development. Achievements are in line with

this objective with smaller regeneration projects and better concentration on areas presenting

higher development potential.

The situation has changed since 2000, alongside higher EU requirements for programme and project

monitoring, and with the use in Nord-Pas-de-Calais of the centralised monitoring system PRESAGE.

From a strategic point of view, the approach of ‘needs’ and objectives evolved from the end of the

1990s with stronger guidelines provided at EU level (Lisbon Agenda) and with higher awareness at

local and regional level that more structural changes were necessary to improve the regional

socioeconomic situation. Authorities and stakeholders were also asked to identify initial targets and

to provide more detailed information on achievements. From this period on, the achievements

related to knowledge economy, ICT, innovation and entrepreneurship have been more significant.

However, the strongest change occurred in 2007 with the earmarking of funds on Lisbon priorities.

Though it is too early to form a clear picture of ERDF achievements for this period, it appears that

by the end of 2010, 95 percent of ERDF support dedicated to the creation and transfer of businesses

had been committed. In this field, the programme meets regional objectives better than expected

despite initial fears of insufficient absorption capacity at local and regional level.

EQ2c: To what extent were needs met in each programme period? To what extent can

observed changes in regional needs and problems be attributed to ERDF programmes over

time?

During the first two programme periods, the main needs in the Nord-Pas-de-Calais region were

related to the substantial increase in unemployment and the destruction of businesses, and the

overall impact of this on society and the quality of life. Between 1962 and 1999, taking into

account the closure of the mining industry and the economic crises in the steel and textile

industries, it is estimated that around 325,000 jobs were lost in the region. Another issue

concerned the increasing regional disparities within the former mining areas that were especially

affected by the economic recession.

In this context, ERDF programmes increased the resilience capacity of businesses and contributed

to saving jobs with productive investments, modernisation of enterprises and improvement of skills.

From the first programme period, ERDF has been closely connected to domestic funds to reduce the


LSE 127 EPRC

effect of de-industrialisation and delivered significant achievements in terms of urban and

industrial renewal, reduction of pollution, improvement of living conditions and upgrading of

communication infrastructure.

However, from a macroeconomic point of view, ERDF funds, just like domestic funds, did not

manage to trigger a significant catching-up process with national and EU indicators. GDP per capita,

unemployment or poverty rates remained weaker than those of the majority of other French

regions. Even though the objective of preserving employment focused the attention of public

authorities also on existing industries, the territories lacked the assets that would have been

necessary to promote new and higher added-value economic sectors (entrepreneurship, innovation

culture, skills, political consensus, etc.).

From a territorial point of view, the classification of the French Hainaut as an Objective 1 area in

1994 aimed to reduce infra-regional disparities and support territories that were confronted with

especially severe structural difficulties. In that case, EU funds directly contributed to the

regeneration and restoration process and had enough flexibility to intervene in favour of brownfield

and urban renewal, training facilities and communication infrastructure, which were essential for

restoring basic territorial assets and opening up new development perspectives. The employment

area of Valenciennes managed, with the support of EU funds, to attract new investors, modernise

traditional economic sectors (transport) and even promote new ones (ITC) over the four programme

periods.

However, successes have been unequal, with a stronger concentration of economic activities in

Lille and Arras than in the rest of the region. This raises the question of the influence of ERDF on

the attractiveness of territories and on migration, which has been a major concern for the region

since the closure of the first mining areas. On this point, the utility of ERDF seems to have been

limited, with a majority of employment areas still having a negative migration rate in 2010.

From the end of the 1990s, it became more obvious that a qualitative shift was necessary, as public

policies were confronted with increasing budget pressure. Needs remained important in the fields

of training and urban renewal, and ERDF programmes largely contributed to upgrading existing

infrastructure or developing new infrastructure (for example universities).

The 2000s mainly marked greater attention paid by public authorities to the necessity to improve

entrepreneurship and innovation in an overall economic environment characterised by increasing

international competition. In these two fields, a main issue was the capacity of EU funds to

intervene in favour of private bodies that had substantial needs but that also required well-tailored

and user-friendly support systems.

In this context, EU funds were useful in encouraging the professionalisation and coordination of

intermediary bodies especially for the management of Global Grants, which required important

institutional and financial capacities. In parallel, ERDF programmes provided more targeted

guidelines and guidance to better address the needs of private sector partners, small businesses

and new economic sectors (ICT, knowledge society, innovative transport, health, etc.).

This has particularly been the case since 2007, a year that marks the main strategic shift since the

start of ERDF programmes in 1989. From a political point of view, ERDF programmes favoured the


LSE 128 EPRC

mobilisation of local and regional authorities on issues that are now considered as compelling for

the future. Even through this shift towards innovation and competitiveness is being relatively rapid,

and binding given the Lisbon earmarking, public authorities agree on the point that this shift would

not have been possible 15 or even 10 years ago, and that ERDF programmes have been an important

factor of change in the organisation and mobilisation capacities of territorial partners.

EQ2d: What have been the complementarities and synergies of ERDF interventions with ESF,

EAGGF, EAFRD and with domestic regional policy interventions?

In Nord-Pas-de-Calais, as in other French regions, there has been a strong connection between the

implementation of ERDF programmes and State-Region Planning Contracts over the past 20 years.

Although the State administration, through the Ministries of Equipment and Industry (among others)

had a strong influence on strategic orientations during the first periods, this influence has

progressively been reduced, in parallel with the granting of increasing responsibilities and

competences to local and regional governments.

The modification in the share of financial contributions (decrease of State contribution, matched by

an increase of EU, local and regional contributions) has been accompanied by a strategic shift

under the influence of EU regulations. EU strategic orientations have progressively been considered

as key guidelines that should be taken into account in the design of domestic regional development

strategy. This has particularly been the case since 2007 with the earmarking of programmes to the

Lisbon strategy, and local and regional actors consider that this period brought the most important

change in the regional development agenda since 1989.

With regard to the relation with other EU programmes, the main issue concerns the connection

between ERDF and ESF. Taking into account the quite difficult economic situation experienced by

the region through the industrial transition, the ESF had a strong role to play especially in the field

of training, support to the most fragile populations, health and urban social policy. In these

different fields, there was a complementarity between ESF and ERDF, with the ERDF financing

infrastructure (schools, universities), modernisation of businesses and urban renewal, and the ESF

providing softer support in favour of human resources and social support measures.

However, there has still been a gap between complementarity and operational coordination, with

only a limited number of projects being conceived with the explicit objective of articulating

contributions from the two funds. In some cases, ERDF-funded infrastructure has provided the

opportunity to promote professional integration initiatives financed by the ESF. Over the past few

years, the scope has improved with measures taken by local authorities in favour of stronger

mobilisation of integration measures in the implementation of publicly funded infrastructure.

More specifically, there are discussions regarding the role that the ESF could play in the promotion

of innovation and competitiveness in Nord-Pas-de-Calais, taking into account for example the fact

that it is more oriented towards social measures and vocational training for employees, than on the

improvement of management and innovation capacities of entrepreneurs.


LSE 129 EPRC

EQ2e: What has been the overall contribution of ERDF programmes to regional development?

In Nord-Pas-de-Calais, the ERDF programmes represented less than 1 percent of the regional GDP

between 1989 and 2013. This needs to be borne in mind when assessing the overall contribution of

the ERDF programmes to regional development.

Nevertheless, especially in early periods, ERDF programmes increased the resilience capacity of

businesses and contributed to saving jobs with productive investments, modernisation of

enterprises and improvement of skills. Together with domestic policies, with which the ERDF was

closely connected, the ERDF programmes contributed to soften the negative effect of de-

industrialisation and delivered significant achievements in terms of urban and industrial renewal,

reduction of pollution, improvement of living conditions and upgrading of communication

infrastructure.

However, the additional support brought by the ERDF programmes was not sufficient to trigger

higher added value activities better corresponding to the globalisation process. In this respect, the

most significant changes have been observed in the up-grading of public sector activities that were

lagging behind at the beginning of the study period (higher education and public research for

example) and in specific sectors, such as biotechnology (Genopole), health, energy, ITC, innovative

transports (Valutec), food or see products (CEVPM), which would experience good development

perspectives, thanks to the support provided to the launch of six competitiveness poles in the mid-

2000s.

The ERDF also contributed to the development of tourism and cultural activities, in so doing

enabling a change of image for the region. Since 1989, ERDF funds have been mobilised on these

issues and concretely contributed to launch new infrastructures and activities that would have been

difficult to promote without the ERDF’s contribution. On the longer term, these investments

generated a different perception of the region, which made it able to set up major events, launch

innovative projects and attract large cultural infrastructures (Musée Piscine of Roubaix, Louvre

Lens Museum, Métaphone of Oignie, etc.).

Since the 2000s, and again together with national and regional domestic initiatives, the ERDF

programmes also contributed to increase endogenous entrepreneurship (an area that corresponds to

a strong regional need, but where initiatives had only limited effects during the first decade of the

period reviewed). Nevertheless, the region continues to remain characterised by the weight of

larger businesses and initiative for business creation and innovation within SMEs should continue to

be encouraged.

The ERDF programmes have enabled important change also in the environmental field, On the one

hand, ERDF projects contributed to preserve the natural heritage and to extend protected areas in

a region that remains densely populated (22,000 hectares protected with the contribution of ERDF

funds since 1989). On the other hand, large and numerous interventions have been carried out for

the treatment, clean-up, greening or renewal of brownfield areas. Since 1989, more than 7,600

thousands hectares of former industrial sites have been improved, with cleaning and restoration

measures. This had a significant impact on the landscape and on the fight against pollution, even

though Nord-Pas-de-Calais remains one of the French regions with the most important stock of

brownfield areas.


LSE 130 EPRC

The upgrade of competences of labour forces, traditionally mainly focused on low-skilled and

industrial jobs, was another area of need that the ERDF programmes contributed to address. This

was a great challenge in a region where most of the employment areas experienced between 10

and 15 percent unemployment between 1989 and 2010. With support from the ESF, the programmes

contributed to upgrade competences and support fragile population whereas the ERDF helped to

strengthen training infrastructures including schools, colleges, high schools and universities. The

effect has been a significant increase of the number of students and improvement of the

adaptability of the workforce. However, despite improvements, Nord-Pas-de-Calais still has higher

unemployment rates and lower levels of education than other French regions (as well as a higher

proportion of young people without diploma), and certain categories such as young people, senior

adults or single mothers, remain at risk of exclusion from the labour market, requiring further and

specific support.

More widely, the ERDF programmes contributed to improve the living conditions of fragile

populations with numerous renewal projects in urban areas. This was especially important to

improve quality of life, even though these measures were not sufficient to achieve the more

comprehensive urban restructuring which would have been necessary in many small and middle size

industrial cities.

At the beginning of the study period, the region was very diversified internally, with significant

disparities between the area of Lille (the regional core, concentrating economic activities and

services), the former mining area (facing strong economic, environmental and social difficulties),

and the more rural areas, characterised by weaker economic development levels and assets. The

ERDF programmes realised local roads, tramways, communication services or multimodality, thus

increasing the mobility within the region. However, on a more general level, ERDF support was

particularly focussed on the French Hainaut (between 1994 and 2007 - where it contributed to

modernise existing industries (like transports) and promote new ones (image, knowledge economy)

– and in the areas of Boulogne, Dunkirk and Calais, also supporting the development of major

projects like the platform of Dourges or the Zone de l’Union. To achieve a more balanced

distribution of economic activities within the region, it would have been necessary to mobilise a

much higher volume of resources.

7.3 EQ3: What are the main lessons learnt on the effectiveness and utility of

ERDF interventions?

When the first generation of ERDF programmes was launched in 1989, the regional development

strategy was implemented through the State-Region Planning Contracts (CPER). There was

significant influence from ministries on regional priorities. During this period, ERDF programmes

and strategies had to adapt to the regional institutional and political environment. However, ERDF

programmes also enabled local authorities to take initiatives that often would not have been

possible without EU funds, as has been observed - for example - in the field of culture. At the

regional and sub-regional levels, the effectiveness of ERDF interventions was affected by the

competition between local authorities confronted with difficult economic situations. During the

first periods, EU programmes were composed of a high number of measures reflecting difficulties in

setting up and implementing strategies based on common and well-coordinated objectives. Access

to EU funds was at that time less selective than it is today. During these periods at least, ERDF

programmes could not bring significant added value to domestic policies in terms of strategy


LSE 131 EPRC

building. Another lesson learnt relates to the limited effectiveness of measures dedicated to

innovation, private research and entrepreneurship during the 1990s. Although they were well

identified in the regional development strategy, achievements were limited due to socioeconomic

difficulties and to a lack of overall consensus between actors.

Another point is the identification of needs, which has proven to be a key issue for the

effectiveness and utility of programmes. Especially in the case of entrepreneurship and innovation,

public authorities were confronted with intervention fields that did not correspond with their

competences and thus lacked the experience needed to intervene efficiently in these fields. For

interviewees, and despite progress made with the partnership principle, in these fields it would

have been necessary to involve more the beneficiaries and end-users in the definition of objectives

and intervention strategies. The situation is now changing. ERDF support through new financing

tools, for example, is better connected to the needs of private bodies. However, it is still too early

to assess whether this will create a new dynamic for innovation and small economic operators in

Nord-Pas-de-Calais.

The first programmes sometimes appeared to be too ambitious and too optimistic given the

socioeconomic situation they were confronted with in the Nord-Pas-de-Calais region. With limited

EU and domestic financial contribution (as compared to the regional GDP), they could not

objectively generate a fast and large-scale transformation process. However, at sub-regional level,

EU funds contributed to important achievements that were more in line with the specific objectives

set in the programme documents (productive investments, training and human resources,

brownfield and urban renewal, environmental clean-up, and support to high tech business areas).

This raises issues regarding the geographical dimension of ERDF programmes which only covered

only parts of Nord-Pas-de-Calais until 2007. Though stronger support to the most fragile

employment areas contributed to a degree of convergence, intra-regional disparities have remained

strong until the current period. From a strategic point of view, the variety of categories affecting

eligible areas and the definition of eligibility at the municipal level complicated the design and

implementation of public policies (especially between 2000 and 2006). Besides the creation of the

Objective 1 area that brought substantial additional financing in 1994, evaluation reports do not

provide significant detail on comparisons between areas and on the consequences of territorial

eligibility on territorial development. As an example, the re-designation of some municipalities

from Objective 2 in 1994-1999 to ‘transition areas’ in 2000-2006 did not bring a major change in the

regional socioeconomic development strategy. In the same way, the end of the Objective 1 area in

2007 has not been considered as a dramatic change, taking into account the investments already

achieved and the fact that these employment areas could still benefit from Objective 2 financing.

Since 2000, the influence of ERDF programmes on the regional development strategy has been more

important and has highlighted the need, beyond financial support, for stronger strategic and

technical guidelines. In the case of Nord-Pas-de-Calais, ERDF programmes played a positive role in

the mobilisation of local and regional actors in favour of innovation, the knowledge economy and

entrepreneurship (especially since 2007 with the introduction of the Regional Innovation Strategy).

Conversely, this highlights the lack of expertise affecting local bodies tasked with designing and

implementing ERDF projects. Because administrative and technical requirements in EU programmes

increased over the time, these actors did not have equal chances to access EU funds (more staff,

better project engineering, and stronger administrative and financial capacities for larger cities,

larger public bodies and larger economic operators). One positive consequence of ERDF


LSE 132 EPRC

requirements has been to push these bodies to attain higher quality project management and levels

of professionalism. This is the case, for example, with intermediary bodies providing support to

SMEs or involved in vocational training activities. EU funds also had a positive influence on the

public bodies in charge of programme implementation which had to improve their management,

monitoring and evaluation capabilities to comply with EU requirements. Progress is mainly

noticeable with evaluation practices which were not widely used in domestic public administration.

EQ3a: What are the main good/bad practices?

In Nord-Pas-de-Calais, the Structural Funds have had a noticeable influence on the design and

implementation of regional development policy over the past 20 years. Even though they only

represented a limited amount of the regional GDP, they constituted up to one third of the funds

dedicated to regional development in the region. Their influence was especially important to the

State-Region Planning Contracts.

One of the main elements of success identified across programme periods was that EU programmes

contributed to defining the regional priorities and to improving cooperation between local and

regional actors. This was important in a region in which the economic crisis and the de-

industrialisation process incited local actors to defend their own priorities and compete against

each other for public funding.

Although EU regulations can be considered in some respect as overly prescriptive (for instance in

relation to the strong shift towards innovation and competitiveness in 2007), they helped local and

regional actors to explore new development and cooperation possibilities. As an example, the

evaluation of 2007-2013 programme demonstrates good mobilisation of regional actors in favour of

innovation (a positive trait of Nord-Pas-de-Calais compared to other French regions). This highlights

the importance of political commitment at regional level for the success of the transition process.

On this point, it appears that the strong involvement of the regional government in the regional

development strategy played a positive role in the implementation of the Lisbon agenda. This was

well illustrated in the delegation of a Global Grant to the regional authority for Priority 1 (R&D,

innovation and businesses), which had positive effects on innovation activities.

Another positive aspect has been the development of new practices and working methods in public

administration and intermediary bodies. Many local and regional actors unused to project

engineering, management and monitoring increased their skills and competences to cope with EU

requirements. The promotion of a culture of evaluation contributed to improving the monitoring of

programmes and projects, and to providing more accurate information on results and performance.

When considering the main elements of failure, it must highlighted that despite progress in terms

of partnership, strategy and governance, the complexity of the French political-administrative

system still hampers the design and implementation of territorial development strategies. The fact

that the entire regional territory became eligible for EU funds in 2007 reduced this complexity, but

progress could still be made in simplifying the design and implementation of regional and local

public policies.

The transfer of responsibilities from the State administration to other bodies is a key issue and led

to improvements, as mentioned previously, with the Global Grant delegated to the regional


LSE 133 EPRC

authority. In other cases, in which Global Grants were delegated to intermediary bodies with

insufficient administrative and financing capacities, results have been far below expectations.

Administrative complexity in EU programmes has also been a major constraint, in part because of

the obligation for beneficiaries to commit a large part of their time to administrative and financial

reporting. It is of note that strict EU requirements also incited domestic authorities to add their

own requirements, to reduce legal risks. Although this is manageable for most public bodies, it is

much more problematic for private bodies and economic operators needing fast decision making

processes, legal certainty and stable implementation rules. With changing regulations, the overlap

of requirements at national and EU levels, and the risks raised by competition rules, many of them

prefer to look for other types of financial support.

From a more strategic point of view, the heavy programme management and delivery system

generates a ‘stop-and-go’ behaviour, where programme administrators concern primarily with

strategic and qualitative objectives at the start of the programme period and focus especially on

budgetary and administrative obligations during implementation and at the end of the period, with

negative consequences over the overall efficiency and effectiveness of delivery.

This also raises the question of the lack of project engineering capabilities at local level and the

needs for technical assistance, especially in the light of the recent performance turn and results

orientation of programmes and projects alike. In Nord-Pas-de-Calais, the financial and

methodological support provided for setting up the Regional Innovation Strategy is a good example

of the positive evolution of the partnership system in this respect.

EQ3b: What conclusions can be drawn for improving ERDF programme design,

implementation, results-based management, achievements?

The experience of implementing the ERDF programmes in Nord-Pas-de-Calais allows drawing

specific observations concerning the design and implementation of ERDF programmes. This region,

like a few others in Europe, has been confronted by a heavy socioeconomic transition process that

constituted a major challenge for policy makers and public policies. This situation necessitated

significant financial support which has been mobilised mainly through national redistributive

policies, national territorial development policies and regional territorial development policies.

Albeit limited when confronted to the regional GDP, the contribution of ERDF programmes has been

significant for local and regional actors, and has played a strong role in orientating the domestic

State-Region Planning Contracts (now State-Region Projects Contracts).

When considering the evolution of EU regulations and, consequently, of the ERDF programmes and

their influence on the regional development policy, one can observe that the impact of the

programmes has been strongly related to the capacity to set up and implement well-structured and

well-targeted development strategies. In Nord-Pas-de-Calais, the broad approach of the ERDF

programmes in the 1990s has certainly helped the region survive major social and territorial

difficulties. It also gave the possibility to adapt the use of funds to absorption capacities when, for

example, the capacities in the fields of entrepreneurship and innovation were still limited (even

though needs were important on these issues). However, this broad approach, did not focus the

strategy on the necessary transition process. On the contrary, this was favoured by the more

focussed guidelines and EU requirements introduced in 1999, which had a direct influence on the


LSE 134 EPRC

design also of domestic public policies since the 2000s. This helped to overcome concerns that the

region was not moving forward in the transition process.

As mentioned previously, the success of EU programmes in the region has also been dependent on

their capacity to identify and support on-going place-specific dynamics that might not have been

foreseen as such in EU or national guidelines. This has been the case of the field of culture, where

the mobilisation of local and regional authorities has enabled the exploitation of previously

untapped development potential.

Regarding implementation, a conclusion that can be drawn is that the ERDF programmes could have

played a better role as ‘facilitator’ and as source of dynamism than it has actually been the case,

and have not been able to fully overcome the economic, social and institutional inertia that were

at the root of the region’s inability to overcome its low entrepreneurship and innovation propensity

(in both public and private sector).

Lastly, until now, the access to EU financing has often been more challenging than the access to

domestic funds in the region. If the ERDF programmes have helped to promote and strengthen

partnership, monitoring and evaluation practices, they also favoured institutions and bodies used to

dealing with heavy administrative procedures (and, conversely, excluded others). Thus, the process

of simplification proposed for 2014-2020 is a key issue and useful progress can be made with

simplified and harmonised application procedures, use of lump sums, flat rates and simplified

eligibility rules. Nevertheless, in Nord-Pas-de-Calais, the effective implementation of future ERDF

programmes will depend strongly on the domestic capacity to reorganise governance systems, with

the transfer of management responsibilities from State to Regional authorities. On this point,

technical assistance will be of particular importance to help stabilising human resources and

improve support to project engineering.


LSE 135 EPRC

8. ANNEX I – ANALYSIS OF PROJECT SAMPLES

8.1 Project: ‘Great Site Operation’ of the 2 Capes (Gris-Nez and Blanc-Nez)

Summary description

The ‘Two Capes’ natural site, in the department of Pas–de-Calais, is one of the most important and

emblematic coastal natural areas in terms of natural heritage, due to a variety of remarkable

landscapes, natural environment and typical villages. It was listed 35 years ago, in order to stop a

nuclear plant project. The whole site (23 kilometres long) has been largely weakened by growing

touristic pressure (almost 2 million visitors per year) and a variety of human and economic

pressures. The various ERDF-funded projects aimed at finding compatibility between growing public

use of the site and preservation of its heritage.

Underlying problem and context

The whole site was faced with the following issues:

seasonal issue of overuse, since the opening of the Channel tunnel and the A16 highway

overuse of the two Capes, compared to other parts of the site

lack of commercial offer on site

the domination of private cars for the site compared to other means of transport

lack of public toilets

environmental degradation due to fly tipping

co-existence of former leisure activities and new regulation (‘conflicts of use’).

The project was totally in line with Priority 2, Objective 6 of the 2000-2006 OP (‘Protecting,

managing and restoring natural areas and resources ») and the Axis 2, Priority 1 of the 2007-2013

OP (‘Preserving biodiversity and water resource’) (it was clearly pre-identified in the OP).

Due to the emblematic character of the project, it was concerned by several other policies: the

State-Region Planning Contracts, the programmes of the Conservatoir du Littoral, the ‘Fragile

Natural Areas’ policy of the General Council. It was also labelled ‘Great Site of France’ in March

2010, an important national programme aiming at protecting and developing remarkable sites.

Detailed description

The main objectives of the project are:

restoring and ensuring long-lasting landscape quality in the area

proposing implementation solutions to development and protection issues

drafting an environmental planning and management policy

working in favour of the development of the small towns within the perimeter of the site.

The actors involved are regional representatives of State authorities, regional council,

departmental council, communes and groups of communes, associations, Observatoire du Littoral,

Conservatoire du Littoral (Costal Management Authority), Chamber of Trade and Industry.


LSE 136 EPRC

Funding plans:

2000-2006: total cost of €8.2M (ERDF = €4.6M)

2007-2013: total cost of €20,780,000 ERDF = €11,467,000. The project was divided into 3

phases in order to make its administrative management easier.

Outputs and achievements

In 1993-2000, a first round of developments was carried out, involving parking areas. The regional

natural park of ‘Caps et Marais d’Opale’ was the project manager.

In 2000-2004, a 4-year-study was carried out, in order to draft a programme for the restoration of

the whole site, and the programme of operational works for the next 15 years.

Between 2006 and 2010, achievements dealt with the restoration of major sites and fragile natural

areas, through for instance, removing parking areas from coastal areas, creating several paths,

enhancing several monuments (Dover Patrol at the Blanc-nez Cape), and ecological renewal of

areas, with pedestrian loops, safety devices for visitors on small roads, creating visitors’ areas,

offering equipment for interpretation of landscape and natural heritage.

Since 2010, several planning projects were carried out, such as restoring grass-cutting systems and

pasture lands, restoring more damaged sites, and creating communication links between towns.

Over the 2007-2013 period, the effective programme began in 2009 only, as there was a remainder

of credits from the 2000-2006 period.

More projects will be presented for ERDF support in 2014-2020, with the ‘Maison du Site’and a

master plan on pedestrian and cycle routes linked with the ‘Euroveloroute n°4 Roscoff-Kiev’.

An unexpected impact was observed, namely the growth of land prices, because of the general

improvement of the quality of the environment.

Value-added

The project had a real impact on the emergence of other operations, such as the requalification of

slag heaps. As a crossover impact, it helped raise awareness of the unique character of this natural

heritage. It triggered the development of cooperation projects, such as the ‘detroits’ project’

consisting of networking European detroits in order to improve their environmental protection, or

an INTERREG IV C project on biodiversity.

From a ‘governance’ point of view, it helped solve part of the problems due to the multiplicity of

levels of local authorities on the territory (4 intercommunalités), bringing some kind of consistency

and solidarity between local stakeholders. It partly helped solve local political battles, through the

common involvement in a project with a much wider scope. A Steering Committee meeting is held

once a year, and a Technical Committee twice a year. No particular problems have been reported.

The project proved it is possible to successfully associate ERDF and ESF funding: long-term

unemployed people (24) were hired on several sites thanks to ESF funding, within the framework of

‘integration contracts’. This was made easier by the sub-regional authority (Conseil Général) being


LSE 137 EPRC

Managing Authority of the ESF operational programme. This triggered the development of

integration clauses in public contracts.

Management and monitoring issues

The obligation of dividing the project into 3 phases for 2007-2013 (18 months each) did not ease the

management, it even made it more complex, as far as all tasks had to be carried out 3 times

instead of 1 (invoices, project file …). The State representatives required a ‘dynamic programme’,

which was supposed to ensure a fast consumption of funds and help prevent the DO, which put a lot

of pressure on project managers.

At the beginning, the partnership was globally hard to manage because of its size and the lack of

experience of working together, in spite of a 2004 convention.

Conclusions

This project is unanimously recognised as best practice in terms of protection and enhancement of

the natural and patrimonial heritage. According to interviewees, it could not have been carried out

on the same scale without ERDF funding, as it allowed widening of the scope of the project. It was

an opportunity for the local authorities to get together in order to handle the project. It illustrates

the difficulty to associate protection and enhancement on a very fragile site.

8.2 Project: Dourges’ logistic multimodal hub (Delta 3)

Summary description

Delta 3 is a multimodal hub for manufacturers and logistic service providers seeking to set up their

European distribution centre, located in the cities of Oignies, Ostricourt and Dourges. A very wide

range of logistic services such as warehouses, combined transport, and service centre, can be found

on site. Geographically, the site is close to Europe's large sea ports, while economically it is at the

heart of a 100 million consumer market. The road, inland waterways, rail and port infrastructure

are the main assets of Delta 3. The concept is to combine a transport terminal and a logistic area

on a same site. It opened in December 2003.


Due to increasing traffic of goods and persons in the 1990s, the Nord-Pas de Calais regional

authorities decided to develop an ambitious project of multimodal and logistic platform, 20 km

South from Lille. A multimodal platform already existed close to Lille’s town centre in the 1990s,

but it was obsolete, not big enough to face increases in traffic, and very difficult to convert. An

advisability study was carried out at the end of the 1990s, and the first public works began in 2001.


The objective of the project was to develop a new, larger multimodal platform, focused on logistics

and distribution of consumption goods. Its operational goals are:

To support the development of freight multimodal transport through:

- Supporting transport by containers and mobile boxes


LSE 138 EPRC

- Supporting rail and river shuttles

- Solving saturation and poor performance of the existing combined transport terminal in Lille St Sauveur

To address the growth of trades and saturation of road infrastructure

To allow the growth of transit regional flows

Receive the centres of logistic supply at European scale

The particularity of the project is that it combines an infrastructure side with the ‘promotion’ and

commercialisation of the buildings, all of it being handled by a Semi-Public Company (Société

d’Economie Mixte, SEM) in charge of the project, Delta3.

Delta 3 supports the setting up of companies regarding their business flows, but also the nature of

their activities, and may refuse companies if they are not consistent with the philosophy of the

project.

The actors involved are the regional council, the semi-public company in charge of developing the

project, the Syndicat Mixte (mixed economy company) in charge of steering the platform.

The project was supported through the following ERDF funding plans:

1997-1999: ERDF = €20,957,014 within the framework of a ‘Grand projet’, that funded the following

tasks: pre-operational studies, impact and risks studies, monitoring of the first phase of works,

archaeological studies, public works (banking, pavements …).

2000-2006: ERDF = €17,000,000 (the basis for funding contained: the motorway intersection,

banking, travelling gantry crane, river embankments, bridge over the Deule, heavy pavement,

archaeological works, technical fees, building land marketing, launch of the market for combined

transport centre.

The zone covers an area of 330 hectares, on which the following services are available:

a multimodal transport terminal (rail – route – waterways) (34 ha), with a long-distance

road link to Italy and Spain, inland waterways to and from the main sea ports (Dunkirk,

Zeebrugge, Antwerp, Rotterdam, Amsterdam), bonded storage available and dangerous

goods transit. The terminal itself features :

- 7 x 750m-rail tracks

- 1 x 250m-waterway quay

- 4 railway spreaders

- 1 tri-modal gantry crane

- 1 x 2500 TEUs storage area

- 14 x 750m-railway tracks marshalling yard

a 6 hectares service centre

a terminal dedicated to tri-modal combined transport

a rail beam (10 ha)


LSE 139 EPRC

a logistics business area, divided into 12 hectares for ‘rail’ zone and 65 hectares for ‘road’

zone, and 330,000 m² of ‘class A’ logistics warehouses.

The hub is accessible by:

Road, along the A1 (Paris /Lille) motorway with a specific Delta 3 exit, near the A26

(Calais/Reims) and the A21 (Lens/Valenciennes)

Inland waterways, along the high–gauge Dunkirk/Valenciennes canal

Rail, with direct access to the Lens Ostricourt line and connection to the Lille Paris B+

heavy loads line.

The zone combines services and housing. This combination, as well as the combination of activities

described above, is unique in the world of multimodal platforms.


In terms of outputs:

Concerning handling: in 2011, Lille Dourges Container Terminal handled 87,146

transhipments equivalent to 174,292 handlings in UTI, an increase in 32 percent compared

to 2010. LDCT handled also 4,004 trains in 2011, a rise in 39 percent compared to 2010. The

maximum estimated capacity of the site is about 200,000 transhipments a year. LDCT

carries out waterways, rail and road handling and also manages container and swap body

stocks. LDCT also has the means to ensure rail traction between the marshalling yard and

the terminal.

Concerning warehouses, the logistics area is divided into 3 distinct parts, each meeting

different needs but all located in the vicinity of the container terminal to make use of

combined transport.

Concerning services areas, it covers Euralogistics centres 1 and 2, with 2000 m² office

buildings managed by Artois CCI for transport and logistics companies, forwarding agents as

well as various service providers for hub users; and Training Campus Euralogistic, managed

by Artois CCI will be composed of a 5,000m² training warehouse and a 2000m² building.

A lot of large companies already decided to settle in Delta 3: Dachser, DHL, Gefco, Holder

(bakeries Paul), Kiabi (textile), Leroy Merlin (do-it-yourself), Oxybul Eveil & Jeux (toys),

Oxylane Decathlon (sports), Rexel (electrical supplies), SIA Home Fasion (tableware),

Yamaha.

The achievements are wide-ranging

Environment: the combined transport terminal in DELTA 3 enables containers and swap

bodies to be transported using environmentally friendly modes of transport (rail and inland

waterways). Almost 100,000 road journeys are thus avoided each year. The swap bodies are

transported by rail to the South of France, Italy and Spain. Over 1,000 km of road transport

are thus avoided each time. Per ton of goods transported, rail and waterways transport is


LSE 140 EPRC

respectful of the environment (decreased greenhouse gas emission and noise pollution) and

contributes also to the decrease in traffic density and road accidents. Moreover, an

environmental study emphasised the results obtained In terms of decrease in CO2 emissions

and decrease in SO2 emissions.

In order to obtain a quality environment, the developer set out some architectural and

landscaping specifications for each different area in addition to the already existing

regulation. The specifications were drawn for the various logistics areas, the service centre

and the combined transport terminal. They aim at ensuring their integration in the

landscape and creating a coherent whole for future development.

Other achievements deal with the number of jobs created: a prospective study stated that

600 direct jobs should be created during the pre-operational phase, and between 700 and

1690 during the implementation phase, with also 470 to 700 indirect jobs. Today, it seems

that the total number of jobs created stands between 600 and 1200 (½ full time, ½ part-

time jobs).

The 2011 monitoring report states that the internal profitability rate is 10.2 percent, and the

reduction of external costs is 68 percent of total gains (50 percent = reduction of atmospheric

pollution, 8 percent = reduction of greenhouse effect, 3 percent = reduction of insecurity, 7

percent = noise reduction).

Value-added

First of all, the project allowed reconverting a mining wasteland, according to the principle of re-

using the materials available. It is carried out according to the principles of High Environmental

Quality, and the landscape equipment of the whole site allows inserting the project into its urban

and natural areas. It clearly promotes economic regional development.

The innovative and diverse content of the project helped big companies to set up and choose to use

the waterways mode, which they do not necessarily use: large companies still consider road is the

best means of transportation from an economic point of view, and because of its supposed better

flexibility (whereas the cost gap is not that significant now).

The Dourges hub gave way to related projects in other areas:

the creation of other business areas dealing with logistics for instance (Arras – Douai).

a sort of ‘metropolitan logistics area’ was created as a result of the project, beyond

administrative borders.

Site restoration (Maraîchers in Hénin Carvin).

an excellence pole on logistics steered by the Artois Chamber of Trade.


The project is unique in terms of management: for the first time, local authorities were directly

involved in the project, and not only SNCF and RFF. It allowed local authorities teams to gain

professional skills in steering such a project.


LSE 141 EPRC

But the project experienced a series of difficulties:

an archaeological wealth was discovered, which delayed the start of the works,

pollution was discovered on the site, which made it necessary to carry out other studies

and also delayed the start of the project.

Conclusions

The former Lille goods station, enclosed in the city centre, was no longer appropriate given the

volume of rail combined transport within the region, which confirms the added value of the

project. The new Dourges hub is clearly better adapted to increased flows of transport. It was the

first infrastructure in the region combining a multimodal site and logistic zones. Upon completion,

the project will encompass 150 hectares of logistic zones and double the volume of traffic in Lille.

The project led to an increase in productivity linked to goods traffic and cost reductions of

externalities due to the transfer of road traffic towards the combined transport river and road; and

it triggered the development of other projects. ERDF clearly had an important leverage effect on

the feasibility of the whole project, due to the high amount of ERDF funding.

8.3 Project: Roubaix’s ‘Piscine’: Andre Dilligent Museum of Art and Industry

Summary

The project aimed at creating a Museum of Art and Industry in Roubaix, a city with a rich industrial

past (textile industry first of all). This museum is dedicated to local know-how and industrial

tradition, and located in a spectacular building.


In the 20th century, there were 2 Museums in Roubaix (national and municipal), but collections,

were gradually removed, partly destroyed, and generally speaking, not given enough consideration.

In the 1980s, a project for a new museum was drafted, but abandoned following local elections. A

project was finally adopted at the beginning of the 1990s. The museum was to be located in the

abandoned ‘art deco’ municipal swimming pool. A design competition was organised in 1992-1994.



to offer an exhibition area dedicated to the link between the industrial past of the territory

and « art » in a broad sense in order to reach a wide audience

to establish links between the museum and local economic activity in order to maintain its

excellence.

The actors involved are the State services, the regional and sub-regional authorities and the City of

Roubaix.


LSE 142 EPRC

Funding plans:

2000-2006: €55,000 ERDF were granted for communication actions towards foreign clients,

and €64,258 for documentation premises.

A project of enlargement is planned for 2013, for which ERDF will be requested, which

should allow the enlargement of the wing dedicated to sculpture, the development of

artistic practices of youngsters, the improvement of stocking works of art.


The museum has been open since 2001, with:

a collection dedicated to precious textiles, which is closely linked to the industrial life of

the territory

a collection of architectural ceramics, linked to a famous manufacture

a collection of paintings.

Beyond the collections and their patrimonial and touristic interest, a number of projects were

developed in order to widen the scope of the project:

pedagogical projects were developed with several universities and highly specialised

institutes (fashion, textile creation, applied arts …), reinforcing the link between the

museum and its economic context (even if only about 20 micro-enterprises are still working

on production itself, the whole region being still active in distribution)

a enterprise seedbed for fashion companies was created by the museum (les maisons de

mode), offering young stylists business opportunities

the museum is available to young stylists who wish to showcase their products in the

temporary exhibitions room twice a year (‘fashion market’)

an event called ‘Night of the Arts’ is organized once a year in order to promote public

access to the museum and its ‘satellite’ units

the City of Roubaix bought the Manufacture des Flandres, a technical museum, in order to

complete the collections, and the museum team is in charge of the scientific dimension of

the project

the museum is associated to the works of dancer Carolyn Carlson, settled in Roubaix,

through collaboration on her ballet’s costumes; this led to other artistic collaborations, for

instance with Tourcoing’s atelier lyrique and Lille’s National Orchestra.

The museum welcomes 180,000 visitors per year (projections were for 70,000 visitors per year

only).

Value-added

The museum made a major contribution to the development of the whole city. It was built at the

same time as the underground, the redesigning of the city main square, the city’s ‘tax-free urban

zone’ (Zone Franche Urbaine), and it appears that the dynamics engaged through the museum were

the starting point for these urban developments. It placed Roubaix again as part of Lille’s ‘Urban

Community’ (Communauté Urbaine), and clearly improved the city’s image for its own inhabitants,

and abroad.


LSE 143 EPRC

The museum is closely integrated to the city’s global dynamics.


The museum manager does not appear to be under any political pressure to change their policy.

The impressive results in terms of local development convinced local political actors to globally

support the project.

Conclusions

The Musée-Piscine completely changed the image of the city. It allows Roubaix to have an

international cultural influence, and triggered rehabilitation and a great deal of urban regeneration

projects. It illustrates the extent to which a cultural project may turn into a real local development

project, with impacts on local economy, housing, and trade of high-skilled products. It could be an

interesting example to study as regards the current Louvre-Lens Museum project, in order to see

how local authorities got together to ensure they obtained the most out of the project.

8.4 Project: Conversion of mining heap n°9-9 in Oignies (62)

Summary description

Mining heap n°9-9 was the last one to be still in use at the beginning of the 1990s in the Nord-Pas-

de-Calais mining area. Local authorities decided to work on it, in order to enhance the mining

environment from a touristic and historical point of view, and to improve its environmental

situation, but also to change its image, turning it to the future. The conversion of the site was

largely based on music.

The opening is planned for 2014-2015.


Mining heap n°9-9 existed as a large mining site, still belonging to Charbonnages de France’ but

abandoned since the end of the mining. The Metropolitan Community of Hénin-Carvin, in charge of

the project, wished to transform this historic place into a leverage of development to the benefit

of the territory, as well as a display of the excellence of the whole region.



to restore the site (an industrial wasteland) from an environmental point of view

to enhance the industrial facilities in order to turn the site into a memorial

to turn the whole site into a place of multiple activities (economic, cultural and

institutional).

In 2002, a study tour and meeting was organised by the Mining Area Mission in order to create

networks of local stakeholders and decision-makers and actors that played a part in the conversion


LSE 144 EPRC

of large mining areas in the Ruhr Valley in Germany. By the end of 2002, The Metropolitan

Community of Hénin-Carvin bought the site, and from 2003 to 2006, all premises were renovated by

the Public Land Unit of Nord-Pas de Calais. In 2004, the multimodal hub Delta 3 was inaugurated

close to the Oignies site. The launch of the call for tender for the project brief occurred in 2004,

and this same year, the site welcomed part of the activities linked to Lille, European Capital of

Culture. In 2007, road works began, in order to connect the site to the highway network (A221

highway). In 2008, the service centre was built (1500 m²), and finally, in 2009, the development of

public areas (esplanade, square pit) and the study for the Metaphone (concert house of 500 places,

which ‘makes’ music itself thanks to a specific device used to cover the whole building), the

classified premises, the workshop premises and the boiler room.

The actors involved are the State services, the regional and sub-regional authorities, the authorities

in charge of cultural events, land planning authorities, the Mining Centre of Lewarde, local

associations, the Delta 3 Mixed Economy Company, and the Lens Chamber of Trade.


The achievements cover several aspects:

From a cultural point of view: the project capitalised on a local tradition of ‘fanfares’. It

encompassed the development of musical practices and made up for lost time on music

teaching, through the development of a chain of musical practices. It materialised through

sensitisation actions (sound gallery and circuit, sound experiments), professionalisation of

teachers (music training centre), musical education (music classes), practice and creation

(recording studios, rehearsal rooms ...), combined with an ambitious strand dedicated to

broadcasting.

Regarding heritage, the project will develop a tour centred on mines and their role in

territorial development. It will complete the Historic Mining Centre of Lewarde.

From an economic point of view, an economic development programme was launched

through 3 priorities: high-level logistic activities will be located in the EuraTechnologie

Business Park (between the Delta 3 platform and the Oignies site); business tourism will

benefit from attractive conditions (hotel, housing, restaurant, seminar rooms ...); and 3000

to 6000 m² offices will be open to other activities.

From an institutional point of view, the rehabilitated premises host the offices of the

‘Mining Area Mission’ and the ‘Lille Metropolitan Area’ (for the moment).

Value-added

The project led to a complete transformation of the environment, the global quality of the area,

and the global ‘image’ of the mining heap.


LSE 145 EPRC


The project was well received by inhabitants, who were proud of this initiative. Some issues

occurred with the former owner of the site, and with some local authorities, who were reluctant to

accept that the mining activity had really come to an end.

Conclusions

According to interviewees, this project is exemplary, insofar as it covers a wide range of local

development issues. It shows how a touristic, economic and cultural project can make the

connection between past and future, enhancing the industrial past of the area in order to make its

strong identity a factor of global development.


LSE 146 EPRC


LSE 147 EPRC

9. ANNEX II – STRUCTURE OF PROGRAMMES 1989-2013 IN NORD-PAS-DE-CALAIS

Programme EU Funding source

ERDF alloc

ESF alloc National funds (inc private)

Total funds

1989-91 Objective 2 (€M 2000 price)

Programme A

1. Spatial planning

Regeneration of industrial and urban wastelands and accessibility

Urban planning

Facilities for business activities

Road infrastructure

2. Attractiveness - environment

Tourist housing

Regional opening up to the international environment

Fluvial tourism

Social tourist housing

Major infrastructure for tourism and leisure

Rivers protection (Contrats de rivière)

Decontamination of marine water

Improving environment of majors infrastructure

Programme B

1. Productive investments

2. Local development

Seedbeds

Common services

Support to external consultancy

External consultancy

Studies by sectors

Development of craft

3. Technology transfer

4. Technical assistance

Programme C

1. Training

Development of universities and technological equipment

2. Research

Development of professional training structures and of the European centre for professional training

3. Research

Public research and European observatory of environment Channel - North Sea

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

42.2

8.9

13.24

5.56

5.75

0.4

11.47

2.58

5.57

151.6

28.64

119.22

25.69

17.25

0.4

20.18

2.73

5.57

193.8

37.54

132.46

31.25

23

0.8

31.65

5.31

11.14


LSE 148 EPRC


ERDF alloc


Total funds


Support starts-up and development of SMEs

Labour market, training

Infrastructure and communications

Environment and quality of life

Tourism

R&D, technologies

Others

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

ERDF

118.15

147.7

276.6

45

43.31

27.20

4.51


1. Support for and revitalisation of economic activity

Aid for business investment

Business services for SMEs and SMIs

Support for technological development

Environment technologies and energy efficiency

Development of regional potential in the area of information and communications technology

Adult lifelong learning coordinated with business needs

Connection between vocational training and employment

Specific road infrastructure projects


Measures to reinforce centres of excellence and networks

Cooperation between training institutions and industry

Training for researchers, technicians and R&D consultants

Technological means for training and apprenticeship structures

Measures to improve training systems

3. Living conditions, image and environment

Regeneration of remaining derelict industrial sites

Increased action on urban renewal

Development of high-profile infrastructure and facilities

Tourist potential / natural and cultural heritage

Crafts and local development

Improvement of rail infrastructure


ERDF

ESF

ERDF/ESF

ERDF/ESF

ERDF/ESF

NA

NA

46.15

85.25

115.22

NA

NA

NA

NA

NA

NA

NA

NA

NA

NA

NA

NA

226.97

166.15

326

NA

NA


LSE 149 EPRC


ERDF alloc


Total funds


1. Support for and revitalisation of economic activity

Investment in firms

Services for SMEs and SMIs

Support to technological development

Green technologies

ICT

Very small enterprises and local development

Strengthen intervention in deprived urban areas

Major individual project : European multimodal platform of Dourges

Business areas

Support to creation, transmission and conversion of enterprises

Improving and developing trainings

Road infrastructure

Major infrastructure project : Boulevard de l'Union in Roubaix

2. Training, research, technology

R&D for economic activities

Research and competitiveness stimulation with higher education

Training to research and technologic development of economic activities

Facilities for training

Improving training quality and systems of employment

Major individual project : ‘SOLEIL’ project

3. Living conditions, image and the environment

4. Technical assistance ERDF

5. Technical assistance ESF

ERDF/ESF

ERDF/ESF

ERDF

ERDF

ESF

123.87

96.37

94.42

3.60

52.93

13.61

0.58

527.88

126.11

165.21

3.60

0.58

704.68

236.09

259.63

7.2

1.16


LSE 150 EPRC


ERDF alloc


Total funds



Firms investments

Services for SMEs and SMIs

Facilities and real estate for businesses

Training for workers to the benefit of firms and adaptation to economic change

Adaptation of farm structures and support to food industry

Craft industry development and assistance to micro-projects

Tourist and cultural infrastructure

Adaptive training and assistance to employment

2. Research development and technology

Emergence of research and development in businesses

Strengthening of technological and strategic offer :skills poles and networks

Technological training

Higher education and research

3. Human resources development

Infrastructure to support initial training

School/firms transition

Infrastructure to support vocational training and education

Vocational training

Improving employment systems and training offer

Refresher course and reintegration

Investments and professional reintegration

4. Converting and developing territory

Industrial wastelands

Developing urban areas

Areas in difficulty, fighting exclusion

Fight against exclusion / integration by economic activities in urban areas

Prevention against alcoholism and drug addiction : healthcare structures

Urban restructuration

Opening up and connecting the region

Reclaiming forest land

Rural areas development

Improving land, hydrology and agricultural tool

Village renovation

Rural housing

Green technologies

Environmental research

Natural parks and natural environment - water management

Industrial waste / air quality

Support to training in the field of environment


ERDF

ESF

ERDF/ESF and other

ERDF/ESF

ERDF/ESF

ERDF/ESF

and other

NA

NA

112.67

5.89

46.74

122.33

NA

NA

14.57

1.26

51.79

6.51

NA

NA

276.64

8.38

112.19

336

NA

NA

403.88

15.45

210.72

464.84

NA

NA


LSE 151 EPRC


ERDF alloc


Total funds

2000-2006 Objective 1 (€M)

1. Keeping the economic upturn going

New companies and business transfer

Setting up of strategic projects

Support the endogenous development of firm

Research, technology and innovation

Coordination of economic fabric

Information society

Farms' sustainable development

Developing food processing industry

Infrastructure for opening up and access road for economic areas

Organisation of transports and intermodality systems

Continuity of cross-border transports

Economic areas

2. Training-Solidarity-Employment

Active policy for labour market Fighting exclusion Promotion of employment and qualification by training Support to modernisation and adaptation of economic environment Equal opportunity Infrastructure for secondary school and high school Higher education Support to training and apprenticeship Investments – reintegration

3. Requalification and promotion of territory

Reclaiming derelict areas

Urban renewal and social support

Health

Sustainable management of agricultural and forest land

Local development in rural areas

Renovation and facilities for villages

Tourist attractiveness

Cultural and sports services and facilities

Natural resources and tools for sustainable development

Pollution prevention and effluent management


ERDF

ESF

ERDF and other

ESF/ERDF

ERDF and other

ERDF

ESF

125.770

19.473

105.952

1.784

96.500

0.760

281.726

113.666

239.500

0.594

0.260

407.496

231.737

366.061


LSE 152 EPRC


ERDF alloc


Total funds

2000-2006 Objective 2 (€M)

1. Promote job-creating economic development

Firms' creation and business transfer

Attraction of businesses

Support to endogenous development

Research, technology and innovation

Coordination of economic fabric

Information society

Supporting tourist development

Support and development of business ; redeployment for workers

Urban policy, economic development and social cohesion

Supporting economic activity and employment by creation of an annex of the Louvre in the region

2. Lay the foundations of economic and social cohesion

Modernisation of the professional and technologic training offer

Facilities for life-long training structures and modernisation of professional training system

Investments for higher education

Adaptation and optimisation of existing networks

Development of services using ICT

Natural resources and tools for sustainable development

Pollution prevention and effluent management

Promotion of cultural projects development

3. Promote territorial initiatives for sustainable development and solidarity

Local development and strengthening of craft industries and local business

Economic areas

Redevelopment of damaged areas

Promotion of regional ports system

Developing information society

Regional support to territorial dynamics and to engineering development

Implementation of territorial strategies provided in local policy document

Urban policy and urban requalification

Urban policy and development of solidarity

Agenda 21, territorial actions and new governance

Health at work

4. Diversifying suburban agriculture


ERDF/ESF

ERDF

ERDF/ESF

Other

ERDF

174.399

195.820

177.752

8.222

46.619

31.103

566.468

340.690

410.982

8.222

787.486

536.510

619.810

16.444


LSE 153 EPRC


ERDF alloc


Total funds

2007-2013 Objective 2 (€M)

1. Research and development, innovation, firm policy

Strengthening regional policy governance in the fields of R&D and innovation

Strengthening international attractiveness of the research and training system

Attendant measures to SMEs for innovation and R&D

Attendant measures for R&D competitiveness and excellence poles and structuring operations

Financial engineering

Supporting strategic, technologically high level firms and R&D centres setting up

Developing SMEs competitiveness by collective actions

Promoting firms creation and transmission

Attendant measures for developing innovation in SMEs and craft industries of natural and technologic risk

2. Environment, sustainable practices and risk prevention

Preservation of biodiversity and water resources

Promoting environmental excellence in public organisations' actions

Promoting environmental excellence in firms actions

Promoting clean and sustainable public transports in particular in urban areas

Coordinating management

3. Accessibility

Developing exclusive right of way public transports in Hainaut

Travellers accessibility

Goods accessibility

Governance of information society

Supporting innovative actions integrating information society

Improving relationships between administrations - users - elected representative

Developing E-health as a excellence sector for region

Territorial numerical continuity

4. Territorial constituent

Local projects in Hainaut

Local development and strengthening craft industries and corner shops (deprived urban areas and rural areas)

Accessibility to few facilities areas (deprived urban areas and rural areas)

Treatment of industrial and mining wastelands

Attendant measures to few territorial excellence projects

Major infrastructure project : Louvre-Lens museum


ERDF

ERDF

ERDF

ERDF

ERDF

852.5

148

153

117.055

8.699

306.7

192

342

175.945

3.301

1159.2

340

495

293

12


LSE 154 EPRC


LSE 155 EPRC

10. ANNEX III: REPORTED ACHIEVEMENTS

10.1 1989-93 Regional Operational Programme

Objective 2 programme (1989-93)

SPD Target (A)


(C) C:B as %

N° of SMEs concerned by support measures

2,000 1,500 75%

N° of external studies - 1,600 -

N° of external advice actions - 890 -

Amount of private investment supported

- €1,53 M -

N° of projects dealing with technology transfer

- 80 -

N° of risk capital studies 60 - 0 %

N° of R&D projects 11 - -

N° of beneficiaries of training measures

84,699 111,102 131%

Including jobless 47,450 - -

Including salaries 33,621 - -

Including trainers 3,628 1,861 51%

N° of training centres modernized - 100 -

Wastelands treated 2,200 ha 3,000 ha 136%

Lot servicing - 530 ha

Surface of premises created or rehabilitated

250,000 m² 115,800 m² 46%

N° of km of roads 60 km - -

N° of water treatment plant - 2 -

N° of agglomeration contracts - 9 -

Population concerned - 2,800,600 -

N° of urban operations - 360 -

N° of km of treated rivers - 41 -

Tourism: N° of beds created or modernised

2,500 - -

Tourism: N° of hostels rooms created or modernised

500 259 52%

Source: European Commission (1996b).


LSE 156 EPRC

10.2 1994-99 Regional Operational Programmes

Objective 1 Programme (1994-99)

OP Target (A)


(B) B:A as %

Direct jobs created (gross) - 3,220 -

Indirect jobs (gross) - 4,508 -

Jobs safeguarded (gross) - 7,000 -

N° of renovated road (km) - - -

N° of train stations renovated - 16 -

Services improvement (N° of stations) - 13 -

Pollution Prevention -

- substitution of 171000 MWh per annum

- sorting and recycling of 162,000 t per annum of firms waste

- air quality : less than 1504 t per annum of COV

- 119 direct jobs created

Development and maintenance of water streams (km)

- 30 -

N° of redeveloped hectares (industrial brownfield sites)

- 2,020 -

N° of m² rehabilitated / demolished - 191,000 / 450,000 -

N° of farm holdings modernised - 1,500 -

N° of farm holdings introducing diverse activities

- 40 -

N° of farm holdings introducing investments with environmental aims

- 400 -

Reforestation + 1,000 ha + 636 ha 64%

N° of projects on modernisation of the processing and marketing

capacity (farm produce industry) - 33 -

N° of ha drained - 3,500

Urban renewal - 131 cities and

102,000 inhabitants concerned

-

N° of beneficiaries of training measures

- 81,500 -

Incl. in employment - 18,000 -

Incl. unemployed - 44,500 -

Incl. In school - 19,000 -

Source: European Commission (2003a).


LSE 157 EPRC

Objective 2 programme (1994-99) – Ex-post Evaluation

OP Target (A)


(B) B:A as %

N° of ha of wasteland renewed 2,400 out of 4,000 Approx. 1,400 58%

N° of projects dedicated to environment and energy savings

50 - -

N° of firms informed about innovation and technological support

More than 150 - -

N° of new labs 4 - -

N° of additional students in high schools

+16,000 75,000 in total

N° of jobs created thanks to firm real estate

500 - -

Source: European Commission (2003b)

Objective 2 programme (1997-99) – Final Implementation Report

OP Target (A)


(B) B:A as %

N° of direct jobs created thanks to the measure dedicated to the support

to strategic set up projects 500 805 160%

N° of jobs maintained thanks to the measure dedicated to the support to

strategic set up projects - 3,934 -

New areas of business premises (m²) - 455,200 -

Rehabilitated areas of business premises (m²)

- 134,300 -

N° of jobs created thanks to the measure dedicated to business

premises 500 3,888 617%

N° of jobs created or maintained thanks to the measure dedicated to

financial engineering - 1,422

N° of collective actions linked to international development

10 6 60%

N° of ‘export’ jobs 25 30 120%

N° of ha concerned by the measure dedicated to business areas

- 2,087 -

N° of places created or renovated for high-skilled technicians

7,000 3,576 51%

N° of MWh/year of classical network energies substituted

- 230,000 -

N° of TEP/year energy savings 10 to 30% of energy

savings 32,200 -


LSE 158 EPRC

OP Target (A) Actual Output

Approved Projects (B)

B:A as %

N° of t/year of business waste treated

- 378,288 -

N° of M3/year of saved water - 412,686 -

N° of t/year of pollutants avoided (COV, HCl, NOx...)

- 8,187 -

N° of protected sites


7

-

N° of km² of natural areas having benefited from ecological protection

861

N° of people concerned by sensitisation actions linked to

education to environment 82,198 / year

N° of km of rivers developed 298

N° of studies carried out 49

Source: SGAR Nord-Pas-de-Calais (2003).

10.3 2000-06 Regional Operational Programmes

Objective 1 (2000-06) – Final Evaluation


N° of temporary regional jobs linked to the realisation of the projects

- 11,661

N° of direct and indirect jobs created

8,620 Between 9,400 and 12,500

N° of jobs maintained

8,430 -

Evaluation method not

reliable enough

Source: ADE (2005).

Objective 1 (2000-06) – PRESAGE monitoring system

Target (source : projects’ tender)

Output (source : projects’ final report)

OP targets at measure

level

1.1 Creation and transfer of enterprises

4 N° of sensitised project managers

31,937 35,663

-

5 N° of welcomed project managers

6,465 6,871

6 N° of accompanied project managers

4,522 3424

7 N° of followed project managers

867 491

9 N° of jobs created 2,052 2,037


LSE 159 EPRC




level

31 N° of SMEs supported

1,417 1,933

3196 N° of enterprises

created or transferred

116 115

OP target : 2,500 firms created or transferred

/ year

1.2 Setting up of businesses

1 N° of enterprises created

8 8 -

10 N° of enterprises supported

1,279 1,144 -

11 N° of long-term jobs created

2,678 2,320 3,000

13 N° of impact studies

17 19 -

1.3 Endogenous development of enterprises

17 Areas developed (m²)

1,237,925 1,178,604

18 New premises (m²) 117,908 85,779

28 N° of jobs safeguarded

9,614 10,163

3140 N° of long-term jobs created or

short-term becoming long-term jobs (1.3)

892 317 1,400

3143 Surface ‘hors oeuvre’ (m²)

154,852 129,650 -

1.4 R&D and innovation

20 N° of jobs created in R&D

374 600 -

27 N° of Full-Time Equivalent jobs

contributing to the project

514 501 1,500

1.5 Animation of the economic fabric

3124 N° of animation projects (1.5)

13 13 -

1.6 Information society

43 N° of jobs created or safeguarded

linked to supported projects

461 468 100


LSE 160 EPRC




level

45 46 Broadband local loops implemented

59 58 -

50 N° of services implemented or improved (1.6)

58 58 -

261 N° of digital public ‘points’ supported

18 18 -

1.10 Organisation of transport system and intermodality

63 N° of facilities for transport and intermodality

4 2 -

1.12 – Business areas

255 Gross area of business areas

(m²) 6,948,046 5,490,131

220 ha to be renewed

3137 Sellable areas (m²) 3,398,138 2,603,223

2.6 Infrastructure supporting initial training

3132 N° of pupils concerned by new

facilities 8,367 8,368

3129 N° of m² built, renovated, developed

33,050 33,050

3133 N° of places improved

0 0 -

3.1 Territorial development and solidarity

82 Areas treated (m²) 1,230,399 1,230,399 -

83 Premises demolished (m²)

287,131 287,369 -

84 N° of urban renewal projects

66 64 -

85 Damaged areas treated

3,387,937 3,220,118

168 Areas of re-used premises (m²)

23,098 23,098 -

3.2 Urban and social restructuring

3247 N° of travellers

(public transport) 65,000

25,000 (2 projects, only one was filled in for this

indicator within PRESAGE) -

14 Areas of business areas (m²)

11,737,910 10,587,910 -

3.3 Health

98 N° of people concerned

336,965 161,277 -


LSE 161 EPRC




level

3.7 Tourist attractiveness

3154-55-

56-57 N° of clients 64,400 60,872 -

3.9 Natural resources and sustainable development tools

111 N° of territorial initiatives linked

to sustainable development or

environment

57 69 -

112 Population concerned

735,724 3,110,651 -

273 N° of coordination structures

implemented 25,349 25,289 -

3241 N° of information tools

140 311 -

3242 N° of sensitisation actions

301 1107 -

3243 People concerned by sensitisation

actions 286,750 4,603,798 -

3.10 Pollution prevention and flows management

119 Saved or substituted energy

49,404 49,358 -

120 Pollutant emissions avoided

1,431 + 5321 1,403+5321 -

122 Tonnage of usual waste recycled

13,200 14,492

122,400 t/year 123 Tonnage of

building waste recycled

1,110,000 1,108,596

132 Areas treated 169,665 169,665 -

163 N° of enterprises or local authorities

engaged in a sustainable

development policy

582 739 -



LSE 162 EPRC

Objective 2 programme (2000-06) – Final Evaluation


N° of estimated temporary regional jobs linked to the realisation of the

projects

- 16,000 - theoretical estimate23

N° of estimated direct and indirect

jobs created Around 20,000

Between 20,000 and 25,000

- theoretical estimate24

N° of estimated maintained jobs

- - Method not

reliable enough

Source: ADE (2005).

Objective 2 programme (2000-06) – PRESAGE monitoring system




level

1.1 Support to creation and transmission of enterprises

139 N° of sensitised

project managers 77,331 115,044


140 N° of welcomed

project managers 17,939 15,558

141 N° of accompanied project managers

11,770 9,780

281 N° of jobs created 2,651 2,960

3195 N° of firms created

or transferred 307 307

1.2 Support to the setting up of exogenous enterprises

144 N° of exogenous

enterprises set up 327 289

280

N° of supported enterprises

3,464 3,365

300 N° of impact studies within the framework of new

settings up

19 20 -

282 N° of enterprises

created 7 7 -

23 Calculated by evaluators on the basis of a national model defining specific ratios applied to expenses categories (a specific expense category giving way to a specific number of jobs created within the model).

24 Calculated by evaluators with estimation of the part of these jobs within the total number of jobs created as stated in PRESAGE


LSE 163 EPRC




level

283 N° of safeguarded

jobs 7,579 7,259 -

295 N° of long-term

jobs created 9,327 6,931 2,000

1.3 Endogenous development of enterprises

3149

N° of long-term jobs created or

short-term becoming long-

term jobs

1,201 945 2,500

302 Areas developed (m²)

971,758 964,758

3152

Surface ‘hors oeuvre’ (m²)

245,179 245,267

1.4 R&D and innovation

305 N° of R&D jobs 3,437 4,447 -

147 N° of Full-Time Equivalent

contributing to the project

394 390 1,500

1.5 Animation of the economic fabric

284

N° of created or safeguarded jobs

linked to supported projects (total)

6,284 6,992 -

1.7 Support to the development of tourism

N° of users of accommodations

224,292 223,527 -

2.1 Modernisation of the supply of technological and professional training

3130 N° of m² built,

renovated, developed

51,671 51,100 -

3131

N° of pupils concerned by

equipment operations

8,367 8,368 -

3134 N° of places

improved 0 0 1470

2.3 Investment of higher education facilitating the link with business

77 Surface of developed premises

55,383 52,002 -

3205 Areas renewed

(m²) 19,863 17,448 -


LSE 164 EPRC




level

2.5 Use of ICTs

48 N° of services implemented or

improved 101 101 -

49 N° of supported digital public

‘points’ 41 40 -

2.6 Protection, management and restoration of natural areas

113

N° of consultation bodies set up

381 409

35 Agenda 21s and 35

Environmental Charters signed

114 Natural areas

concerned km² 2,967 5,447 -

3239 N° of sensitisation

actions 274 1,494 -

3240 People concerned by sensitisation

actions (2.6) 32,391 476,324 -

2.7 Pollution prevention and flows management

324 Quantity of renewable energy

(2.7) 3,139 3,139 -

325 Saved or

substituted energy (2.7)

68,038 52,967 -

343

N° of enterprises or local authorities

engaged in a sustainable

development policy (2.7)

498 721 -

328 Tonnage of usual waste recycled

(2.7) 420,960 357,429 -

329 Tonnage of

building waste recycled(2.7)

50,600 104,000 -

333 Pollutant emissions

avoided (2.7) 9,532 9,538 -

3.2 Activity areas

3146 Sellable areas (m²)

(3.2) 7,211,976 6,371,976

26,000,000 m²

3.3 Reclaiming of brownfield sites


LSE 165 EPRC




level

338 Surface treated m²

(3.3) 237,975 237,975

345 Treated areas (m²)

(3.3) 2,446,447 2,440,283

349 Damaged areas

treated (m²) (3.3) 4,704,584 4,704,584

344 Areas of reused

premises (m²) (3.3) 65,428 71,291 -

346 Areas of destroyed premises (m²) (3.3)

553,171 550,823 -

347 N° of urban renewal projects

(3.3) 87 85 -

3.4 Full exploitation of the regional port system

105 N° of new facilities (3.4)

13 13 -

194 N° of users of

improved services (3.4)

1,600 1,600 -

3.10 Agenda 21, territorial actions and new governance

274 N° of consultation bodies set up

1,838 5,598 -

3.11 Health at work

254 N° of persons

concerned (3.11) 65,818 185,616

Source: PRESAGE monitoring system, 2012.


LSE 166 EPRC

10.4 2007-13 Regional Operational Programme

Objective 2 (2007-13) – PRESAGE monitoring system

Target (source : projects’ tender (not

the OP))

Output (source : projects’ final

report)

%age of achievement

PO053

Digital services implemented

92 15 16%

PO027

Growth of frequentation (N° of travellers x km/day)

143,964 85,885 60%

PO028

Growth of frequentation (in railway stations)

95 5 5%

PO032

N° of sensitisation actions 8,632 17,948 207%

PO010

N° of beneficiaries of sensitisation actions

186,199 61,799 33%

PO044

N° of m² of ‘reinvested’ premises

73,786 4,786 6%

PO022

N° of modified buses 194 132 68%

PO009

N° of collaborations inter-enterprises labs

21 6 28%

PO003

N° of cooperative collaborations between enterprises and research

institutes

306 36 12%

Po011 N° of ‘creation and transfer of enterprises’ project managers accompanied

36,402 18,598 51%

C 04 1 Tonnage of waste recycled(t / year)

3,464 859 2,5%

PO006

N° of long-term jobs created

2,204 227 10%

PO007

N° of jobs safeguarded 3,395 93 2,7%

PO043

N° of ha ready for sale 47.7 27 57%

PO025

N° of km of public transport implemented

32.4 8.1 25%

PO054

N° of broadband lines implemented

13,885 6,997 50%

PO014

Ecological corridors 876 166 19%

P017 Natural areas preserved (km²)

402 262 65%

P004 N° of R&D jobs created 695 35 5%

C 02 1 Saved energy (TEP/year) 18,861 9,968 53%

C 01 2 Rehabilitated surface (m²) 682,836 603,756 88%

PO021

N° of TEP saved 54,740 23,916 44%



LSE 167 EPRC

11. ANNEX IV: LIST OF INTERVIEWEES

Name Position (current and former roles) Place Date Form

Stéphane Andréani

Financial unit - DREAL Lille 19.06.2012 Face-to-face

Olivier Anne Head of PRESAGE unit - DATAR Paris 10.05.2012 Face-to-face

Patrice Bailleux Programme Manager - EU policies – rapporteur for Nord-Pas-de-Calais

Brussels 10.07.2012 Phone interview

Bontron Annie Representative of « Training » Unit at MEDEF (coordinatrice Emploi Formation)

Lille 19/06/2012 Phone interview

BRIAND Gilles Head of Studies – Operational Development at the Coal Basin Mission (Mission Basin Minier)

Oignies 18/07/2012 Phone interview

Patrick Brière Head of Europe department – CCI international

Lille 24.05.2012 Phone interview

Cathy Buquet Head of D2RT Lille 2.07.2012 Phone interview

Laure Darrieux Instruction of EU projects - ADEME Lille 25.05.2012 Phone interview

Samuel Debuys Head of FSE department - DIRECCTE Lille 12.06.2012 Face-to-face

Delhaye François

Head of the Regional Association of Social Housing (Association régionale des organismes HLM)

Lille 06/06/2012 Face-to-face interview

Sylvie Depraetere

Assistant Director, Department of sustainable development


Caroline Descamps

Coordinator EU programmes – SGAR Nord-Pas-de-Calais

Lille 11.05.2012 Face-to- Phone interview

Véronique Devulder

Chargée de mission – SGAR Nord-Pas-de-Calais

Lille 11.05.2012

31.05.2012

Face-to-face

Dhau Decuypere Eric

Head of the Coal Basin Mission (Mission Bassin Minier)

Oignies 07/06/2012 Face-to-face interview

Dujardin Thierry

PRESAGE unit – SGAR Nord-Pas-de-Calais Lille 11.05.2012

31.05.2012

Face-to-face

David Duval OPCALIA. Former DATAR in charge of Objective 2 programmes

Paris 21.05.2012 Phone interview

Cosima Dubray Technical advisor, glogal grants ERDF/ESF and Lisbon strategy

Lille 31.05.2012 Face-to-face

Philippe Farvacque

Technical advisor ERDF/CPER – Région Nord-Pas-de-Calais


Favreuille Emmanuel

Director of the Delta 3 multimodal platform


Gastaldi Marie Representative of the ‘Partnership and European projects department’ - Communauté Urbaine of Lille Métropole

Lille 29/05/2012 Phone interview


LSE 168 EPRC

Name Position (current and former roles) Place Date Form

Gaudichon Bernard

Curator of ‘la Piscine’, Museum of Art and History of Roubaix

Roubaix 07/06/2012 Face-to-face interview

Fabienne Jean In charge of contracts at the Pasteur Institute, Lille


Joël Hébrard Retired civil servant, Former technical adviser - Conseil Régional Nord-Pas-de-Calais


Michel Lamblin Head of INTERREG IV C technical secretariat


Lathoud-Panhard Hélène

Administrator of ‘la Piscine’, Museum of Art and History of Roubaix

Roubaix 07.06.2012 Face-to-face interview

René Leboutte Professor of Contemporary European History, University of Luxembourg. Specialist of European industrial history

Luxembourg

26.06.2012 Phone interview

Lejosne Eric Representative of the « Transport » Mission – Regional Council of Nord-Pas de Calais


Lods Jean-Luc Head of the « European Affairs and international co-operation » Unit - Conseil Général of Pas-de-Calais

Calais 29/05/2012 Phone interview

Isabelle Meersseman

Head of C2RP Lille 25.06.2012 Phone interview

Thomas Peguy Head of the Evaluation Unit - DATAR Paris 14.05.2012 Phone interview

Nathalie Perilleux

Head of the International relation and EU programmes department – Conseil Général du Nord


Remerand Julien

Head of the ‘Opération Grand Site des Deux Caps’, Planning and Sustainable Development Department, Conseil Général du Pas-de-Calais

Calais 19/06/2012 Phone interview

Riquet Dominique

Mayor of Valenciennes – European Deputy

Valenciennes

24/05/2012 Phone interview

Thomas Spriet Head of Interreg unit – Conseil Régional Nord-Pas-de-Calais


Thomas Jean-Louis

Head of the ‘Syndicat Mixte’ of Regional Natural Areas (Directeur du Syndicat mixte des Espaces naturels régionaux)


Jean-Marc Venineaux

Territorial cooperation unit, Former programme manager and rapporteur for Nord-Pas-de-Calais

Brussels 12.06.2012 Face-to-face

Anne Wetzel Director of international and Europe department – Conseil Régional Nord-Pas-de-Calais


Willmann Emmanuelle

Chargée de mission at the « European Affairs and international co-operation » Unit - Conseil Général of Pas-de-Calais

Calais 29/05/2012+ 13/06/2012+

19/06/2012

Phone interview


LSE 169 EPRC

12. ANNEX V: OVERVIEW OF SOURCES USED FOR THE CASE STUDY

Programme name OP AIR FIR Spend

(by measure & year)

Evaluation reports

Strategic interviews

Operational

interviews

External interviews

Stakeholder/ Beneficiary interviews

Workshop

Regional OP, 2007-13 YES YES NO YES YES YES YES YES YES YES

Single programming document, Objective 2, 2000-06

YES YES YES NO PART YES YES YES YES YES


YES YES YES NO PART YES YES YES YES YES


PART PART PART PART PART YES YES PART NO PART


YES PART PART PART PART YES YES PART NO PART

Single programming document, objective 1, 1994-99

YES PART YES YES PART YES YES PART NO PART

Community Support Framework Objective 2, 1989-93

PART PART YES PART PART YES YES PART NO PART


LSE 170 EPRC


LSE 171 EPRC

13. ANNEX VI: REFERENCES

ACT Consultants (1997), Evaluation intermédiaire du Programme Objectif 1 (1994-1999), Volume 1

Evaluation d’ensemble du programme, Rapport final pour la Préfecture de Région et le Conseil

Régional.

ACT Consultants (1997), Evaluation intermédiaire du Programme Objectif 1 (1994-1999), Volume 2

Aspects sectoriels évaluation des mesures, Rapport final pour la Préfecture de Région et le Conseil

Régional.

ACT Consultants (1997), Evaluation intermédiaire du Programme Objectif 1 (1994-1999), Actions

soutenues par le Fonds Social Européen, Rapport pour la Préfecture de Région et le Conseil

Régional.

ACT Consultants (1996), Evaluation de l’impact des politiques structurelles européennes sur la

cohésion économique et sociale de l’Union, Cas de la France, Etude pour la Commission

Européenne, Direction Générale XVI, Coordination de l’Evaluation, Rapport final.

ACT Consultants (1994), Evaluation ex-ante des projets de documents uniques de programmation,

Industrial Core South, Région : Nord-Pas-de-Calais, Rapport à la Commission des Communautés

Européennes, Direction Générale XVI Politiques Régionales, Coordination de l’évaluation, Bruxelles.

ADE (2005a), Evaluation finale du programme Objectif 1 2000-2006 de la Région Nord-Pas-de-

Calais, Rapport final, Rapport pour la Préfecture de Région Nord-Pas-de-Calais.

ADE (2005b) Evaluation finale du programme Objectif 2 2000-2006 de la Région Nord-Pas-de-Calais,

Rapport final, Rapport pour la Préfecture de Région Nord-Pas-de-Calais.

ADE (2008), Ex-Post Evaluation of Cohesion Policy Programmes 2000-2006 co-financed by the

European Fund for Regional Development (Objectives 1 and 2) – Work package 2: Data feasibility

study, Louvain-La-Neuve.

ADE (2008), Thematic evaluation RTDI in Objective 2 – Synthesis Report, Zenit, ADE & Enterprise

plc, Report to the European Commission.

ADE (2010), Etude sur l’évolution des diagnostics et des stratégies régionales d’innovation dans les

régions françaises dans le cadre des PO FEDER 2007-2013, Volume 1 – Rapport final (synthèse),

rapport à la Commission Européenne.

APPLICA, ISMERI Europa, WIIW (2009), Ex Post Evaluation of Cohesion Policy Programmes 2000-2006

financed by the ERDF in Objective 1 and 2 regions – France- Work package 1: Coordination, analysis

and synthesis - Task 4: Development and achievements in Member States. Report to the European

Commission, Directorate General Regional Policy.

APPLICA, ISMERI Europa (2010), Expert Evaluation Network Delivering Policy Analysis on the

Performance of the Cohesion Policy 2007-2013. Task 1, Policy Paper on Innovation, France, Final

draft. Report to the European Commission, Directorate General Regional Policy.


LSE 172 EPRC


Performance of the Cohesion Policy 2007-2013. Task 2: Country Report on Achievements of

Cohesion Policy, France, Final version. Report to the European Commission, Directorate General

Regional Policy.


Performance of the Cohesion Policy 2007-2013 year 1 - 2011. Task 1: Policy Paper on Renewable

Energy and Energy Efficiency of Residential Housing, France, Final version. Report to the European

Commission, Directorate General Regional Policy.

Bernard Reverdy Consultants (1997), Appréciation externe des DOCUP pour les Régions Objectif 2

1997-1999, Région Nord-Pas-de-Calais, rapport à la Commission Européenne, Direction Générale

XVI.

CAPRON H., (1995), L’impact des politiques structurelles sur les potentiels de compétitivité

régionale, Rapport, Université Libre de Bruxelles, Unité d’Economie Spatiale et de la Technologie,

Bruxelles.

CCI - Chambre de Commerce et d’Industrie Région Nord de France (2012a), Livre Blanc sur

l’Industrie du Nord-Pas-de-Calais, Lille.

CCI – Chambre de Commerce et d’Industrie Région Nord de France (2012b), Les chiffres clés Nord-

Pas-de-Calais, édition 2012, Lille.

Centre for Strategy & Evaluation Services (2003), Ex-Post Evaluation of 1994-99 Objective 2

Programmes, Synthesis Report, Report to the European Commission, Directorate General for

Regional Policy (Part 1 and 2).

Conseil Régional Nord-Pas-de-Calais (2009a), Stratégie Régionale de l’Innovation en Nord-Pas-de-

Calais, Lille.

Conseil Régional Nord-Pas-de-Calais (2009b), Un indicateur de développement humain à l’échelle

des territoires du Nord-Pas-de-Calais, Note D2DPE n°24, Lille.

Conseil Régional Nord-Pas-de-Calais (2010a), Evaluation du Programme Régional de Création et de

Transmission d’Entreprise, Rapport Final, Lille.

Conseil Régional Nord-Pas-de-Calais (2010b), Développer l’entrepreneuriat en Région Nord-Pas-de-

Calais, Rapport et préconisations pour le Schéma Régional de Développement Economique du Nord-

Pas-de-Calais, Lille.

Conseil Régional Nord-Pas-de-Calais (2010c), Atlas de la santé sociale des régions françaises, Lille.

Cour des comptes (2007), Rapport public thématique ‘les aides des collectivités territoriales au

développement économique’.

CRCI (2010), Les Entrepôts dans le Nord-Pas-de-Calais, Horizon-éco, L’économie du Nord-Pas-de-

Calais n°18, Lille.


LSE 173 EPRC

DATAR (2002), Etude sur les objectifs comparés des DOCUP et des CPER – Période 2000-2006- Tome

1 – rapport national, SEGESA, Paris.

DATAR (2006), Synthèse des résultats de l’évaluation finale des DOCUP 2000-2006, Mission

d’accompagnement et de synthèse nationale des évaluations finales régionales, Paris.

DATAR (2006), Le défi de l’innovation, l’enjeu de la gouvernance, Contribution à la réflexion sur le

cadre de référence stratégique national et la préparation des programmes opérationnels de la

politique régionale européenne 2007-2013 dans le domaine de l’innovation, DATAR / DG Regio.

DATAR (2011), Synthèse des évaluations régionales à mi-parcours des PO FEDER 2007-2013,

Synthèse d’étude, Connaître les programmes européens, Paris.

Davezies l., (2008), « La république et ses territoires, La circulation invisible des richesses », Seuil,

Paris.

DIRECCTE (2012), Vingt ans de recomposition économique en région Nord-Pas-de-Calais, Lille.

Dormard S., (1995), « Spécialisation et dynamisme de l’industrie de la région Nord-Pas-de-Calais »,

intervention lors du Colloque « Développement économique et reconversion industrielle », Béthune,

21-22 novembre 1995.

Dormard S., (2001), L’Economie du Nord-Pas-de-Calais, Histoire et bilan d’un demi-siècle de

transformations, Géographie et Aménagement (Presses Universitaires du Septentrion), Villeneuve

d’Ascq.

DREAL (2012), Prévention des risques naturels et technologiques, Profil environnemental, Lille.

ECOTEC (2003), Ex-Post Evaluation of Objective 1, 1994-1999. A Final Report to the European

Commission, Directorate General for the Regional Policy.

EPRC (1999), Objective 2 1994-1999: Experiences, Lessons and Policy Implications, Final Report to

the European Commission, DG XVI.

EPRC (2009), Ex-Post Evaluation of Cohesion Policy Programmes 2000-2006 co-financed by the ERDF

(Objective 1 and 2). Work package 11: Management and implementation systems for cohesion

policy. Final Report to the European Commission.

Ernst and Young (1993), An Evaluation of the utilisation of the Community’s Structural Funds by

SMEs, Horizontal Report, Final Report to the European Commission.

Ernst & Young (1997), Ex-Post Evaluation of the 1989-1993 Objective 2 programmes, Synthesis

Report, Report to the European Commission.

European Commission (1995), The New Regional Programmes under Objective 1 and 2 of

Community Structural Policies. A summary of the results expected and obtained from their

establishment, Communication from the Commission to the Council, the European Parliament, the

Economic and Social Committee and the Committee of the Regions, Brussels.


LSE 174 EPRC

European Commission (1998), Mid-Term Review of Structural Interventions Objective 1 and 6

(1994-99), Developing a Management Culture through Evaluation: Towards Best Practice,

Directorate General XVI, Regional Policy and Cohesion, Brussels.

FERE-Consultants (1996a), Evaluation sommaire ex-post du programme Objectif 2 1989-93, Nord-

Pas-de-Calais, Louvain-la-Neuve, rapport à la Commission Européenne, DG XVI.

FERE-Consultants (1996b), Evaluation ex-post du programme Objectif 2 1989-1993 de la Région

Nord-Pas-de-Calais, analyse approfondie, rapport à la Commission Européenne, DG XVI.

European Commission (2010), Ex-Post Evaluation of Cohesion policy Programmes 2000-2006

financed by the ERDF (Objective 1 & 2), synthesis report, Brussels.

Glaeser E. (2003), ‘Reinventing Boston : 1640-2003’, Discussion Paper n°2017, Harvard Institute of

Economic Research, Cambridge, Massachusetts.

INSEE (2010), Les conséquences de la crise de l’emploi dans les régions, Division Statistiques

régionales, locales et urbaines, Paris.

INSEE Nord-Pas-de-Calais (2002, Le tourisme, générateur d’emplois entre 1996 et 1999, Profils n°5,

Lille.

INSEE Nord-Pas-de-Calais (2005), Etat des lieux des activités de Recherche et de Développement en

Nord-Pas-de-Calais, Profils n°7, Lille.

INSEE Nord-Pas-de-Calais (2006), Pauvretés et Territoires en Nord-Pas-de-Calais, Profils n°82, Lille.

INSEE Nord-Pas-de-Calais (2007), Tourisme en Nord-Pas-de-Calais : un réel impact sur l’emploi,

Profils 2007, Lille.

INSEE Nord-Pas-de-Calais (2009a), Le fait entrepreneurial en Nord-Pas-de-Calais, Profils n°60, Lille.

INSEE Nord-Pas-de-Calais (2009b), Population du Nord-Pas-de-Calais : stabilité d’ensemble,

dynamiques territoriales contrastées, Profils n°50, Lille.

INSEE Nord-Pas-de-Calais (2010), Le recensement livre ses derniers chiffres de population, Profils

n°68, Lille.

INSEE Nord-Pas-de-Calais (2011), Les espaces du Nord-Pas-de-Calais, Trajectoires, Enjeux et

Devenir, Mutations et polarités économiques, Profils n°105, Fascicule 2, Lille.

INSEE Nord-Pas-de-Calais (2012a), Ressorts et enjeux de l’attractivité des territoires du Nord-Pas-

de-Calais, Profils n°104, Lille.

INSEE Nord-Pas-de-Calais (2012b), Le Louvre à Lens : un défi culturel, sociétal, économique et

urbain, Profils n°110, Lille.


LSE 175 EPRC

IRS (2007), Effectiveness of the Cohesion policy : Gender Equality and Demographic Change, Work

package 7, Second Intermediary Report: Regional Case Studies Nord-Pas-de-Calais, Report for the

European Commission, Directorate General Regional Policy.

Labour Asociados (2003), Analysis of the impact of Community Policies on Regional Cohesion, Final

report, Annex I, Regional Case Studies, volume 2. Report to the European Commission, DG Regional

Policy.

Laborie J.-P., Taulelle F. (1995), « Etat et acteurs locaux face à la politique régionale

européenne », Sciences de la société, n°34, pp.59-77.

Nay O. (2001), « Négocier le partenariat. Jeux et conflits dans la mise en œuvre de la politique

communautaire en France », Revue française de science politique, vol. 51, n°3, pp.459-481.

Paris D. (1995), « La politique régionale européenne dans le Nord-Pas-de-Calais », Hommes et

Terres du Nord, n°3, pp.111-119.

SGAR Nord-Pas-de-Calais (2000), Document unique de programmation Nord-Pas-de-Calais Objectif 1

2000-2006, Lille.

SGAR Nord-Pas-de-Calais (2000), Document unique de programmation Nord-Pas-de-Calais Objectif 2

2000-2006 et soutien transitoire, Lille.

SGAR Nord-Pas-de-Calais (2003a), Rapport de Clôture du DOCUP Objectif 1, période 1994-1999,

Lille.

SGAR Nord-Pas-de-Calais (2003b), Rapport de clôture du DOCUP Objectif 2, période 1997-1999,

Lille.

SGAR Nord-Pas-de-Calais (2004), Document Unique de Programmation Région Nord-Pas-de-Calais,

Objectif 2 – 2000-2006, Complément de programmation, Lille.

SGAR Nord-Pas-de-Calais (2006), Evaluation ex-ante dans le cadre de la préparation des

programmes européens 2007-2013 en région Nord-Pas-de-Calais, rapport final, Lille.

SGAR Nord-Pas-de-Calais (2006), Evaluation environnementale ex-ante du programme opérationnel

FEDER 2007-2013, Rapport final, Lille.

SGAR Nord-Pas-de-Calais (2007), Programme Opérationnel Compétitivité et Emploi 2007-2013,

Lille.

SGAR Nord-Pas-de-Calais (2007), Programme Opérationnel Compétitivité et Emploi 2007-2013 –

Dispositions de mise en œuvre, Lille.

SGAR et Région Nord-Pas-de-Calais (2009), Stratégie Régionale de l’Innovation du Nord-Pas-de-

Calais, Lille.


LSE 176 EPRC

SGAR Nord-Pas-de-Calais (2010), Rapport de clôture du DOCUP Objectif 2 2000-2006 et soutien

transitoire. Dispositions prises par l’autorité de gestion et le comité de suivi pour assurer la

qualité et l’efficacité de la mise en œuvre.

SGAR Nord-Pas-de-Calais (2010), Evaluation à mi-parcours du Programme Opérationnel FEDER 2007-

2013 en Nord-Pas-de-Calais, Rapport final, Lille.

TECHNOPOLIS (2006), Strategic Evaluation on Innovation and the Knowledge Based Economy in

relation to the Structural and Cohesion Funds, for the programme period 2007-2013 – Country

report France, final version. Report to the European Commission, Directorate General Regional

Policy.

The Evaluation Partnership (1991), Ex-ante Evaluation du Cadre Communautaire d’Appui dans la

Région Nord-Pas-de-Calais, Rapport Final.

Veltz, P. and Davezies, L. (2004), Nord-Pas-de-Calais 1975-2005. Le grand tournant, La Tour

d’Aigues, Editions de l’Aube, 169pp.


LSE 177 EPRC

14. ANNEX VII: SUMMARY OF SURVEY RESULTS

A total of 339 contacts were invited to take part in the online survey for Nord-Pas-de-Calais. This

number includes 26 who were interviewed by the case study team, plus 313 additional invitees. The

313 additional invitees were broken down as follows: 14 percent were local authority contacts

(selected senior administrators and political leaders in local authorities and bodies representing

them); 75 percent were firms (whether beneficiaries or unsuccessful applicants); 3 percent were

regional/local level political party representatives; 7 percent were regional/local social partners,

third sector organisations and trade unions; and the remaining 2 percent were from other local

interest groups.25

The overall response rate (i.e. those who started the survey and answered at least one question)

was 21.8 percent, though the percentage of invitees who completed the entire survey (i.e. up to

and including the final question) was expectedly lower at 14.5 percent. For the questions

applicable to all, the response rates varied between 4.7 percent and 21.8 percent. There were also

questions which related to each specific programme period only and these were accordingly

filtered.

Within the above-mentioned categories, the breakdown of non-interviewee respondents was as

follows (fully completed responses): 10 percent were local authority contacts; 85 percent were

from the sample of firms; and the remaining 5 percent were from other local interest groups. No

fully completed survey responses were returned by regional/local level authorities or from the

category regional/local social partners, third-sector organisations and trade unions.

Regional/local level political party representatives were the least responsive group (of non-

interviewees), as none who were invited responded to the survey invitation in any way (some

individuals from regional/local social partners, third-sector organisations and trade unions

submitted partial responses). The response rate for firms was 21.8 percent. Invitees from other

local interest groups had the highest completion rate, of 100 percent (i.e. the proportion of those

starting who then progressed up to and including the final question).26 Individuals representing

regional/local social partners, third-sector organisations and trade unions had the lowest

completion rate, with none submitting a fully completed survey.

a) Answers to the main questions

What has been the contribution of ERDF to regional development in Nord-Pas-de-Calais since

1989?

ERDF contribution considered as ‘very important’ or ‘important’:

1. Improvement of environmental quality (waste, water, environmental clean-up of industrial sites, biodiversity)

25 This does not total 100 percent due to rounding.

26 Six contacts in this group were invited, and two responded. Both of these respondents completed the survey in its entirety.


LSE 178 EPRC

2. Improvement of the image of the region

3. Development of R&D and innovation activities in enterprises, jobs creation, technological adaptation

4. Regional infrastructure, accessibility, transports

Written contribution:

- ERDF programmes improved the visibility of EU interventions at local and regional

level

- EU funds fostered the emergence of economic development poles

- EU funds have promoted sustainable development approaches

ERDF contribution considered as less significant:

1. Attraction of foreign investments, competitiveness, R&D, creation of new businesses, development of manufacturing, tourism …

2. Social enterprises and social services, services for disadvantaged neighbourhoods, employability

3. Adoption of good management practices

How do you estimate the overall impact of ERDF programmes between 1989 and 2010?

(% of answers)

Did the objectives of ERDF programmes correspond to regional needs?

‘yes, in a very significant way’ or ‘in a significant way’ for 90 percent of the answers (but 50

percent of respondents had no opinion)

Written contribution:


LSE 179 EPRC

- ‘The question is not the difference between regional needs and programmes orientations

(whose strategies are usually quite relevant) but rather the gap between sub-regional

needs. ERDF is mainly conceived for more urban and dynamic areas’

- ‘Behind strategic orientations and financial allocations, is raised the question of support

to the conception and implementation of projects’

Questions related to the conception and implementation of programmes between 1989 and

2010

Two trends emerge:

- Rather good appreciations concerning the definition and orientation of strategies

(coherent with regional needs) and concerning partnership approaches

- Stronger differences regarding:

- The contribution of thematic concentration and of great projects to the

effectiveness of programmes

- The « utility » of indicator systems to improve strategies and implementation of

programmes

- The flexibility of programmes to adapt to the needs of beneficiaries

Suggestions of improvement for ERDF programmes

Important issues

1. A simplified administration for programmes beneficiaries

2. A more important initial funding for beneficiaries

3. Wider categories of eligible expenses

4. More important flexibility of programmes to better take into account the evolution of beneficiaries needs during the programming process

5. To better take into account local actors and socioeconomic partners

6. To stabilise EU and national regulations related to programmes and projects implementation

Less important issues

1. Concentration of expenditure on large projects or on target groups

2. Greater attention paid to expected results

Perspectives for 2014-2020

It is first of all essential to improve programmes and the projects implementation process


LSE 180 EPRC

- Decentralisation, subsidiarity, higher obligations on results and less administrative

requirements

- To simplify processes, to soften management and implementation rules

- To better recognise expertise capacities of civil society partners and stabilise

administrative rules

- To strengthen the sustainable dimension of projects (land management, impact on

biodiversity, pollution….)

- To support the transition from innovation to industrialisation in SMEs


LSE 181 EPRC

15. ANNEX VIII: WORKSHOP PARTICIPANTS

NAME First name Institution

ANDREANI Stéphane DREAL

Head of Division – Financial Management

BEGG Iain Professor - London School of Economic

BONTRON Annie MEDEF

Regional coordinator of vocational training

BOUR-DESPREZ Barbara DREAL

Vice Director

BRIERE Patrick CCI International

Directeur du pôle juridique Européen et relations avec l’UE / Coordinator Entreprise Europe Nord-Pas de Calais

BUQUET Cathy DRRT

Regional Delegate for Research and Technology

ELASS Abdelaziz DRRT

CALVO-DE-CELIS Jose-Luis

DG Regio – Administrator of Evaluation Unit

CASTELAIN Françoise Département du Nord

Department of International Relations

DARRIEUX Laure ADEME

Desk Officer ERDF

DEBUYS Samuel DIRECCTE

Head of Service - ESF

DELHAYE François Association régionale pour l’habitat Nord-Pas-de-Calais

Desk Officer

DEPRAETERE Sylvie Région Nord-Pas-de-Calais

Vice Director – Développement durable, démocratie participative, égalité femmes/hommes

DESCAMPS Caroline SGAR

Desk Officer European programmes

DEVULDER Véronique SGAR

Desk Officer European programmes

DHAU DECUYPERE Director - Mission Bassin Minier Nord-Pas-de-Calais

DUBRAY Cosima Région Nord-Pas-de-Calais

Technical Advisor Global Grant ERDF / ESF and Lisbon Strategy

DUFLOS Gilles Région Nord-Pas-de-Calais

Vice-Director Action Economique

DUJARDIN Thierry SGAR

Desk Officer PRESAGE

DURUFLE Yves Région Nord-Pas-de-Calais

Directeur Général des Services


LSE 182 EPRC

NAME First name Institution

FARVACQUE Philippe Région Nord-Pas-de-Calais

Technical Advisor ERDF / Operational programmes

FLOIRAC Estelle Consultant

FRIMAT Bruno ADEME

Vice Regional Director

GASTALDI Marie Communauté Urbaine de Lille Métropole

Mission Partenariat et projets européens

HEBRARD Joël Technical Advisor European Programmes

MEERSSEMAN Isabelle Centre Régional de Ressources Pédagogiques et de développement de la qualité de la formation

Head of the ESF technical Assistance Pole

MERCIER Georges ADT Consult

MULLEMEESTER Yohan SGAR

VAN-DE-WALLE Thérèse SGAR

VENINEAUX Jean-Marc DG Regio

Transnational and Interregional Cooperation Unit

WALLYN Catherine Communauté d’Agglomération du Douaisis

Directrice Générale des Services

WETZEL Anne Région Nord-Pas-de-Calais

Head of the European Affairs

WILLMANN Emmanuelle Conseil Général du Pas-de-Calais

Head of the European Affairs

ZELLER Isabelle Région Nord-Pas-de-Calais

Vice-Director for Research, Higher Education, Health and ICTs