Is Europe 2020 Set to Fail? The Cultural Political Economy of the EU Grand Strategies

The European Union (EU) has been continuously rethinking its global position amidst emerging economic and geopolitical challenges and attempting to formulate strategies to increase its competitiveness. However, its long-standing policy implementation deficit is also recognized for its grand strategies, including the initially ambitious Lisbon Strategy. Is Europe 2020 set to fail as well? In this paper, we are arguing that strategic steering is essentially a discursive practice influenced by both semiotic and extra-semiotic factors. Hence, success or failure of a strategy essentially depends on ability to steer the discourse. Niklas Luhmann's social systems theory offers a theoretical framework against which limitations and potentials of strategic steering at the EU level can be analysed. While high levels of rationality and reflection capacities can improve strategic steering, it is limited by the increasing complexity. Recognizing limitations of direct and centralized interventions, we look for analytical and strategic solutions in sophisticated mechanisms of contextual steering: variation, selection and retention of strategic discourses. These mechanisms are integral to the “cultural political economy” approach. In the final part of the paper, we show how cultural political economy can explain the implementation shortcomings of the EU strategies.     

Territorial Cohesion of Tomorrow: A Path to Cooperation or Competition?

Explicit reference was made to “Territorial Cohesion” in the draft Constitution for Europe. The concept has recently been celebrated by many stakeholders of territorial development policies, including the European community of planners. Territorial Cohesion does not seem to have received any official definition, but it is clearly meant to aim at some sort of “spatial justice” while promoting integration between EU sector policies that have a territorial impact. Seemingly a consensual principle: who in Europe would object to a better coherence between various EU policies and the provision of reasonably equal standards of living to all EU citizens, regardless of their area of settlement? Yet a close examination of the current political debate suggests that very divergent views are being expressed as to what Territorial Cohesion exactly entails in practical terms. Two main different policy approaches seem to emerge in this debate. The first approach tends to equate Territorial Cohesion to a range of positive discrimination steps in favour of various penalised areas. Interest groups, in particular lobbies for specific regions, have proved influential in propagating this conception. In the area of regional policy, this approach embodies the neo-corporatist, depoliticised line of the contemporary political culture. It is primarily inspired by financial considerations and a competitive zero-sum game scenario: regions of a specific category should increase their share of the EU funding at the expense of the others. The opposite approach places much more emphasis on the need for integrated territorial planning strategies and the integration of EU policies. Its proponents are the heirs of the post-war urban and regional planning tradition. They strive to revive the politicised and rationalist ideology of the Enlightenment, based on the notion of public interest. They raise awareness about the steadily growing interdependence between regions and cities of Europe and advocate a cooperative approach focusing on issues of transnational relevance and win-win situations. This rather idealistic cooperative approach seems to be less influential than its rival, and currently confined to a relatively small group of planning professionals. The question remains: which of the two models—interregional competition or cooperation—will finally succeed in shaping the EU cohesion policy?     

Planning Culture—A Concept to Explain the Evolution of Planning Policies and Processes in Europe?

Abstract

This article examines the complex relations between spatial planning and its cultural context (including the specific socio-economic patterns and related cultural norms, values, traditions and attitudes). To be able to analyze the extent to which spatial planning adapts to external pressures such as Europeanization, a “culturized planning model” with the three dimensions “planning artefacts”, “planning environment” and “societal environment” is used. It can be observed that the “harmonization” of spatial planning practices can result from external pressures such as EU regulations as well as (horizontal) collective learning processes. However, “harmonization” does not necessarily result in convergence. Adaptational pressures such as Europeanization often result in the customization of existing structures, frames and policies (“planning artefacts” and “planning environment”) but do not fundamentally change the underlying core cultural traits (“societal environment”). These cultural traits are quite resistant to change and help maintain a diversity of planning cultures and policies in Europe.     

Regional paths towards Europe 2020 targets: a spatial approach

Europe 2020 is a 10-year EU strategy, promoting smart, sustainable and inclusive growth. Despite ambitious goals, its spatially blinded approach might seriously threaten its success. Actually, large territorial disparities still affect the EU, being the basis for a strong EU-wide cohesion policy and suggesting a general re-framing of sectoral policies on a regional basis. In this respect, the paper tackles the issue of regional disparities in achieving Europe 2020 Strategy targets. As the Strategy involves different targets, principal component analysis is applied to disentangle Europe 2020 domains and to describe major differences in EU-27 NUTS 2 regional performances. In particular, two components are returned: high-employment inclusive growth and smart growth. Territorial patterns of both components are analysed, by jointly considering some geographical features that may affect them. Both a rural and a spatial effect occur: rural and remote regions show poor performances whilst the presence of spatial autocorrelation may actually lock-in negative outcomes. When considering urban rural divides, also within-regions disparities matter. Results strengthen the idea that Europe 2020, as other sectoral policies, should be translated into a regional setting according to a place-based approach: although requiring large efforts, this represents the only way to fully achieve its own targets.     

Urban and Rural Definitions in Regional Context: A Case Study on Turkey

Transformations in the urban and rural areas under the effects of global economic, social and political circumstances have rendered their boundaries more blurring. It has become increasingly difficult to make a clear distinction between urban and rural. This paper intends to bring definitions of urban–rural into discussion in the context of Turkey. It reveals the results of a research project (conducted by Hürriyet G. Ö?dül with Serkan Öngel and Habip Uluçay from Mimar Sinan Fine Arts University, Istanbul, Turkey, in 2007 and financed by the Scientific and Technical Research Council of Turkey and Mimar Sinan Fine Arts University Research Fund), aiming at revealing the degrees of the urbanity and rurality throughout the country, with an emphasis on the diversification of regions in the urban–rural context. The study is conducted at the NUTS 4 level. Districts are classified as “dominantly rural, dominantly urban and transitional” through the factor analysis based on six structures: agricultural production, non-agricultural production, employment, demography, education and flows of money, goods and people. The urban–rural profile of the country is found as rural and transitional. It is possible to observe some areas displaying deep rural characters in well-developed western regions and some “prosperity spots” dispersed throughout the less-developed eastern regions. Then, regional classifications ranging from “concentrated urban regions” to “rural regions” are made at the NUTS 1 level. Finally, the results are evaluated in perspectives of spatial planning of Turkey and entering process to the EU.     

Rational Goals for the Urban Environment: A Swedish Example

In Sweden, the government's aim to create sustainable urban environments is expressed through the environmental quality objective “A good built environment”. The objective embraces seven sub-goals and is designed to guide central, regional and local authorities’ planning towards urban sustainability. However, for objectives concerning the urban environment, such as the Swedish objective “A good built environment”, to form a solid basis for decision-making, two types of rationality (functionality) conditions ought to be met. First, the objectives should guide and motivate those who are responsible for their implementation. This is applicable when the goals satisfy the criteria of precision, evaluability, approachability and motivity. Second, when the goals are parts of larger goal systems, the goal systems should be coherent. Using the objective “A good built environment” as an empirical basis, this article gives a few examples of how environmental goals can fail to guide and motivate action towards improved urban sustainability.     

The Humanitarian War Against Migrant Smugglers at Sea

This paper engages with the military‐humanitarian technology of migration management from the vantage point of the European Union Naval Force Mediterranean (EUNAVFOR MED) “Operation Sophia”, the naval and air force intervention deployed by the EU in the Central Southern Mediterranean to disrupt “the business model of human smuggling and trafficking” while “protecting life at sea”. We look at the military‐humanitarian mode of migration management that this operation performs from three vantage points: logistics, with a focus on the infrastructure of migrant travels; subjectivity, looking at the migrant profiles this operation works through; and epistemology, building on the mission's first stage of intelligence and data gathering. Through this multi‐focal approach, we illuminate the productivity of this military‐humanitarian approach to the migration crisis in the Mediterranean.     

Field-based learning: the challenge of practising participatory knowledge

In 2009, Geography at National University of Ireland, Galway, launched a new taught master's programme, the MA in Environment, Society and Development. The vision for the programme was to engage students in the analysis and critique of the array of interventionary practices of development and securitization in our contemporary world. A range of modules were set up focusing on a number of interrelated concerns, including “geopolitics and security”, “environment and risk” and “managing development”. These core themes are approached from a number of critical perspectives, including political ecology, critical geopolitics and political economy. A key additional aim from the outset was to go beyond solely academic critique to consider participatory forms of development knowledge and practice that can emerge from “field-based learning”. To this end, a module entitled “field-based learning” was initiated, involving a 12-week seminar course in Galway, followed by a week-long fieldwork programme in Sarajevo, Bosnia and Herzegovina, where each year approximately 15 students intersect with the development work of local community leaders, the UN, EU and a variety of NGOs, civil society organizations and public advocacy groups. In this paper, we outline some of the key challenges of initiating and practising such a grounded and often unsystematic approach to learning in the field. We reflect, in particular, on the complexities involved in seeking to facilitate and practise critical participatory knowledges that comprise both academic and civic engagement values.     

马丁·麦乐西与美国城市环境史研究

马丁·麦乐西教授是美国著名的环境史学家,曾经担任“美国环境史学会”(1993-1995年)、“公共史全国委员会”(1992-1993年)和“公共工程历史学会”(1988-1989年)的主席。本文分为两个部分。第一部分从理论基础、概念界定、功能发挥以及具体的历史研究成果等方面介绍了他的城市环境史成就。第二部分是作者对马丁教授的访谈,他就城市环境史与农业生态史的关系、自然环境与人工环境的关系、技术在城市环境史中的作用、环境正义运动的性质等问题进一步阐述了自己的观点。另外,本文在注释中附有朱尔·A·塔尔教授对相关问题的简要回答。     

A Narrative Approach to Europe’s Identity Crisis

Alongside the institutionally constructed European identity, research shows that insights into citizens’ sense of belonging are valuable as well in assessing questions of identity. The tendency to conflate European identity with EU identity has spurred debates about the components that underlie European identification. The online subsidiarity adopted by the EU through e-platforms has allowed for a new form of citizenship where e-citizens (de)legitimate the issues under debate. This article examines the contents of European and national identities in the e-debaters’ comments posted on the Debating Europe platform. Drawing on narrative and discursive approaches, we propose a framework to operationalize the (de)legitimation and identification categories used by e-debaters within their discursive construction of European identity. The qualitative empirical research shows three main (de)legitimation clusters: the “EU as a loss,” “inclusive gain,” and “exclusive gain.” We discuss these findings within the broader context of Europeanization, identity multiplicity, and the conditions of the EU enlargement policy.     

Neoliberal Urbanization in Europe: Large–Scale Urban Development Projects and the New Urban Policy

This paper summarizes the theoretical insights drawn from a study of thirteen large–scale urban development projects (UDPs) in twelve European Union countries. The project focused on the way in which globalization and liberalization articulate with the emergence of new forms of governance, on the formation of a new scalar gestalt of governing and on the relationship between large–scale urban development and political, social and economic power relations in the city. Among the most important conclusions, we found that: ?Large–scale UDPs have increasingly been used as a vehicle to establish exceptionality measures in planning and policy procedures. This is part of a neoliberal “New Urban Policy” approach and its selective “middle — and upper–class” democracy. It is associated with new forms of “governing” urban interventions, characterized by less democratic and more elite–driven priorities. ?Local democratic participation mechanisms are not respected or are applied in a very “formalist” way, resulting in a new choreography of elite power. However, grassroots movements occasionally manage to turn the course of events in favor of local participation and of modest social returns for deprived social groups. ?The UDPs are poorly integrated at best into the wider urban process and planning system. As a consequence, their impact on a city as a whole and on the areas where the projects are located remains ambiguous. ?Most UDPs accentuate socioeconomic polarization through the working of real–estate markets (price rises and displacement of social or low–income housing), changes in the priorities of public budgets that are increasingly redirected from social objectives to investments in the built environment and the restructuring of the labor market. ?The UDPs reflect and embody a series of processes that are associated with changing spatial scales of governance; these changes, in turn, reflect a shifting geometry of power in the governing of urbanization.     

A European contribution to non‐proliferation? The EU WMD Strategy at ten

In the aftermath of the ruptures caused by the Iraq crisis, European states agreed in December 2003 on both a European Security Strategy and an EU Strategy against the Proliferation of Weapons of Mass Destruction (WMD). Ten years have passed since this attempt to kick‐start common European policies on WMD proliferation. How well have EU policies performed in this area? Has a specifically European way of dealing with proliferation challenges emerged? This article traces the development of EU policies on WMD proliferation since 2003 by examining, in particular, European reactions to the nuclear crisis in Iran, as well as European interactions with the international non‐proliferation regime and the cooperation with partner countries. The article concludes that the EU has performed much better than might have been expected in an area that has traditionally been one of the fiercely guarded prerogatives of national security policies. The EU's good performance is very much related to institutional flexibility, as exemplified by the EU/E3 approach to Iran; and, to a high degree of political pragmatism. However, important shortcomings remain, most notably the lack of coordination between national and European non‐proliferation efforts. In other words, the EU has not in the last ten years turned into a fully fledged non‐proliferation actor that can deliver tangible results in any area of proliferation concern.     

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.     

Evictability and the Biopolitical Bordering of Europe

Migration and border scholars have argued that the Europeanization and securitization of borders and migration have led to forms of population regulation that constitute a questionable divide between EU and non‐EU groups, as well as between different non‐EU groups. This paper argues that these processes have impacted not only centrifugally, on non‐EU populations, but also centripetally, on the “intra‐EU” divide regarding minorities such as Europe's Muslims and Roma. I explain how a de‐nationalization of the concepts and methods of migration and border studies—beyond methodological nationalism and Eurocentrism—sheds light on the under‐researched impact of the EU's external border regime on minoritized EU citizens. I introduce the notion of “evictability” to articulate this de‐nationalization and discuss the case study of Europe's Romani minority to show how contemporary forms of securitization further divide Europe bio‐politically along intra‐European lines.     

The “Environment Making State” and Climate Change: The French “Cat Nat” Reinsurance Scheme Under Strain

In 2012, SCOR, one of the world's largest reinsurers, sued the French state, challenging a public–private natural disaster insurance scheme, called the “cat nat” regime. It campaigned in favour of a “real” natural disaster insurance market. The purpose of this paper is to grasp the logic of this litigation. It reveals growing tensions regarding the insurance of natural disasters, against the backdrop of climate change. To make sense of this, we will build on Christian Parenti's theory of the “environment making state”. This approach aims at understanding the interaction between capitalism, states, and nature. The question we will pose is: what happens to “environment making” institutions in times of crisis? Crisis leads to the “politicisation” of “environment making”: decisions concerning the management of natural hazards are increasingly taken by the executive branch. This “politicisation” may represent an important evolution in the relationship between capitalism, states, and nature in the future.     

Green cities? Urbanization,trade, and the environment

Is urbanization good for the environment? This paper establishes a simple core–periphery model with monocentric cities, which comprises key forces that shape the structure and interrelation of cities to study the impact of the urban evolution on the environment. We focus on global warming and the potential of unfettered market forces to economize on emissions. The model parameters are chosen to match the dichotomy between average “large” and “small” cities in the urban geography of the United States, and the sectoral greenhouse gas emissions recorded for the United States. Based on numerical analyzes we find that a forced switch to a system with equally sized cities reduces total emissions. Second, any city driver which pronounces the asymmetry between the core and the periphery drives up emissions in the total city system, too, and the endogenous adjustment of the urban system accounts for the bulk of the change in emissions. Third, none of the city drivers gives rise to an urban environmental Kuznets curve according to our numerical simulations. Finally, the welfare‐maximizing allocation tends to involve dispersion of cities and the more so the higher is the marginal damage from pollution.     

Borderzone Departure Cities: Jumping-Off Urbanism of Irregular Migration on the Edges of Europe

The increasing fortification of borders produces new urban forms of irregular migration. This paper invokes the concept of “borderzone departure cities” as urban constellations created where global migration routes meet blocked borders in cities which become jumping-off points from which migrants try to depart. The paper examines Athens and Calais as borderzone departure cities located at both sides of the EU Schengen area. By focussing on the Athenian City Plaza squat and the makeshift Calais Jungle camp as emblematic yet relational spaces of departure, the paper moves beyond the squat/camp divide to better understand how irregular migrants struggle against hostile bordering apparatuses through urban practices of meanwhile inhabitation and mobile commoning. The paper illustrates how these spaces were variously assembled, run, and experienced to form the conditions for movement and stay, each holding different potentials for creating solidarity infrastructures and negotiating forms of migrant citizenship to support the uncertain urban realities of those stuck on the move.     

Scale in motion? Rethinking scalar production and border externalization

This paper signals how border externalization can inform geographical debates about scale and in turn, foster research on how scale intersects with recent forms of border and migration control. It interrogates what scales are being produced and struggled over, pointing to the contingency of scalar work in border externalization, specifically through the EU Migration Routes Strategy. Debates on scale and changing borders are worked through to arrive at the notion of “itinerant scale”, in order to highlight a very distinct spatial imaginary and implementation of border work. Instead of sitting at the edges of nation-states, staying in designated places for long, or pushing through some sort of region imagined as a buffer or frontline, borders are envisioned and designed to be mobile devices and reiterated along shifting migratory routes. This complex scalar production unfolds through a mix of policies, cartographies, surveillance infrastructures and atypical institutional agreements, reaching and acting simultaneously at local, national and regional levels, aiming at the management and contention of suspicious bodies on the move.     

Strategic Planning in Transition: Contested Rationalities and Spatial Logics in Twenty-First Century Danish Planning Experiments

In this article, we analyse how contested transitions in planning rationalities and spatial logics have shaped the processes and outputs of recent episodes of Danish “strategic spatial planning”. The practice of “strategic spatial planning” in Denmark has undergone a concerted reorientation in the recent years as a consequence of an emerging neoliberal agenda promoting a growth-oriented planning approach emphasizing a new spatial logic of growth centres in the major cities and urban regions. The analysis, of the three planning episodes, at different subnational scales, highlights how this new style of “strategic spatial planning” with its associated spatial logics is continuously challenged by a persistent regulatory, top-down rationality of “strategic spatial planning”, rooted in spatial Keynesianism, which has long characterized the Danish approach. The findings reveal the emergence of a particularly Danish approach, retaining strong regulatory aspects. However this approach does not sit easily within the current neoliberal political climate, raising concerns of an emerging crisis of “strategic spatial planning”.     

“A World Class City of Your Own!”: Civic Governmentality in Chennai,India

Abstract: This paper utilizes a critical governmentality approach to theorize the processes through which urban elites become stakeholders in the “world‐class city”. Through a case study of public consultations for urban development plans in Chennai, India, the paper explores the technologies that produce urban actors who “participate” in urban governance. Key to these technologies is a discourse of participation that privileges and normalizes citizens as urban stakeholders. The paper contributes to current explorations into the technologies of inclusion that are central to an emerging civic governmentality in South Asia. In Chennai this civic governmentality engages various segments of civil society in processes of urban governance through the mechanism of public consultation. It is through these public consultations that elites come to exert influence over urban plans and consolidate a vision and desire for the world‐class city.