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?     

SOVIET ECONOMIC GEOGRAPHY: SIX DECADES OF DEVELOPMENT AND CONTEMPORARY PROBLEMS

A senior Russian economic geographer reviews the peripatetic evolution of the discipline during the Soviet period. After an early phase in the 1920s and 1930s, when it made some practical contributions to economic planning, particularly in regionalization, economic geography was long relegated to the status of a teaching discipline separating it from the more goal-oriented economic sciences. In recent years, economic geography has again acquired greater practical relevance, largely because of the development, and official endorsement, of the theory and application of territorial-production complex theory as an approach to spatial organization of the Soviet economy. Its thematic content has been broadened by the inclusion of the increasingly active field of population geography and urban geography. The growing “social” content of the discipline has given rise to suggestions that it be renamed “social geography,” or at least “social-economic geography,” reflecting a similar change of designations of the Soviet economic plans to social-economic plans.     

PERESTROYKA AND THE ECONOMIC REGION IN STATE MANAGEMENT AND PLANNING

The concept of region-based planning and management bodies, which flourished for a time during Khrushchev's sovnarkhozy reforms, is resurrected, this time under the guise of promoting decentralization and enhancing territorial versus sectoral planning under perestroyka. More precisely, the authors argue for devolution of meaningful planning and management functions to a network of smaller and more numerous economic regions, with “regional economic councils” serving as bodies for planning and coordinating the activities of smaller spatial units within these regions. A scheme describing how such a network might function within the current Soviet bureaucratic structure and economic environment is presented (translated by Jay K. Mitchell, PlanEcon, Inc., Washington, DC 20005).     

NORDEN AND THE "SUBSTANTIVE LANDSCAPE": A PERSONAL ACCOUNT

This commentary takes its point of departure in the debate provoked by the landscape theory that Denis Cosgrove presented in his seminal book, Social Formation and Symbolic Landscape (1984), in which he defined landscape in terms of scenic, spatial forms of representation. By unpacking the evolution of the concept of landscape the author proposed an alternative interpretation to Cosgrove's, emphasizing differing conceptions of lawfulness, in which the “substantive” platial landscape was introduced as a counterpoint to the scenic spatial concept. Initially, and for two particular reasons, the substantive landscape became theoretically placed in Norden: first, due to the historical and contemporary territorial/platial connotations of the term in the Nordic realm, and second, because the interest in a substantive landscape has been considerable among Nordic scholars. Today, this interest goes well beyond a Nordic context. In commenting on the contributions in this special issue the paper points at how different engagements with a “substantive landscape” might inform present and future scholarly debate concerning the role and meaning of landscape.     

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.     

LAND AND HOUSING IN THE USSR DURING THE GORBACHEV YEARS

An American urban and regional scholar familiar with the Soviet scene surveys changes in USSR and republic legislation on housing and land (both urban and rural) and outlines “grey” areas falling in the gap between extant Soviet law and yet-to-be-enacted republican legislation. He identifies changes in the land use pattern which can be expected as land begins to be transformed into a form of property where use decisions predominantly are made by private actors. A final section focuses upon the potential significance of these changes, to the extent they materialize, for urban theory in general.     

Legitimacy of Informal Strategic Urban Planning—Observations from Finland,Sweden and Norway

In Finnish, Swedish and Norwegian cities and urban regions, strategic approaches in urban planning have been developed by introducing different kinds of informal strategic plans. The means of improving the strategic quality of urban and regional planning have thus been searched from outside the statutory land use planning system, determined by the national planning laws. Similar development has also taken place elsewhere. When strategic plans are prepared outside the statutory planning system, these processes also lack the legal guarantee for openness, fairness and accountability. This is a serious legitimacy problem. In this article, the problem is examined theoretically and conceptually by combining democracy- and governance-theoretical perspectives. With this framework, four different approaches to legitimacy are derived: accountability, inclusiveness, liberty and fairness. The article concludes that strategic urban planning must find a balance between the four approaches to legitimacy. Concerning political processes, this requires agonistic acknowledgement of different democracy models, excluding neither deliberative nor liberalist arguments. Concerning administrative processes, it requires acknowledgement of the interdependence of statutory and informal planning instruments and the necessity of developing planning methods for their mutual complementarity—thus avoiding the detachment of informal strategic planning into a parallel planning “system”.     

Institutional Arrangements and Political Mobilization in the New Italian Regionalism: The Role of Spatial Policies in the Piedmont Region

The paper focuses on the resurgence of the regions as protagonists of the process of the state rescaling in many European countries. In the EU countries this process can be seen as a result of a mix of economic and institutional factors, which have been producing an increasing competition between the central governments and the regional authorities. The rise of the multi-level governance and of the so-called Euroregionalism has reinforced the role of the regional scale in the territorial development: on one hand, with new actors like agencies and organizations engaged in the economic development (FDI attraction, place marketing, innovation and learning), on the other hand by the resurgence of “old” actors, such as the regions, in many cases empowered by processes of institutional devolution. The literature has investigated this re-composition of the political space with regard to the “hollowing out” and the “rescaling” of the state. On the base of these theoretical underpinnings, we discuss some empirical evidence from the Italian experience, in order to show whether and how the regional structures are not only “spaces for policies”, but also “spaces for politics”. Over the last decade, the changes in legal framework, the external inputs from supranational levels of government—the European Commission—and the re-territorialization processes have introduced many elements of innovation in the role of the regions. By illustrating the case of the Piedmont Region, we try to demonstrate that the transition towards the region as an active space of politics can be mediated by the sphere of the policies, especially the spatial ones.     

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 Future of Collective Farms' Built Social Infrastructure: Choosing Between Central Place and Network Theories

The aim of this paper is to discuss local and regional planning and development practices in a post‐socialist country such as Estonia. Two approaches — central places and network theories — are used as a conceptual basis. According to the first hypothesis, planning and development of social infrastructure (e.g. schools, sports halls) has remained based on the central place theory — as an outdated planning approach — in Estonia. The second hypothesis argues that while, on the one hand, the application of the network paradigm and increased cooperation between local communities would considerably save public resources, on the other hand, because of the path dependency of Soviet centralized planning and development practices, the networking and lobbying takes place vertically rather than horizontally. This restricts both administrative cooperation and networking on the local and regional levels. The paper consists of three parts. The first part describes the turn in Western planning theory: the shift from normative top‐down planning to a bottom‐up approach and networking. The second part analyses critically the Soviet and post‐Soviet planning theory and practices: the planning and development culture created during the Soviet era. Finally we present a case study of a community planning procedure in the Suure‐Jaani locality — a good example of the influence of historical changes in the settlement system and planning culture of the past on current development.     

Analysing Contemporary Metropolitan Spatial Plans in Europe Through Their Institutional Context,Instrumental Content and Planning Process

This article sets out to propose and apply a qualitative framework for thinking about how to analyse and compare metropolitan spatial plans in a milieu of divergent spatial planning traditions and discretionary planning practices. In doing so, the article reviews and develops an understanding concerning the institutional context, instrumental content and planning processes associated with four contemporary metropolitan spatial plans in Europe, namely those of London, Copenhagen, Paris and Barcelona. Through the results of a multiple case study and a subsequent cross-comparative analysis, the article stresses that contemporary metropolitan spatial plans tend to merge the characteristics associated with project-based and strategy-based spatial plans, thus contrasting with the typical land-use character of municipal plans and the often strategic, growth-oriented pursuit of regional plans in Europe. In this sense, the metropolitan scale is treated less explicitly as a planning scale per se; rather, it tends to emerge as a “concealed” scale between municipal and regional scales and also between local and regional knowledge in planning. Moreover, the analysis suggests that while metropolitan plans seem to converge in terms of their general themes, they cannot be ultimately “typified” in view of ad hoc variations related to their institutional contexts, instrumental contents and planning processes.     

EUROPEAN INTEGRATION AND THE TERRITORIAL‐ADMINISTRATIVE COMPLEX

Detractors of European integration and many of its protagonists invoke state territoriality where the social and the spatial come together in a “Territorial‐Administrative Complex”. Like the military‐industrial complex claiming once to procure security, protagonists claim to guarantee democratic legitimacy. At the same time, the interests of the territorial constituencies prevail over others. The underlying notion of space is absolute and of territory that of a container. Costs and benefits are calculated in terms pertaining to it. The underlying “meta‐geography” is one of boxes‐in‐boxes, but rather than viewing space as a container, based on academic literature in the matter, planners now pursue soft planning for soft spaces. In the face of the apparently incontestable claim of the Territorial‐Administrative Complex to a monopoly on the production of democratic legitimacy, the article points out, albeit rare examples of constitutional theorists challenge this monopoly. Voting in territorial constituencies, they claim, has never been properly argued for, making it an arbitrary institution.     

THE FIRST SOVIET CONFERENCE ON HISTORICAL GEOGRAPHY

An attempt is made to demonstrate the need for a joint focus for microterritorial and socio-economic planning in small areas of cities. It is suggested that such a focus might be the territorial (spatial) structure, a derivative of the socio-economic structure of a territory that has long been the object of territorial planning at various levels. With particular reference to the transport services in the southernmost section of the city of Volgograd, it is shown how social processes are affected by the extent and the parameters of territory. Particular attention is given to the problem of “location,” including the meaning of “location” in microgeographic investigations.     

Regional Design in the Context of Fragmented Territorial Governance: South Wing Studio

In the Netherlands, the formation of governance arrangements around planning issues that cross administrative boundaries has been assisted frequently by a design approach that is often referred to as “regional design”. This is a distinctive method of policy argumentation that makes use of spatial representations of the plausible future of regions. Such representations are intended not only to indicate physical changes, but also to stimulate debate on sharing responsibilities and resources for planning tasks among planning actors. This paper contributes to a better understanding of the performance of regional design in the context of fragmented regional governance through a case study in the southern part of the Randstad in the Netherlands. We argue that regional design has contributed to institutional capacity in a complex polycentric and, looking at the governance structure, pluricentric region like the Randstad South Wing, largely by allowing for multiple interpretations.     

SOCIALIST FEDERALISM AND SPATIAL EQUITY: REVIEW OF A DISCUSSION

The proceedings of a wide-ranging discussion at the Institute of Geography, Moscow on current political and territorial issues in the USSR are summarized by one of its participants. The key thrust of the discussion centered on the need to find ways of increasing the involvement of Soviet political and other geographers in the analysis of critical questions of Soviet federalism: the incongruence of political-administrative boundaries with ethnic and economic regions; the search for a viable division of authority among Moscow, the republics, and local soviets; mitigation of growing regional inequality engendered by perestroyka and regional khozraschet (translated by Jay K. Mitchell, PlanEcon, Inc., Washington, DC 20005).     

POPULATION GEOGRAPHY AND SOCIO-ECONOMIC PLANNING

Population geographers are urged to get involved in the program of socio-economic planning that is expected to supplement the present economic planning process in the Soviet Union. So far socio-economic plans have been drawn up only for a few large cities like Moscow, Leningrad and Sverdlovsk. In general, there is a need for integrating the social planning process with purely economic planning, and to supplement the present sectoral planning system with an integrated system of spatial planning entities. At the present time, city and regional plans are derived by simply collating sectoral data at the city and regional level rather than by a separate integrated spatial planning procedure. A system of intra-oblast regions, or okrugs, numbering perhaps 500 or more, is recommended as a new level suitable both for government administration and for socio-economic planning.     

Planning for Climate Change Adaptation in a Multi-level Context: The Gothenburg Metropolitan Area

Individual local governments are key players in Sweden's strategy for climate adaptation but their authority does not match the scale of climate change and its impacts. Competences are divided among local, regional and national authorities. Climate adaptation thus requires cooperation, particularly in metropolitan regions. This raises issues of coordination, legitimacy and effectiveness of adaptation measures recommended in local Master Plans. The focus here is on how the 13 municipalities in the Gothenburg Metropolitan Area—expected to be the part of Sweden most affected by impacts of climate change—address and act upon issues of climate change adaptation within the framework of Sweden's Planning and Building Act, which places responsibility for the “common interest” of climate adaptation with local governments. Analysing municipal Master Plans, as well as the comments on these plans from the regional County Administrative Board and from Göteborg Region Association of Local Authorities, the inter-municipal association charged with infrastructural planning, I identify patterns in terms of coordination, legitimacy and effectiveness of planning for climate change adaptation. Results are discussed in relation to propositions from recent research on planning for climate adaptation in multi-level contexts.     

THE ROLE AND MAIN FUNCTIONS OF THE OUTER ZONE IN THE TERRITORIAL STRUCTURE OF THE MOSCOW REGION

The proposed basic functions and structure of the “Outer Zone” of the Moscow Region are outlined as part of a long-term physical planning model. The zone, which includes the Transition Zone, Linear Anti-Cores I and II, and Peripheral Zone I of the original model (Soviet Geography, February 1987), is to serve primarily as a check to territorial growth of the Core (a function once assigned to the more centrally located, but now largely developed Buffer Zone) and a potential base for new economic development in the future. A ranking of sites for limited, more immediate development is included (translated by H. L. Haslett, Birmingham, UK).     

Problems of Improving the Territorial Organization of the National Economy and Economic Regionalization

The authors briefly review the role of regional planning in Soviet economic planning and describe the role of the newly formed regional coordinating and planning councils of the major economic regions. The new network of 17 economic regions is also discussed. Tokarev is a department head of the State Economic Council USSR and Alampiyev is a department chief in the Council for the Study of Productive Forces, an agency under the jurisdiction of the State Economic Council.