Planning Small Regions in a Larger Europe: Spatial Planning as a Learning Process for Sustainable Local Development

An enlarged Europe is addressing the challenge of territorial cohesion on the basis of a disciplinary and operative framework formed by a number of evolving documents and provisions to be applied and developed at different administrative and planning levels. Rapid and profound changes have occurred in previous decades as far as institutional framework, the role of actors and issues to be tackled are concerned, within a re-scaling process of territorial governance. In this context, small territories can take advantage of European funds, but experience a hard confrontation with the market economy and supra-local visions, use of resources and infrastructure projects. A decisive role, in many countries, has been gained by regional authorities, which must mediate among various territorial levels, institutions and actors involved in a multilevel governance process. The paper focuses on spatial and regional/territorial planning processes among the European dimension, Member States and regions, on the basis of a case study conducted in Northern Italy. The aim is to determine the role of European spatial planning as a “learning machine” [Faludi, A. (2008) European Territorial Cooperation and Learning, disP 172, (1/2008), pp. 3–10.] able to support processes of mutual learning and cooperation, overcoming the attitude of compliance to upper level schemes and financial programmes rather than innovating usual procedures and territorial planning.     

The cross-border reterritorialization concept revisited: the territorialist approach applied to the case of Cerdanya on the French-Spanish border

The aim of this paper is to bring new elements into the theoretical discussion so as to better understand the realities of borderlands. Our goal involves projecting a new conceptualization of the cross-border territory and cross-border reterritorialization by refining the analytical framework envisioned by the current literature on border studies. More specifically, we apply the so-called ‘territorialist approach’, an innovative and culturally oriented approach for territorial studies that is rooted in the Italian geographical school. Cross-border territories are conceived as complex territorial units, whereby geographical, socioeconomic and cultural patterns are affected and thus altered by the fixation of international boundaries and territorialization. Nevertheless, the persistence of local cross-border networks, both formal and informal, contributes to the maintenance of a shared local milieu. The European integration processes, especially in view of the European Territorial Cooperation programmes, represent an important framework for supporting local cross-border cooperation and boosting new territorial strategies for borderlands. From this perspective, we hypothesize that new cycles of local cross-border reterritorialization can be observed along the EU borderlands by creating new forms of cross-border territorial capital. The case study of Cerdanya (French-Spanish border) illustrates the application of the theoretical framework by analysing the enduring experiences of cross-border cooperation.     

Rethinking the Spatiality of Spatial Planning: Methodological Territorialism and Metageographies

This paper argues for increased attention to the role of territory and territoriality in framing sociospatial discourses in the context of spatial plan making. In particular, it is suggested that the engagement of political actors with processes of spatial planning tends to be framed within particular spatial imaginaries which reflect established political-administrative and territorial boundaries. It is contended that a critical analysis of the territorial framing of processes of spatial planning is necessary in order to understand the capacity for spatial strategies to effectively challenge and reconfigure established sociospatial imaginaries in functional or relational terms. It is suggested that spatially explicit public policy statements, such as planning strategies, may be characterized by specific assumptions of territorial space, in a similar manner to which mainstream social science has contained implicit assumptions of state-centrism. The salience of territorial spatial imaginaries is demonstrated in the case of European spatial planning and through a local case study of city-regional spatial planning and politics in the Greater Dublin Area.     

Policy governance from an autopoietic perspective: revisiting Hungary’s regionalization experience

This perspective on Hungary’s post-socialist regional policy governance is informed by an approach that relates region-building and regional governance to social autopoiesis and the self-referential and self-(re)producing nature of social systems such as states. Following debates in regional studies that reflect tensions between the local constitution and external determination of regional governance, we will demonstrate how Hungary has incorporated European Union (EU) policy frameworks through specific appropriations of territorial politics and regional ideas. These appropriations reflect Hungary’s post-socialist transformation not only in terms of responses to global forces, but also as specific spatial practices and regionalization experiences. As we argue, this has in effect resulted in a regionalism without regions – a strategy of Europeanizing territorial politics without creating institutional structures that directly challenge existing power relations. Autopoiesis thus helps explain the resilience of social systems, not only their resistance to institutional change but also their capability to ‘domesticate’ external influences. While criticisms of Hungary’s technocratic and post-political regionalization projects cannot be ignored, our analysis indicates why externally driven intervention in self-organizing governance processes, for example through EU conditionality, has had less impact than expected.     

The Importance of Context and Comparison in the Study of European Spatial Planning

The European Spatial Development Perspective (ESDP) was agreed in 1999 at Potsdam, Germany, as a non-binding framework intended to guide spatially significant policy-making at different spatial scales in order to achieve a more balanced and sustainable growth of the EU territory. This paper develops a conceptualization of the nature of transnational planning frameworks such as the ESDP and presents a framework for the investigation of the application of their policy orientations in the spatial planning systems of European states. It is argued that investigations of the application of transnational spatial development frameworks like the ESDP and the ‘Territorial Agenda of the European Union’ document adopted by EU member states in 2007, need to be sensitized to the diversity of territorial contexts in which these apply, and that a contextualized and comparative approach is therefore essential in evaluating their influence in Europe's varied territories.     

From smart growth to European spatial planning: a new paradigm for EU cohesion policy post-2020

Formally initiated in 1989, European Union (EU) cohesion policy (ECP) has since passed through a series of metamorphoses, along its five programming periods, while becoming the most financed EU policy. As its name indicates, its initial goals were earmarked for promoting economic and social cohesion, following the intentions expressed in the Single European Act. Since then, from a policy strategy intervention point of view, ECP has shifted into a financial tool to promote investment for growth and jobs. In the meantime, European spatial planning (ESP), which had its debating pinnacle with the release of the European Spatial Development Perspective, by 1999, has declined in interest and narrowed into a novel notion of Territorial Cohesion. In this challenging context, this article analyses the implementation and main impacts of ECP and proposes a new strategic paradigm, built around a novel ‘ESP’ vision, backed by the main pillars and dimensions of territorial development and cohesion. More particularly, we suggest that the current rationale for a smart, sustainable and inclusive growth could instead fuel an alternative strategic design based on a cohesive and sustainable development vision: green economy, balanced territory, good governance and social cohesion.     

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.     

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.     

Values in a vacuum? Towards an integrated multi‐level analysis of the governance of European space

This article calls for a new analytical approach to address how the emergence of a new European spatial policy field conditions policy‐making and implementation across Europe. This is now urgent because as the new policy field takes shape, its core ideas and values are being contested across different scales, sectors and territories of governance, creating new debates and arenas where understandings of space, place and connectivity, and relations between environment, society and economy, are being recast in a European light. In the full flow of generating a new policy field, we still seem to know little about what is being put at stake, or specifically how this is occurring. A value‐driven critical response from the research community is therefore needed, informed by research activity reaching across many dimensions of governance and policy‐making. The point of developing such an approach is not to discount previous research, but to explore how to generate synthetic and critical insights from different disciplinary and conceptual approaches within an integrated analytical framework. After this discussion, we conclude by proposing that IMAGES (Integrated Multi‐level Analysis of the Governance of European Space) can provide such a framework for analysing the emerging policy field of European spatial polices by constructing narratives of how spatial policy ideas and concepts turn into programming space, and how different territories interrelate with these policy concepts, and at the same time contribute to shaping them. This viewpoint and framework are predicated on the authors' belief that values behind the concepts remain hidden at present, both in policy processes and related research. Spatial policies seem to happen in a vacuum of values. By putting spatial justice as a value into this vacuum and by exploring the multi‐level governance of European space within an integrative analytical framework, the further development and application of the IMAGES framework can fulfil the need to contest the idea of objective policy‐making and analysis in European spatial policy.     

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.     

Global crisis and the systems of spatial governance and planning: a European comparison

Inadequate regulation of spatial development is at the origin of the current global crisis and increases, in years of crisis, the unequal distribution of wealth. The importance of the related risks for democracy draw attention to the systems of spatial governance and planning, through which States regulate spatial development. In Europe, the countries most affected by the unequal effects of the crisis have spatial planning systems that are traditionally based on the preventive assignation of rights for land use and development through a plan. The systems of other countries had established beforehand that new rights for land use and for spatial development are rather assigned only after the public control of development projects and their distributional effects. Despite the evidence that some models can operate better than others in ensuring public government of spatial development, the improvement of spatial planning systems is, however, limited by their complex nature of ‘institutional technologies’. Especially in a context of crisis, planners are responsible for the increase in public awareness concerning the role of spatial governance in economic and social life.     

European developments in strategic spatial planning

Strategic spatial planning which takes an integrated approach to the development of a territory seemed to go out of fashion, but now there are signs that it is being re‐established. This paper explores these developments using case studies from 10 European countries. The analysis uses an ‘institutionalist’ approach, which examines how the ‘agency’ of spatial planning practices responds to the ‘structure’ of contextual forces, at the same time influencing that structure. The ‘driving forces’ which are influencing strategic spatial planning are investigated, as are two aspects of the changes in spatial planning: institutional relations and policy agendas. The conclusions are that—at least in the case studies—there is a movement in the institutional relations towards horizontal articulation, territorial logic, and negotiative forms. Policy agendas too are changing, becoming more selective and using new conceptions of space and place. Those institutional developments, however, are not necessarily being translated into territorially‐integrated policy (as distinct from functional/sectoral policy). That translation appears to require simultaneous re‐framing of relational resources (trust, social capital), knowledge resources (intellectual capital), linked to strong mobilization efforts (political capital). The cases considered varied significantly in how far that had been done. Where it had, strategic spatial plan‐making practices were playing a key role in developing institutional territorial integration and re‐invigorating territorial identities.     

The neo-liberalization of strategic spatial planning and the overproduction of development in Celtic Tiger Ireland

This paper argues that the role of the planning system in the overproduction of development during Ireland’s Celtic Tiger needs to be analysed as instructive of contemporary neo-liberal transformations of strategic spatial planning. Leaning on a Foucauldian governmentality perspective, the genealogy of modern Irish planning practice is explored to elucidate how neo-liberal rationalities became embedded in institutional norms through consensus-driven partnership governance. The central premise is that the turn to ‘strategic spatial planning’, particularly with the publication of the National Spatial Strategy in 2002, was usefully exploited to mask the spatial politics of the ever-increasing need for the state to facilitate capital switching into built environment formation in order to maintain conditions of high economic growth. Using the empirical case study of housing development in the ‘Upper Shannon’ region and large-scale commercial development in County Meath, it is argued that this contributed to a destabilization of the planning system and an abandonment of basic planning principles. The paper concludes that, in the context of the new and deeply uneven economic geography of post-crisis Ireland, there is an urgent need for a repoliticized critique of normative interpretations of strategic spatial planning practice in order for more progressive practices to emerge.     

European Integration and Spatial Rescaling in the Baltic Region: Soft Spaces,Soft Planning and Soft Security

Abstract

Spatial rescaling arguably represents one of the most significant recent changes in planning. Rescaling processes do not merely imply changes in powers across existing layers of decision-making, but also entail new scales of intervention, new actor constellations and new geometries of governance. A wide range of examples of spatial rescaling can be seen across Europe, varying from local through to regional and international. The emergence of “soft spaces”—regions in which strategy is made between or alongside formal institutions and processes—is one of the phenomena associated with contemporary spatial rescaling. These spaces are often overlapping and characterized by fuzzy geographical boundaries. The formation of soft spaces is often articulated in terms of breaking away from the rigidities associated with the practices and expectations of working within existing political or administrative boundaries but can also be viewed as providing a means of bypassing formal procedures and reducing democratic accountability. Focusing on European territorial cooperation and development strategies in the Baltic region, this paper discusses how they are contributing to spatial rescaling in soft spaces and how the strategies can be seen as a form of soft planning and as a means to promote soft security policy (which could be considered as a wider form of foreign policy).     

Borders,planning and policy transfer: historical transformation of development discourses in the Finnish Torne Valley

European Union spatial policies have become a key institutional context in which to study policy transfer processes in European border areas. These policies are, however, only the most recent part of these transformation processes which raises a need for more historically sensitive approaches. An historical perspective is important, since border regions are historical processes with particular path-dependent development trajectories and power structures. This paper aims to contribute to the discussion concerning the transformation of European border regions by looking at the policy transfer of regional development discourses in the Finnish Torne Valley. The study material consists of strategic development documents produced by the Finnish border municipalities and the municipal-based co-operation organizations from the 1930s to 2013. The examination, based on critical discourse analysis, shows that the transformation process is driven by national trends and the dominant planning discourse. Nevertheless, the particular border setting and local discourse on ‘united Torne Valley’ have also intertwined with political and economic processes during different time periods.     

Designing Constitutions in Britain’s Mid-Nineteenth Century Empire – Indigenous Territorial Government in New Zealand and Retrieving Constitutional Histories

Focusing on the striking instance of colonial New Zealand, this article examines constitutional design for colonies of European settlement, arguing about such design in two key respects. First, this article examines the proposals of so-called ‘colonial reformers’ endeavouring to influence constitutional framing, including how their notions on ‘local self-government’ or ‘municipal government’ were reflected or not, while also illuminating their concepts of how to accommodate indigenous territorial governance and indirect administration of indigenous territories in the late 1840s and early 1850s. Second, recovering traces of these disputes and ways of thought from the archives, and how they were operationalised in grounded constitutional drafting or design, rather than resorting to analysing abstract canonical, high-level texts, such as those of Henry Maine and John Stuart Mill, is ultimately more rewarding for evaluating constitutional emergence and design. It reveals tensions within ‘colonial liberalism’, as characterised by Edward Gibbon Wakefield. How putative settler interests informed these metropolitan-Westminster constitutional enactments or not, assessed through cabinet-level discussions, in Colonial Office deliberations on settler agitation, illustrates missteps and failures as well as the particular ways in which diverse features of imperial constitutional design emerged. Examining these points is timely given Linda Colley’s focus on a ‘contagion of constitutions’ in the late eighteenth and early to mid-nineteenth centuries.     

Flexible urban governance. The case of Copenhagen's recent waterfront development

In this paper, the most recent wave of Copenhagen's waterfront development is analyzed and interpreted in the context of broader economic tendencies and political strategies. Recent events illuminate relationships among politicians, bureaucrats and capital to regulate an accumulation process that is highly intertwined with international, national as well as urban interests. Beginning in the late 1980s, the national state, the local state and the port authority, undertook a number of planning and policy initiatives to create a process for transforming Copenhagen's waterfront. When contradictions from the logic of profit maximization became apparent and threatened to de‐rail long term economic growth, a new ad hoc and ‘flexible’ process of urban governance was established to get development back on track. Senior politicians created a so‐called ‘Vision Group’ that functioned as a ‘meta‐steering’ committee providing direction to local development by identifying a development approach that attempted to resolve, at least temporarily, tensions among global market tendencies and the interests of the main actors. In this way, the Vision Group achieved its political purpose to create a shared vision and a discourse for the development of the waterfront. The new strategy was effective at various scales of governance, but circumvented local planning practices.     

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.     

Beyond the blind spot of knowledge-based territorial development: the mission of Metropolitan Food Clusters

The rise of knowledge-based territorial development has been fuelled primarily by aspirations of competitiveness and wealth creation. Another upcoming ambition is that of sustainability, not only as an accompanying goal but as a core mission driving territorial initiatives such as clusters development. This paper explores mission-driven territorial development along theoretical and empirical lines. The paper starts by discussing a basic heuristic model intersecting the three concepts of ‘mission’, ‘knowledge’ (distinguishing ‘substantive’ and ‘significant’ knowledge) and ‘governance’. This leads to an analytical framework for territorial development focusing on (1) mission formulation, (2) production and exchange of knowledge in supportive milieus, (3) embedding of substantive knowledge, (4) anchoring of significant knowledge, and (5) feeding of significant knowledge into the (re) design of institutions and strategies of policy design and implementation. This framework is applied to three cases of ‘Metropolitan Food Clusters’ to illustrate and test the framework. The paper shows how especially the continuous anchoring of significant knowledge poses major challenges to knowledge-based territorial development and should be a central issue in future research and policy.     

Below the Belt? Territory and Development in China's International Rise

China's internationalization has been heralded by some as a new era of South–South cooperation. Yet such framings of development are pitched at an abstract space of the ‘global South’ which conceals more than it reveals. With some theory moving towards ontologies of ‘global development’, we need to capture both the connectedness and the local specificity of increasingly diffuse processes. This article sets out a more fine‐grained understanding of how political territories and processes are imagined and produced by and through China's internationalization, focusing on infrastructure as a ‘technology’ of territorialization. Much of the focus on China's internationalization has been on state‐to‐state relations, but this obscures the ‘omni‐channel politics’ that China practises. Using a critical literature review and illustrative case study, this article develops the idea of omni‐channel politics to posit a view of ‘twisted’ territories in which political processes and development outcomes are more complex and contingent.