From Cohesion to Territorial Policy Integration (TPI): Exploring the Governance Challenges in the European Union

The European Union (EU) is searching for new approaches to manage problems that span different policy sectors. In the regional policy field, incompatibilities between the EU's territorial development objectives and its transport, agricultural, competition and environmental policies, are well known. The need to integrate territorial policy concerns into these sectoral policies (territorial policy integration or “TPI”) has recently emerged as a key policy priority. This article examines the EU's capacity to implement TPI. It does so in relation to two member states (Germany and the Netherlands) and the European Commission. It finds that the administrative implications of implementing TPI are far more demanding than any of these actors are currently able to handle. Moreover, some EU-level networks are potentially relevant to TPI, but these are mostly focused on regional policy matters (i.e. they are relatively inward looking). If these administrative issues are not taken more seriously, “integration” will struggle to make headway in an EU which is notoriously sectorized.     

Firm Performance,Innovation Modes and Territorial Embeddedness

This paper seeks to identify different innovation modes and their territorial embeddedness, relating them to firms’ innovative and economic performance. We also analyse the relationship between the different innovation modes and the economic impact of the crisis on firms’ performance. These relationships are tested by regression and latent class models for the Portuguese population of firms, using a sample of 397 firms classified according to technological intensity, size and region. Our results show three different innovation modes: a DUI (Doing, Using and Interacting) mode, an STI (Science, Technology and Innovation) mode and a TEI (Territorial Embeddedness Innovation) mode in which territory plays a key role. These innovative modes are related in different ways to firms’ economic and innovative performance and also have marked distinctions in terms of resilience to the economic crisis. These findings lead to a reflection on regional innovation policy in the European context.     

Towards New Paths for Regional and Territorial Development in Rural Areas

Abstract

The aim of this article is to shed some light on issues of territorial development and of rural development and to identify what links and opposes them. Indeed, everything pushes towards joining these two dimensions, which for a long time seemed disconnected. On the one hand, the policies targeting rural areas explicitly include the territorial dimension, while the distinction between rural and urban is getting blurred. In the meantime, decentralization, subsidiarity, the regionalization of agriculture, short circuits and local foods take place in parallel with the generalization of an urban model. Finally, we find that regional sciences are paying increasing attention to rural and agricultural dimensions, while studies concerning rural questions are starting to consider territorial issues. The first section of the article provides a critical presentation and attempts to define and distinguish the notions of development, territory and the rural. The second section addresses questions of regional and territorial development by presenting the main theories and public policies and concludes with a discussion about the possibilities of reconciling the theories and the policies. The third section follows the same structure, applied to the question of rural development, from analyses to grass-roots policies.     

Territorial Capital: Theory,Empirics and Critical Remarks

Territorial capital has gained considerable attention in the past few years. The aim with this work is to throw light on some underlying aspects of territorial capital research. The study focuses on the theoretical and empirical issues of territorial capital and highlights some critical remarks related to the topic. On the one hand, the focus of the study is on the comparison of concepts and approaches in connection with territorial capital; then an in-depth look is taken at “capital frameworks” related to the research field. On the other hand, a comprehensive overview is presented of empirical investigations by comparing the applied methods, dimensions and variables of territorial capital. An argument is also made for a critical assessment concerning the topic with regard to the sense and function of territorial capital in regional economics and local economic development and highlights some further dilemmas concerning the “properties of capital” and “territorial capital paradigm”. Finally, some suggestions are provided for the future of territorial capital analysis. The main result of the study is an own belief in the concept of territorial capital.     

European Spatial Planning Between Competitiveness and Territorial Cohesion: Shadows of Neo-liberalism

This paper analyses the use of the concept of territorial cohesion in policy documents produced by the European Union. It is an idea celebrated in community documents, such as cohesion reports, the Territorial Agenda of the European Union and the Green Paper on Territorial Cohesion; after more than a decade of political debate, the concept is about to gain a legitimate institutional role, after being included in the Lisbon Treaty, and is among the competences that the EU shares with other member states. At first, territorial cohesion seems to oppose the logics of neo-liberalism by reinscribing welfare problems and policies in spatial terms. However, using the analytical framework of cultural critics, and intending cohesion to be a discourse carried on by a community of European scholars and policymakers, the research will discuss the conceptual relationship between competitiveness and territorial cohesion in European policies and narratives.     

The Engagement of Territorial Knowledge Communities with European Spatial Planning and the Territorial Cohesion Debate: A Baltic Perspective

Abstract

Recent, dramatic spatial development trends have contributed to the consolidation of a unique territorial governance landscape in the Baltic States. The paper examines the transformation of this evolving institutional landscape for planning practice and knowledge, which has been marked by the disintegration of Soviet institutions and networks, the transition to a market-based economy and the process of accession to the EU. It explores the evolution of territorial knowledge channels in the Baltic States, and the extent and nature of the engagement of actors' communities with the main knowledge arenas and resources of European spatial planning (ESP). The paper concludes that recent shifts in the evolution of these channels suggest the engagement of ESP has concentrated among epistemic communities at State and trans-national levels of territorial governance. The limited policy coordination across a broader spectrum of diverse actors is compounded by institutionally weak and fragmented professional communities of practice, fragmented government structures and marginalized advocacy coalitions.     

The Rise of Territorial Governance in European Policy

The notion of territorial governance has relatively recently emerged onto the European policy agenda, and often used in relation to the concept of territorial cohesion. To date, the notion has been understood and conceptualized in various ways and has been defined rather loosely when invoked. This paper examines how the notion is used and understood in European policy debates. It questions whether the notion is different to general concepts of governance and multi-level governance. Three specific characteristics are suggested that might distinguish territorial governance from other types of governance: (i) managing territorial dynamics, (ii) assessing territorial impacts and (iii) delineating policy boundaries.     

European Union Competition Policy and the European Territorial Cohesion Agenda: An Impossible Reconciliation? State Aid Rules and Public Service Liberalization through the European Spatial Planning Lens

The territorial and spatial planning impacts of European Union (EU) economic and competition policies have remained under-researched in the field of European spatial planning, in contrast to other EU policy fields. This briefing explores how two elements of the EU competition policy, the regulation of “state aid” and the liberalization of “services of general interest (SGI)”, have significant implications for the pursuit of the objective of territorial cohesion through spatial planning and territorial development policies at different scales. The paper first reviews the development of the concept of territorial cohesion in the EU discourse and policy agenda since the mid-1990s, as well as the contribution of public services (Services of General Interest, or SGI in EU jargon) to it. It, then, reviews how the EU state aid rules and liberalization policies affect the state's ability to intervene (i) in support of sub-national territories which are lagging behind or suffering decline, and (ii) in the provision of public services across the national territory, specifically in peripheral regions or areas where the provision is not catered for by the market. The conclusion of the paper outlines the additional challenges to the pursuit of territorial cohesion in the EU posed by the post-2008 economic crisis and suggests avenues for future research.     

Sectoral Versus Territorial Regional Planning and Development in Norway

New regional policies in Norway and many other countries try to empower their regions through creating a balance between central governing with emphasis on redistribution of activities and resources, and local mobilization with emphasis on self reliance, innovation and learning by doing. In Norway municipalities and counties have for a long period had this double function, but we now see that the vertical policy of implementing national welfare policy has grown and become dominant. As a consequence, the horizontal policy of social mobilization has been neglected, and has to some extent been taken over by inter-municipal and interregional organizations. Normally, these organizations are in practice organized as regional development agencies. They seem to be vulnerable political institutions that seek legitimacy from--and need acceptance and support from--both territorial and sectoral governments. The regional planning process is regarded as an important tool in their political institution building process. In this paper I want to explain how regional planning and institution building in Norway in practice have moved towards a two-parallel system.     

Planning Sustainability: Intergenerational and Intragenerational Justice in Spatial Planning Strategies

Abstract: Subsequent to the Brundtland Report (World Commission on Environment and Development 1987, Our Common Future), sustainability has been set up in many countries as a mission statement of cross‐sectoral policies. Sustainable development carries the normative notions of equity, empowerment and environmentally sensitive economic development. Thus, it seems to suggest a fundamentally different vision to neoliberal dogma, which is at the same time described as dominating all socio‐political processes. This paper intends to explore the relation between these two discursive framings of contemporary policies through the example of German spatial planning guidelines. More precisely, it addresses social justice as one pillar of sustainability and how it is operationalised in spatial planning policies in Germany. This may exemplify how the seemingly opposing discourses interact in policy practices. The empirical analysis suggests that the ways in which the German spatial planning report focused on social space in territorial terms promotes an economistic and truncated view of social justice, one which fosters the neoliberal idea of regional competition for global capital and reduces socio‐spatial justice to territorially equally distributed economic inclusion.     

New Spatial Patterns and Territorial–Administrative Structures in the European Union: Reflections on Eastern Europe

Abstract

Spatial patterns and territorial–administrative structures in Eastern Europe are a mix of historical?territorial path-dependencies influenced by the current path-creating policies. Since the early 2000s, the European Union (EU) policies, practices and challenges have concerned also Eastern Europe. This article discusses spatial patterns and territorial–administrative structures in theory, illustrates their practices and presents scenarios for their future in the EU contexts. The Europeanization of spatial policy and planning and the territorial–administrative structure harmonization are the key current trends. The transposition and implementation of the EU spatial policy mechanisms and practices in Eastern Europe are influenced by contextual path-dependent legacies and the uncertain long-term future of the EU. Conditionality as governmentality and relational regions open new perspectives to territorial dynamics in the EU and Eastern Europe.     

Containment and territorial transnational actors: Israel,Hezbollah and Hamas

Containment has been salient in intellectual and policy debates for 60 years. It informed US foreign policy towards the USSR and, later, the so‐called rogue states. The endurance of containment beyond the Cold War suggests that it possesses the quality of transferability, the capacity of a grand strategy from the past to transcend the circumstances that gave rise to it, to suggest what should be emulated and what avoided in future policies. Drawing on the notion of transferability and on the method of structured, focused comparison, this article uses Israel's foreign policy towards Hezbollah and Hamas to argue that containment is transferable from the state level to a state/territorial transnational actor (TNA) relationship, albeit with permutations. This argument is examined in relation to four issues: the circumstances under which containment arises; its applicability to territorial TNA; the objectives sought by implementing containment; and the role of legitimacy as a component of containment. In so doing the article seeks to make a contribution to the debate on containment. While there is a rich literature on state containment, research on containing territorial TNA has been extremely limited.     

Introduction: cultural policies in Ibero-America at the beginning of the XXI century

ABSTRACT

This editorial introduction presents the aims and contents of a special issue devoted to cultural policies in Ibero-America. The issue provides a wide-ranging overview about the subject. In addition to papers focused on the development of cultural policy in specific countries, it also includes articles analyzing particular cultural policies in a transnational perspective, paying attention to their multiple programmatic transferences. It also includes articles centred on the development of cultural diplomacy and institutional networks within this area. In this way, it intends to highlight the commonalities among countries and the relations between them, so offering a new and deeper vision of the development of cultural policies in the Ibero American region. In this introduction we offer some theoretical keys for analyzing this development, in particular the notion of family of nations proposed by Castle (1993) and we evaluate its applicability to the case and beyond.     

Towards a Framework for Cooperation: Spatial Public Diplomacy on the Island of Ireland

Abstract

European spatial planning arguments advocate a blend of strategic thinking, coordination and related initiatives to promote and secure territorial cohesion. These ambitions embrace a set of normative agendas around economic, social and environmental convergence, competitiveness, policy coordination and efficient infrastructure provision across space. In practice, territorial management then involves devising interventions across inter-connecting scales of governance which comprise complex agency relations, differentiated places and defined communities. In transnational contexts, attempts to foster appropriate spatial governance arrangements and relations across sovereign borders necessitate re-crafting planning and development cultures and service delivery practices to advance territorial cohesion. Transnational working necessarily involves cooperation across an extended range of institutions, interests, influences and potential actors. This paper examines attempts to secure bi-lateral commitment to a joint planning framework for the two distinct territories on the island of Ireland. Specifically, it traces the formal and informal activities involved in the development of the 2013 Framework for Cooperation between the Republic of Ireland and Northern Ireland. Informed by ideas of cross-border regionalism, it discusses the necessary spatial public diplomacy involved in the social reconstruction of strategic spatial planning to improve policy coordination and cross-border working.     

The Role of Territorial Capital in Local Economic Growth: Evidence from Italy

Territorial capital is defined as the system of territorial assets of economic, cultural, social and environmental nature that ensures the development potential of places. The potential of this concept resides in the recognition of possible interactions between factors of different nature. So far, however, very few studies have focused on the empirical verification of the links between territorial capital and economic growth. This work is devoted to the analysis of the relationship between economic growth and territorial capital in Italian NUTS3 regions between 1999 and 2008. The distribution of territorial assets across regions points out the huge gap between Italian macro-areas. These divergences do not clearly reproduce the differentials in GDP growth. The second part of the analysis is focused on the joint effect of the territorial capital components on the regional economic performance. Our findings emphasize the role of some endogenous factors in explaining the differentiation of regional growth patterns. Moreover, they point out the importance of soft assets in correspondence of an external shock, as the one represented by the recent financial crisis.     

Governing Regional Development Through Culture and Creativity: The Case of the Veneto Region

This article has adopted a focus on culture and creativity in order to reflect on existing policies for the governance of large polycentric territories. Two trends, namely the increasing importance of regions in the urban planning field of study and culture as a strategic factor for territorial development, are combined to see how culture can be used as a strategic element within processes of regional development. Culture-led strategies are found to be instrumental to regional development, especially in territories undergoing a moment of inertia. The case of the Veneto Region shows that this momentum has now evidently also arrived in Italy. At a time in which the whole country is experiencing economic crisis, the Veneto region seems to be trapped in a transition stage between its successful past and the uncertainty of these days. While the Regione del Veneto is only somewhat trying to include culture and creativity in its official regional planning documents, some bottom-up initiatives have highlighted culture as a strategic factor for governing large territories and for their all-embracing development. In this context, culture and creativity can be seen as tools for governing territories that do not follow the policy orientation given by Regione del Veneto, but rather have a new understanding of regional governance taken forward by the private sector working together with the local administrations.     

Spatial Units for EU Territorial Governance: Findings From a Study on North-Western Italy

This article explores the possibility of identifying spatial units that are more suitable to manage the European Union territorial governance process than the traditional administrative districts or crude statistical partitions. To this purpose, the article presents a study on North-Western Italy, which the author has developed recently in the framework of a research project promoted by the Italian Ministry of Infrastructures to prepare a spatial vision for the Italian National Strategic Reference Framework under the EU cohesion policy 2007–2013. While updating the reader on the Italian approach to EU cohesion policy and on developments in this area, the article particularly draws the attention of European planners to the concept of “Interdependent Territorial Systems” as spatial units contributing to combine the relevant dimensions of EU territorial governance in a proactive planning process.     

Behind the Ties that Bind: Diaspora-making and Nation-building in China and India in Historical Perspective, 1850s-2010s

Whereas the rare existing comparative studies of Chinese and Indian diaspora policies have focused on recent periods following economic restructuring in both countries, this article, using a historical perspective, looks at diaspora policies in both countries from the angle of conceptions of the nation. Comparing three specific periods – the early twentieth century, the period between the 1950s and the 1970s, and the period since the 1970s – the article argues that there was a similarity between China and India in terms of how conceptions of the nation expanded and contracted together with both domestic and international changes during these periods, in spite of differences in nationality laws. As such, it demonstrates that countries with nationality laws based on jus sanguinis are not necessarily always more inclusive towards diaspora populations than those with nationality laws based on jus soli. In both cases, there is a tension at work between a state-led paradigm that is territorial in nature and ethnic and cultural notions of nationhood.     

Coalition-building in Portuguese Spatial Planning: Is There a Southern European Context?

This paper aims to discuss institutional capacity building in spatial planning focussing on two experiences of public policy in Portugal involving institutional cooperation. These experiences reveal the importance of factors associated with the roles of the central state and local political leadership in the way integrated tools of urban and territorial policy are implemented. They also show that the capacity to mobilize local agents is mitigated by the deep-rooted presence of highly personalized institutional ties, reflecting a relational model that is particularly characteristic of Portuguese society. We will conclude that territorial policies may be jeopardized when these policies are centred mainly upon the mobilization of local agents. In fact, these two case-studies, as well as similar experiences in Italy, suggest that, in southern Europe, two other aspects are central for the definition of territorial policies on the inter-municipal and local scales: the influence of the state, and the role of political leadership at local level.     

Globalising Economic Governance,Political Projects,and Spatial Imaginaries: Insights from Four Australasian1 Cities

This paper explores how territorial economic governance is discursively constituted in a globalising and neoliberalising world. It acknowledges both the increasingly recognised formative role of spatial imaginaries in economic interventions and the workings of co‐constitutive political projects that link particular imaginaries with political ambitions and policy strategies. Embracing recent calls for comparative ethnographic urban research at the local‐global interface, it explores currently dominant spatial imaginaries across the four Australasian cities of Auckland, Sydney, Melbourne, and Perth. Based on multiple qualitative methods, this study claims that a considerable number of actor's spatial associations and reference points can be related to particular city‐specific governmental projects; Auckland's Super‐City, Sydney's Global and Green City, Melbourne's Liveable City, and Perth's Vibrant City. It is demonstrated how discursive governance techniques such as ‘story‐telling’, benchmarking, and policy transfer have been pivotal in the activation, circulation, and performance of those spatial imaginaries and their transformation into temporarily dominant visions for strategic urban interventions aimed at repositioning urban actors, spaces, and activities. While spatial imaginaries can be related to differently framed global aspirations, the effects of spatial political projects on urban governance and investment trajectories differ significantly across space. Theoretically, the paper stresses the importance of particular conceptions of territorial relations and time‐ and place‐specific institutional mediation in shaping context‐dependent discursive material governance alignments.