National Planning Systems Between Convergence and Incongruity: Implications for Cross-Border Cooperation from the German–Polish Perspective

Convergence of national planning systems in Europe has become an important issue in the context of transnational and cross-border planning, which in turn plays a key role in the policy of creating a cohesive European space. Converging trends concerning planning styles and structures may undoubtedly be detected and also include new European Union (EU) member countries. Yet, by a minute's inspection of the (long-established) German and of the (created in the run-up to EU membership) Polish planning system from a cross-border planning perspective, it becomes obvious that similar structures may not coincide with a similar idea of what spatial planning is about. As highlighted by two chosen examples—cross-border twin-city and metropolitan planning—this results in significant hindrances for planning cooperation in its own right. The article concludes that any convergence of planning systems—if it was to have a constructive impact on cross-border planning—needs to be based on the acceptance of joint planning standards, objectives and values.     

Regional and transnational spatial planning1: problems today,perspectives for the future

This introductory contribution presents some results of the EURBANET project, dealing with European urban networks in the framework of the INTERREG IIC programme of the North‐western Metropolitan Area (NWMA). This project was conducted between 2000 and 2001 by researchers of Delft University of Technology, the University of Glasgow, the University of Dortmund, the Catholic University of Leuven and the University of Nijmegen. The central objective of the EURBANET project was to explore the role of polynucleated urban regions in the reinforcement of the competitive strength and quality of life in the NWMA, as a contribution to transnational spatial planning in the NWMA. Four polynuclear urban regions are involved: Randstad Holland, the Flemish Diamond, the RheinRuhr Area and Central Scotland (Glasgow‐Edinburgh region). One of the conclusions is that it is necessary to move between scales: from the European Union to national spatial policies (and vice versa), between national policies and regional spatial policies and between regional and urban spatial policies. At each scale, specific demands for spatial planning policies in polynuclear urban regions are becoming increasingly relevant. This is a challenge for spatial policies and policy domains like infrastructure policy, transport policy, housing policy, economic and environmental policy. We present an analysis of how polycentricity has become central to recent discussions on European and north‐west European spatial and economic planning. We launch a spatial network approach to integrate spatial policies. These wide perspectives contrast heavily with the current less satisfactory practice of spatial planning on the level of urban networks and transnational governance.     

Towards a European spatial planning policy: Theoretical dilemmas and institutional implications

This article examines the emergence, the present configuration and the perspectives of a spatial planning policy at a European level in the light of the institutional and economic properties embodied in the nature of the European integration process. First, it recapitulates the main historical steps through which the idea of a European view about spatial questions has been developed as a combined result of cohesion and solidarity objectives and liberal market constraints. On the basis of these complementary and competitive principles, the article explores the conceptual identity of the emerging policy and discusses especially the reorientations of the spatial justice concept under a market integration paradigm. Finally, it presents the fundamental traits for the institutional design of the new policy, which lead to the reshaping of the traditional hierarchical, substantialist and normative profile of welfare spatial intervention towards an horizontal, procedural and pluralist model of collective spatial coordination. The article comes to the conclusion that the conceptual and institutional innovations to which the emergence of a European spatial planning policy is submitted constitute a part of a more general rearrangement in the legitimation basis of public policies in a post‐national and post‐welfare Europe. Recognition of these transformations could be seen both as a search for new forms of governance beyond the state and as a chance for rethinking traditional concepts of social theory in a time of change.     

Towards an Integrated Spatial Planning?

The notion of “spatial planning” has emerged as something of a new planning orthodoxy. Underpinning it lie various notions of integration—of policy communities and agendas, for example. This paper considers the evolution of integrated spatial planning in the various UK territories, focusing particularly on the experiences of Scotland. It analyses horizontal and vertical forms of integration using the notion of “governance lines”. These help explore the interaction between policies and actions at various spatial levels to examine how governance action can be re-scaled. A focus on Scotland highlights both divergence from European experience and a number of long-standing, but often subtly different, concerns for planners. Notable among these are the power spatial planning has in other policy sectors to pursue integration, and the co-ordination of land-use issues and infrastructure delivery. These issues present challenges for agendas of integration and highlights their political nature, raising as they do questions such as: how far can integration be pursued in the contemporary governance landscape; and thus to whom and on what might focuses on integration be directed? Such an analysis suggests potentials and limitations for a spatial planning agenda in the future.     

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).     

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.     

Expansive spatial planning: the new European transnational spatial visions

Spatial planning in Europe has reached new frontiers. The European Spatial Development Perspective covers the entire European Union and, in spite of having an informal, non-binding status, it is creeping into the regulatory frameworks of the European Union. To stimulate cooperation between the Member States of the European Union, including the accession countries, the map of Europe has been divided into a jigsaw puzzle formed by large transnational areas. In three of these areas, spatial visions have been developed. Bearing in mind the enormous spatial diversity in these new European ‘super-regions’ and the great variety in planning systems, it is astonishing that these visions came about in the first place. In this respect they should be welcomed. On the other hand, the way in which they have been prepared could be questioned. Although they contain policy frameworks with an intended impact stretching far beyond the domain of spatial planning, they have basically been written by spatial planners acting alone. And although the mere idea of transnational areas was to a large extent to stimulate novel conceptualizations of the spatial position of countries and regions, the development of spatial concepts has proved to be extremely problematic. This paper looks at spatial visions for three transnational areas: 1) the Central European, Adriatic, Danubian and South Eastern European Space, or CADSES (VISION PLANET); 2) the North Sea Region (NorVision); 3) North-West Europe (NWE Spatial Vision). The analysis of these visions, following a common format, leads to some fundamental conclusions about the various principles on which such visions can be grounded and the architecture of the processes to be followed. The paper aims to contribute to research as well as to policymaking.     

Illustrating spatial policies in Europe

The visualisation of spatial policy options through maps and other cartographic illustrations can be very powerful both in the planning process and in communicating the key messages of planning strategies. However, experience from the ‘European Spatial Development Perspective’ (ESDP) shows that visualisation can also be the most difficult aspect in transnational spatial planning processes. This paper explores the potential role of policy maps in communicating spatial policy, and the progress made so far in visualising spatial policies in European spatial planning. It suggests possible reasons for the difficulties on reaching agreement on the form and content of planning policy maps at EU and transnational levels. The paper goes on to discuss theories that might assist in improving performance in the use of cartographic visualisations in European spatial planning. The article concludes by highlighting the need for further research on the communicative potential of cartographic visualisations in European spatial planning.     

Investigating the partnership approach in the EU Urban Agenda from the perspective of soft planning

At the European level, several strategic documents concerned with spatial and urban development have been published during the last decades. While these documents are essential to communicate European ideas and objectives, they are often regarded least influential in practice due to their abstract nature, legally non-binding status and lack of allocated resources. Though these limitations apply to the EU Urban Agenda, this recently published policy paper introduces partnerships as a new implementation tool. The partnerships can be regarded as innovative in two respects: On the one hand, they involve new actors, most importantly cities, in European policy debates. On the other hand, they ensure the anchorage of the Urban Agenda with a broad range of actors at various spatial scales without challenging its legally non-binding status. The Urban Agenda can thus be understood as another example of the move towards soft European spatial planning and urban development. This article investigates the notion of partnership as a soft planning and governance tool within the Urban Agenda. Moreover, based on expert interviews, it presents early opinions and expectations of actors involved in the development of the Urban Agenda and the partnerships on affordable housing.     

A practice theoretical perspective on the Europeanization of spatial planning

This paper provides a practice theoretical approach for examining the processes of the Europeanization of spatial planning. While the supply of studies on the questions of how, where and when the Europeanization of spatial planning takes place is rich and diverse, the temporal and spatial aspects of the processes have been studied from a rather narrow perspective. In many of the studies, time and space have been examined as objective, pre-existing features of the processes, which has resulted in interpretations of Europeanization as a temporally successive and spatially scalar process. The paper has two main goals. First, it seeks to outline European spatial planning as a distinctive field of political and academic interaction whose central constitutive elements are interconnected policy and research practices. Second, as a more general theoretical goal, the paper develops a practice theoretical approach for examining the processes of Europeanization. In this paper, it is argued that the policy and research practices constitute a temporal–spatial infrastructure for Europeanization. This infrastructure consists of both objective configurations of the practices and the existential temporal–spatial dimensions opened in the practices.     

An Insider's Look into Policy Transfer in Transnational Expert Networks

Much of the recent academic literature on spatial planning in Europe focuses on either cross-national comparison of planning frameworks and planning practices or on transnational and transregional initiatives and their impact on planning in European countries. From those publications, it can be gleaned how similar themes are translated differentially in different national contexts. Although it is also a great source of European integration and harmonization, the phenomenon of the knowledge exchange within transnational expert networks of European planners at the level of cities has received less attention. In this paper, the knowledge exchange among planners in such a network is studied, highlighting the role of “transfer agents” (academic and/or policy experts operating in communities in different policy arenas) in the exchange process. It builds on the insights from existing literature on policy transfer and policy learning, and tries to add a new perspective on this body of literature from an insiders' perspective, i.e. participatory observation. The idea is that policy transfer can be fruitfully approached as a process of knowledge and information transfer between producers, senders, facilitators and recipients. Often this exchange is to a very large extent a process of absorbing appealing labels for policy solutions from the international or national policy levels, and then adopting an interpretation of it suitable to one's own context. The authors try to give meaning to this exchange process by using two mechanisms, i.e. social interaction and conceptual replication. By combining these two mechanisms the authors try to uncover which policy lessons are being transferred among seven European cities that joined the expert network on European sustainable urban development (Pegasus).     

Strategic spatial planning and contested ruralities: Insights from the republic of Ireland

Since the publication of the European Spatial Development Perspective (ESDP), a growing body of literature has emerged related to European spatial planning. Much of this literature is focused on the influence of the ESDP on city regions and urban policy in individual member states. Much less attention has been paid thus far to the influence of the ESDP on the formulation of spatial strategies and plans for rural areas. Within this context, this paper aims to explore the formulation of a national framework for spatial development in the Republic of Ireland, and in particular to examine the expression given to rural development and planning issues. This paper reviews the extent that the Irish National Spatial Strategy can provide a basis for a spatially defined (rather than sectoral based) rural policy by examining the policy construction of rurality and how this will impact on three aspects of rural planning policy: the conceptualization of the urban–rural relationship; managing rural settlements; and rural development. The paper concludes by developing wider lessons from the Irish example in the application of the European Union discourse of spatial planning to rural regions, and the difficulties associated with developing and implementing spatial policies in a deeply contested rural arena.     

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.     

Strategic Planning as Region Building on the Eastern Periphery of the EU

This article describes how region-building is performed by four strategic planning initiatives in north-eastern Slovakia, highlighting a tension between balanced and concentrated development perspectives in Slovak regional policy. The plans are read as records of an institutionalizing process, the product of which is the creation of a lasting collaborative relationship between actors. If strategic planning could fulfil a mobilizing and integrating function in eastern Slovakia, it would constitute a significant contribution to the successful negotiation of social and economic transformations associated with post-communist structural change and European Union (EU) accession. Region-building is complicated by an over-emphasis on endogenous perspectives among local actors, hindering vertical integration, and an indeterminacy about the scale at which such an integration is best performed.     

Four ministries,four spatial planning perspectives? Dutch evidence on the persistent problem of horizontal coordination

The formulation of spatial policy at the national level is fraught with coordination problems, mainly owing to competition among ministries. This paper considers ways to improve horizontal coordination. It is based on a review of current Dutch policy documents and the political debate they have spawned in the Netherlands. To set the stage, the paper discusses the spatial policy now in force, which derives from the Fourth Report on Spatial Planning Extra (VINEX). After presenting the views espoused by the Ministry of Housing, Spatial Planning and the Environment, the paper highlights key spatial concepts proposed by three other ministries. The inherent contradictions come into play when allocating strategic spatial investments, which are drawn from the Economic Structure Enhancing Fund. The defensive position that government bodies take regarding their own spatial concepts may be understood in terms of the competition for billions of Euros in public money. In our opinion, the recipe for success is a blend of ingredients from each of the sectoral approaches, combined in an integrated spatial policy. We are pleased to say that since the time of writing, this approach has actually been adopted in the Netherlands. In January 1999, the government published what it calls a Starting Memorandum on Spatial Planning. That document seeks to realign national spatial policy by combining diverse sectoral views and introducing new spatial concepts such as ‘corridor’ and ‘network city’. The ideals of ‘spatial vision’ and ‘spatial quality’ are combined with criteria like ‘sustainability’ as well as with the flexibility and responsiveness that is needed in a market setting, whereby households and firms operate increasingly in a European context. The associated style of governance would be to alternate a loose rein—a strategy of divergence and competition—with a tight rein—the implementation of policy that is both horizontally coordinated and integrated. This approach is bound to fan the flames of public debate on national spatial planning. In this sense, other countries might do well to keep an eye on it.     

Positioning European Spatial Planning

The European Spatial Development Perspective (ESDP) is being described as 'inter-governmental'. The original initiative was for a Community spatial strategy for the delivery of the Structural Funds. Coming from France, it met with opposition. So it was that the successive six-monthly Presidencies of the EU took turns in managing the process. In truth, however, without Commission support the ESDP would not have come about. Now that the ESDP is on the books, the Commission is claiming a leadership role. Taking a position on this, one needs to view spatial planning against the backdrop of general thinking about European integration. Positions in the literature are often presented as polar opposites, like that of 'neo-functionalists' putting faith in integration on the one hand and that of 'realists' emphasizing the continuing dominance of nation states on the other hand. However, a growing body of literature is not about these 'grand theories', but about the actual workings of European institutions. It takes a middle ground and invokes concepts which planning writers are accustomed to, like networks, discourses and governance. From this literature it appears that mutual learning, a feature also of the ESDP process, is common in European integration. European spatial planning must be seen as part and parcel of an emergent system of European multi-level governance. In it, power is exerted at multiple levels of government. Denying the Community a spatial planning role is not realistic, therefore.     

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.     

Discourses of Mobility and Polycentric Development: A Contested View of European Spatial Planning

This article carries out an analysis of the European Spatial Development Perspective (ESDP), a policy document which represents a critical moment in the emergence of a new discourse of European spatial development. The analytical approach probes at the power relations which have shaped the ESDP framework and its contents, focusing on the twin core themes of spatial mobility and polycentricity. The analysis concludes that in the contested policy process a new spatial discourse of economic competitiveness is emerging at the expense of social and environmental interests. This new discourse will be further contested as implementation takes place in an uncertain policy environment.     

European cross-scale spatial planning and territorial frames in the Italian Median Macroregion

This article describes the preliminary outcome of interdisciplinary research that arises from a study by the Italian Ministry of Infrastructures and Transport and the Abruzzo Region (IT) on local development processes in central Italy, and specifically in the Median Macroregion, whose results have been extended to European context. It concerns the European spatial planning, specifically the study of an original interpretative model of European space, called Territorial Frames – TFs, a particular multi-scale infrastructural mesh that connects the ‘local’ territories with ‘global’ ones and that can represent the activating element of processes and policies of spatial development of settlements, of processes of valorization of the productive, naturalistic and landscape sectors. This new model interfaces with the territorial reticular component through the concept of polycentrism, also projecting evolution, and with that of the governance of development projects, using the potential of European Macroregions. The main objective of the research is to feed the topic of spatial planning, oriented to the integration between territories through a cross-scale approach, and to the activation of new processes of sustainable territorial development, with reference to the economically disadvantaged inner areas in a context of Macroregional governance.     

Planning strategies and practices in non-core regions: a critical response

ABSTRACT

The development of non-core regions has attracted growing interest within the current debates of economic geography, regional studies and spatial planning. The divergence between economically successful core regions and less privileged non-core regions continues despite policy interventions aimed at tackling spatial disparities and income inequalities. While traditional growth-oriented policies raise concerns over their effectiveness and relevance beyond large cities and metropolitan regions, there is growing interest in exploring new research paths and policy options that are better able to address development challenges in non-core regions. Contributors to this special issue engage with these debates by reflecting on planning policies and practices in five European countries, paying special attention to identifying planning strategies for non-core regions. This paper argues that alternatives to growth-oriented models require additional conceptualization and analysis to translate values into policies and institutions.