Conversion policy. Report from the Commission to ECSC Consultative Committee. COM (82) 418 final, 29 June 1982

(1)

COMMISS

IO

N

A

OF

THE

EUROPEAN

COMMUNITIES

cott(8z)

4$

_fiqal,

Eruesclsr

?9 June

1982

col{vERSIOt{

POTICY

Connlseion

_to

ECSC

Consultativc

_Conraittcc)

:

tl

,};

!

l

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UNIVERSIYY

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(2)

I

RgPOAf

TRAH

THE

ffC}M$TSS,IOtr{

"

TCI

THE EUROPIAN

COAI*

AND STEEL

COMMUru.,IV

ELTf{SULTATIVE

COIviMITTEI

ON

CONVER$TON

POLICY

I. INTRODUCTiCN

1.1 The

Cornmissicn

in its

report

C0$(81)717

ot

25 Novamberu

'1981

dre*

up

a

framework

for

EC$c

conversion

policy

for

the

1975-1980

period"

This

Fresent

report

represents

an

updating

of

that

docu.

ent

to

1981.

1"? It

has

atso

become

necessary

to

adjust

some

of

the

data

lfesented

in

thE

!.ast

report,

In

this

context

it

should be

said

that

the

statistit$

provided

emilnate

fron

varJous sources

uhich

cannot

atuays be co*ordinated"

As regar'Js the

on3oing

ciavel.opment

of

regicnaI

emptcymerrt

in

Etl$C

indu-"tries'

urdati*s

is

Farticui-ar'l.y

difficult

because

of

tha

untortunate

delr/

*n

r*port

irrg

by

eCSC

undertaL'ings"

1,3

A

Lrrsad

corlsol.idated

analysis by

r.egion

of

the

assiistance nade

a!'a'i

iebl-e

to

steel

cLosure ureas

through

the

medir:m

of

other

Community f

ina,-rc

iai

instruntents

it,rs been

incLutjed

"

via.

conv'ersion

tending

vis-a-vis

El$

lcan$

at"id

graniis

f

i'orn

tns

liuropean Reg'ionat Devslopment

Fund

and

fcr

rp;d;

rrt;rt'lcn-i"

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(4)

*5F

2.2 stee

L

The

crjtical

state

of

the

communityrs

steeI industry

may

be

gauged

from the

shrinking

annuaI average

emptoyment

patterns

shovn

in

Tabte ;1. The regionaL

anatysis

given

in

Annex

I

details

hou

end-of-year

employn€

1t

toiaLs

have

decreased

substantiatty

since

1975

and

the

varying

Cegree

to

whlch

the

individuaL

steet-producing

areas have

been

affected.

The

overatI

end-of-year

enploynent

trends

in

the nationaI steeI

industries

are

summarised

in

Annex

I(a).

2.3 It is

evident

that

steeL

worker redundancies

continue

to

be

a

very

serious

probLem

_and,

coupled

with

coaL

sector

unemptoyment,

constitute

a

nassive

unproductive tabour

force

and

a

draln

on

Community

resources.

The

restructuring

of

the

steet industry

ritt

continue

to

add

to

these

job

tosses,

thus

compounding

these atready serious

probtenrs and underscoring

the

need

for

vigorous

and

rein-forced

activities.

i

III. C0-0RDINATIoN

I,ITH

oTHER

CollflUNITY

INSTRU!4EI'|TS

!

3,1

Community

finaneing

ln

coat

and

steet

closure

areas

is

not

confined

to

the

.

_ECSC

_conversion

_toan

scheme

and

Articte.

36 readaptation

ajds.

Other

Community

instruments

are

avaitabte,

viz.

European

Regionat

Development

Fund

grants

as

the

affected

areas

are

frequentty

tocated

{n

generaIty

deprlved regionsrsociaI

Fund

grants

and

European

Investnent

Bank

ahd ll€r,

CommunJty

Instrument

Loans

3.2 An

anaLyticat

summary

of

EIB

Lending

in

steeI

making

regions,

principaLLy

.infrastfucture

_{and energy}

_projects,

_is

_{set out}

_in

Annex

III

which shous the

reIativety

substantiaL

investment

assistance

made

avai

lable'

similarly,

the

grants

made

avai

[abte

from

the

ERDF

and

the

Article

56 re-adaptation

aids

are

set out

in

Annexes

IV

and

v

respectivety.

Fina[[y,

these

four

rnajor sources

of

assistance

to

steeL

areas

are

summarised

and

combined

in

Annex

VI with the

aim

of

showing

the pattern

and magnitude

of

the

financing

in

the

targef

steel

afeas from

the

various

community

instrun€nts.

It

should

be

noted

that,

for

slmplicilytconslderationhasbeenconfined

to

[cvet

II

arqas

rhJch inctude

areas ghere

a

minjmum

of

51000

steel

Horkers uere emplyed

in

1971;

steeL

areas

i{ith

l'€ss

than

thls

nunbcr have

been

exctuded'

consequentty'

caution

should be

€x€r6ised

trhcn

conparing

tota[s

as

som. toans nay

not

havc becn

t€l(en

into

account.

!

(5)

" 3 6

1r

I

j.3

_{tdjthin the}

non-quota sect'ion

of

the

ERDF

speciaL

programmes

brere

Launched

in

19gZ

to

prorr.r,Jte ireh,

empLoyment

creating

activities in

zones

affected

by

the

recessjon and

restructuring

of

the

steeL

industry. Specific

Community

measures have been

adopted

by

the

commission

for

BeLgium

and

the

un'ited

KinEdorn,

and

are

about

to

be

subrn'itted

for

rtaLy"

The

ERDF

contri

butions

to

these f.ive*year

programfnes

are

6 t*ljoECU

and 33

t4ioECU

to

BeLgium

and the

united

Kingdom

respectiveLy,

and

t+ lvlioECU

to

the

rtalian

programme

when

(6)

6&E >. +t

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(7)

5e

ECSC

CONVERSION

LOAI'IS

The

conversion

loan

sch.:rne,

the

volume and

dist

ibutjon

of

which

may

be

found

in

TabLe

3,

has

been

greatty

e

'panded

over

the past

seven

years

to

respond

to

the

mounting

steel industry

crisis,

as

may

be

Seen

from

TabLe

4"

The

con-version

toan

levets

correspond

to

the

sev€r'ity

of

the

probtems

in

the

llember

states

and

have been

reasonabty

closety

to

the

job

losses" Projects

financed

by

conversion toans

over

this

period

have

provided

a

job

creation

DotentiaI

jn

re[ation

to

overaLI

tosses

of

about 302

despite

the

increasing

number

of

redundancies and

the

acutety

difficuLt

economic

cIimate.

That

is

not

to

say

that

this

rate

of

job

replacement

is

being vieued as

the

best

achievabte;

on

the

contrafy

every

cffort is

being

and

witl

be

made

to

increase

t

hi

s

r

ate.

'A nore detaiLed anaLysis

ol

summarised

results

is

given

in

TabLes

4 and

5"

It

may

be seen from

these data

that

the

total

toan

assistance

and

the

number

of

jobs

_to

be created have continued

to

incfease

to

counter

the

emptoynent

tosses nentioned

previousiy"

Durlng

the

1979-1981

perlod the

average

rebate

per

job

_to

_be

_created

_{for direct}

loans

has

been

of

the

order

of

21100

ECU

uhich

significantty

exceeds

the

average

of

11120

ECU

per job

for

sub-[oans.

These

amounts

f6fef to

total

job

cteation

potentiat"

The

interest

rebate

for

jobs

suitabte

for

former

ECSC

r,rorkirs

remalns

at

3000

ECU

per

job..

Too

great

an

emphasis however

shoutd

not

be

taid

on

thls

aspect

as

both

toan

systems

have

different

merits

and

are

designed

to ful.flt

separate

functions.

The

totat

budgct

cost

of

124 flioEcU

ov.r

the past

sev.n years

of

Ecsc conversjon

poficy

_may

_be

_secn'to

_be

_ninor

_cornpared'to

_the,l,argc

_numbcr

_of

_lobs

(62,727)

_to

bc

created by

thr

projrcts

financed.

(8)

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Amounts

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t

oans

TABLE

5

Con.veLs_i_on

Loans.,

_-sirc-

Loanrq

_{_.: gm}

g

L

g:*::---i

:;.ij*

Emptoyment

to

be

createcj

i'otaL

Cx-EC$C

Nat

_"

currency

1979

France

Luxembourg

United

Kingdo

IreLand

12q9.

$eutsch

Land

Fr

an

ce

Luxeinbourg

United

Kingdo

ffsl

ileutschLand

Fran

ee

Ufi*

ted

I

re

t anci

FF

tux

F

Rh

ilfrl

7 rF

5+

Lux

31 h

11

Dl,t

FF

t-3ftto

318 C00

000 c00

6?B

200

53

100 90CI 000

594

000

994

000 15CI 0C0

51?

fiilO

6$il

500 5*

il*S

5 6,3

't J{+

2 C'lii

34

216 6?7

4r:)

1

326 Z

266 qg,gy,

76 I

68

1

154

6

111

4

87 e10

364

40

95 ?6

24A

317

5

tl?

b5

216

255

130

7 f*/"

8'13

6?Z

4"S7

68

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3e1

1 ??3

5 ',i39

7

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[image:10.591.66.535.32.796.2]

(11)

IJ,

_GLOBAL/

_SUB.LOAN

SYS]''

5.1 The

gtobaL/sub-toan

sysr.en was

introduced

as

part

of

the

conversion

loan

scheme

to

respond

to

r:!:

I

need

to

fostef

by

investment

the

valuabLe

and

unexpfoited

emptoymtnt

potentia(

of

smatt

and

medium

sized

business

concerns

.

_in

_the

_areas

_{affected by}

_the

_coat

and

steel

industry dec[ine. This object

is.

best

achieved through

a

locaI

financiat

intermediary

vhich

ui[[

promote the

propagatjon

of

the

toans,

assess

the appticants,

faciLitate

the

processing

of

the

apptication

through

administrative

channeLs

and

nonitor the

progress of

the

project

and

the

imptementatJon

of

the

empLoyment

requirments.

The

system

has

expanded

from

being

a

mere

3!l

of

total

Loans

to

477 in

1980 and

427. in

,1981

_and

_is

_tikety

_to

_continue

_to

_{ptay a}

_nrajor

_role

in

_conversion

efforts.

5.2 A

Ljst of

the

present

f

inanc.lat lntermediaries

is

attached

in

Annex

II;

severat

others

are being

considened

for

appointment

in

addition.

VI.

ASSESSMENT

^.1

In

reviewing

the resutts

of

the

conversion

[Oan

scheme'it

is

important

to

bear

in

nind

the

essentia[

etements

of

the

Conmissionts

operating

poticy

t\

staternent

"

in that

respect'

viz.:

- "it is

necessary

to

pronote

the

creation

of

an adequate

number

of

atternative

job

opportunities

in

areas

affected by

the

dectine

in

coaI

and

steeL

employment

and

in

which,

in

the

absence

of

neu

investments,

*orkers

uoutd

otherwise

remain

or

become

unemp t

oyed";

-

"the

maximum

amount

of

toan

eLigibLe

for

an

interest

rebate

is

20,000

EuA

per

job

_to

be created";

-

"the

undertakings

bene'fitting

from

Articte

56 [oans

shalt give

priority

in

their

recruitment

to

ex-ECSC

workbrs".

e"2

The

ECSC

Consultative

Committee

at its

meeting on

5 February,

1982 unanimous[y

adopted

a

resotution

expressing

its

concern

regarding

the

decLine

in

coaL

and

steeI

industry

activities

and

tfie

effect

on

anciLtary industries

and

the

atready

grave youth

unemployment

probtem, and

calting

on

thc

Commission

to.mekr

renewed

efforts

to

reEdnerate

the

tabour

market and

creatc

as

many

jobs

as

polsibte

thfough

the

conversion loan

scheme

coupted

wjth the other

Community

inst fuments having

similalr

ajms"

1)

0.,J.

No" C 178,

Pages

?.p

3 and

4 of

?T

iuily,

1977.

(12)

r

_1fi

r

6.3 These

aims

are

clearty reflected

in

the sociaI

clause

embodied

in

the

ionversion

loan

contract,

The

provisions

of'this

ctause,

which

may

be

found

in

Annex

VII,

defjne the

boarolrers'

ex-ECSc

empLoyment

obLigations

and

indicate

specific

uays and

means

of futfiLting them'

An

exampLe

of

the

"best

efforts"

required

in this

respect,

viz.

a

speci'men emptoyment

adve!-tise-.

nent,

may

be

seen

in

Annex

VIII.

6.4 An assessment

of

the

emp[oyment

nesutts

achieved

durinq the

1965-1976

period

reveats

that

over

5A

7 ol

the iobs

created

were

taken up by

ex-Ecsc workers.

The

overatt job creation

durinE

this

period

r+as

very

near

the

initial

estimate.

During

1977 and 1978,

the

ptanned

job

creation

of

the projects

for

r,rhich

toans

were

granted

and

uhich are

nou

largety

implemented,

is

atso

nearty

fuLly

reaLised,

uith

the

prospect

of

some

further

oains

possible.

A very

hiqh

rrercentage

t:70

Z)

of

these

jobs

were

fitLed

by

ex-Ecsc workers.

This

retativeLy

hiqh

performance,

hoxevet,

uas

mainly

due

to

the

fact

that

some

of

the

1977/78

loans

were

for

internat

conversion

projects

uithin

the

coal

and

steel

industry

;

in

other

Hords,

the jobs

creaied

u,ere

actually

fiLled

by

r,rorkers

made

redundant

in

other

activities of

the

same

coaI

and

steeI

company. tlo!{ever,

taking

1978n

the

most

recent

year

fon

r"rhich

figures

are

avaiiabIe

and

meaningfut,

if

one

disregards

the

inteanat

conversion

etenent, over

30 '(

of

the jobs

created

were

atready

taken

by

torkers

from

the

coa[

and

steel

industry

by

the

end

of

1981

.

As

regards

the

1979-1981

conversion

loans' the projects

are

not

as

yet

fully

impIementad

and

recruitment

is

not

comptete" Consequentty

it

_{',rouLd be}

premature

to

include

any

empIoyment

performance assessment

for

these

more

recent

years

_"

6.5 It is

to

be

recognized

in this

connection

that

Conmunity convension

poIicy

ains

at

the

fundinq

of

new

investments

as

a

prime

objective.

This

aim

is

ctearty

exoressed

by

the

uorking

of

Art"56"',iet, jcLrs

wiLl

onty be

created

by

the

fcunding

of

new

businesses and

th€

.implenentation

of

neu

invsstments

by

existino businesses"

The

faciIity

offered

urlder

the Treaty

is

that

of

the

soft

loan;

the

interest

reCucinq

eLement

o{

these

toans

shoutd

not

be'

(13)

.r!.

_{11 a}

6.6 tlhil.st the

rrriority for

ex-ECSC.uorkers

in

manninq

conversion

loan projects

nust obvious[y continue

to

be

the

primary

consideration,

sight

shoutd not

be

lost of

the

repercussive

effects

of

fcsc

dectine

on

ernployment

in

other

dependent

industries

and

thus

the

general toss

of

job opportunities,

especiatty

for

yotrng

peopte.

This

concern

HitI

strengthen

the

thrust

of

EcsC

loan

activities

touards

the

overatI

regeneration

of

the

tocal

tabou.

narket

in

ECSC

areas.

VI

I. FUTURE

PROSPFCTS

7.1 The

economic

crisis

being currentty'experienced by

the

Cotninuni

ty js

reducing

'

_industriat

_activity

_and

_{the opportunities}

_for

_profitable

_job-creating

investnent, both

in

ECSC

regions

and

etserhere.

The

restructuring

of

the

steeI industry

coupted

,ittt

ttte-universal

need

for

increased

productivity

witI

causefurther

substantiat

redtrndancies.

Cdnseguent[y,

the

possibitities

of

re-employinq

EC$C

norkers

have becone

tinited

and

the

search

fot

nes

p.ojects

has

grorn

nrore

difficutt,

€speeiatty

in

the

of

najor

projects vhich individuatty

create

a

tarqc

nutbel

of

jobs

at

one

time.

?.2

The

difficutt

short

and

medium-term

econon'ic

prospects

undertine

the

need

for

accentuated

operation

and

strengthening

of

the

convetsion

toan

scheme

especiat[y

lor

snratt

and

ner

businesses.

This

HitL require greater

emphasis

on

the

preparation

of

conversion

operations,

particutarly

on

the

basis

of

Art.46

of the

ECSC

Treaty

and

atsorin

appticabIe

casrs,

through

the

ERDF,

Presentty,

some

neH conversion

techniques qeared

to the

smatI business

are being

introduced:

workshop

'groupings

of

smat

t

bus'inesses

in

one bui

Lding,

usual

L;

former

steeL

premisses ;

nursery

factories-uorkshops

nith

centr.atised

common

facitities

geared

to

nehr

businesses

in their

formative stage

i

business and technotogy

centers

nurse'ry

factories for

high

techrrotogy

smatt businesses

ntth fult

access, through

computer

faciIities

and

by

heLp

from

Large

firms, to

modern

manaEement

and

manufacturing

know-how"

It is

hoped

that

these ventures

lritL

rnake

a usefut contribution

to

the

(14)

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