Rural Development Policies in Central and Eastern Europe
- is there an alternative way?

Research Proposal
Gusztáv Nemes
15 July 2001


Background
In the EU applicant Central and Eastern European Countries (CEECs) almost every area of life is largely preoccupied with accession issues. This has contradictory consequences for rural and regional development in CEE. For rural policy making the accession process reinforces centralisation, bureaucratic institutions and a top-down, sectoral development approach. The EU is applying a conservative, restricted version of its current, top-down rural policies in CEE, without major changes or new objectives. For channelling future funds for rural, regional development, applicant countries need to build strong central bureaucratic institutions and policies. This process is embodied in the SAPARD Programme and the creation of Paying Agencies. In parallel, in most accession countries, a decentralisation of power and a burgeoning of ‘bottom-up’ development activities have been occurring. Reinforced by EU rhetoric (on sustainability, participation and local development) regional and micro-regional structures, NGOs and civil society are gaining more influence and political representation in the CEECs.
Compared to Western Europe, CEE rural areas are not simply backward, they are different. In general, they have a more traditional society, economy and more natural resources, all advantageous for an integrated, sustainable approach to rural development. This means tackling structural problems and backwardness through top-down spatial and sectoral policies, while unlocking local resources through empowerment and participation. CEE has long been on a different development trajectory, therefore the EU system should not be simply copied, but alternative approaches and development models should be found. Based on their internal resources and EU assistance, future Member States could become an experimental field and then a driving force for the long wanted fundamental reform of EU rural policies. There are rhetorical signs for such an evolution, but current public policies do not support this direction sufficiently. The key for future improvement can be seen in the growing power and influence of civil society.
My PhD research has taken a broad perspective on this topic, focusing on theories and EU approaches. I participated in international research projects, did fieldwork and made contacts in Hungary and Brussels and beyond, in other CEE and EU countries. Standing on the ground of my PhD, for post-doctoral research I would like to take forward two hypothesises. Concerning the currently evolving rural policy system in Central and Eastern Europe:
1. Domestic policy making, (constrained by EU requirements, budgetary and political considerations) is evolving towards a centralised, non-sustainable rural development system.
2. Recent changes in civil society and development associations (on micro-regional and regional level) hold a great potential to influence rural development to take a more decentralised and sustainable direction.
Objectives and methodology
This project would examine the effects of the pre-accession process on CEE rural, regional development, with special regard to the role of civil society and local development associations; and aims to work out alternative scenarios and policy recommendations.
My broad research questions are:
1. How do rural policies and institution building evolve in the accession countries?
2. How could an integrated, sustainable, participative approach be enhanced in the CEECs during this process?
The main objective of the research is to investigate the principal factors, influencing policy evolution:
· the overall influence of the EU and the accession preparation (a force for globalisation);
· the recent boom of civil society and local development in rural areas in CEE, and their growing importance and political influence (a force for localisation);
· the political struggle of governments, ministries and political parties to fulfil accession requirements and satisfy domestic (electoral) demands at the same time (political challenge);
· the growing recognition of social, environmental, economic problems in rural areas and a demand for sustainable solutions (development challenge).
 I intend to investigate one CEEC country (Hungary) in-depth, and undertake more general research in other countries to allow comparison to be made. For the in-depth study I want to use qualitative methodology, building on interviews, case studies, participant observation, action research and document analysis. The comparative part would be based on some key interviews with policy makers and experts, document analysis and secondary analysis of research findings. (I have contacts in a number of countries and access to the findings of several ongoing international research projects on rural development .
 In-depth investigation of Research Question 1 would include the analysis of policy documents, and interviews with officials in different ministries and their regional offices; with experts and consultants working for government departments.
 I would pay special attention to the:
· direct influence of EU rhetoric and pre-accession programmes on political decisions, and institution building;
· interdepartmental harmonisation of legislation and accession negotiation strategy, and the role of experts;
· lobbying activity of economic interests and other stakeholders;
· SAPARD Paying Agency and its country-wide institutional system (as the main institutional result of pre-accession preparation in rural development);
· struggle for resources between agricultural, agri-environmental, regional development and rural development interests.
 In-depth investigation of Research Question 2 would include interviews and participant observation in: nation-wide NGOs, representing civil society in high level politics (the Hungarian Rural Parliament, and environmental NGOs, such as Ecoservice, or WWF Hungary); and in a chosen rural micro-region, with the local development association and formal and/or informal civil organisations.
 I would pay special attention to the following questions:
· how do EU rhetoric and pre-accession policies influence the development and the representation of civil society?;
· what factors can enhance and hinder this development locally and on a nation-wide, political level?;
· how can NGOs and other representatives of civil society gain political influence?;
· under what circumstances can global forces work together with local resources and knowledge, creating a positive environment for sustainable development of rural areas?
The comparative part of the research could take two different directions :
I could compare the development of rural policies and institutions in some applicant countries. These countries have diverse social, economic and political structures, however, arising from their communist past, they have a number of common problems. At the same time EU accession, representing a strong outside force, sets common objectives for their current development. A comparison should present in what way a different political culture, power of civil society, regional, and micro-regional structures can influence domestic politics, resulting in different rural policies, institutions and development strategies. I could compare Hungary with Slovakia, Romania, Poland or/and Slovenia.
Another possibility is to compare the current evolution of rural policies between CEE and EU countries. The Rural Development Regulation under the Common Agricultural Policy is the equivalent of SAPARD within the EU. Compared to the old CAP and the Structural Funds, there are significant changes under this new instrument. Similarly to SAPARD, new paying-agencies need to be accredited, development programmes prepared, procedures established. This causes similar problems in both sides of Europe. Nevertheless, current Member States can base their progress and their negotiation with the European Commission on more robust political, financial and bureaucratic capital. A comparison could show the consequences for the formulation of rural development institutions and policies, and the need for their adaptation to the special CEE circumstances. I could make a comparison with Ireland, and/or some regions of Spain and Portugal.
This information, combined with my previous experience with EU rural policies, would allow me to conclude why current EU policies would not work in Hungary (and other applicant countries); how policy objectives, institutions and procedures should be modified; and how rural areas of CEE could demonstrate an alternative, more effective and sustainable way for rural development. While doing participant observation and action research, I hope to give some practical help to NGOs and/or to other civil organisations.
Application of the results
The result of this research should not be 'just another study' on rural policies or EU enlargement. I would like to discuss important practical problems (e.g. how the involvement and influence of civil society could be enhanced) and combine such divers issues as: environmental protection and economic diversification. I hope to stimulate the discussion on rural policies, which are currently largely preoccupied by short-term political considerations and EU accession. Through this, and the elucidation of some controversial issues, I hope to contribute to scientific discourses, to the understanding of current problems and, at the end of the day, to the development of civil society.
Results, arising from the local case study and participant observation with nation wide NGOs could help strategic thinking and day-to-day activities of different types of civil organisations. I also would like to make concrete policy recommendations concerning the development of rural regions, rural policies and institution building. These could be used in designing future policies, or working out strategies for the accession negotiations.
Results of an international comparison could prove to be useful in the development of international rural networks, connecting CEE rural areas with each other and with peripheral regions of current EU Member States.