Study No 4

Synthesis Report Towards a Strategic Framework for Action

December 16, 2005

Simin Davoudi

Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management Leeds Metropolitan University

Brunswick Building Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

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CONTENTS Executive Summary ………………………………………………. 3 Introduction ……………………………………………………… 12 Chapter A1: Key Transnational Issues …………………… 18

1. Introduction : spatial characteristics of NWE 19 2. EU enlargement 22 3. Demographic change 26 4. Settlement patterns 30 5. Transport infrastructure 35 6. Advanced telecommunications infrastructure 41 7. Environmental protection enhancement 44 8. Natural and cultural assets 49

Chapter A2: Awareness, Coverage and Cooperation ..… 52 1. Introduction 53 2. Level of awareness of transnational issues 53 3. Coverage of transnational issues by plans and programmes 56 4. Coverage of transnational issues by cooperation initiatives 60 5. The impact of the positioning and thematic overlaps of

different INTERREG areas on the process 62 6. Barriers to cooperation on transnational issues 63 7. Conclusion 65

Chapter B: Priority Themes 66 1. Introduction 67 2. Priority themes: the process 67 3. Priority themes: the outcome 79

Chapter C: Projects (Approved and Proposed) and the Future of Territorial Cooperation …………………………… 82

1. Introduction 83 2. Proposed projects 84 3. Comparison with approved projects 98 4. Social, economic and environmental impacts of projects 105 5. Monitoring the achievements of the future NWE territorial cooperation programme 107 6. Future direction for European territorial cooperation projects 111

Chapter D: Other Spatial Visions ……………………… 114 1. Introduction 115 2. ‘Visioning’ in regions substantially overlapping with the 117 NWE area 3. ‘Visioning’ in regions marginally overlapping the NWE area 123 4. ‘Visioning’ in regions not overlapping the NWE area 126 5. Conclusion 128

Chapter E: Concluding Remarks ……………………………… 129 1. Introduction 130 2. Mainstreaming European Territorial Cooperation 130 3. Future Challenges for European Territorial Cooperation 133

Appendix A: Examples of good practice projects 136

Introduction: Spatial Vision Process The overall objective of the INTEREG IIIB Programme for North West Europe (NWE) is to contribute to a more cohesive, balanced and sustainable development of the European territory. As part of meeting this objective, INTERREG IIC initiated a process which led to the publication of Spatial Vision in September 2000. This was seen not as a blueprint but as the beginning of a process of developing long-term spatial strategies. Its aim was to serve as a reference for implementation of the ESDP in NWE and as a framing document for transnational cooperation. Under INTERREG IIIB, the Spatial Vision Working Group took the view that the Vision Process should have a more pragmatic and operational orientation. In order to inform the process, in 2004, Three Studies were commissioned, each focusing on one of the ESDP’s spatial objectives, as outlined below:

• Study 1: Polycentric territorial development in NWE • Study 2: Parity of access to infrastructure and knowledge • Study 3: Sustainable management of the cultural and natural heritage

This report presents the outcome of Study 4 which has not only consolidated and updated the findings of the above studies, but also has played a major role in identifying future priority themes, through a process of consultation with SVWG. The report represents a significant stage in the Spatial Vision Process by providing the evidence-base for the development of a Strategic Framework for Action for NWE. It is intended that the Framework will then be drawn upon in the development of the operational programme for post-2006 territorial cooperation. The structure of the report largely follows the 8 key questions which the Three Studies had to address (see Introduction), beginning with the analysis of key transnational issues. Chapter A1: Key Transnational Issues Chapter A1 of this report revises and updates the findings of the Three Studies and consolidates them into 7 main categories, presented below: EU enlargement

In 2004, 10 new members joined the EU, increasing its area by 34% and its population by 20% but, adding only 5% to its GDP. Indeed enlargement led to a decline of GDP per Capita across the EU by 18%. However, the new member states seem to be catching up. Although NWE continues to have a higher than EU average GDP per capita, enlargement has begun to shift the centre of gravity eastward. This is clearly reflected in the growth of GDP per capita between 1995 and 2002. Apart from Ireland, the highest rates are in the new EU Member States. In terms of progress towards the Lisbon Agenda, in NWE a group of regions mainly centred on South East England, Central Netherlands, North Belgium and Switzerland have achieved the highest performance level, along with isolated hotspots such as Paris and Ireland. However, regional disparities remain high in Germany, France and the UK.

Executive Summary

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Demographic changes

The predominant trend in demographic change in Europe is the ageing of population, due to a fall in fertility rate, fall in mortality rate, and increase in longevity. Whilst fertility rates in NWE in general are not as low as those in Southern and Eastern Europe, in countries such as Germany the rate stands at 1.3, well below the reproduction rate of 2.1. This ageing society plus high inactivity rate will increase the dependency ratios in Europe to the extent that by 2025, for every 2 people in work one will be dependent on them if employment rates remain the same. However, given that the dominant intra-European migratory flows are from periphery to core, and from East to West, and that there are significant flows into NWE from outside Europe, the combined effect of migration and natural population change has resulted in an increase in population in most parts of the NWE. While this contrasts with a concentration of population decline in the South, East and Nordic countries, it should be noted that NWE is also home to pockets of decline notably in the North of Scotland, parts of Central France and East Germany. The overall trend is that by 2025 Europeans will account for 1 in 16 of the world’s population, down from 1 in 6 in 1950. A particularly alarming trend is the depopulation of small towns and rural areas; referred to as a ‘triple demographic time bomb’- too few children, too many old people and too many young people leaving rural areas. A parallel but opposite trend is that of counter-urbanisation in the affluent parts of NWE and in countries such as the UK where every week some 1700 people move out of the cities to live in the countryside. Settlement patterns

There is a high degree of spatial concentration in the form of transnational agglomerations across Europe. In NWE, three such agglomerations can be found in: Ireland and southern Scotland, countries bordering the English Channel, South West Germany and East France At the macro level, NWE is home to a significant part of the ‘pentagon’, which is seen by the ESDP as the only zone of global economic significance. However, research undertaken under the ESPON Programme, has identified other potential economic growth areas: Metropolitan European Growth Areas (MEGAs). When MEGAs are considered in the context of the growth of GDP per capita the following observations can be made: firstly, while some of the strongest MEGAs are in NWE, areas with high GDP growth are not, with the exception of Ireland and the M4 corridor in South East England. Secondly, there are MEGAs in NWE that are relatively weak in terms of population size or accessibility. These include for example, Düsseldorf, Köln, Geneva, Manchester and Dublin. Thirdly, some of the weakest MEGAs are located in high growth region. Cork is a clear example. Finally, some potential MEGAs are located in close transnational proximity to each other, such as in Holland and Belgium. Furthermore, 23% of areas with overlapping functional reach cut across national border and can be considered as potential transnational functional urban regions. NWE is home to a large number of such areas, stretching from the Benelux countries to Switzerland. All this illustrates a great opportunity for transnational cooperation and polycentric development in NWE. However, if we move from the macro European scale to the meso national scale it becomes clear that the strong economy of NWE is not universal across the territory, and great disparities exist both within the core and between the core and periphery. The most striking trend is that the move towards polycentrism at the European level

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parallels a move towards monocentrism at the national level in countries such as Ireland. The Irish economic boom of the last decade, which has turned the country into one of Europe’s star performers and contributed to the polycentric development of the EU, has mainly gravitated in the Greater Dublin Area, creating a monocentric spatial pattern within the country. At the micro level, an urban-rural typology, developed by ESPON research, shows that while NWE is predominantly urban, there are also large areas with low population density. Indeed, although 75% of NWE’s population live in urban areas, 23 % of the territory is sparsely populated. In general, urban-rural interdependencies are increasing partly because of the spatial deconcentration of economic activities and the expansion of city hinterlands. Some aspects of this trend are transnational. For example, some of the long distance and ‘weekly’ commuting to large cities cut across the national boundaries. Also, visitors from the cities in one country to the rural areas in another create a form of transnational urban-rural relations. Transport infrastructure

NWE benefits from: a dense motorway network; a concentration of major sea ports; the most developed High Speed Train network in the world; the largest airport hubs in Europe; and, a strong position in logistics. Its transport system is characterised by:

• Steady increase of flows and traffic congestion especially in the central part • More multi-directional flows than 10 years ago, with East-West flows

complementing the traditional North-South movements • Rapidly increasing air and road transport, and • The emergence of low-cost airlines which has led to substantial increase in air

travel and expansion of regional airports However, this high level of accessibility is not universal across the area. Although most areas in NWE have above EU average multimodal accessibility, its peripheral parts, such as North Scotland, have poor access. The rising energy prices will have important consequences in terms of spatial development, ranging from interregional imbalances related to transport costs and planning measures. High prices are increasing the pressure for modal shifts in transportation. Closely related to this with significant environmental implications is the use of fossil fuel which accounts for 75% of EU15 energy supply, with energy imports accounting for 50%. Hence, there is a clear case for increasing the use of renewables in generating electricity. However, there are great variations in European countries with Norway in the lead, generating almost all of its energy through renewables despite its considerable oil reserves. In NWE, however, only France currently generates more than 10% from renewables and much of it is nuclear energy. Other important transnational issues in this area which have been elaborated in the report include: long distance inter-modal services, road pricing, public transport, expansion of regional airport, intra-EU maritime transport, and use of Intelligent Transport Systems. Advanced telecommunication infrastructure

NWE is confronted with two major issues in this field. The first one is better use of its position as a global centre to make a substantial contribution to implementation of the Lisbon Strategy through further promotion and take up of ICTs. The second issue

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relates to overcoming the existing digital divide in mature ICT and in new high-speed connectivity. In terms of investment in R&D, countries in NWE are only just above the EU average, with the exception of Germany; and none spend as much on R&D (as a proportion of GDP) as the Nordic counties. Moreover, there are major regional disparities within NWE with regard to R&D expenditure and employment. An extreme example is the Ile de France region (centred on Paris) which is home to 45% of France’s R&D expenditure. Generally, the highest levels of investment are found around capital regions, such as London, Paris, Brussels, and also the Rhine Valley in Germany and Switzerland. Outside MEGAs, areas with above average R&D are often linked to the presence of universities which tend to have a relatively polycentric pattern. As regards digital divide and the take up of ICT, there are two main concerns: one is the existing digital divide in mature and leading-edge technologies; and the other is an emerging digital divide in the field of new high-speed connectivity. There are large disparities in development of ICT within NWE, with Ireland and France (with the exception of the Paris region), having a below average take-up. Environmental protection and enhancement

The Gothenburg Council added an environmental dimension to the Lisbon Strategy and strengthened the need for protection and enhancement of environmental resources. At the forefront of the environmental issues is the concern about climate change and its consequences. One of the main contributors to climate change is greenhouse gas emission. In NWE, while some countries such as UK and Germany have reduced their emissions, others have either remained constant, such as France, or have experienced a rise, such as Ireland. Climate change can affect both the frequency and intensity of natural hazards. In particular, changes in precipitation patterns is likely to lead to increased incidence of floods, drought and forest fires. Evidence shows a clear north-south split in this regard, with NWE faring better than southern Europe. Similarly, there are major spatial differentiations in terms of exposure to natural and technological hazards. Although there are large disparities within all countries, particularly within the UK and Germany, in general the more peripheral regions of Europe have a lower degree of exposure to hazards. Also, while Southern Europe is mostly vulnerable to natural hazards (such as earthquakes and forest fires in Spain), NWE is vulnerable to a combination of natural and technological hazards (such as winter storms and oil hazards in East Scotland). An area of environmental risk which is likely to get worse by the effects of climate change is river flooding. However, there are differences in river flood events both within NWE and within individual countries. While the periphery of NWE experiences very low risk, places such South West Germany have witnessed a great number of flood events in recent years. Frequent flooding has also happened in South Belgium, East France, and parts of England and Wales. As rivers often form boundaries between countries, river flooding and its risk management is a particularly significant transnational issue. The Rhine Valley is a clear case. The same can be said about air, water and soil pollutions which respect no boundaries. In NWE, levels of pollution are highest in the core areas where the

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greatest concentrations of industrial and urban development exist. For example, a clear core-periphery pattern can be identified in Nitrogen Dioxide (NO²) levels with the highest values in major industrial and metropolitan areas such as Frankfurt area. Landscape fragmentation and loss of biodiversity is another key transnational issue. NWE is home to the majority of areas with the highest rates of fragmentation. This includes the extreme cases in the coastal regions bordering English Channel and south of North Sea. The least fragmented landscape is found in mountainous areas which in NWE include North and West Scotland. Overall, NWE consists, to a large extent, of highly fragmented semi-natural areas with disconnected ‘green islands’ within urbanised regions. Cultural and natural assets

NWE enjoys a wealth of diverse cultural and natural heritage. The natural diversity is closely related to its landscape characteristics Cultural assets tend to cluster in coastal and urbanised areas. This rich cultural and natural heritage attracts a large number of tourists from across the world, creating increasing pressures on the resources and limiting the access by local people. To enhance the stretched carrying capacity of these resources transnational cooperation is essential in programmes such as development of European cultural tourism routes or ‘green’ European routes. In recent years cultural heritage and creative industries have come to be considered as assets for future development and economic competitiveness. The concentration of such assets in NWE creates major opportunities for economic innovation along the lines of the Lisbon-Gothenburg Agenda. Economic innovation is also supported by development of art and entertainment in the creative industries, and regional products. Overall, there are a number of measures for protecting, enhancing and capitalising on natural and cultural assets which require transnational cooperation. A prominent example is Natura 2000 which is the principal EU policy instrument for nature protection and contribution to Pan-European Ecological Network. It covers two types of designated sites which are smaller than Ramsar Sites: Special Protection Areas designated under the Birds Directive; and, Special Conservation Areas designated under the Habitat Directive. There are 20,000 approved and proposed sites covering 15% of EU15 territory. In NWE, there is a concentration of sites in West Germany, and in coasts and river basins elsewhere. Chapter A2: Awareness, coverage and cooperation While there are great variations between different themes and different places (see Chapter A2), the overall picture points to a low level of awareness of transnational issues among key actors and a patchy coverage of transnationality in sub-EU plans and policy document. Both of these clearly point to the need for a pro-active awareness raising and communication strategy to be developed as an integral part of the cooperation programme. Consultation with various stakeholders which took place during the course of the 4 studies has pointed to a number of perceived barriers to effective transnational cooperation including:

• Differences in government and legal structures • Little financial and human resources • Lack of expertise • Competition and rivalries

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• Lack of ownership among key actors • Rigidity of boundaries • Limited commonality

However, there is also a high level of consensus among the stakeholders about the added-value of transnational cooperation based on the view that it provides the opportunity to:

• Establish long-lasting networks • Overcome administrative borders • Make European integration more visible • Facilitate exchanges of experiences and information at cross-border and

transnational levels across Europe • Strengthen the role of regional actors

In order to make transnational cooperations more effective, there is a need to:

• Promote projects which aim to build institutional capacity for transnational collaboration;

• Discourage random selection of project partners • Encourage formation of more focused and purposeful strategic partnerships

and transnational policy networks A proactive communication strategy by member states is vital to raising awareness and promoting effective cooperation. Chapter B: Identifying Priority Themes: process and outcome Study 4 played a major role in identifying priority themes for the next programming period by undertaking a systematic review of the following key documents:

• Spatial Vision, 2000 (6 strategic principles) • Community Initiative Programme, 2002 (5 key priorities) • Programme Complement, 2003 (5 priorities and 10 measures) • Review of changes in EU Policy (Lisbon-Gothenburg Agenda) • Review of emerging trends (enlargement and demographic change) • Synthesis of 3 Studies (16 strategic objectives) • Discussion papers and other documents (EU informal ministerial meetings in

Luxembourg and Rotterdam; Scoping Document for ‘Territorial State and Perspectives of the Union’; Papers produced by Member States)

The outcome of this review was extensively discussed in a SVWG workshop. Following further feedback on the report of the workshop, 48 priorities were identified (see Chapter B) grouped under the following 10 themes:

1. Lisbon Agenda (economic competitiveness) 2. Gothenburg Agenda (environmental sustainability) 3. Demography and migration 4. Territorial cohesion and settlement patterns 5. Accessibility 6. Cultural and natural diversity 7. Climate change 8. Rising energy prices 9. Managing and prevention of risks 10. Governance

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The number of priorities proposed for each theme clearly reflects the significance of the recent EU policy focus, particularly the Lisbon Strategy, and also the concerns with emerging transnational issues such as demographic challenges, climate change and rising energy price. Chapter C: Transnational projects: Approved and proposed From a total budget of €4.8 billion, the INTERREG IIIB NWE area has taken the largest share of funding for transnational cooperation. So far, 86 projects have been approved, accounting for €315 million of funding. The lion’s share of funding has been allocated to priorities 1 and 3 which deal with coherent systems of cities and water resources / flood damage respectively, with the latter receiving the highest level of funding per project, reflecting the high cost involved in often large scale engineering work. Priority 4 on nature and heritage has received the least funding per project. As regards the future programming period, 18 projects proposed by the Three Studies have been considered as providing a potential way forward. These are summarised in Chapter C of this report. Of all the projects proposed, only 5 focus on a specific location. A further 4 projects, although not tied to a specific locality, are focused on an identifiable route or area. The remaining 9 projects are of a locationally general nature. Although Spatial Vision proposed four zones of cooperation within NWE, the Three Studies did not follow the concept of zoning and the proposed projects bear no explicit reference to the zones. Comparison with transnational issues

An initial scanning of approved projects, undertaken by Study 4, shows that of the key transnational issues identified above, those concerned with Lisbon performance, accessibility, the management of flood risk and cultural and natural heritage have been most frequently addressed by approved projects. As regards proposed projects, there is a more even spread of projects against issues, reflecting the fact that the Three Studies were aiming to propose projects that addressed the issues they identified. Despite this, there are issues that are not covered by the proposed projects. These include demographic challenges, development of public transport, the expansion of regional airports and emerging energy price rises. Also, there is a slight concentration of coverage on issues related to Lisbon performance and the development of inter-modal transport. The mapping of both existing and approved projects against key transnational issues suggest that the majority of emerging issues such as the population ageing, migration on a macro scale, demographic challenges and rising energy prices are not dealt with. Hence, there is a clear need for future territorial cooperation projects to focus on these issues. There are also issues that have received minor consideration and can benefit from future support. These include variations in population change, problems of rural depopulation, public transport and the Natura 2000 network. Coverage of priority themes

While priorities relating to environmental sustainability, accessibility and cultural and natural diversity are addressed by many approved projects, those within the themes of demography and migration, climate change and rising energy prices receive very

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little attention. Also those grouped under the themes of Lisbon Agenda, territorial cohesion, managing and prevention of risk and governance are less thoroughly addressed by existing projects, yet receive reasonable coverage. As regards the proposed projects, the mapping exercise reveals a slightly different pattern to that of the existing projects. Priorities within the themes of Lisbon Agenda, territorial cohesion and settlement patterns, and accessibility are reasonably well covered. However, priorities related to environmental sustainability, cultural and natural diversity, risk management and governance are less thoroughly addressed. Priorities receiving little or no coverage by proposed projects are under the emerging themes of demography/migration and rising energy prices. Mapping both approved and proposed projects against the full list of priorities points to the limited coverage of demography and migration and rising energy price rises, and to a lesser extent the Lisbon Agenda, territorial cohesion and risk management. Also, although areas such as environmental sustainability and cultural and natural diversity are covered well by the existing projects, they have not attracted much attention from the proposed projects. Hence, these areas provide new foci for future cooperation activities in NWE. Chapter D: Other Spatial Vision Initiatives Of the nine other INTERREG IIIB that there are in Europe, two of them (North Sea Region and Atlantic Area) overlap substantially with NWE, while three overlap slightly (Northern Periphery, Alpine Space and CADSES). There are similarities between the NWE and North Sea Region in the process of taking forward the original spatial visions; in the content in terms of the priorities for balanced spatial development and protection of natural resources; and in the identification of emerging challenges such as energy and demographic change. There are, however, some differences such as the differing emphasis given to priorities in the area of transport and access. There are also a number of similarities between the priority themes identified in the Atlantic Area Spatial Development Project report and those featured in the original NWE Spatial Vision and in this study. In relation to shared themes it appears that there could be considerable scope for synergy between the two programme areas. One difference is evident in a stronger emphasis given to problems associated with low density and rural regions in the Atlantic Area. This variation may well be a reflection of the difference in the territorial character of the regions. Chapter E: Concluding Remarks The EU Cohesion Policy (2007-2013) will consolidate the current nine separate objectives into three including: Convergence; Regional Competitiveness and Employment; and, Territorial Cooperation. Hence, the Community Initiative INTERREG will be fully integrated into the new mainstream Objective 3: Territorial Cooperation. In the new Community Strategic Guidelines, transnational cooperation has been identified as one of three priorities. However, while both the Guidelines and the Third Cohesion Report have put a strong emphasis on Territorial Cooperation, such emphasis may not be matched by parallel financial commitments.

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Nevertheless, there is a broad agreement across the EU25 that territorial cooperation presents an added-value. However, its future success depends largely on the extent to which the current barriers (outlined in Chapters A2 and E) to effective cooperation are overcome. In the NWE, the Spatial Vision Process has played a significant role in providing a coherent spatial framework for individual projects. However, as this Study has shown, wider ownership of the Process is vital for its leverage in national and regional policy. To achieve this, a proactive dissemination, consultation and communication strategy needs to be developed by SVWG, and implemented by the member states. This can take place through the normal channels of communications at the national and regional levels. However, the critical factor is the need for widening participation to include those actors who have remained less familiar with transnational issues, the added-value of transnational cooperation and the contribution made by the Spatial Vision Process in framing the territorial cooperation activities.

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1. The NWE area

The INTERREG IIIB North-West Europe (NWE) Programme covers a wide geographical area encompassing eight countries (Figure 0.1). Its overall objective is to contribute, through an innovative and integrated approach to transnational cooperation on territorial issues, to a more cohesive, balanced and sustainable development of the European territory, and of the NWE area in particular.

Figure 0.1: North-West Europe area Source: NWE website1

2. The Spatial Vision Process

This synthesis report represents the culmination of a process of moving from a ‘Spatial Vision’ to a ‘Framework for Action’ for North-West Europe (Figures 0.2 and 0.3). The origins of this process lie in the programming period 1994-1999. One of the strategic objectives of the Operational Programme of the INTERREG IIC North Western Metropolitan Area (NWMA) Programme was the development of a long-term spatial vision for the NWMA. A ‘Spatial Vision Group’ was established and this group launched and coordinated the Spatial Vision process between 1998 and 2001. The outcome of the process was “A Spatial Vision for North-West Europe: Building Co-operation”, published in September 2000, during the subsequent INTERREG IIIB North-West Europe (NWE) Programme. The aim of the Vision was to serve as a reference for the implementation of the European Spatial Development Perspective (ESDP) in the framework of the NWE transnational cooperation area, and represented a first step to opening the debate among planning authorities about transnational spatial planning issues.

1 http://www.nweurope.org/page/popMapNWE.php

Countries within NWE area Belgium France Germany Ireland Luxembourg Netherlands United Kingdom Switzerland (as external partner)

Introduction

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Figure 0.2: The Spatial Vision Process Source: NWE Spatial Vision

Figure 0.3: Towards a Framework for Action

At the end of the INTERREG IIC programming period there was a general consensus that the development of a long-term spatial strategy for NWE was a continuing process, which should be taken forward during the 2000-2006 funding period. In 2003, the Programme Monitoring Committee provided the impetus for the establishment of a Spatial Vision Working Group (SVWG), made up of representatives from the NWE member states and regions. It was agreed that the continuation of the process should have a more pragmatic and operational orientation, and result in a ‘Strategic Framework for Action’ rather than a ‘Vision’. This output is expected to provide:

• A framework to guide strategic spatial planning in the regions and define common goals for territorial development across NWE.

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• A tool to encourage cooperation in a more pragmatic and focussed way, outlining future areas for territorial cooperation after 2006.

• A framework to involve politicians and convince them of the added-value of transnational cooperation

To inform the process of working towards a framework, in 2004 the SVWG commissioned three international consortia of consultants to carry out three specific studies on topics mirroring the three priority policy areas of the ESDP and the challenges identified in the NWE Spatial Vision:

• Study 1 dealt with ‘Polycentric territorial development in NWE’ • Study 2 dealt with ‘Parity of access to infrastructure and knowledge’ • Study 3 dealt with ‘sustainable management of the cultural and natural

heritage of NWE’. Each of these studies was to respond to eight questions:

1. What are the key transnational issues at stake under the theme considered?

2. (i) What is the degree of knowledge of these issues by key players in the

field (local, regional and national authorities, EU, relevant sector administrations, civil society, private sector)? (ii) What are their views on the future of the transnational issues at stake?

3. What is the degree of coverage of these issues by existing planning

documents and strategies developed by the above key players?

4. (i) To what extent have these issues been appropriately addressed by various forms of co-operation (cross-border and transnational projects and programmes)? (ii) How do the positioning and thematic overlaps of different INTERREG areas affect the process? (iii) If co-operation schemes have failed to tackle these issues satisfactorily, by what factors can this be explained?

5. What related strategic objectives should be included in a future NWE

territorial co-operation programme, taking into account the necessity to accommodate the EU Lisbon and Göteborg agendas?

6. (i) Which cross-border and transnational projects, on which part of NWE

(cities, sub-areas) or possibly outside the NWE area, are the most likely to contribute to these strategic objectives? (ii) Which cooperating partners should be involved?

7. What could be the social, economic and environmental impacts of such

projects?

8. What related baseline information, indicators and targets can be used to monitor the achievements of a future NWE territorial co-operation programme?

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As a key part of the consultation process, the SVWG decided that a series of interactive stakeholder workshops should be held in the NWE countries involving all the consultants. Six workshops were subsequently held between March and May 2005 in Paris, Dublin, London, The Hague, Brussels and Bonn, with face-to-face interviews carried out in Luxembourg and Switzerland.2 Following the completion of the three final reports in the summer of 2005, Study 4 was commissioned to consolidate and update the findings from the Three Studies and produce a synthesis report which will provide the evidence base for the Strategic Framework for Action. The Framework itself will then provide the basis for the operational programme for post-2006 territorial cooperation. To facilitate this, a number of consultation seminars are to be held in January 2006. The first stage in the process of producing the Synthesis Report was to draft a Synoptic Review, based on an initial reading of the Three Studies. The Review aimed to explore the extent to which they responded to the eight questions set in their brief and to assess the quality of their responses. The second stage was the holding of a workshop in Düsseldorf on 26/27 September with the SVWG members. The purpose of the workshop was to provide valuable input to the Synthesis Report. In particular, its role was:

• to inform the SVWG about the progress made so far; • to consult with the SVWG and seek their views on key issues; and • to try to achieve consensus on the priority themes and potential projects for

post-2006 transnational cooperation in NWE. In order to facilitate the discussions at the Workshop, a Briefing Document was circulated to the participants prior to the Workshop. Immediately after the workshop, the outcome of the discussions on thematic priorities was analysed, synthesised and prioritised, and then reported back to the Workshop participants for further comments. The final result is presented in Chapter B of this report. Following this consultation with the Working Group, a Draft Synthesis Report was submitted at the beginning of November. Subsequently, the main findings of the forthcoming Synthesis Report, and an outline of the process of thematic priority review undertaken, were presented to the Programme Monitoring Committee in Stuttgart on 30 November. 2. Reflections on the Three Studies

The Draft Synoptic Review highlighted the existence of a considerable level of inconsistency between the three reports in terms of both their understanding of transnationality (see Chapter A2, Section 1), and the coverage and quality of responses to this brief. In terms of the quality and comprehensiveness of the answers to the eight questions set in the brief, the following overall comments can be made:

• Responses often lack a clear focus and sometimes resemble a long ‘wish list’ of ideal situations or actions

2 It is assumed that the outcomes of these workshops have been taken into account in the final reports of the 3 studies.

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• In most cases they also lack a spatial dimension, and it is not clear at what spatial scale issues should be dealt with. The Spatial Vision is much more explicit in that respect

• Some of the ideas for potential projects or partners which are mentioned in the Spatial Vision are not followed through (e.g. cooperation zones, transport corridors). It is not clear why

• Overall, the studies (particularly Studies 2 & 3) are less focused and concrete than the Spatial Vision, and the link between it and them is weak and implicit

Figure 0.4 shows in more detail the coverage of the eight questions within the Three Studies. It can be seen that Study 1 provides a generally good response to the questions. The report is clearly structured, focused and concise, and identifies the key issues clearly. There is no response to question 7. Study 2 does not provide as clear a structure and responses are not uniformly thorough. The awareness of key issues has not been considered, nor have the effects of the positioning and overlap of INTERREG areas. Study 3 is the largest text but contains the most lightweight treatment of several of the questions (5, 6, 7 and 8). There is limited coverage of question 2, and only a partial response to question 4. Chapter 4 provides a lot of detail but its relevance to the purpose of the study is questionable.

Figure 0.4: Summary of responses within the 3 studies

3. The Structure of the Draft Synthesis Report The structure and content of this report largely reflects that of the Three Studies and follows the chapter structure provided in the brief for Study 4. In addition to an executive summary, this introduction and appendices, it is comprised of five main chapters: Chapter A1 provides a review of the key transnational issues as manifested in major

economic, social and environmental trends (referring to questions 1-4 above). Chapter A2 outlines the level of awareness of transnational issues among key actors

and the coverage of these issues by national and regional plans and programming documents.

Chapter B reports on the process of research and review undertaken to inform the review of priority themes for the NWE area, and presents an updated list of priority themes with a brief analysis of content

Chapter C presents a summary of all the key project proposals offered by the Three Studies, and provides an analysis of how the objectives of the proposed

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projects respond to the key transnational issues and priority themes identified in Chapter A and Chapter B. Ongoing INTERREG IIIB projects are included within this assessment.

Chapter D presents the main issues addressed by other INTERREG ‘Visions’, especially in cooperation areas overlapping NWE, commenting on the scope for synergy and risks of possible conflicts.

The concluding remarks reflect on the future of territorial cooperation by drawing on the current debate around the EU Cohesion Policy and the Scoping Document for the State and Perspectives of the EU Territory.

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Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi

Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

1. Introduction: spatial characteristics of NWE

Chapter A1 Key Transnational Issues

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The NWE cooperation area covers 787,400 km², amounting to 24% of the total EU15 land area. The largest proportion of its area is located in France (35%) and the UK (31%), followed by Germany (15%), Ireland (9%), Netherlands (4%), Belgium (4%), Switzerland (2%) and Luxembourg (0.3%). Geographically, it is fragmented by seas separating the UK and Ireland from mainland Europe. The NWE area has a population of 171 million, which accounts for 45% of the total EU15 population and about 37% of EU 25 population. Consequently, the average population density is almost twice the EU15 average. Three-quarters of the population live in mainly urbanised areas with more than 500 inhabitants per km², an indication of the urban character of NWE. On the other hand, about 180,000 km² (23%) of the cooperation area is sparsely populated.3 Overall, the key characteristics of NWE can be summarised as follows:

• A densely populated area • A high level of growth in knowledge-based economies • Home to cities of global economic command functions (particularly London

and Paris) • Home to centres of international trade and communications (particularly ports

of Rotterdam, Antwerp and Le Havre, and London, Paris, Amsterdam and Frankfurt airports)

• A concentration of established and restructuring industrial areas in and around the core (such as the Rhine-Ruhr, South Wales, the Midlands and North of England, Central lowlands of Scotland, northern France, the Saar-Lor-Lux area and Wallonia)

• High accessibility, with a dense network of transport and telecommunication, both internal and external

• A wealth of cultural diversity and natural assets, many of which designated as having high environmental or cultural value

However, NWE has remained an unbalanced territory, as manifested by a number of key indicators such as accessibility (by road and rail), GDP and population concentration (see Figures A1-4). However, there is not any simple correlation between these indicators and the core-periphery trends. What is important in policy terms is the recognition that while the core areas face economic, ecological and social challenges linked to an increase of population and land use, peripheral areas face population decline and a resulting loss of economic attractiveness.

3 Figures in this section are taken from the Community Initiative Programme (2002).

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Figure A1: Potential accessibility by road Figure A2: Potential accessibility by rail

Figure A3: Spatial distribution of GDP

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The key transnational issues, which are outlined below, have emerged from a combination of sources including: the INTERREG IIIB CIP, the Spatial Vision for NWE (2000), the Three Studies, the findings from several ESPON projects,4 and the outcome of the consultation with the Spatial Vision Working Group (SVWG). Whilst some transnational issues cut across the themes covered by the Three Studies (such as the EU enlargement, demographic restructuring and climate change), others are related to a specific theme (such as road pricing or flood risk).

In order to reflect the interrelationship between the themes of the Three Studies, the key transnational issues are consolidated into the following seven main categories:

• EU enlargement • Economic performance • Lisbon performance • New Objective 1 Regions

• Demographic change • Ageing of Europe • Large-scale migration • Regional variations of overall population change • Rural depopulation • Demographic challenges

• Settlement patterns • Spatial concentration • Polycentric versus monocentric trends • Spatial pattern of NWE: the morphological perspective • Potential transnational functional urban regions: the socio-economic

perspective • Governance: the institutional perspective

4 See: www.espon.lu

Figure A4: Population concentration

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• Transport infrastructure • Unequal accessibility • Long-distance intermodal services • Road pricing • Public transport • Expansion of regional airports • Intra-EU maritime transport • Rising energy price • Developing alternatives to fossil fuels

• Advanced telecommunications infrastructure • R&D development and employment • Digital divide • Use of Intelligent Transport Systems

• Environmental protection • Impact of climate change • Exposure to natural and technological hazards • River flooding • Pollution • Landscape fragmentation and reduction in biodiversity

• Cultural and natural assets • Natura 2000 • Cultural assets

The information and analysis for each theme have been updated and complemented by drawing mainly on the outcome of ESPON research. Hence given the pan-Europe nature of ESPON, care needs to be taken in making detailed interpretations of the maps and analysis for NWE. In 2004, ten new members joined the EU, increasing its area by 34%, its population by 20% (74 million new European citizens) yet its GDP by only 5%. Indeed, as a result of enlargement, the GDP per Capita across the EU has declined by 18%. In economic terms, the 2004 enlargement of the Union has created a bigger challenge than the previous enlargements. For example, when Spain and Portugal joined the Community, their GDP per capita was about 70% of the EU average. In the case of the new Member States however, the figure is about 40%. As regards the GDP per capita of the forthcoming Member States (Bulgaria and Romania), which are due to join in 2007, the figure is currently less than 30% of the EU average.

2. EU enlargement

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2.1 Economic performance

As shown on Map A1, NWE continues to have a stronger economy than the EU average in terms of GDP (PPS) per capita, with the highest rates in Luxembourg, London, the ‘M4 corridor’ of Southern England and the areas around Paris, Frankfurt, Brussels, the southern half of the Netherlands, Dublin and much of the rest of Ireland. However, the EU enlargement has begun to shift the centre of gravity eastward. This is clearly reflected in the growth in GDP per capita between 1995 and 2002.

Map A2 shows that, apart from Ireland, the highest rates are found in the new member states particularly the Baltic States. The Map also shows large regional disparities in the UK and Germany.

Map A1: Gross domestic product per capita Source: ESPON 2.4.2

Map A2: Growth in gross domestic product per capita Source: ESPON 2.4.2

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Map A3 illustrates the overall economic performance of the NWE based on the combined effect of the two indicators (GDP and its growth). This depicts a more even picture of the EU25 territory, with little difference between new Member States in the East and NWE, pointing to the possibility of the ‘East catching up with the West’. The highest scores in NWE are in London and the M4 corridor and in Ireland.

2.2 Lisbon performance Since the publication of the Spatial Vision, the most significant development in EU policy has been the introduction of the Lisbon5 and Gothenburg6 Strategies. While the former is predominantly a strategy for a knowledge-based economic growth, the latter addresses the environmental sustainability agenda. Further elaboration of the Lisbon-Gothenburg Strategies is provided in Chapter B. Here, the Lisbon performance is examined in the context of the EU enlargement. Since 2000, progress towards the Lisbon Strategy has been measured and monitored against 14 structural indicators. As part of the ESPON research, a combination

5 Presidency Conclusions of the Lisbon European Council 23 & 24 March 2000 6 Presidency Conclusions of the Göteborg European Council 15 & 16 June 2001, SN 2001/1/01 REV 1

Map A3: Economic performance Source: ESPON 2.4.2

Map A4: Lisbon performance Source: ESPON 2.4.2

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of 5 of these indicators has been analysed to illustrate the existing spatial differentiation in the Lisbon performance. As illustrated in Map A4, the highest competitiveness levels – in Lisbon terms – are in the main metropolitan and industrial centres across Europe, excluding those industrial areas that are in the process of restructuring. Those regions with good performance levels in all of the indicators are mainly located in the core of Europe and in the Nordic countries. In NWE, a group of regions mainly centred on South West Germany, South East England, Paris, Luxemburg, Brussels, Southern Netherlands and Switzerland achieved the highest Lisbon performance levels. There are also relatively high levels in much of the rest of the UK, Ireland, the Netherlands and Belgium. The Pays de Calais region has a low score on this indicator. However, it should be noted that the analysis combines highly productive regions like London, Brussels, Luxembourg, Zürich and Nordwestschweiz, with regions of high R&D importance such as Stuttgart, and regions with low unemployment rates like Berkshire, Buckinghamshire, Oxfordshire, Bedfordshire and Hertfordshire (UK). It is also interesting to note that the performance levels are not necessarily linked to the level of urbanisation. 2.3 New Objective 1 Regions

Another significant impact of the EU enlargement is the redirection of the EU Objective One funding towards the new Member States. As indicated in Map A5, after 2006 all new potential Objective 1 regions will be outside NWE, with the exception of much of Wales and the western part of South West England. When economic and Lisbon performance values are superimposed, it shows that there are many regions in NWE (large parts of France and Germany in particular) with below average performance that will not benefit from Objective 1 assistance after 2006.

Map A5: Potential Objective 1 regions and other regions with indicator values below EU 25 average Source: ESPON 2.4.2

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Demographic change is one of the most significant challenges for spatial development in the EU. Demographic restructuring is the outcome of two trends: natural population change and migration, each of which exhibits different spatial patterns as outlined below. 3.1 Ageing of Europe The changes in natural population in Europe have come to be summarised under the notion of the ‘Ageing of Europe’. The process of ageing however is the result of three parallel trends: a fall in fertility rates, a fall in mortality rate and an increase in longevity.

Across Europe, fertility rates have fallen below the reproduction rate of 2.1, standing at an average of 1.5, with Germany, Italy and Spain displaying a lower figure of 1.3. However, rates in NWE in general are not as low as those in Southern and Eastern Europe, as can be seen from Map A6. Within NWE, all of France, Ireland and Luxembourg, together with much of Wales, England, the Netherlands and Belgium have rates above the European average. As regards longevity, it is estimated that by 2015, in Europe life expectancy at birth will be 82 years for men and 87 years for women, compared to the 1999 average of 76.5 years. The proportion of the European population above the age of 60 will increase from 21% in 2000, to 30% by 2015. Also, the proportion of the population below the age of 20 will decline from

23% in 2000 to 15% by 2015. This ageing society combined with high inactivity rates will increase the dependency ratio to the extent that by 2025 for every two persons in work one will be dependent on them, if employment rates remain the same. 3.2 Large-scale migration Freedom of movement within the EU has meant large-scale intra-European migration, largely for economic reasons. The main migratory flows are from periphery to core, and from East to West, particularly since EU enlargement (although this is too recent to be shown on the map below). Whilst concerns have

3. Demographic change

Map A6: Number of children per woman Source: ESPON 1.2.4

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been raised about an anticipated large scale east-west migration, a study7 undertaken in 2004 suggests that on average only about 220,000 people intend to migrate each year from east to west over the next five years. The study also suggests that the majority of these people are young, well-educated, single and increasingly female.

There are also significant flows into and out of Europe, with the former comprising both legal and illegal immigration. Highly qualified workers make up a large proportion of out-migration to countries such as North America, Japan and increasingly Singapore. This ‘brain-drain’, which works against the Lisbon agenda, adds to the challenges of a rising dependency ratio. Together, they will have important implications for the economic performance and spatial development of the North West Europe. Map A7 shows the net migratory balance between 1996 and 1999, and includes both intra-European and global migration. The key contrast in NWE is between northern France and southern UK. The majority of the in-migration in England is likely to be from outside the EU or from elsewhere in the UK. Much of the high levels of migration into west and south

Germany is accounted for by migrants from East Germany. There are also relatively high levels of in-migration in the Netherlands, Ireland and Brittany, while much of Northern England has significant out-migration. 3.3 Regional variations of overall population change The combined effect of migration and natural population change are shown on Map A8. It is clear that population is increasing in most areas of NWE, but there are different combinations of reasons for this. In Ireland, the Netherlands, Luxembourg, most of Belgium, Central England, West and South Germany, and parts of Southern England, West and Central France, population is increasing because of both positive natural population growth and a positive migratory balance.

7 European foundation FILWC (2004) Migration trends in an enlarged Europe. Summary, Dublin: Eurofound (http:www.eurofound.eu.int.newsroom/migration.htm)

Map A7: Net migratory balance Source: ESPON 1.1.4

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In the rest of Southern England and some other parts of NWE population growth is because of net in-migration only, while in Northern Ireland and much of Eastern France and part of Switzerland it is due to natural population growth only. It should be noted that the universally low fertility rates discussed in 2.1 are of relatively recent origin and have not yet had a major effect. Population decline can be seen mainly in the more peripheral parts of the UK and in parts of France. In the case of North and West of Scotland and parts of North East England it is due to both natural population decline and net out-migration.

3.4 Rural depopulation

The number of inhabitants of the EU25 stood at about 455 million at the beginning of 2004; a population which, in spite of healthy in-migration, is becoming in parts virtually stationary. This ‘zero population growth’ contrasts significantly with the situation elsewhere in the world (may be with the exception of Japan). By 2025, Europeans will account for only one in 16 of the world’s population, down from one in 6 in 1950. Although population decline is mainly concentrated in Southern and Eastern Europe and the Nordic countries, there are pockets of population decline in NWE, too, such as most of Scotland, Wales and North East England, together with parts of Central and Eastern France (see Map A9).

Map A8: Regional variations in population change Source: ESPON 1.1.4

Map A9: Rural depopulation Source: Study 1 p14

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A particularly alarming trend is the depopulation of small towns and rural areas. This is referred to as a ‘triple demographic time bomb’; the outcome of at least three interrelated trends: too few children, too many old people and too many of the young people leaving the rural areas. Rural depopulation is a particularly significant issue in areas such as Eastern Saxony in Germany. A parallel, but opposite, trend is counter-urbanisation in the affluent parts of NWE. In the UK, for example, every week some 1,700 people leave the cities to live in the countryside. While large-scale migrations tend to be mainly influenced by differences in the economic and labour market situation, suburbanisation or counter urbanisation are mainly influenced by differences in housing market and quality of life aspects. As regards rural depopulation, the main reason lies in access to jobs and basic public services. 3.5 Demographic challenges

Map A10 gives a combined overview of the regional demographic challenges resulting from: low population densities, a high level of ageing population, low regional reproduction potential and recent population losses. It can be seen that NWE’s population profile is quite different from most of the rest of Europe, with population growth and high population densities more of a problem, particularly in metropolitan areas. The regions with demographic problems are those classified as ‘below average’, and it can be seen that most of these lie outside the boundaries of NWE, to the south and east, with only a part of Central France, which has an above average share of elderly people, coming into this category. The areas least affected by the demographic challenges in NWE are large metropolitan areas such as Paris and London, a region stretching from South East England via the Netherlands to northern Germany, all of the island of

Ireland, some parts of Southern Germany, Northern Switzerland and Alsace. The most significant regional disparities for this combined indicator can be found in France and the UK.

Map A10: Demographic challenges in NWE Source: ESPON 2.4.2

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4.1 Spatial concentration

One way to depict the spatial pattern of NWE is to examine the effect of a combination of indicators relating to population and settlement structure, the presence of functional urban areas, population concentration, and GDP levels. The outcome presented in Map A11 points to a high degree of spatial concentration, in the form of transnational agglomerations distributed throughout Europe. Within NWE, three such areas can be identified. These include: Ireland and Southern Scotland; countries bordering English Channel (England, Southern France, Belgium, Netherlands, North West Germany); and, South West Germany and East France.

4.2 Polycentric versus monocentric trends One of the key transnational issues with regard to settlement patterns in NWE is the tension between the opposing trends of polycentrism (or dispersion), and monocentrism (or concentration) of population and economic activities. The degree of polycentricity in NWE can be analysed using different criteria such as: morphological, functional and institutional criteria. It can also be examined at various spatial scales including macro level (NWE in Europe and globally), meso level (within NWE) and micro level (within regions). The following account will elaborate on the various aspects of polycentrism at different spatial scales.8

8 Davoudi, S., 2003, ‘Polycentricity in European Spatial Planning: From an Analytical Tool to a Normative

Agenda’, European Planning Studies 11(8): 979-999.

4. Settlement patterns

Map A11: Degree of spatial concentration Source: ESPON 2.4.2

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4.3 Spatial pattern of NWE: the morphological perspective

At the macro level, NWE is home to a significant part of the ‘pentagon’ (an area delineated by metropolises of London, Paris, Frankfurt, Milan and Hamburg). The area has been identified by the ESDP as the only global economic integration zone capable of competing effectively in the world market. Following EU enlargement the ‘pentagon’ now accounts for around 46% of the EU’s GDP, 32% of the EU’s population and a little less than 14% of the EU’s territory. ESPON research9 has identified potential alternative economic growth areas called Metropolitan European Growth Areas (MEGAs). MEGAs are seen as the most powerful functional urban areas measured by demographic mass, competitiveness, connectivity and knowledge base. As illustrated by Map A12, the combination of MEGAs and the growth of GDP over the period 1995-2002 shows that in NWE:

• Whilst the strongest MEGAs are included in the ‘pentagon’, and hence partly in NWE, the high GDP growth areas are outside NWE, with the notable exception of Ireland and the M4 corridor in South East England

• There are MEGAs in NWE that are relatively large, competitive and have a strong knowledge base, but are weaker in terms of population size or accessibility. These include Düsseldorf, Köln, Geneva, Manchester and Dublin.

• The weakest MEGAs in NWE, which score rather low on all four criteria, are Southampton (England), Le Havre (France) and Cork (Ireland), although Cork is located in a high growth region.

• More importantly in terms of potential for transnational cooperation are MEGAs with lower competitiveness which are located in close transnational proximity to each other, such as in the Netherlands and Belgium.

At the meso level, the strong economic growth of NWE has not been experienced universally, and great disparities exist both within the core and between the core and periphery. The most striking trend is that the move towards polycentrism at the European level has been paralleled by a move towards monocentrism at the national

9 ESPON Project 1.1.1 (see www.espon.lu)

Map A12: GDP Growth and MEGAs Source: ESPON 1.1.1

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level in countries such as Ireland. The Irish economic boom of the last decade, which has turned the country into one of Europe’s star performers and has contributed to the polycentric development of the EU, has mainly gravitated to the Greater Dublin Area, creating a monocentric spatial pattern within the country. This is partly because in Ireland, as in most other Cohesion Countries, when the EU resources began to flow in only the major urban centres, and particularly the capital cities, had the critical mass, the infrastructure and the institutional capacity to absorb and deploy them effectively10.

At the micro-scale, urban-rural interdependencies are increasing, partly as a result of the spatial deconcentration of economic activities and the expansion of city hinterlands. These are, for the most part, national and regional issues. However, there are three aspects which may have a transnational dimension. First, the functional reach of large cities is spreading with improved accessibility, especially as a result of new high-speed rail infrastructure and regional air connections. This has promoted long distance and ‘weekly’ commuting, some of which is transnational. Second, competition among cities and regions at the international level may be leading to an erosion of standards and policies in the management of urban growth – or ‘environmental dumping’. Third, there is a suggestion that short-stay visitors travelling from urban areas in one country to rural areas in another are a form of transnational urban-rural relations.

While it is notoriously difficult to establish an urban-rural typology for Europe as a whole, or even for NWE, the following typology produced by ESPON 1.1.211 research provides some indications of the differences and commonalities in NWE. The typology is based on the degree of urban influence, as measured by population density and functional ranking of urban centres, and the extent of human intervention, as measured by land use patterns. Map A13 shows that, the NWE regions with predominantly urban settlement patterns comprise: the Netherlands, Luxembourg, most of Belgium, England and Germany, parts of Northern France and enclaves in the rest of the UK and Ireland. The map also indicates that rural areas have varying degrees of human intervention. For example,

10 Davoudi, S. and Wishardt, M., 2005, ‘The polycentric turn in Irish spatial planning’, Built Environment 31(2): 122-132. 11 www.espon.lu

Map A13: Urban-rural typology Source: Espon1.1.2

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such interventions, measured by land use pattern, are high in ‘intermediate’ areas of France and in Lincolnshire (UK); and low in North and West of Scotland and close to Alps. Overall, beyond the large cities, most of the rural areas of Ireland, Wales, Northern England and Central France are classified as areas with low urban influence and medium human intervention. 4.4 Potential transnational functional urban regions: the socio-economic perspective Polycentricity in economic and social terms refers to functional interrelationships and complementarities between the constituent territories. Achieving balanced regional development requires a strong regional integration of functional urban areas and their surroundings. The geography of development and activities is closely linked to economic and social relations among cities and regions. The enlargement of the EU, globalisation, demographic trends and the increasing use of ICT (the 'network society') all strongly affect spatial development patterns across the territory and the movements and locational preferences of individuals and companies. The new economic structures of the network society are the joint product of technological innovation, political-economic restructuring and new enterprise strategies12. One indicator of this change in socio-spatial relationships is the rise in mobility, and the most direct consequence for spatial planning is that in a network structure ‘proximity’ may become less relevant for social organisations than 'connectivity'. Technological innovation in transport has resulted in the speeding up of movement and the ‘shrinking of space’, though sometimes with large interregional differences. The increasing use of ICT has led to a revolutionary change in the organisation of production processes, allowing for a spatial separation of functionally interdependent activities through complex logistics systems. Since distances are increasingly measured in time, locations and places that are well connected in terms of logistics and transport technologies may be more attractive for investment than those that demonstrate only physical 'nearness'. Yet, while the development of ICT was expected to lead to a 'democratisation' of the territory and an alignment of core and periphery, in reality the differences between the densely populated parts of NWE and the more peripheral areas have often been more intensified13 or may have led to a more diverse pattern across the territory. More peripheral parts of NWE are generally less well connected in terms of provision with new ICT services than metropolitan areas (see sections 4 and 5 below). It is still the case that face-to-face interaction and physical proximity often make densely populated areas more desirable as locations for businesses.

12 Kunzmann, K.R. (1998) Planning for Spatial Equity in Europe. International Planning Studies, Vol. 3, No. 1, pp. 101-120 13 ESPON (2003) ESPON in Progress. Preliminary results by autumn 2003, Luxembourg: ESPON.

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In this context, ESPON research14 has identified areas with overlapping functional reach based on municipalities that are within 45 minutes reach of each other and hence have the potential for achieving a critical mass in terms of population and functional complementarities. These are defined as Potential Urban Strategic Horizons (PUSH) areas. As is shown on Map A14, some 23% of the PUSH areas cross national borders and can be considered as potential transnational functional urban regions. NWE is home to a large number of PUSH areas, stretching from the Benelux countries to Switzerland. This illustrates a great opportunity for transnational cooperation and polycentric development in NWE.

4.5 Governance: the institutional perspective In order to forge functional synergies between neighbouring cities of a potential polycentric area, two key areas are often mentioned as areas for policy intervention:

• One is often obvious and relates to development of ‘hard infrastructure’, such as efficient transport and telecommunication networks.

• The other, which attracts less policy attention relates to development of ‘soft infrastructure’, notably governing capacity and regional identity.

If cities are to pool together and share labour market and infrastructure facilities, they need to develop multi-agency forms of governance at the sub-regional or regional level, which in turn will enable them to enhance their functional synergies. However, discussion on polycentricity tends to focus on physical development patterns and economic connections, while the institutional relations are equally important. The word governance is used here specifically to indicate that the issue goes beyond formal government to include other institutions in the public and private sectors. European integration and globalisation are leading to increasing interdependencies within and among governments. The key issue is the extent to which cities and regions are able to co-operate in building capacity, providing services and opportunities and reducing counterproductive competition. Although in many European countries, there are not many formal structures of government at the transnational level, the survey conducted for ESPON 1.1.1

14 ESPON 1.1.1 Project (see: www.espon.lu)

Map A14: Potential Urban Strategic Horizons Source: ESPON 1.1.1

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research showed a growing number of informal partnerships and networks being formed in the 1980s and 1990s at the inter-municipal and inter-regional and transnational levels. The key achievements of these partnerships were seen to be:

• Formation of strategic framework for the area • Project implementation • Capacity Building • Knowledge transfer • Place marketing and promotion

The key weaknesses of these partnerships were seen to be:

• Lack of resources • Lack of political will and commitment • Limited experience of the partners

The survey confirmed that building up governance relations is not easy and needs sufficient time, long-term external assistance and investment, and devolved powers and responsibilities. Developing such relations is much more challenging in the context of a transnational polycentric area, because here, firstly, partners are drawn from beyond the boundaries of formal institutions of government. Secondly, they are spread among public, private and voluntary sectors. Thirdly, they are also spread across the boundaries of different political and administrative jurisdictions. Fourthly, at the transnational level, there are very different forms of constitutions and governments in the countries of NWE, ranging from federal, through strongly regionalised, to highly centralised. As a consequence, competences for policy and action on spatial development vary considerably. In general, there are three forms of interconnected co-operation which need to be in place for effective transnational spatial development. These are vertically among levels, horizontally among sectors, and geographically across administrative boundaries The proposed Objective 3, Territorial Co-operation, of the post-2007 Structural Funds Programme is expected to provide increased opportunities for collaboration and creation of transnational governance arrangements, as well as joint preparation of strategies. Transport infrastructure contributes significantly to territorial competitiveness. Key transnational challenges include not only the development of new infrastructure, but also an effective integration between transnational and secondary networks and an efficient and sustainable organisation of the whole network through, for example, territorial development strategies. Development of transport infrastructure plays a significant role in the economy and territorial organisation of NWE, which already benefits from a dense motorway network, a concentration of major seaports, the most developed High Speed Train (HST) network in the world, the largest airport hubs in Europe and a strong position in logistics. However, as mentioned before, this

5. Transport infrastructure

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level of accessibility is not universal across the area and the more peripheral regions of NWE have a much lower level of accessibility and infrastructure endowment.

Figure A5: Volume of freight transport relative to GDP Source: Structural Indicators, 200515

The transport system in NWE is characterised by a steady increase of flows, with growing traffic congestion especially in the central part of the area. However, major flows are more multi-directional than they used to be ten years ago, with the growing importance of East-West flows complementing the traditional North-South movements. The most rapidly increasing modes are air and road transport, which are the least sustainable ones. A related trend is the emergence of low-cost airlines which has led to substantial increase in air travel within Europe and the expansion of regional airports (see section 4.5). Policy measures introduced since the early 1990s in favour of a modal shift towards more environmentally-friendly transport modes has had limited success despite progress being made in areas such as HST for passenger transport and container shuttles on specific corridors for freight transport (see figure A5, above). The least successful part of policies is the development of the ‘motorways of the sea’. The continuous growth of container traffic in ports is because of the growth in intercontinental flows rather than European ones. At EU level, the re-launching of the Lisbon Strategy in 2005 put the emphasis on the completion of TENs and the achievement of cross-border interconnections.

15 2005 Report from the Commission to the Spring European Council, http://europa.eu.int/comm/eurostat/structuralindicators

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It is also important to note that there has also been a shift in policy direction at the national level away from an emphasis on environmental sustainability towards economic development. In terms of investment priorities, a key issue is the optimisation of the use and maintenance of the existing networks. There are also increasing policy concerns about safety and security in transportation in relation to a whole host of issues such as accidents, criminal offences in public transport, terrorism and transportation of hazardous substances. 5.1 Unequal accessibility

The high level of accessibility in NWE is not universal across the territory. As shown in Map A15, there is a clear core-periphery pattern within Europe, with the majority of NWE having above average accessibility.16 In NWE, while there is high accessibility potential in West Germany, the Netherlands, Belgium, Luxembourg, and the Paris and London regions, the more peripheral parts of the area, particularly Northern Scotland, have poor accessibility. However, it should be noted that in areas with a high level of transport links, there are increasing problems associated with the overloading of transport corridors and congestion. Also, a lower level of transport links, particularly in urban agglomerations, might be perceived as leading to less pollution and congestion and hence a better quality of life. Map A15: Potential multi-modal accessibility Source: ESPON 1.2.1

5.2 Long-distance intermodal services The performance and profitability of long-distance intermodal systems and services beyond NWE is limited, particularly on East-West corridors. Trends show that long-distance intermodal services to and from NWE have progressed only weakly in recent

16 Here accessibility is measured by the number of opportunities for the population to be reached,

weighted by the time it takes to reach them, based on multi-modal (road, rail, air) transport.

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years. In some areas, they have even declined. A number of obstacles remain to be overcome. The most important ones are:

• problems of interoperability of national railway systems • insufficient effective liberalisation in the railway transport sector • the attitude of various national railway companies, including competition

between them and related protectionist attitudes • the costs of rail freight transport

5.3 Road pricing In accordance with the provisions of the EU Transport Policy, road pricing is being progressively introduced in various member states with little transnational coordination. Experience shows that uncoordinated measures of road pricing lead to cross-border traffic diversion with negative impacts on neighbouring countries. A good example of this is the case of Germany, where the impact of the introduction of a road pricing system in January 2005 for heavy lorries on motorways resulted in increased traffic on neighbouring French and Belgian motorways. The introduction of road pricing may also have negative impacts on the economy of the more peripheral regions of NWE. 5.4 Public transport In the context of objectives for more sustainable transport policies and increased accessibility, public transport will have to play a more important role in the future. In this respect, various issues are important in the transnational context of NWE. Firstly, the progress of the HST network, which significantly increases the accessibility of cities that are directly serviced, is often accompanied by the reduction of services on traditional railways, which in turn negatively affects the accessibility of a number of other towns, sometimes in border areas. Solutions will need to be found to counteract this negative evolution. This may partly consist of increasing the regional accessibility of the HST stations. The lack of coordination arises partly because the new cross-border services are often run by dedicated companies such as Thalys or Eurostar which are themselves in competition with the existing national rail companies. A second category of issues concerns public transport in rural areas. With the increasing share of elderly people in these areas, demand for public transport will increase but will also require innovative solutions to ensure viability. Due to the increasing importance of this issue in all NWE countries and the fact that a number of rural regions cut across the national boundaries, this should also be considered as a key transnational issue. Thirdly, outside the HST network, a number of deficits still exist in transnational and cross-border public transport connections. There are a variety of obstacles, related to:

• inadequate infrastructure • limited interoperability and technical standards • differences in national regulations • limited number of operators working at transnational level • absence of transnational access to specific national tariff rebates, etc.

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5.5 Expansion of regional airports Development of regional airports across NWE is mainly driven by the low-cost airlines in the context of air transport liberalisation. These airports are developed largely in regions which previously had low air transport access. It has therefore contributed to significantly increasing the accessibility of the regions concerned. However, this new trend is not necessarily sustainable. Firstly, in regions where the related airports are not connected to public transportation networks, significant flows of motor-car traffic are generated, which in a number of cases are of a cross-border and transnational nature. Secondly, a number of air connections compete successfully against railway transport, including HST This makes the financial viability of large-scale investment in modern railway infrastructure more difficult. Thirdly, the promotion of airports by the airlines may not always conform to the marketing desired by the airports themselves, especially where these could develop clear cross-border markets. Finally, if the prospect of a steady increase in the relative price of oil products comes about, both low-cost air traffic and access to airports by private cars could be affected. 5.6 Intra-EU maritime transport The situation with maritime transport is rather contradictory. On the one hand, intercontinental container transport growth, driven by globalisation processes, leads to significant programmes of expansion for coastal ports. This may lead to overcapacity problems. On the other hand, intra-European maritime traffic is not progressing, with the exception of container feeder services which are part of intercontinental transport chains. The ‘motorways of the sea’ programme, which was supposed to reduce inland traffic flows throughout the European continent, has not been successful so far. The solution, therefore, will be to promote intra-European maritime transport in such a way that it takes advantage of the restructuring of intercontinental transport. In addition, port development will remain an area of intense competition and weak cooperation. It could, however, be conceived in terms of better coherence and complementarity between intra-European and intercontinental flows. 5.7 Rising energy price A growing world-wide imbalance between the supply and demand of oil and gas products is driving up prices. While Europe as a whole has become less dependent on imported energy, some countries in NWE, such as Luxembourg, Belgium and Ireland show strong energy dependence, which in turn offers challenges for transnational cooperation. The probability of high energy prices in the future, in particular due to possible oil depletion and increasing energy demand in emerging economies, will have important consequences in terms of spatial development, ranging from interregional imbalances related to transport costs to planning measures. There is a strong relationship between the development of transportation and the price of energy. For example, higher prices will increase the pressure for modal shifts in transportation in NWE.

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Rising energy prices also have consequences for the economy and environment as a whole, and hence the energy intensity of the economy is considered as a key indicator for the Lisbon Strategy. Figure A6 shows that the main contrast in energy intensity is between the new and old member states.

Figure A6: Energy intensity of the economy Source: Structural Indicators, 2005 5.8 Developing alternatives to fossil fuels

The use of alternatives to fossil fuel is an issue closely related to energy price, and has significant environmental implications. Fossil fuels account for 75% of the EU15 energy supply, while energy imports account for 50%. Given the rising energy price and the depletion of oil resources, the development of renewable energy sources is crucial not only in addressing environmental concerns, but also in terms of economic development, security of supply and reduction of energy dependency. However, as Map A16 indicates, there are great variations amongst European countries in the use of renewable energy, with Norway leading the

Map A16: Renewable electricity generation Source: ESPON 2.1.4

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pack and generating almost all of its energy through renewables. In NWE, however, only France currently generates more than 10% of its energy from renewables, and much of that is in fact nuclear energy. While there is obvious potential for a significant increase in the proportion of electricity generated by renewable energy sources, such as hydro-electric, nuclear, wind, solar, tidal and biomass, the potentials for increasing the use of renewable energy are not equally distributed. For example, countries such as Norway, Ireland, Greece, Sweden, Spain and the UK have a high potential for using solar and wind energy. Advanced telecommunications infrastructure is the backbone of the information society. NWE is confronted with two major issues in this field. The first one is better use of NWE’s position as a global and EU-wide growth centre for making a substantial contribution to implementation of the Lisbon Strategy. The second issue relates to overcoming the existing digital divide in mature ICT and leading-edge technologies, and preventing an emerging digital divide in the field of new high-speed connectivity. The focus should also be on enabling the development of knowledge-based activities in the less-favoured parts of the cooperation area. Other key transnational issues are outlined below. 6.1 R&D development and employment However, as Figure A7 demonstrates, the level of R&D investment as a proportion of GDP in each member state in NWE is just around the EU average (with the exception of Germany). Furthermore, none spend as much on R&D as the Nordic countries such as Finland and Sweden.

6. Advanced telecommunications infrastructure

Figure A7: Innovation and research Source: Structural Indicators, 2005

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At the regional scale, Map A17 illustrates a high degree of concentration of R&D development and employment in or near capital regions, such as the London, Paris and Brussels regions, the Rhine Valley in Germany and Switzerland. These are also the areas that have the strongest MEGAs. The extreme example is France, where the Ile de France region (centred on Paris) accounts for 45% of France’s R&D expenditure17. Outside MEGAs, areas with above average R&D are often linked to the presence of universities, and hence tend to have a more polycentric pattern.

6.2 Digital divide NWE is faced with two issues in this field. One is the existing digital divide in mature ICT and leading-edge technologies. The other is the emerging digital divide in the field of new high-speed connectivity. As Map A18 illustrates, there are large disparities in the development of ICT within NWE. The areas with the most advanced take-up comprise the Netherlands, Luxembourg, the northern half of Belgium, South East England, North of Ireland and parts of Northern England. However, all of Ireland and France, with the exception of the Paris region, has below average take-up, with much of North and Central France being well below average.

17Territorial State and Perspectives of the EU: Scoping Document, 2005, p.8

Map A17: Degree of importance of R&D development Source: ESPON 2.4.2

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6.3 Use of Intelligent Transport Systems There has only been a limited take-up of ITS (Intelligent Transport Systems) so far, despite the fact that ITS can contribute to the solution for a number of important challenges for transportation in NWE, namely:

• Increasing transport security in areas such as: o Maritime transport in the heavily congested seas and rivers o Road transport on the motorway networks o Public transport at various scales o Air transport, which is becoming increasingly congested

• More efficient and inter-linked freight transport systems and logistic chains,

with a view to alleviating congestion and facilitating inter-modal solutions • Sustainable urban mobility in the metropolitan areas and cities of NWE, with a

view to improving traffic fluidity by the use of traffic management systems, and by strengthening the efficiency and complementarity of different types of public transport systems.

Map A18: Level of telecommunications development Source: ESPON 1.2.2

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• The Gothenburg Council (2001)18 which agreed on the Communication on Sustainable Development added an environmental dimension to the Lisbon Strategy and reiterated the need to decouple economic growth and the unsustainable use of resources. It identified four priorities: climate change, transport, public health and natural resources. However, the territorial dimension of these is given limited attention except for extensive consideration of changes to transport policies19. The first three priorities reflect the policy themes of the Transport White Paper (2000)20, which argues that increasing congestion, which is particularly acute in the core areas of NWE, is threatening economic competitiveness and goes hand in hand with excessive isolation of the outlying regions. The Gothenburg agenda has strengthened the need for protection and enhancement of environmental resources. It has called for development of spatial strategies which have the potential to combine the Lisbon and Gothenburg agendas. For example, it is important to demonstrate the contribution that polycentric territorial development can make to economic competitiveness whilst respecting environmental sustainability. In the context of the Gothenburg agenda, it is important, for example, to quantify the reduced potentials for collective transportation in settlements that are not organised polycentrically. The following transnational issues highlight a number of key environmental concerns within NWE. 7.1 Impact of climate change Climate change and its consequences are at the forefront of the environmental concern. One of the main contributors to climate change is greenhouse gas emission, which is now a key indicator for monitoring Lisbon performance on environmental issues. Figure A8 shows the percentage change in total level of emissions in each member states. In NWE, while some countries, such as the UK and Germany, have reduced their emissions, others either have remained constant, such as France, or have experienced a rise, such as Ireland.

18 Presidency Conclusions of the Göteborg European Council 15 &16 June 2001, SN 2001/1/01 REV 1 A Sustainable Europe for a Better World: A European Union Strategy for Sustainable Development: Communication from the Commission 15.5.2001, COM(2001) 264 final 19 However, ESPON Project 3.3 is currently examining Territorial Dimension of the Lisbon-Gothenburg Strategy, (www.espon.lu) 20 CEC (2001) EU White Paper, European Transport Policy for 2010: Time to Decide, Luxembourg, OOPEC

7. Environmental protection and enhancement

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Figure A8: Total greenhouse gas emission Source: Structural Indicators, 2005

Climate change is expected to affect both the frequency and intensity of natural hazards. It comprises changes in weather variables (such as average and extreme temperatures), precipitation (rainfall and snow cover) and wind. These three elements in turn influence other aspects such as dry spells. In particular, changes in precipitation patterns is likely to lead to increased incidence of floods, drought and forest fires. Map A19 shows that there is a clear north-south split in terms of the impact of climate change, with NWE faring better than southern Europe. Nevertheless, there is a small increase in drought potential in the western and eastern borders of France, Belgium, Luxembourg, South of the Netherlands and parts of the southern Rhine Valley in Germany. There is also an

Map A19: Impacts of climate change Source: ESPON 1.3.1

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increased potential for flood hazards in much of West and South Germany and in some parts of central England. It should be noted, however, that the map shows only the increase in hazard rates as a result of climate change rather than the actual level of occurrence. 7.2 Exposure to natural and technological hazards

Map A20 Uses an aggregate of 7 indicators to show the spatial differentiation in the degree of exposure to various hazardous risks. Five of these indicators relate to natural hazards (volcanic eruptions, river floods, earthquakes, forest fires, winter storms) and two are related to technological hazards (radioactive contamination, oil production, processing, storage and transportation). Although there are large disparities within all countries, particularly within the UK and Germany in NWE, in general the more peripheral regions of Europe have a lower degree of exposure to hazards. While in Southern Europe, high degrees of hazard exposure relate mostly to natural hazards such as earthquakes and forest fires in Spain. In NWE, areas with a high degree of hazard exposure usually have a combination of natural and technological hazards, such as winter storms and oil hazards in East Scotland. In NWE there are high degrees of hazard

exposure in Scotland, Wales, Haute Normandie, South Germany and the Rhine/Ruhr conurbation. The lowest levels are to be found in North Netherlands, North West and Central Ireland and parts of Central England. In terms of natural hazards, NWE shows vulnerability to winter storms. Western and Southern Germany and Northern Switzerland have the highest indicator values for flood events. In relation to the risk of radioactive contamination, cities and regions in the vicinity of nuclear power plants, such as North West of France show a higher degree of exposure.

Map A20: Degree of hazard exposure Source: ESPON 2.4.2

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7.3 River flooding River flooding is a constant risk in many parts of NWE and is likely to be worsened by the effects of climate change, as mentioned above. Map A21 shows larger disparities in flood occurrence both within NWE and within individual countries. The greatest number of flood events has occurred in South West Germany, while there have also been frequent flooding in other parts of West and South Germany, South Belgium, East France, and Central and South England and Wales. River flooding occurrence is generally very low in the periphery of NWE. As rivers often form boundaries between countries, river flooding and its risk management are particularly significant transnational issues, as in the example of the Rhine Valley.

7.4 Pollution Similarly, air, water and soil pollution respects no boundaries. The major pollution causes in NWE are power generation, industry, waste disposal, transport, agriculture, and households. Hence, levels of pollution are highest in the core areas where the greatest concentrations of industrial and urban development exist. Using Nitrogen Dioxide (NO2) as an example, a clear core-periphery pattern emerges, as shown in Map A22. A similar pattern could be expected for other kinds of pollution. In NWE, the highest levels are in the major industrial and metropolitan areas, particularly the Frankfurt region.

Map A21: Flood recurrence Source: ESPON 1.3.1

Map A22: Yearly average of Nitrogen Dioxide

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7.5 Landscape fragmentation and reduction in biodiversity

The European territory consists, to a large extent, of highly fragmented semi-natural areas. Like much of Europe it has moved from a landscape of towns and cities, to urbanised regions with disconnected ‘green islands’. Fragmentation is the result of ongoing incremental processes, caused by urban development, the construction of transport infrastructure, and intensive agriculture. This in turn leads to a reduction in biodiversity, which is exacerbated by climate change, pollution, and intensive agricultural and fishing practices. On Map A23, dark blue indicates a low proportion of natural areas and a high degree of fragmentation, while the brown colour shows the opposite. It can be seen that most of the areas with the highest rates of fragmented semi-natural areas in Europe are to be found in NWE. The most extreme fragmentation

in NWE is in coastal or river zones, particularly in the coastal regions bordering English Channel and south of North Sea (i.e. South and Central England, North France, North and Central Belgium and the Netherlands), as well as in Ireland. The least fragmentation is generally found in mountainous areas, which in NWE is mostly limited to North and West Scotland.

Map A23: Landscape fragmentation Source: ESPON 1.3.2

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8.1 Natural Assets The NWE enjoys a wealth of diverse cultural and natural heritage. Its natural resources provide important potentials for economic development in many regions. However, striking a balance between utilisation and protection is essential to sustain such potentials. The ecological structure in Europe consists of many small disconnected ‘islands of nature’ surrounded by other ‘human-dominated’ types of land use. These fragments of semi-natural habitats are often not able to support the survival of species populations in the long run. The size of coherent, transnational, semi-natural areas as well as the distance between different sites is crucial for the maintenance of the NWE natural heritage. The natural diversity of NWE is closely related to its landscape characteristics. While there is no commonly agreed categorization of European landscape amongst various existing studies, the European Environment Agency’s bio-geographic regions (DMEER) has been used as a basis to distinguish five relevant territorial entities in Europe (Figure A19) which can also be applied to NWE. These are:

• Atlantic coastal zone • Continental plains/middle mountains • Mountainous areas • Seas • River valleys

Each of these regions has its own characteristics in terms of natural and cultural heritage. The protection and enhancement of this heritage often depends on transnational co-operation. Dominant characteristics of the NWE area are shown in Figure A9 to be the Celtic broadleaf forests and Southern Temperate Atlantic with, to a lesser extent, the Western European broadleaf forests, English lowlands beech forests and Northern Temperate Atlantic areas also featuring.

Figure A9: European ecological regions Source: EEA (DMEER)

8. Natural and cultural assets

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8.1.1 Natura 2000

An obvious example of transnational cooperation in environmental protection is Natura 2000, which is the principal EU policy instrument for nature protection and contribution to the Pan-European Ecological Network. Two types of sites, smaller than Ramsar Sites, have been designated as follows: • Special Protection Areas

(SPAs) designated under the Birds Directive

• Special Areas of Conservation (SACs) designated under the Habitat Directive

There are over 20,000 sites designated or approved, covering 15% of the EU15 territory. In NWE, there is a particular concentration of sites in West Germany, and in coasts and river basins elsewhere.

8.2 Cultural Assets Cultural resources represent an important element of ‘quality of life’ for a region. The transnational spatial distribution of cultural resources varies depending on their type. There is a tendency for the built heritage to cluster in coastal and urbanised areas. At the same time access to cultural resources is potentially more problematic in urbanised areas where use pressures are higher. The concentration of cultural assets is a strong element of attractiveness of an area. Visitor flows are an important development asset, producing jobs, income and branding. However, they are a potential source of disturbance through a congested use of resources in, for example, coastal and mountainous areas.

Cultural sites can be divided into the following categories: • Archaeological remains of old tribes and civilisations • Historic buildings and structures • Industrial heritage • Governmental institutions • Former battlefields and other war remains 8.3 Growing pressure from tourism Many of NWE’s cultural sites and cities are at full capacity. The growing number of tourists from across the world who are attracted to important, but vulnerable,

Figure A10: Natura 2000 Network Source: ESPON 1.3.2 (2002-04)

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natural heritage areas, especially coastal zones and mountain areas, are generating waste and pollution. Moreover, excessive tourism threatens to preclude access to the resources by the local population. Finally, heavy economic pressure from tourism is likely to alter the social mix of the territory through ‘crowding out’ effects and its impact on ‘cultural identity’. To enhance the stretched carrying capacity of tourist attractions, there is potential for transnational development of European cultural tourism routes and ‘green’ European routes. 8.4 Role of cultural heritage and creative industries in economic innovation Culture and cultural heritage have come to be considered as assets for future development, stimulating creative power and the formation of a creative class. The concentration of such assets in NWE creates opportunities for economic innovation, along the lines of the Lisbon/Gothenburg Agenda. Economic innovation is not only related to technological development, but also to the development of arts and entertainment in the creative industries, as well as the development of regional products, both of which can be stimulated by cross-border or transnational cooperation.

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Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

1. Introduction

Chapter A2 Awareness, Coverage and

Cooperation

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1.1 Chapter outline This Chapter consists of 6 main sections. Section 2 examines the level of awareness of transnational issues among key actors at the national and regional levels. Sections 3 and 4 examine the coverage of these issues in plans and programmes, and in cooperation initiatives respectively. Section 5 summarises the views of stakeholders with regard to barriers to cooperation and the need to overcome them and the added value of cooperation. 1.2 What is transnationality? Transnationality is interpreted differently both between the Three Studies and within different sections of each study. There are at least three different interpretations in, for example, identifying ‘key transnational issues’.

• One is based on ‘identifying the issues where transnational cooperation is worthwhile’, ‘adds value’, or there is a ‘real need’ for cooperation (Spatial Vision and to some extent Study 1)

• Another is based on identifying ‘key trends’ or key transnational trends,

meaning trends whose effect goes beyond national borders, but it is not clear where transnational cooperation to address them adds any value (Study 2)

• A third approach is to see transnational issues as ‘objectives and goals’ rather

than issues (Study 3) The approach adopted in this report is the one identified in the first interpretation, which also seems to be the consensus view emerging from various consultations undertaken in Spatial Vision process. However, as highlighted in the Mid-term Evaluation of the Programme21 cooperation on common issues are also considered as valuable and as a step towards cooperation on transnational issues. This section examines the level of awareness of key transnational issues, as identified by the Three Studies, among main players at national and regional levels, and their views on future transnational concerns. The results are presented according to the themes of the Three Studies which include:

• Polycentric territorial development • Parity of access to infrastructure and knowledge • Sustainable management of cultural and natural heritage

The information provided by the Three Studies and summarised below was collected through qualitative interviews with key stakeholders in the regions covered by the North West Europe programme. These were conducted either as part of a series of national workshops or face-to-face or telephone contacts.

21 Bergs, R (2005) Working Paper: Notes on the Spatial Vision for North West Europe

2. Level of awareness of transnational issues

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Whilst there are major variations in terms of to both issues and the ways in which the Three Studies have addressed the question, the general picture points to a limited knowledge and appreciation of the transnationality of the key issues as outlined below. 2.1 Polycentric territorial development There is great variation amongst the key players in member states in their understanding of ‘polycentricity’ as a normative and analytical concept22, as well as the extent to which the concept has been taken up in national and regional policy documents. On the one hand, in countries such as the Netherlands, Germany and Switzerland, the concept is well established in their spatial planning systems, even if the normative concepts used to promote more balanced territorial development in these countries are more generally known by other names; namely, ‘concentrated-deconcentration’ (Netherlands), ‘decentralised concentration’ (Germany), or ‘urban network’ ideas (Switzerland, Netherlands). In other countries, most notably the UK, recent national level policy promotes the stimulation of economic growth in particular parts of the country, such as the Northern Way in the north of England. In Belgium, the concept of polycentricity is considered as rather abstract, with limited evidence of added value. Other countries, such as Ireland, Luxembourg and France, have a clear reference to the normative dimension of polycentricity in their current national policy, though many questions remain about how it can be applied and implemented in practice at different spatial scales, and the tension between polycentricity, territorial cohesion and competitiveness. Moreover, even where polycentricity as an analytical concept is well-established in practice, such as in the Netherlands, there are critical views as to the desirability of pursuing polycentric territorial development. Views on polycentricity also differ depending on the spatial scale involved. Most key actors in NWE have not yet given much attention to the key transnational issues affecting their territories. Furthermore, it often appeared more difficult for participants (for example in the Netherlands and Belgium) to identify key transnational issues that have a clear relationship to polycentric development, than to identify transnational issues for cooperation in the areas of environment, transport or legislation. In addition, many actors considered it difficult to demonstrate the added value of transnational cooperation on polycentric development, and the claims made that this will lead to, for example, better economic performance, better accessibility, and environmental sustainability. Some of these actors felt that the further integration of markets is much more important for sustaining economic growth, while others were concerned about the dispersive effects of pursuing polycentric spatial development at the regional level, with the consequent environmental costs in terms of greater levels of pollution. These views have been echoed in the Mid-term Evaluation of the Programme23. The need for continuing cooperation on common issues (based on shared interests in a specific theme), instead of on truly transnational (spatial) interdependencies was highlighted by many key stakeholders. Emphasis was often put on particular issues

22 Davoudi, S., 2003, Polycentricity in European Spatial Planning: From an Analytical Tool to a Normative Agenda, European Planning Studies, Vol. 11(8): 979-999 23 Bergs, R (2005) Working Paper: Notes on the Spatial Vision for North West Europe

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that are important in spatial development in individual countries. For example, demographic change, ageing, and the depopulation of rural areas, with their clear transnational spatial impacts, were considered important in Germany, while migration was identified as a major concern in Belgium. 2.2 Parity of access to infrastructure and knowledge The level of awareness about access to infrastructure and knowledge was not addressed in Study 2, though a reference was made in relation to polycentricity to the importance of the knowledge economy and the critical role of higher education and research institutions in economic development, and particularly the potential for combining transnational networks of research centres. 2.3 Sustainable management of cultural and natural heritage Overall, it was acknowledged that participation at stakeholder workshops organised by Study 3 was not representative of the broad scope of issues discussed. Although it differed from country to country, in general, participation from experts representing the fields of energy or environmental technology was low. Most participants came from the fields of spatial development, nature conservation and heritage management. Culture

Overall, the importance of culture as a transnational theme was most emphasised in France, Belgium and Ireland. In Belgium, the transnational development of European cultural routes and ‘green’ European routes was emphasised. However, transnational or cross-border cooperation for the protection of historic monuments was not considered essential by some stakeholders in the UK and France. Cooperation was considered essential to stimulate culture as a source of cohesion in the UK, though less so for the stimulation of creativity and innovation in France and the UK. Nature

Overall, nature was considered most important as a theme for transnational cooperation in Belgium, the Netherlands, UK, Ireland, France and Luxembourg. Ecological connections and natural areas, in particular, were identified as key in Belgium and the Netherlands. Climate change was identified as very important in the UK and the Netherlands, with the importance of transnational cooperation in relation to acid rain and air quality emphasised in the UK, while cooperation in relation to flood prevention and water quality was also emphasised by many stakeholders. Indeed, climate change, and in particular global warming, is seen as an overarching or cross-cutting issue, as it will have long-term consequences in terms of changes in energy supply, limitations on energy use, an increasing need to conserve energy, and environmental effects, such a rise in sea levels. Transnational cooperation for enhancing biodiversity is considered essential in all countries, as is the importance of the protection of nature in general, (with the protection of maritime resources specifically seen as key in the UK and the Netherlands) and the importance of the Natura 2000 European ecological network in particular. Environment

The importance of transnational cooperation for dealing with air pollution was stressed by most stakeholders, particularly in the UK, Germany, the Netherlands and

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Switzerland. Risks, related to industrial accidents, nuclear power and maritime accidents, are considered as important transnational issues by many. In particular, maritime pollution is considered important in France, the Netherlands and the UK, while risks related to nuclear energy considered so in the Netherlands. However, although renewable energy was seen as an important issue for transnational or cross-border cooperation in Belgium, there were doubts about this in France, the Netherlands and the UK. This section examines the degree of coverage of transnational issues, as identified by the Three Studies, in existing strategies, plans and programme documents. The results are presented according to the themes of the Three Studies which include:

• Polycentric territorial development • Parity of access to infrastructure and knowledge • Sustainable management of cultural and natural heritage

The information provided by the Three Studies is based on the review of a range of policy and programme documents. However, the approach taken by the Three Studies varies considerably in terms of comprehensiveness and systematic recording of the evidence. 3.1 Polycentric territorial development The main documents considered here were: • The main strategic plans and policy documents at national and regional levels in

the eight NWE countries • Cross-border and transnational cooperation programmes • A sample of INTERREG IIIB project reports Generally, there is little explicit consideration of transnational issues in national and regional policy documents, and there are few references to specific proposals with a transnational or cross-border character. The most common general ‘theme’ related to polycentricity is ‘connectivity’ among urban centres, in connection to infrastructure requirements to link economic centres in order to realise their potential; access to services through cooperation among cities; and networking and partnership among city, town and regional governments (see Figure A11, below). Other prominent issues in policy documents are logistics and distribution; cross-sectoral initiatives across borders; role of second and third order cities; and institutional capacity-building for transnational working. Also, issues related to the economic competitiveness of regions and nation-states, and most closely related to the Lisbon Strategy; growth of the fourth sector economy; and regional disparities as a result of economic restructuring are also frequently mentioned.

3. Coverage of transnational issues by plans and programmes

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The issues that are least addressed in policy documents are mostly related to demography including structural population changes, such as ageing and migration; cultural diversity and segregation; and the ‘brain drain’ effect. The effect of EU enlargement on polycentricity and a transnational perspective on urban and rural relationships was not found at all.

In many of the issues, the link between polycentricity, transport and accessibility is very strong and difficult to separate out. There are also strong connections between polycentricity and environmental and cultural issues. 3.2 Parity of access to infrastructure and knowledge The degree of coverage by existing planning documents varies widely depending on the type of issues and the countries concerned. 3.2.1 Transport infrastructure In the field of transportation, the existence of transnational interdependence and cooperation is widely acknowledged and reflected in planning documents, in three specific areas in particular: • Dependence upon transnational links to overcome peripherality (mainly in Ireland

and parts of UK) • Transnational traffic as an essential element of economic strategies (mainly in the

Netherlands and Belgium) • Transit traffic as a possible constraint (mainly in Germany, Switzerland, France) Transnational priorities are generally more explicitly related to transport infrastructure (such as missing transport links) than to transport services and to the concrete functioning of transport systems. The strategies of operators and the transnational problems which may result are seldom mentioned. A number of relatively recent transport issues, such as the potential impact of increasing energy prices, the need for transnational coordination in road pricing policies, the potential side-effects of strongly developing regional airports are not yet adequately integrated in national and regional transport strategies.

Figure A11: Frequency of transnational polycentricity issues in national and regional policy documents Source: Study no. 1, p.30, Figure 11

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Complex issues such as those of coherent port development and the need to strengthen intra-European maritime transport are not accurately analysed and often strongly reflect national interests. The need for a better transnational coherence of port development strategy is not mentioned at all and this reflects the climate of strong competition which prevails between ports, even within individual countries. Issues in relation to Intelligent Transport Systems (ITS) are frequently mentioned in national and regional transport strategies because they are of great national significance for the prevention of accidents, better traffic management and so on. However, the transnational dimension of such strategies and solutions is dealt with much less frequently. 3.2.2 Telecommunications infrastructure Due to the fact that the telecommunication sector has been largely privatised, there are not explicit or binding national and regional plans in the field of advanced telecommunication infrastructure, although there are some guiding documents. At the national level, regulatory authorities provide the framework for the activities of the private operators and governments have encouraged the formation of groups of users such as the Broadband Stakeholder Group in the UK. Telecommunication issues feature in national public debates in the form of strategic factors for economic and social development. In some cases (France, in particular), specific public measures to counteract a territorial digital divide have been taken. Transnational issues in this field, however, are hardly ever mentioned. 3.3 Sustainable management of cultural and natural heritage Overall, only a small number of policy documents focus on integrated territorial or spatial strategies. Consequently, important concepts such as territorial capital and territorial governance are not elaborated. Most of the existing policy documents have a sectoral character, addressing problems within one specific field. This especially applies for environmental regulations. The sectoral focus of these environmental regulations may cause problems within other sectoral fields. An example is the EU Air Quality Directive on particles, which creates problems in high density areas, as it puts restraints on building activities even if these activities are sustainable. Within existing INTERREG projects the scope is often problem oriented and sectoral. In the field of water management there is an obvious awareness of the need to relate measures to spatial developments. However, the large majority of the water management projects only touch one or two aspects of spatial development. An integrated and territorial approach is missing. For instance, most of such projects do not attempt to integrate measures against the risk of river flooding or a rise in sea level within the framework of the wider spatial development of the area. In the cultural sector, the relation to the wider territorial context is hardly developed. Cultural heritage is not seen as an important asset or structural principle, and is not integrated into spatial development strategies. 3.3.1 Cultural heritage Although European and national documents make reference to cooperation in relation to culture, transnational cooperation and spatial aspects play only a minor role. The

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institutional context of cultural heritage at the European level is not strong. It has a stronger profile at the national, regional or local level. However, not many countries have incorporated goals related to transnational cooperation with regard to cultural heritage and sustainable tourism in their national or regional planning documents, and policies tend to focus on a narrow definition of culture. There are cross-border and transnational projects and programmes that make reference to historic monuments, architecture, landscape protection and touristic or historic routes. More attention is paid to protection rather than development of cultural capital or assets. An exception is the development of European tourist or cultural routes in NWE, such as the European Routes of Industrial Heritage and the European Garden Heritage Route. 3.3.2 Natural heritage Transnational cooperation for the protection of biodiversity and the creation of ecological networks is seen as important, although the implementation in many cases is quite recent. Preservation is seen as more important than pro-active management of ecological systems as an integral part of spatial development. The best example of transnational cooperation in this field is the Natura 2000 network, which has been transposed into the national and regional plans of Belgium, France, the Netherlands, Luxembourg, the UK and Germany. Although there is no specific mention in Irish and Swiss spatial planning documents, references are made to cross-border cooperation with regard to natural heritage. Within the NWE, there is a high level of awareness of the Water Framework Directive, Habitat Directive and Natura 2000. 3.3.3 Environment Traditionally, the EU has taken a sectoral approach to the development of environmental policy. Water quality and quantity, waste management, sustainable and renewable energy, and air quality all have separate policies and directives. Most of these policies and directives are elaborated further at the national level. More recently, the explicit consideration of transnational issues and cooperation has grown, with the implementation of the Water Framework Directive and the Strategic Environmental Assessment. Prevention and protection are still the main concerns, instead of an integrated territorial approach. However, securing certain standardised levels of environmental quality may even result in undesirable homogenisation.

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This section examines the extent to which key transnational issues have been appropriately addressed by various forms of cooperation including cross-border and transnational projects and programmes. The results are presented according to the themes of the Three Studies which include:

• Polycentric territorial development • Parity of access to infrastructure and knowledge • Sustainable management of cultural and natural heritage

4.1. Polycentric territorial development

Based on the review of a large number of cross-border and transnational programmes, it is evident that these programmes mainly address transnational issues related to governance and polycentricity, such as co-operation among cities, cross-sectoral initiatives, instruments to support transnational co-operation, and the capacity of institutions to engage in such co-operation (see Figure A12). The coverage of polycentricity issues by INTERREG projects mirrors the issues mentioned in the policy documents, and address polycentricity mostly in relation to connectivity among urban centres, particularly in developing networks among cities and physical infrastructure connections. There are far fewer projects dealing with issues related to the Lisbon Strategy, such as the use of ICT and

economic activity, enlargement, or issues related to demography and migration. A number of current INTERREG projects were suggested as providing examples of how polycentricity can be addressed, especially in co-operation among cities in creating joint instruments, or strategies, or exchanging experience on city networking.

4. Coverage of transnational issues by cooperation initiatives

Figure A12: Frequency of transnational polycentricity issues in cross-border and transnational cooperation programmes Source: Study no. 1, p.33, Figure 12

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4.2 Parity of access to infrastructure and knowledge The analysis of cooperation projects under INTERREG IIC and IIIB in NWE reveals a contrasting picture in the way key transnational issues are addressed. There is no doubt that the opportunities provided by the cooperation programmes have created added value in addressing transnational issues. This has happened in two ways: • Firstly, in providing a transnational approach to issues which were already being

tackled in the respective national contexts (for example, issues related to: HST, to rail freight, green mobility, better traffic management, etc)

• Secondly, in using the transnational dimension to address issues of both

transnational and national character which up until then had been absent from the public debate and national policies (integrated design and planning of corridors, promotion of freight transport on rail ferries, integrated management of congested airport regions)

There are, however, a number of key transnational issues which have not yet been properly tackled by cooperation activities, either because: • They are complex and/or conflicting (for instance, more coherent port

development), • Issues are of recent nature (transnational coordination of road pricing, impacts

of increasing energy prices, side-effects of regional airports driven by low-cost airlines), or

• The appropriate stakeholders are not sufficiently involved in the cooperation process (railway companies, maritime and inland shipping companies, telecommunications operators, various sectoral administrations, etc.)

In addition, it is important to mention that a number of key transnational issues should in the first instance be debated by the respective national and regional authorities in the context of regular and well-established network structures (a kind of activity which has not yet taken place at the scale of the NWE cooperation area) before they become the object of concrete cooperation projects. The strengthening of high level strategic cooperation would also make it easier to tackle the thematic overlaps of different INTERREG priorities and programmes. 4.3 Sustainable management of cultural and natural heritage 4.3.1 Cultural heritage There are a number of existing projects, funded under the current programming period, which focus in part on a transnational approach to conserving and strengthening cultural heritage. In these projects a wide range of methodologies are applied, ranging from setting up transnational strategies to establishing knowledge exchange networks, and promoting partnerships for long-term activities. In general, they focus on three main aspects: • Identifying and enhancing transnational cultural identity with regard to high

quality management of urban and rural landscapes • Identifying the role of cultural heritage in relation to sustainable economic

development in the post-industrial era • Improving historic awareness and knowledge of cultural heritage

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4.3.2 Natural heritage A range of projects also exist to conserve and strengthen natural heritage. Their main objectives are: • Sustainable management of the natural heritage, focusing on protection and

reduction of landscape fragmentation • Combining management of natural heritage with other economically more

attractive sectors like tourism • Adapting natural heritage to climate change effects • Creating environmental awareness 4.3.3 Environment Projects with a transnational approach are currently limited to the area of water management, focussing on the following objectives: • Developing innovative techniques for the construction and evaluation phases. • Promoting integrated approaches to deal with flooding and/or water quality

improvement • Better communication, in order to create awareness, improve public consultation

and decision-making processes

This section of the report examines the extent to which the positioning and thematic overlap of various INTERREG areas24 has affected the process of cooperation and the responses to transnational issues. The information summarised below has been drawn from the Three Studies and hence constrained by the level of information provided by each study. Given such variations, the results are presented according to the themes of the Three Studies which include:

• Polycentric territorial development • Parity of access to infrastructure and knowledge • Sustainable management of cultural and natural heritage

5.1 Polycentric territorial development The geographical delineation of INTERREG areas at both cross-border and transnational level are thought to be inappropriate. The co-operation areas are perceived as too heterogeneous, combining areas with different problems and concerns and adding an additional administrative boundary. The strict definition of INTERREG areas is therefore seen as a barrier to more effective transnational working on polycentricity. Key actors recognise cross-border polycentricity issues more readily than transnational issues. Nevertheless, they were critical of the 'zoning' (area boundaries) of the current INTERREG IIIA programmes. For example, Luxembourg is, for the purposes of INTERREG IIIA divided into two programmes, which is perceived as a rather artificial split which hinders many joint Luxembourg co-

24 For more information on INTERREG IIIB areas, including overlaps with the NWE area, see Chapter D

5. The impact of the positioning and thematic overlaps of different INTERREG areas on the process

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operation activities. The Ireland-Wales INTERREG IIIA programme was thought to combine two areas with a very different geographical context and thus fundamentally different issues, i.e. the metropolitan area of Greater Dublin with the peripheral and predominantly rural parts of West Wales. At the transnational level the commonly held view of key actors is that the current definition of transnational regions: • is not fit for purpose for co-operation on many significant issues, because it

simply replaces one boundary (and its problems) with another • artificially restricts the ability to build meaningful partnerships and prevents

inclusion of partners from outside NWE which would be beneficial, particularly the new member states

• lacks a ‘transnational identity’ and rationale in relation to the substantive transnational spatial development problems that regions face including, for example, the mobility of command structures beyond NWE, the impacts of demographic change, and migration.

5.2 Parity of access to infrastructure and knowledge The impact of the positioning and thematic overlap of various INTERREG areas on the process of cooperation and the responses to transnational issues related to transport infrastructure and ICT has not been dealt with in Study 2. 5.3 Sustainable management of cultural and natural heritage According to Study 3, there are a variety of advantages with the current delineation of INTERREG areas, such as: • More cooperation because of the large number of issues and key players • More integration of different themes • More chance of getting funding for projects via different INTERREG programmes However, a disadvantage is that administrative boundaries do not follow the INTERREG boundaries and hence make it difficult for key actors to coordinate their national and transnational activities.

Following from the issues raised in Section 3 and 4, concerns remain over the reasons for limited success of co-operation schemes in tackling the transnational issues and their coverage in plans and programmes in a satisfactorily way. This Section of the report attempts to address this question by drawing on the evidence provided by the Three Studies. Once again, given the different topics covered by each study, the results are presented according to the themes of the Three Studies which include:

• Polycentric territorial development • Parity of access to infrastructure and knowledge • Sustainable management of cultural and natural heritage

6. Barriers to cooperation on transnational issues

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6.1 Polycentric territorial development There are significant perceived barriers to transnational co-operation that will affect the attention given to polycentricity, including the complex procedures for application and project management, and the different regulatory frameworks and distribution of competences among member states. Eight main reasons are given for the unsatisfactory attention to transnational issues in this area: • variation in government and legal structures and processes • relative priority given to cross-border issues • political priority given to physical (infrastructure) outcomes • high resource and expertise demands • urban bias of the polycentricity concept and the INTERREG programme • perceived abstract nature and limited added-value of polycentric development at the transnational level • the defence of national interests in economic and political spheres allied to the traditional competitive position of regions and cities • lack of involvement of important public and private sector service providers. 6.2 Parity of access to infrastructure and knowledge In the context of the INTERREG IIC and IIIB programmes, transnational cooperation in NWE in the field of transport, accessibility and telecommunication infrastructures remained more limited than expected. There are a number of reasons for this. A particularly important factor is that the most relevant stakeholders in the field of transportation are at the national level (national administrations, national transport companies and operators etc.). These are seldom involved in the activities of the programme. A second important reason is that transnational competition, for instance between national railway companies, plays an important part in limiting the cooperation potentials. The private sector accounts for an increasingly large proportion of transport services (air, maritime, waterway, road and rail freight transport) as well as the main part of telecommunication infrastructures and services. Market competition and profit seeking limits their interest in engaging publicly driven transnational activities. So far, the INTERREG IIC and IIIB programmes have not demonstrated that transnational cooperation is likely to be profitable to the private sector. On the contrary, the provisions regulating the programmes rather counteract profit making. 6.3 Sustainable management of cultural and natural heritage Barriers to cooperation in this area have not been addressed in Study 3.

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As shown in sections 4-6 above, the overall picture which is emerging from the three themes can be summed up as a situation where there is:

• Little awareness of transnationality of issues among the key actors • Patchy coverage of transnational issues in sub-EU plans and policy document • A clear need for a pro-active awareness raising and communication strategy

Consultation with various stakeholders which took place during the course of the 4 studies has pointed to a number of perceived barriers to effective transnational cooperation including

• Differences in government and legal structures • Little financial and human resources • Lack of expertise in transnational working • Competition and rivalries • Lack of ownership among key actors • Rigidity of boundaries • Limited perception of commonality

However, there is also a high level of consensus among the stakeholders about the added-value of transnational cooperation based on the view that it provides the opportunity to:

• Establish long-lasting networks • Overcome administrative borders • Make European integration more visible • Facilitate exchanges of experiences and information at cross-border and

transnational levels across Europe • Strengthen the role of regional actors

In order to make transnational cooperation more effective, there is a need to:

• Promote projects which aim to build institutional capacity for transnational collaboration;

• Discourage random selection of project partners • Encourage formation of more focused and purposeful strategic partnerships

and transnational policy networks A proactive communication strategy by member states is vital to raising awareness and promoting effective cooperation.

7. Conclusion

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Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

Chapter B Priority Themes

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1.1 Outline of Chapter This chapter reports on the process of research and review undertaken to inform the review of priority themes for the NWE area, and presents an updated list of priority themes with a brief analysis of content. The chapter is structured into three main sections: Section 1 contains this introduction; Section 2 focuses on the process of review, detailing the range of inputs which included the original Spatial Vision and NWE Programme Complement, a review of EU policy and spatial trends and, of course, the synthesis of the Three Studies; Section 3 presents the outcome of the review process – that is, the updated priority themes - and includes an initial analysis of the content.

2.1 Summary of inputs into the review of thematic priorities The obvious starting point for a review of NWE spatial development thematic priorities was with the original priorities and principles for the area as set out in the Spatial Vision, the Community Initiative Programme and subsequently the Programme Complement. Following on from this a review of recent EU territorial policy development was undertaken, including consideration of emerging spatial trends. The synthesis of the Three Studies provided an essential contribution to the process, representing as it does the result of thematic research and consultation with key actors in NWE. Together with reference to relevant discussion papers and other documents, the aforementioned sources provided material for a working list of priorities, which was tabled for discussion at the September 2005 SVWG workshop in Dusseldorf. Guided and facilitated by the authors of this report, the discussion and consensus of workshop participants was subsequently reported to all SVWG members, and the resulting feedback constituted the final, and most valuable input into the review process. The following list features all of the inputs into the review process:

• Spatial Vision (2000) • Community Initiative Programme (2002) • Programme Complement (2003) • Review of changes in EU Policy

– Lisbon Strategy (2000 and 2004 review) – Gothenburg Strategy (2001)

• Review of emerging trends – Demography and migration – EU enlargement

• Synthesis of 3 Studies • Discussion papers and other documents • SVWG workshop and feedback

1. Introduction

2. Priority themes: the process

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The rest of this section takes each of the above mentioned elements in turn and highlights the material that is of value in informing the review of priority themes. 2.2 Strategic Principles from the Spatial Vision The discussion document, “A Spatial Vision for North-West Europe: Building Co-operation”, published in September 2000, outlines a comprehensive territorial strategy for the NWE area25. Using the key principles of the European Spatial Development Perspective (ESDP) as a starting point (development of a balanced and polycentric urban system and a new urban-rural partnership; securing parity of access to infrastructure and knowledge; sustainable development, prudent management and protection of nature and cultural heritage) the Spatial Vision sets out its own strategic principles under the three broad themes of settlement structure, accessibility and natural and cultural landscapes. Within the three themes are situated six broadly defined strategic principles focusing on the following issues in NWE: • the global economic role of metropolitan areas • the distribution of prosperity • internal and external access • impact on the global environment • the management of natural and cultural heritage. For each of the strategic principles there is an associated list of more detailed sub-objectives. These are presented in Figure B1 below.

Spatial Vision Strategic Principles

Settlement Structure

Enhancing the global

role of north-west

Europe’s metropolitan

areas

• developing the metropolitan areas as part of the global economy linked to the rest of the world, the rest of the European Union and the rest of Europe

• supporting and maintaining the concentration of global economic functions and seeking a more balanced distribution of high level urban services

• promoting specialisation and complementarity of city functions through cooperative networks particularly in respect of inward investment strategy, growth sectors and knowledge based industries

Ensuring more fairness

in the distribution of

prosperity in north-

west Europe

• developing complementarity between metropolitan areas and medium sized towns

• developing transnational networks and cross-borders clusters that are able to exploit indigenous economic potential

• promoting more balanced distribution of investment in growing sectors, especially research and development centres in economically weaker regions

• assisting the development of transnational strategies aimed at exploiting economic potential

Accessibility

Maintaining high levels

of access to and from

north-west Europe

• enhancing specialised and complementary gateways for air, sea and rail • avoiding concentration in a few centres and inappropriate investment in

underused infrastructure • completing the HST network to provide external connections to the rest

of Europe from all main cities • making the best use of opportunities offered by new information and

25 Spatial Vision Group (2000) A Spatial Vision for north-west Europe. Building Cooperation. VROM

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communications technologies and e-commerce to strengthen global connectivity

• avoiding the use of air travel for short journeys

Improving internal

access and mobility in

a sustainable way

• promoting the development of transnational public transport strategies • ensuring that gateway functions are properly coordinated with internal

communication networks and new spatial development patterns • completion of the HST network to all major urban centres and improve

associated public transport links • maximising the potential for a more complete system of rail/water links

(as part of TENS) to carry freight traffic • promoting inter-modality and inter-operability and the avoidance of

unnecessary air travel • identifying how connectivity amongst the big cities and between them

and their hinterlands can be improved through selective infrastructure improvements and the promotion of existing and new spatial development and transport nodes

• making best use of, and ensuring universal access to services through information and communications technologies

Natural and Cultural Landscapes

Reducing north-west

Europe’s global

environmental impact

• containing transnational travel by meeting the other challenges • promoting the sustainable use of resources • maximising the use of less polluting energy generation

Protecting and

creatively managing

the natural and cultural

heritage

• ensuring that development does not exceed the capacity of the environment to absorb it and reflects and respects the distinctiveness of the locality

• identifying and protecting sites of transnational significance • establishing and extending the network of natural and open spaces • promoting integrated management of water resources in transnational

river basins

Fig B1: Spatial Vision Strategic Principles

2.3 Community Initiative Programme In addition to the Spatial Vision, the INTERREG IIIB Community Initiative Programme (CIP)26 for north-west Europe (approved in 2002) was examined and provided further material relating to priority themes. The CIP sets out five key priorities, each addressing a distinct area of policy. These priorities are as follows:-

1. An attractive and coherent system of cities, towns and regions 2. External and internal accessibility 3. Sustainable management of water resources and prevention of flood damage 4. Sustainable development, prudent management and protection of other

natural resources and of cultural heritage 5. Promoting the maritime potential of NWE and its territorial integration across

seas 2.4 Programme Complement The Programme Complement27 builds on the thematic priorities of the CIP, identifying 10 supporting measures (2 for each priority) and a number of more detailed objectives per measure. The priorities and their objectives, listed in Figure

26 NWE Joint Technical Secretariat (2002) Community Initiative Programme. INTERREG IIIB Community Initiative North West Europe 27 NWE Joint Technical Secretariat (2003) Programme Complement. INTERREG IIIB Community Initiative North West Europe

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B2 (below) for reference, act as a firm foundation for the revised priority themes proposed in this study.

PRIORITY 1: An attractive and coherent system of cities, towns and regions

Measures Objectives

Measure 1.1 More attractive metropolitan areas in the global and European context

1. Maintaining the leading global position of NWE through more attractive metropolitan areas; achieving a more balanced distribution of functions among metropolitan areas in order to increase global competitiveness and reduce the detrimental effects of unnecessary competition between cities;

2. Promoting a more balanced growth and polycentric pattern of territorial development as well as equal access to employment and other opportunities across NWE;

3. Promoting sustainable metropolitan development and increasing the level of cooperation, transfer of knowledge and joint action on sustainable urban development so as to improve the quality of life in cities and towns;

4. Improving the knowledge base on metropolitan systems, their evolution, development and management in NWE; improving co-operation through a better understanding of the various metropolitan planning systems in Member States and regions and widening citizens’ involvement in metropolitan development strategies through public awareness campaigns

Measure 1.2 Coherent and polycentric pattern of complementary cities, towns, rural areas, coastal and peripheral regions

1. Contributing to a more balanced growth and spatial development as well as to equal access to employment and other opportunities across NWE, by ensuring that all parts of NWE are able to play a full role in maintaining safeguarding and enhancing the prosperity and quality of life of the region;

2. Increasing the competitiveness of NWE by achieving more complementarity in the distribution of functions between regions, cities and towns and making the best use of shared functions and services;

3. Contributing to a more sustainable urban development, namely by making medium sized and small towns more attractive and strengthening urban-rural partnerships;

4. Improving the knowledge-base on territorial structures and on development trends in NWE so as to enhance co-operation, in particular through a better understanding of the various spatial and regional planning systems in Member States and regions and through wider involvement at the citizens’ level.

PRIORITY 2: External and internal accessibility

Measure 2.1 Sustainable mobility management

1. Promoting a more balanced external accessibility of NWE while ensuring sustainable transport connection and reducing the environmental footprint;

2. Promoting internal accessibility while contributing towards greater territorial cohesion through sustainable transport;

3. Improving the knowledge base on external and internal accessibility, thus improving the basis on which future decisions can be taken;

4. Improving transnational and cross-sectoral co-operation through the development of new models, achieving a higher coherence between public policies and a greater involvement of transport users in the attainment of the above-mentioned objectives.

Measure 2.2 Improved access to the Information Society

1. Improving access to knowledge and information and promoting Information and Communication Technologies in fields relevant for territorial development;

2. Promoting, through the development of ICT, greater opportunities and universal service in less favoured regions of NWE whilst addressing the centralising and polarising tendencies of ICT;

3. Improving the knowledge base on the potential of ICT for territorial development in NWE;

4. Improving transnational and cross-sectoral co-operation by exploring

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new models, promoting higher coherence between public policies and greater involvement of the wider public in the attainment of the above-mentioned objectives

PRIORITY 3: Water resources and the prevention of flood damage

Measure 3.1 Land use and water systems

1. Promoting the integrated and sustainable management of water quality and quantity in order to prevent pollution, protect and enhance habitats and minimise resource extraction;

2. Promoting integrated and sustainable management of river basins in NWE;

3. Integrating water systems and water resource issues into the techniques, tools and strategies of territorial planning and other policy sectors;

4. Improving awareness, knowledge and co-operation on issues related to water systems in the NWE area while taking the wider EU dimension into account

Measure 3.2 The prevention of flood damage

1. Minimising the damage from river and coastal flooding, in particular through direct actions and measures and through the integration of land-use and water systems issues, in particular in transnational river basins and coastal areas;

2. Raising awareness, knowledge and co-operation on flooding issues in the NWE area while taking the EU dimension into account.

PRIORITY 4: Other natural resources and cultural heritage

Measure 4.1 Stronger ecological infrastructure, reduced ecological footprint

1. Protecting the environment, in particular local and global ecosystems, and improving the natural environment and the quality of life;

2. Promoting nature conservation and biodiversity; 3. Drawing up integrated strategies for a more sustainable management of

territories, combining economic prosperity and social inclusion with a high level of environmental protection;

4. Improving knowledge on environmental resources and issues and co-operation on the management of environmental resources in relation to spatial issues.

Measure 4.2 Protection and creative enhancement of the cultural heritage

1. Preserving, protecting and improving the built environment and cultural heritage of the NWE region as an asset for present and future generations;

2. Promoting the conservation and renovation of the built heritage as a tool for sustainability and promoting an understanding of the identity of regions;

3. Drawing up integrated strategies for sustainable development combining economic prosperity and social inclusion with a high degree of environmental protection (enhancement of cultural assets, quality of life, territorial competitiveness);

4. Improving knowledge on the cultural heritage of NWE and developing co-operation in the protection and creative enhancement of the cultural heritage.

PRIORITY 5: Promoting territorial integration across seas

Measure 5.1 Promoting co-operation between sea- and inlands ports

1. Promoting the sustainable development of maritime functions within NWE by

2. favouring a better balance within the NWE port system, a more co-operative approach between ports with overlapping hinterlands and by developing short-sea shipping along NWE coasts;

3. Strengthening sustainable relationships throughout NWE between ports and their hinterlands (sustainable transport networks and growth clusters based on sea and inland ports);

4. Improving the knowledge base on maritime and hinterland transport systems in NWE and developing co-operation to enhance the maritime functions of NWE while ensuring more sustainable hinterland connections

Measure 5.2 Facilitating cooperation

1. Overcoming barriers to cooperation across maritime borders through the improvement of sustainable connections between the islands and

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across and between maritime and inland regions

the mainland of NWE and through co-operation on maritime issues such as tourism, trade, logistics, marine and maritime technologies, research and culture;

2. Improving the management of natural resources of seas and coastal areas while addressing environmental issues from a transnational perspective and developing joint strategies for risk management;

3. Improving the knowledge base and co-operation on maritime issues such as the connections between islands and mainland, the management of marine and coastal natural resources and the prevention of risks.

Fig B2: Priorities, measures and objectives from the Programme Complement 2.4 Recent EU policy changes: the Lisbon-Gothenburg Strategies As referred to in Chapter A, there have been notable changes in the EU policy context since the publication of the Spatial Vision. The Lisbon and Gothenburg Strategies have become a central policy issue in the EU since their adoption in 2000 and 2001 respectively. 2.4.1 The Lisbon Strategy The Lisbon European Council (2000)28 set out a strategic aim to make Europe

the most competitive and dynamic knowledge-based economy in the

world, capable of sustainable economic growth with more and better

jobs and greater social cohesion (p.2) The main focus of the strategy is on developing the knowledge economy, information society and R&D. At the heart of the strategy is the need for improved co-ordination of policy and action at all levels, but the territorial dimension is given very little attention. The emphasis is on sectoral investments, the completion of the internal market through liberalisation and other policies, and increased attention to education and training for employment. The main territorial component of the Lisbon Strategy is its emphasis on tackling the transport problems at the transnational level. The strategy also points to potential of information technologies for renewing urban and regional development and reducing social exclusion. Most relevant to the themes of the Three Studies are commitments to:

• Improve investments in knowledge, education and training, and (transnational) research networks;

• Cut transport times and improve the quality and ‘generate a wider choice of where to set up business … in support of countries and regions lacking adequate infrastructures or with limited access to knowledge and innovation

• A new ‘railway package’ proposed to ‘open up international passenger transport services and improve their quality’

• A call to member states to create and implement national plans concerning transport projects, research and broadband networks.

28 Presidency Conclusions of the Lisbon European Council 23 & 24 March 2000

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2.4.2 The review of Lisbon agenda Since the launch of the Strategy in 2000, structural funding through Cohesion Policy has been directed to supporting Lisbon priorities. Despite this, however, the Third Cohesion Report29 concludes that wide disparities in wealth, employment and social conditions persist across the EU as a result of:

inadequate endowment of physical and human capital (of

infrastructure and work force skills), a lack of innovative capacity, of

effective business support and a low level of environmental capital (a

blighted natural and/or urban environment).(p.vii)

The 2004 review of the Lisbon Strategy30 called for a more energetic implementation of the Agenda through integrated strategies. The Conclusions of the Informal meeting of EU ministers on territorial cohesion (November 2004) observed that ‘the diverse potentials of the EU regions have not been sufficiently taken into account in the Lisbon Strategy’ so far, and argued that integrated spatial development approaches can enable regions to exploit their endogenous potential more effectively. The meeting ‘emphasised the need for strategic projects linking national and regional spatial strategies for the Lisbon Agenda and extending co-operation beyond the new external borders’ (p. 2). In 2005, the Commission proposed a new Partnership for Growth and Jobs to the European Council of March 200531. The Council confirmed its objectives and underlined the need to re-launch the Lisbon Strategy. This renewed effort requires that

“the Union must mobilise all appropriate national and Community resources –

including cohesion policy”.

In addition, it concluded that greater ownership of the Lisbon objectives on the ground was necessary, involving regional and local actors and social partners. This is of particular importance in areas where proximity matters, such as in innovation and the knowledge economy, employment, human capital, entrepreneurship, support for small and medium-sized enterprises (SMEs) or access to risk capital financing. Moreover, national policies should also consistently address the same strategic objectives in order to mobilise the largest amount of resources and avoid conflicting actions on the ground. This in particular calls for closer transnational cooperation.

29 CEC (2004) Third Report on Economic and Social Cohesion: A New Partnership for Cohesion, Convergence, Competitiveness and Cooperation, Luxembourg, OOPEC 30 CEC (2004) Delivering Lisbon: Reforms for the Enlarged Union: Report from the Commission to the Spring European Council, 20,2.2004 COM (2004) 29 final/2 31 Communication to the Spring European Council “Working Together for growth and jobs – a new start Communication to the Spring European Council “Working Together for growth and jobs – a new start for the Lisbon Strategy”, COM (2005) 24, 2 February 2005.for the Lisbon Strategy”, COM (2005) 24, 2 February 2005.

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In the period since the March 2005 European Council, the Commission has adopted integrated guidelines for the growth and jobs agenda in order to assist Member States in developing national reform programmes. In parallel, the Commission will prepare a Lisbon Community Programme. While there is no doubt about the importance of Lisbon-Gothenburg as a core overarching goal of the EU, the implications for spatial development have, from the outset, not been well elaborated or understood. However, analyses by the European Spatial Planning Observation Network (ESPON Project 3.3) have contributed to building a picture of the EU’s territorial structure in the light of the Lisbon-Gothenburg aims. Moreover, the Scoping Document on Territorial State and Perspective of the Union32 published in 2005 has provided some ideas about the territorial aspects of Lisbon-Gothenburg Strategy. These are outlined below. 2.4.3 The territorial dimension of the Lisbon strategy At the spring Council in Luxembourg in 2005 the Lisbon Strategy was relaunched. The sustainable development strategy of Gothenburg will be further developed in the second half of 2005. Although not explicitly mentioned in the strategy, both the Lisbon and Gothenburg ambitions have a strong territorial dimension. The territorial dimension is essential for the implementation of the strategy as most important and dynamic forces in terms of economic development are increasingly both localised and territorially specific. One of the key challenges in this respect is the accelerated relocation of economic activities. Factors underlying this trend include lower production costs and the rapid development of advanced technologies and significant markets in emerging economies. Global competition is not limited to enterprises – cities and regions compete with each other to attract economic activities. The competitors are increasingly territories in other countries. In this light, cities and regions specialise in certain kinds of production because of their specific territorial advantages. The most competitive are those that are able to respond most effectively to globalisation. Less competitive regions may suffer as a result of globalisation, leading to greater EU regional disparities. According to the OECD territorial Outlook, a region’s territorial capital is “distinct from other areas and is determined by many factors [which]... may include... geographical location, size, factor of production endowment, climate, traditions, natural resources, quality of life or the agglomeration economies provided by its cities...Other factors may be ‘untraded interdependencies’ such as understandings, customs and informal rules that enable economic actors to work together under conditions of uncertainty, or the solidarity, mutual assistance and co-opting of ideas that often develop in small and medium-size enterprises working in the same sector (social capital). Lastly there is an intangible factor, ‘something in the air’, called ‘the environment’ and which is the outcome of a combination of institutions, rules, practices, producers, researchers and policy-makers, that make a certain creativity and innovation possible. This ‘territorial capital’ generates a higher return for certain kinds of investments than for others, since they are better suited to the area and use its assets and potential more effectively...”33

32 http://europa.eu.int/comm/regional_policy/sources/docoffic/2007/osc/050706osc_en.pdf 33 OECD Territorial Outlook, Territorial Economy, 2001

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In summary, the territorial dimension of the Lisbon ambitions amounts to strengthening the territorial capital of Europe’s cities and regions. In policy terms a classification can be made as follows:

• exploiting the endogenous potentials of an area: including natural and cultural values

• promoting an area’s integration and connectivity to other areas that are important for its development

• Strengthening the territorial governance by promoting horizontal and vertical policy coherence.

Bottom-up initiatives and activities likely to strengthen synergy and coherence among the various sectors, such as territorial development strategies and policies are therefore important conditions for success in the second phase of the Lisbon strategy. 2.4.4 The Gothenburg Strategy The 2001 European Council in Gothenburg34 agreed on the Communication on Sustainable Development35, which incorporated an environmental dimension to the Lisbon Agenda, stressing the importance of decoupling economic growth from resource use. The Strategy identified four priorities as follows:

• climate change • transport • public health • natural resources

As with the Lisbon Strategy the territorial dimension is given limited attention except for extensive consideration of necessary changes to transport policies. The first three priorities reflect the policy themes of the Transport White Paper 200036. The White Paper argues that increasing congestion, which is particularly acute in the core areas of NWE is threatening economic competitiveness and goes hand in hand with excessive isolation of the outlying regions. The conclusion was to concentrate on:

• Shifting the balance of transport to more sustainable options and in particular revitalising the railways with dedicated freight lines and concentrated investment in relieving bottlenecks and dealing with the traffic impact of enlargement;

• Sea-motorways in the TEN transport, through better port services and connections with rail and inland waterways

• Waterway branches on the inland waterway network and harmonisation of its regulation

• More selective investment to increase capacity (especially in non-road transport) concurrent with innovative policies on charging;

• Stricter requirements on noise and pollution for airport development

34 Presidency Conclusions of the Göteborg European Council 15 &16 June 2001, SN 2001/1/01 REV 1 35 A Sustainable Europe for a Better World: A European Union Strategy for Sustainable Development: Communication from the Commission 15.5.2001, COM(2001) 264 final 36 CEC (2001) EU White Paper, European Transport Policy for 2010: Time to Decide, Luxembourg, OOPEC

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2.5 Spatially significant trends 2.5.1 Demography and migration Demographic change is a significant challenge for spatial development in the EU, and has varying effects on different parts of the territory. Issues related to demographic change (such as the ageing of Europe, large scale migration and rural depopulation) are outlined in Chapter A1. Here, the spatial implications of a number of trends in demography are identified. At both the macro and meso scales, significant migration trends have developed as a result of the increasing globalisation of economies37 and the present labour market situation. The loss of highly qualified labour from Europe to countries considered to have more favourable working conditions (known as ‘brain-drain’) is receiving increasing political attention. Within Europe (both within and between member states) the peripheral regions, rural areas and mono-industrial cities are suffering from a declining population and economic performance as a result of the ‘brain drain’ effect. On the receiving end of this movement are the more attractive areas around metropolitan centres, larger cities and towns. As fertility and mortality rates continue to fall (and life expectancy increases) the process of the ‘ageing of Europe’ is increasingly a cause for concern. The Third Cohesion Report concludes that population ageing will lead to a gradual contraction of Europe’s work force and is likely to have implications for growth potential.38 Countries such as the UK and Germany are actively engaged in national debate about the effects of ageing population and rural/peripheral depopulation on the maintenance of services and infrastructure39. 2.5.2 Enlargement of the EU The accession of ten new member states on 1 May 2004 is expected to have significant spatial development effects in the older member states. Although economic performance in the newer states is presently weak, in the longer term a shift of balance of the European territory is anticipated. ESPON project 1.1.1 has identified a considerable number and extent of potential polycentric regions on the eastern side of the enlarged EU. The demographic potential of regions of this size could allow the development of highly specialized services, and the supply of hard and soft transport and communications infrastructure of sufficient quality for most industries. Corresponding labour markets should also be able to offer a wide range of specialised skills and competences.

37 ESPON Project 1.1.4: The spatial effects of demographic trends and migration. Final Report. March 2005, www.espon.lu 38 CEC (2004) Third Report on Economic and Social Cohesion: A New Partnership for Cohesion, Convergence, Competitiveness and Cooperation, Luxembourg, OOPEC 39 Leeson, G.W. (2002) The Changing Face of the Population of Europe – Geographical Distribution, Urbanization, Depopulation and International Migration. Stockholm: Nordregio

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Although concerns exist about east-west migration following EU enlargement, a recent study40 on migration trends suggests that only around 220,000 people per year, on average, intend to migrate from east to west over the next five years. As the majority of these potential migrants are, according to the study, young, well-educated and single, immigration from the new member states may become a useful tool to counteract labour market and economic problems in the older member states, brought about by demographic challenges 2.6 Synthesis of the Three Studies In addition to, and to some extent in relation to, the spatial significance of the above mentioned trends, this study draws on the strategic objectives identified by the three thematic Studies. All of the objectives put forward by the Studies were assessed and reviewed as part of the synthesis process, and as a result were derived sixteen strategic objectives, which are presented below:

Strategic Objectives from the 3 Studies

Study 1 • Assess the implications of climate change for spatial development patterns and develop long term

strategic responses. • Respond to the transnational spatial impacts of demographic change. • Engender new approaches to spatial planning that look beyond administrative and sectoral boundaries

and embrace the fundamental objectives of the Community. • Promote a better understanding of and practical responses to the spatial impacts of enlargement on

the polycentric urban structure in north-west Europe. • Support the improved global performance of the economy of the Community Study 2 • Promote the transformation to an innovative and knowledge-based economy (implying an emphasis

on ICT, R&D, thematic knowledge networks etc). • Achieve good access for everyone to services and opportunities across the Community territory. • Strengthen nodes and networks: stimulate co-operation between cities and towns. • Strengthen the meshes (the spaces between lines and nodes in a network): ensure the integration of

rural areas with networks of urban centres to ensure their complementary spatial development. • Strengthen urban-rural relationships that contribute to a balanced development of the NWE territory

overall. • Mobilisation of regional and local potentials through transnational cooperation can substantially

contribute to increasing competitiveness and promoting more sustainable forms of development • Define more appropriate cooperation policies in the light of the changing context of NWE

(demography, energy, EU integration and globalisation, climate change) and provide a better knowledge framework

Study 3 • Capitalize on cultural and natural assets • Respond to the impacts of climate change on all regions • Integrate culture, nature and water for territorial cohesion • Aim for integrated spatial development of regions for larger territorial entities and to create more

cohesion

Fig B3: Strategic objectives from the 3 Studies

This list constitutes the result of thematic research and consultation with key actors in NWE and is therefore considered to be a valuable resource for informing the review of priorities for NWE. The scope and quality of objectives within this list

40 European Foundation for the Improvement of Living and Working Conditions (2004) Migration trends in an enlarged Europe. Summary. Dublin: Eurofound (http://www.eurofound.eu.int/newsroom/migration.htm)

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varies, largely reflecting the wider qualities of each Study report. Priorities concerning the management of cultural and natural heritage are considered to be rather weak and generic in nature. 2.7 Other sources In addition to the sources already cited, and in parallel with the process outlined above, a range of discussion papers and documents were reviewed, including those from the recently held EU informal ministerial meetings in Luxembourg and Rotterdam and the scoping document for the “Territorial State of the Union” report. In the latter case, consideration is given to the future of territorial cooperation, and this is given some attention in Chapter C. Key material from several of these sources has been reviewed and has informed the production of the final list of themed priorities. 2.8 SVWG Workshop September 2005 A review of the material so far examined led to a working list of priority themes and draft objectives, which was tabled for consultation at CUDEM’s two-day workshop with the Spatial Vision Working Group (SVWG) in September 2005. The working group had considerable input and debated the content and validity of the priorities presented to them. Discussion with and feedback from the SVWG resulted in consensus on a set of priorities which is listed below, in no particular order, in Figure B4.

Priorities from SVWG Workshop

• Strengthening the metropolitan regions as the engines of NWE’s economy • Reducing the ecological footprint of NWE • Improving accessibility to jobs and recreation • Supporting SMEs • Developing sustainable transport systems – encouraging modal shift, reducing congestion and

pollution • Attracting and maintaining highly skilled workers • Enhancement of knowledge economy outside the urban centres • Encourage the take up and use of ICT • Managing and prevention of risks (incl. maritime safety) • Integration and networking of ecological habitats – tackling fragmentation • Integrated marketing and promotion • Supporting development of transnational technology clusters • Increasing the competitiveness of rail and waterway transport • Developing high speed freight services • Planning for and managing population decline • Maintaining rural services • Maximising the competitiveness of weak MEGAs (potential of mid-sized cities) • Increasing complementarities and synergies between small and medium towns/cities • Recognise and value cultural and natural heritage as economic/recreational assets • Maximising diversity as an asset • Improving accessibility to countryside around urban areas for recreation/quality of life • Spatial impact of privatisation in energy, telecom and transport sectors • Cooperation of maritime ports and inland waterways to encourage modal shift and manage risk • The contribution of spatial planning to efficient logistics systems • Maximising opportunities of ageing population through spatial planning • Enhancing the role of small towns in providing services for peripheral areas • Spatial implication of demographic change • Minimising risk of transporting dangerous goods in urbanised areas • Spatial impact of transnational movement of waste and recyclables • Spatial impact of privatisation of the waste sector

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• Encouraging development of renewable energy sector • Building capacity for territorial cooperation • Promoting vertical and horizontal partnerships

Fig B4: Priorities from SVWG Workshop

The list of priorities resulting from the workshop constituted the final and, no doubt, the most valuable input into the review process. From this and all other sources covered in this section, a final list of thematic priorities was produced. This is list is presented in the following section.

The process outlined in the previous section has resulted in a complete listing of contemporary priority themes, considered relevant to territorial development and responsive to current transnational issues in spatial planning. These are presented, below in Figure B5, under a series of key headings.

Source Priority Themes

Pre 3 Studies

Post 3 Studies

Spatial V

ision

INTERREG III C

IP

Programme

Complement

Study 1

Study 2

Study 3

SVWG W

orkshop

Lisbon Agenda (economic competitiveness) √ √ √ Strengthening the metropolitan regions √ Supporting the growth of SMEs in NWE

√ Attracting and maintaining highly skilled workers √ √ Enhancing the knowledge economy outside the urban centres √ Supporting development of transnational technology clusters √ √ Investing in R&D to promote knowledge-based economy √ √ Stimulating deployment and take-up of ICT

Gothenburg Agenda (environmental sustainability) √ Encouraging economic activity that contributes to environmental sustainability √ √ √ Reducing the global environmental impact of NWE

√ √ √ Protecting and managing the natural resources of NWE √ √ Integrating and networking ecological habitats to tackle fragmentation

√ √ √ Sustainable management of water resources

√

Sustainable development, prudent management and protection of other natural resources and of cultural heritage

Demography / Migration √ √ Responding effectively to the transnational spatial impacts of demographic change √ Planning for and managing population decline particularly in rural areas √ Maximising opportunities of the ageing population through spatial planning

Territorial Cohesion and Settlement Patterns

√ √

Encouraging territorial cohesion across NWE by maximising the economic potential of transnational areas

√ √ Maximising the competitiveness of weak MEGAs (potential of medium-sized cities) √ √ √ Increasing complementarities and synergies between small and medium towns/cities

√ Strengthening nodes and networks and stimulating co-operation between cities and towns

3. Priority themes: the outcome

80

√

√ Strengthening urban-rural relationships that contribute to a balanced development of the NWE territory overall.

√ Ensuring the integration of rural areas with networks of urban centres to ensure their complementary spatial development

√ Enhancing the role of small towns in providing services for peripheral areas √ Maintaining rural services

√

√ √ √ Improving accessibility (not just in physical terms) to jobs, recreation, services and opportunities within NWE

Accessibility √ Achieving sustainable mobility within NWE in a perspective of long-term traffic growth

√

Tackling problems of digital divide through infrastructure provision (such as access to broadband and training)

√ Improving accessibility by increasing efficiency of land-based, maritime, and air transport corridors

√ √

√ √ Encouraging modal shift towards more sustainable transport systems, particularly rail, waterway and maritime transport

√ √ Encouraging inter-modal freight transport systems within NWE √ Increasing the competitiveness of rail and waterway transport √ Developing high speed freight services √ Promoting use of Intelligent Transport Systems (ITS) to improve inter-modal services

√

√ Improving the external access of NWE by increasing efficiency of land-based, maritime, and air transport corridors

Cultural and Natural Diversity √ √ Recognising and valuing cultural and natural diversity of NWE √ Maximising the diversity of NWE as an asset

√ √ Capitalising on cultural and natural assets

Climate Change

√ √ Assessing the implications of climate change for spatial development patterns and develop long term strategic response

Rising Energy Prices

√ Addressing the impact of the rising energy prices and potential fall on energy supply on settlement patterns

√ Encouraging development of renewable energy generation

Managing and Prevention of Risk √ √ Managing and prevention of risks (incl. maritime safety) √ Minimising risk of transporting dangerous goods in urbanised areas √ Develop risk management capacity with particular regard to flooding √ Minimising transnational air, water and soil pollution

Governance √ Encouraging cross-sectoral policy integration

√ Encouraging policy integration and partnership between urban and accessible rural areas

√ Building capacity for territorial cooperation

√ Promoting vertical and horizontal partnerships Spatial V

ision

INTERREG III C

IP

Programme

Complement

Study 1

Study 2

Study 3

SVWG W

orkshop

Figure B5: Priority themes and their sources

Of the ten main priority theme groups identified there are, in terms of the number of related priorities, four dominant groups (Lisbon Agenda, Gothenburg Agenda, Territorial Cohesion and Settlement Patterns and Accessibility) and six smaller

groups (Demography / Migration, Accessibility, Cultural and Natural Diversity

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Climate Change, Rising Energy Prices, Managing and Prevention of Risk and Governance). This balance broadly reflects the weighting given to these themes in recent and current strategic policy documents and policy discussion. Each objective has its origins indicated in the columns to the left of the table in Figure 5. A distinction has been drawn between sources that existed before and after the commissioning of the Three Studies.

Lisbo

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Gothe

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enta

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Demograph

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igrat

ion

Territo

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Acces

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Cultura

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Nat

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Number of Sources

Priority Theme

Priority Themes by source, before and after 3 Studies

Sources before 3 studies

Sources after 3 studies

Figure B6: Priority Themes by source, before and after 3 Studies

Figure B6 shows the number of sources contributing to each priority theme; the sources are grouped according to their existence before or after the commissioning of the three Studies. In terms of the provenance of the priorities, those related to the Gothenburg Agenda, territorial cohesion and some aspects of the Lisbon Agenda stand out amongst the others as having the strongest links to the earlier Vision document, the CIP and the Programme Complement. The priorities that have mainly resulted from the synthesis of more recent sources (consultations with key actors, the three thematic studies, EU documents and subsequent analysis and discussion) are most clearly focused under the headings of the Lisbon Strategy, demography/migration, accessibility, climate change, energy prices and governance. This trend reflects the growing policy focus (in the case of Lisbon) and the more recent emergence of transnational issues and trends such as demographic challenges, climate change and energy price rises.

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Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet

.ac.uk

1. Introduction

Chapter C Projects (Approved and Proposed)

and the Future of Territorial Cooperation

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1.1 Outline of Chapter This chapter focuses on the proposed key projects for future post 2006 territorial cooperation in NWE, taking into account the current debate about the new objective of “European territorial cooperation” in the forthcoming EU Cohesion Policy. The chapter is structured into three main sections, including the introduction which provides an outline of existing projects approved under INTERREG IIIB. Section 2 presents a summary of all the key project proposals offered by the Three Studies. Section 3 provides an analysis of how the objectives of the proposed projects respond to the key transnational issues and priority themes identified in Chapter A and Chapter B. The ongoing INTERREG IIIB projects are included within this assessment in order to give a more comprehensive picture of where the focus for future cooperation should be directed. As part of this process comparisons are drawn between existing and proposed projects to identify where repetition may occur or where there are opportunities for building on experience.

1.2 Existing Projects Between 2000-2006 the NWE INTERREG IIIB Community Initiative Programme allocated €330 million of European Regional Development Funding (ERDF) to projects that contribute to the objective of achieving a more cohesive, balanced and sustainable territorial development as well as better territorial integration in the Community. Amongst the 13 INTERREG IIIB Programmes, North West Europe was allocated the largest budget because, at the time of allocation, its cooperation area covered nearly half the EU population41 (prior to the addition of 10 new EU member states on 1 May 2004).

NWE Key Priority Funding available (€million)

Funding % of total

Projects approved

Projects % of total

Average Funding

per Project (€million)

1. An attractive and coherent system of cities, towns and regions 78.508 25% 24 28% 3.271

2. External and internal accessibility 64.223 21% 17 20% 3.778

3. Water resources and the prevention of flood damage

77.040 24% 17 20% 4.532

4. Other natural resources and cultural heritage 51.502 16% 18 21% 2.861

5. Enhancing the maritime functions and promoting territorial integration across seas

43.934 14% 10 11% 4.393

TOTAL 315.207 100% 86 100% 3.665

Fig C1: Approved projects by priority

Since the beginning of the current INTERREG programming period a total of 86 projects in the NWE area have been approved. To be accepted for approval, project ideas have had to fall within the scope of five main priorities. These priorities are referred to in Chapter B and are repeated below in Figure C1 (above), which shows the number of projects and amount of funding available per priority.

41 Source: www.nweurope.org

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As Figure C1 shows, the largest share of funding has been allocated to priorities 1 and 3 which deal with coherent system of cities and water resources / flood damage respectively, with the latter receiving the highest level of funding per project, reflecting the high cost involved in often large scale engineering work. Priority 4 on nature and heritage has received the least funding per project.

2.1 Strategic Objectives For each of the Three Studies it was intended that, implicitly, the project ideas suggested would constitute an appropriate response to the transnational issues and the proposed strategic objectives. The strategic objectives provided by the studies have already been reported in Chapter B, but are repeated here (Figure C2) due to their relevance to the assessment of proposed projects.

Strategic Objectives from the 3 Studies • Assess the implications of climate change for spatial development patterns and develop long term

strategic responses. • Respond to the transnational spatial impacts of demographic change. • Engender new approaches to spatial planning that look beyond administrative and sectoral boundaries

and embrace the fundamental objectives of the Community. • Promote a better understanding of and practical responses to the spatial impacts of enlargement on

the polycentric urban structure in north-west Europe. • Support the improved global performance of the economy of the Community. • Promote the transformation to an innovative and knowledge-based economy (implying an emphasis

on ICT, R&D, thematic knowledge networks etc). • Achieve good access for everyone to services and opportunities across the Community territory. • Strengthen nodes and networks: stimulate co-operation between cities and towns. • Strengthen the meshes (the spaces between lines and nodes in a network): ensure the integration of

rural areas with networks of urban centres to ensure their complementary spatial development. • Strengthen urban-rural relationships that contribute to a balanced development of the NWE territory

overall. • Mobilisation of regional and local potentials through transnational cooperation can substantially

contribute to increasing competitiveness and promoting more sustainable forms of development • Define more appropriate cooperation policies in the light of the changing context of NWE

(demography, energy, EU integration and globalisation, climate change) and provide a better knowledge framework

• Capitalize on cultural and natural assets • Respond to the impacts of climate change on all regions • Integrate culture, nature and water for territorial cohesion • Aim for integrated spatial development of regions for larger territorial entities and to create more

cohesion

Fig C2: Strategic objectives from the 3 Studies

It is expected then that most, if not all, of the project proposals will respond to one or a number of these objectives. The extent to which this happens will, to some degree, be demonstrated in Section 3 of this chapter when projects are assessed against the final list of priority themes and objectives, which is derived from the list above, amongst other sources.

2. Proposed projects

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The process of identifying future projects through consultation with key actors appeared to have mixed results amongst the studies. In the case of Study 2 (parity of access to infrastructure and knowledge) a number of potential cooperation projects were readily identified. In Study 1 (polycentricity) the links between proposed projects and strategic proposals were less clear. However, concrete proposals were arrived at by the study team drawing on current INTERREG objectives and an assessment of the changing EU policy context and spatial development trends, together with the results of workshops and interviews with key figures. As regards Study 3 (management of cultural and natural heritage) the process of arriving at proposed projects remains unclear. 2.2 Grouping of Proposed Projects From the synthesis of the Three Studies a total of 18 projects were considered. Figure C3, bellow, sets out the proposed projects under their relative territorial development themes.

• Polycentric territorial development 1. Harnessing the Hinterland Effects of Global Centres 2. Inter-regional Spatial Development Programmes 3. The Channel Tunnel – Wider Links to Spatial Development 4. Action Project to Manage Urban Growth 5. Spatial Planning for Small and Medium Enterprise (SME) Growth and

Innovation

• Parity of access to infrastructure and knowledge 1. Promote the development of freight waterway transport 2. Transnational coordination in road pricing policies 3. Increased use if ITS applications on the Trans-European Road Network 4. Broadband infrastructures - preventing a “digital divide” in the

Ardennes-Eifel-Hunsrück area 5. Develop rail and inter-modal freight services on East-West corridors 6. ITS to improve intermodal freight transport 7. Intermodal transport on North-South corridors for perishable produce

• Sustainable management of the cultural and natural heritage of NWE 1. The Limes for Territorial Cohesion 2. Climate change and rising sea level 3. Integrated development of coastal zones 4. Regional Development Perspective for the Rhine-Scheldt Delta 5. Saar-Lor-Lux as a Vital Green Heart 6. Integrated approach to dealing with maritime risks

Figure C3: Proposed projects from 3 Studies

2.3 Polycentric Territorial Development

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2.3.1 Harnessing the Hinterland Effects of Global Centres

The global cities of NWE (London and Paris) are the most dynamic centres of innovation activity and the knowledge economy. Whilst a ‘ripple effect’ (young skilled workers migrating later in life out from metropolitan areas to immediately neighbouring regions) has been observed, it is not widely spread. There is a need to extend this influence further to second-order cities and networks of smaller towns in order to more fully realise the objectives of the Lisbon Strategy. A key priority of the project is to link the main urban centres to areas that have the potential to develop knowledge economy. Project objectives can be summarised as follows:

• Marketing and infrastructure development to link global centres to areas with potential to develop knowledge economy

• Information and support to facilitate settlement of in-migrants out to regions • Cooperation amongst main centres to attract and settle international in-

migrants • Provide incentives for creating governance networks among towns with

knowledge economy potential, to strengthen connections with main centres 2.3.2 Inter-regional Spatial Development Programmes

The economic potential of the ‘development corridor’ effect continues to be stifled by competition among cities for the same types of investment. There is a perceived need to encourage cooperation on inter-regional development programmes that maximises infrastructure and skills, minimises the wasteful effect of regional competition and brings the greatest benefit to NWE and the EU overall. A project aimed at maximising the economic potential of the ‘development corridor’ could include the following objectives:

Map C1: Examples of transnational corridors with considerable potential for coordinating regional strategies in north-west Europe Source: Study 1 p51

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• Providing incentives for testing the complementarity of regional development strategies, and seeking opportunities for cooperation

• Rewarding successful cooperation with investment in hard and soft infrastructure that enhances the corridor effect

• Maximising socio-economic benefits of transport and other infrastructure through spatial development strategies

• Developing an inter-regional knowledge transfer network to link providers of business and research support who are already situated in the regions

2.3.3 The Channel Tunnel – Wider Links to Spatial Development

The spatial development effects of the Channel Tunnel on NWE are already particularly evident in Lille and other major nodes of the associated network. Transport modes between the cities served by the high speed network have certainly been affected, and there is little doubt that the Channel Tunnel will continue to have a major effect on spatial development and economic activity within NWE. Although accessibility has increased in and immediately around the network’s nodal urban centres, this has been at the cost of reduced accessibility in the secondary centres suffering a ‘by-pass’ effect. In some cases, services on national rail networks are being withdrawn as a result of competition with high speed operators. It is considered that previous collaborative efforts in spatial planning, with regard to the Channel Tunnel, have concentrated on transport issues

at the cross-border level. There is a need to expand the scope of cooperation, both territorially (to engage at the transnational level) and conceptually (to move beyond concerns with transport networks.

The objectives of this proposed project are to:

• Increase the extent of cross-border cooperation on the spatial development effects of the Channel Tunnel

• Realise the potential benefits of the network in the wider transnational region, and seek a wider distribution of these benefits

Map C2: The Channel Tunnel – Wider Links to Spatial Development Source: Study 1 p52

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• Address the negative ‘by-pass’ effects on less well connected secondary centres in spaces between nodes

• Maximise the potential of transport network to create better integrated labour markets and labour mobility in knowledge economy areas

2.3.4 Action Project to Manage Urban Growth

This project concerns the management of urban growth and the balance between restricting growth and ensuring further economic development. The threats of continued urban expansion are widely recognised, and so is the need to prevent further polarisation of development and urban sprawl where growth is concentrated around the major metropolitan areas, away from old industrial areas and some rural areas. Currently, urban growth is not always accommodated in the most effective way, and the extent of urban sprawl varies widely amongst the member states of NWE. Effective action on this issue is hindered by competition among countries and regions, which are reluctant to divert economic growth to other areas. Action through transnational cooperation could support the creation of a common, more effective approach to managing the land resource in NWE. Objectives of this project could include:

• Creating agreements on the extent and nature of problems and develop a shared commitment to tackling urban expansion with an action plan

• Setting common targets and indicators for the conversion of greenfield land and the re-use of brownfield land

• Harmonising spatial planning policies that address the conversion of greenfield land

• Harmonising data definitions to enable transnational monitoring of urban growth management

• Matching brownfield sites to the demand for land across national borders 2.3.5 Spatial Planning for Small and Medium Enterprise (SME) Growth and

Innovation

This project focuses on the value of Small and Medium Enterprises (SMEs) as a contribution to the Lisbon Strategy. The numbers and growth of SMEs is seen as a major contribution to achieving Lisbon objectives and to the EU’s economic success overall. National boundaries can act as barriers to developing the necessary links between SMEs and research capacity, and also to encouraging the clustering of SMEs. Transnational support for SMEs could enable them to go beyond the boundaries of the region or member state when accessing research, intellectual capacity, skills, land and premises. Encouraging the growth of SMEs in this way could help to retain them in the EU and make a significant contribution to economic competitiveness. Some relatively peripheral areas (for example Ireland) have had success with development of SME activity, mainly in the knowledge economy sectors. Transnational support could also help to further develop SME activity in the outer zones of NWE, and so contribute to more balanced economic development.

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This project would aim to:

• Connect research support services by creating a database of research activity and other services

• Support ‘innovation islands’ by developing regional business support networks • Investigate and act on the potential to develop transnational clusters of

businesses and research institutes • Create and market a search facility for land, premises and labour market

support across the whole of NWE

2.4 Parity of access to infrastructure and knowledge 2.4.1 Promote the development of freight waterway transport

In terms of pollution, energy use and other externalities, using inland waterways for freight transport is one of the most sustainable transport forms available. The NWE area has the most developed network of inland waterways in the entire EU. Due to a number of constraints (for example lack of infrastructure and support services, declining labour and insufficient management systems) the capacity of waterways for freight transport is currently under-exploited. Transnational cooperation could help to tackle these obstacles. The project’s aims would include:

• Developing a network of service areas along main waterways (providing a function similar to motorway services)

• Promoting employment in waterways transport amongst young people to combat declining manpower

• Developing networks between inland ports for the exchange of information on flows and availability of freight.

• Encouraging the development of commonly agreed standards for port facilities 2.4.2 Transnational coordination in road pricing policies

The wider application of road pricing on motorways is supported by the Common Transport Policy of the EU (White Paper). Road pricing has already been applied in Switzerland, on many motorways in France, and has recently been introduced for freight traffic on motorways in Germany. Currently such initiatives are implemented on a national basis only, and further introduction of pricing regimes is envisaged in the Netherlands and the UK. Transnational cooperation on road pricing could potentially eliminate the unplanned and unwanted diversion of traffic to routes in neighbouring regions and member states. Objectives of the proposed project could include:

• Investigation and assessment of how freight traffic flows are affected on routes influenced by road pricing policies, particularly in cross-border situations

• Harmonising cross-border road pricing impacts to make alternative transport modes more competitive

• Eliminating negative traffic diversion effects

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2.4.3 Increased use of ITS applications on the Trans-European Road

Network

This project considers the use of Intelligent Transport Services (ITS) to alleviate congestion and contribute to safer and more efficient transport on NWE roads and motorways. The projected growth of traffic flows across Europe is of strategic importance for the territorial development of NWE. ITS across road, rail, water and air transport is generally considered as a means that can alleviate traffic congestion and contribute to more efficient transport. However, in road transport there is little coordination and complementarity between existing regional and national traffic management services. Large scale ITS initiatives have already been implemented (such as CENTRICO, CORVETTE, STREETWISE) and a new ITS project could build on the experiences of these in order to coordinate a transnational approach. The proposed project could:

• Identify spatial implications linked to further traffic growth on congested

areas of NWE road network • Design and implement concepts for better integrating existing ITS initiatives

in a wider transnational approach • Develop practical solutions for deploying new cooperative ITS applications in

sensitive areas. • Support the deployment of new ITS applications in the most challenged areas

of the NWE road network 2.4.4 Broadband infrastructures - preventing a “digital divide” in the

Ardennes-Eifel-Hunsrück area

Driven by market forces, the introduction and take-up of broadband services is focused on urban areas. Peripheral, sparsely populated and rural areas do not receive the same service provision. As high speed internet connections are increasingly used in business, widespread access to such services is an important contribution to achieving balanced economic development and influencing the location of enterprise.

The Ardennes-Eifel-Hunsruck area covers parts of France, Belgium

Map C3: Broadband infrastructures - preventing a “digital divide” in the Ardennes-Eifel-Hunsrück area

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Luxembourg and Germany and is characterised by low availability of broadband and is unlikely to receive coverage by normal provision in the near future. Practical options for improving the situation are few, but in France a recently adopted law makes it possible for local and regional authorities to allocate public resources for telecommunications with the objective of territorial equality. Priorities of the project would include:

• investigating the existing coverage and future expansion plans for ADSL and cable networks

• identifying innovative financing models for extending broadband infrastructure in under-served areas

• exchanging experience on and good practice in innovative regional and local policy approaches to the aggregation of demand for broadband connections

• designing a series of joint transnational actions, such as feasibility studies, aimed at the future deployment of an interlinked infrastructure covering parts of the Ardennes-Eifel-Hunsrück area

• realizing an operational, transnational broadband infrastructure serving the Ardennes-Eifel-Hunsrück area, with potential for future expansion

2.4.5 Develop rail and inter-modal freight services on East-West corridors

This project focuses on the potential for increased multi-modal freight traffic along the East-West transport corridors of NWE. In the context of EU enlargement, the East-West flow of freight is growing throughout NWE. Freight traffic along these corridors is mainly by road, ant there is potential for transnational cooperation to encourage modal shift. A transnational project could look at developing freight services to include maritime, waterway, rail and road from the northern ports through NWE towards Hungary, the Czech Republic and Slovakia. Such a project would have the following aims:

• Establish a strategic cooperation platform among key actors along selected corridors to ensure a coherent approach to developing an inter-modal system

• Support the work of the cooperation platform through working groups focused on specific issues (such as rail freight transport, inland waterway freight transport)

• Ensure that cooperation strategies consider measures including: – Mobilisation of rail freight and inter-modal operators – Solving inter-operability problems of national railways – More comprehensive and clear information on available freight – Developing ITS to assist with tracing and tracking of goods – Possible involvement of maritime conferences who influence the

shaping of transport chains on ports’ hinterland connections 2.4.6 ITS to improve intermodal freight transport

With the development of inter-modal freight services comes the need to manage those services efficiently. Previous ITS projects have shown that by introducing new ITS-applications at nodal points (e.g. freight handling terminals, seaports, inland waterway ports), intermodal freight services can operate more efficiently. There is

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considerable potential for further improvements, especially in the integration of waterborne and rail freight transport into the wider intermodal transport chains. A transnational project could

• design joint management tools that allow further increasing the efficiency of

transnational transport flows on rivers and channels and optimise the waiting time at locks.

• enhance networking between existing cargo tracking and tracing systems in rail freight transport to stimulate modal shift.

• jointly develop new tracking and tracing systems that work smoothly on long-distance transnational routes.

• design and implement new transnational freight flows information services that are widely accessible different types of transport operators.

• design and implement appropriate ITS-applications aimed at improving the networking and linking of existing nodal points (e.g. freight handling terminals, seaports, inland waterway ports) along major freight transport corridors in NWE

2.4.7 Intermodal transport on North-South corridors for perishable produce

Despite the increased use of intermodal services for the transport of freight along North-South corridors in Europe, the majority of fresh produce (fruit and vegetables) originating from the south of Europe is transported to NWE by road. This presents a particular challenge for the urban environment because the transport flow is destined for already congested roads in major NWE cities. The project would aim to:

• Develop connections and transport modes with high average speed and specific conditions (refrigeration) along the whole transport chain, including the road transport sections at both ends of the railway service

• Address problems of railway interoperability issues at the French-Spanish border (different railway gauges) to remove delays

2.5 Sustainable management of the cultural and natural heritage of NWE 2.5.1 The Limes for Territorial Cohesion

This project proposal aims to address the development of regional identity and enhancement of territorial cohesion by focusing on the Limes, a large linear archaeological artefact considered to be a cultural asset of Europe-wide importance. The Limes is a line of demarcation of the Roman Empire that runs from the coast in the Netherlands down into the south of Germany. The proposal considers that transnational cooperation would be an appropriate approach to coordinating and integrating historic, archaeological, natural, urban, agricultural and water management aspects of the Limes. The objectives of the project would be to:

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• Develop the identity and attractiveness of the region

• Support tourist visits and increase tourist spending

• Develop territorial cohesion of EU cultural asset

• Contribute to a common transnational identity

The Limes is already the focus of a proposed project, currently listed as a project idea on the NWE INTERREG website. This is covered in more detail in Section 3 of this chapter.

2.5.2 Climate change and rising sea level

The geographical features of NWE (long coastline, substantial low laying areas, large rivers) combined with highly concentrated human activity make the area very vulnerable to potential risks brought by climate change. There are many existing projects that are related to climate change and flooding, but it is thought that most are quite sector-specific and even the more integrated strategies fail to address all aspects relevant to spatial planning. It is therefore proposed that a more integrated spatial approach to rising sea levels and climate change is necessary, and the ESPACE (European Spatial Planning: Adapting to Climate Events) project is identified as an example of a first step in this direction. ESPACE aims to ensure that adaptation to climate change is recognised and incorporated within spatial planning mechanisms at the local, regional, national and European levels. Aims of the project are to:

• implement a more integrated spatial approach to high water management and climate change adaptation

• build on the achievements of ESPACE • put greater emphasis on the analysis of consequences of climate change for

Natura 2000, cultural routes, urban settlements, infrastructure and economic development

• exchange information on innovative approaches to flooding (e.g. with regard to flexibility of land use, crop production and farming systems)

• enhance the sense of urgency for addressing flooding risk

Map C4: The Limes for Territorial Cohesion

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2.5.3 Integrated development of coastal zones

The coastal zones of NWE are characterised by considerable fragmentation of natural and agricultural areas. The combination of intensive agriculture and high settlement densities on the coastal plains has led to landscapes, open spaces, natural areas and biodiversity suffering from fragmentation. This project considers the need for transnational cooperation to analyse and manage the process of fragmentation of coastal rural land and simultaneously address issues of investment in sustainable energy systems and the economy, recreation and tourism in coastal zones. It is considered that a transnational approach to developing more integrated coastal strategies is necessary. The project objectives would include:

• Reducing fragmentation and strengthening the natural and ecological network (wetlands)

• Promoting a joint management approach to landscape fragmentation, threats (flooding, pollution) and economic challenges in recreation and tourism, cultural heritage, and sustainable energy production

• Jointly establishing the degree of fragmentation of rural areas and analyse strengths and challenges

• Exchanging experiences of specific integrated and territorial development strategies

2.5.4 Regional Development Perspective for the Rhine-Scheldt Delta

The Rhine Scheldt Delta hosts considerable economic interests (acting as a global hub for maritime transport) together with important cultural and natural assets including historic towns and old harbours, many beaches, and wetlands of international importance. Due to its large-scale maritime function, water pollution, maritime air pollution and maritime risks are important issues in the area, and environmental pressures need to be balanced with economic development and the enhancement of cultural and natural values.

This project aims to:

Map C5: Regional Development Perspective for the Rhine-Scheldt Delta

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• Build on existing transnational cooperation (since 1995) to develop a long term, jointly agreed transnational regional development strategy, focusing on the development of a territorially coherent region

• Develop combined management of pollution and maritime risks with development of significant natural and cultural values

• Improve cooperation on the development of economic activities within a sustainable balanced environment

2.5.5 Saar-Lor-Lux as a Vital Green Heart

The Saar-Lor-Lux region, incorporating regions of Germany, France and the whole of Luxembourg, still suffers from declining industry, high unemployment and industrial pollution. However, the area possesses good quality cultural and natural assets, and is surrounded by densely populated areas. These circumstances suggest that there is potential to develop tourism and attract knowledge based economic activities to the region. A transnational cooperation project that involves all public bodies in the region could lead to a more coordinated and coherent approach to the development of the region.

The project would aim to:

• Explore cultural capital (landscapes, industrial heritage) and natural capital (ecological networks, biodiversity);

• Identify potential economic activities for which the area offers suitable locations, and agree specialised zones

• Agree coordinated policies on strengthening or changing the role of Saar-Lor-Lux in NWE.

• Analyze strengths and potentials for innovation and prosperity: developing coherent natural landscapes into a green heart, creative development of old industrial buildings and sites, recreational potential and industrial heritage, economic, educational and infrastructural opportunities

2.5.6 Integrated approach to dealing with maritime risks

Map C6: Saar-Lor-Lux as a Vital Green Heart

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This project concerns the development of a transnational approach to reducing the frequency of pollution caused by accidental or deliberate discharging of oil or other polluting substances, and limiting the impact on the vulnerable ecology of shallow coastal areas. It is considered that the current international and European approach to these issues is not successful and that a more innovative approach is needed, which could be developed at the NWE level. Sustainable port management could be an important contribution to this aim, and because the estuaries and river basins where ports are located almost always cross national borders, a transnational approach would be appropriate. Objectives would be:

• Reduce the risks of maritime accidents and protect vulnerable and valuable areas from pollution and punish abuses.

• Improve the effectiveness of warning systems and tracing of polluters • Achieve cooperation amongst authorities in maritime, sea port, fishery,

environmental and tourist sectors, as well as maritime disaster relief organisations

• Create a single organisation able to coordinate policy and actions 2.6 Spatial specificity of proposed projects Of all the projects proposed, only five have a specific geographical focus. A further four projects, although not tied to a specific locality, are focused on identifiable routes or areas. Projects with specific spatial focus include:

• Harnessing the Hinterland Effects of Global Centres

• Broadband infrastructures - preventing a “digital divide” in the Ardennes-Eifel-Hunsrück area

• Saar-Lor-Lux as a Vital Green Heart • Regional Development Perspective for the Rhine-Scheldt Delta • The Limes for Territorial Cohesion Projects with broader spatial focus include:

• Rail and inter-modal freight services on East-West corridors • Intermodal transport on North-South corridors for perishable produce • The Channel Tunnel – Wider Links to Spatial Development • Inter-regional Spatial Development Programmes While projects with a coastal and maritime focus will, of course, be situated in coastal regions, the exact proposed location of such projects is not specified. 2.7 Links with the Spatial Vision zoning concept

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Fig C4: The Spatial Vision Source: NWE Spatial Vision p30

The Spatial Vision proposed that future transnational cooperation could be situated within the framework of four zones (Open, Island, Central and Inland) which delineate areas with common issues and characteristics. It is evident, however, that the zoning concept has received no attention from any of the Three Studies. There is no reference to the zones within the reports and the proposed projects bear no explicit reference to situation within any zone. One possible exception to this is the project titled ‘Saar-Lor-Lux as a Vital Green Heart’. This proposal appears to have taken its lead, without making a specific reference to, the Spatial Vision’s description of the Inland Zone, which describes the area as a ‘green heart’ of north-west Europe and makes reference to the Saar-Lor-Lux network of cities. Again, there is no specific reference to the Inland Zone within the material of this project.

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3.1 Introduction The comparison of proposed projects with approved projects is done in two stages. In the first step a simple matrix is built to show which of the existing and proposed projects address the range of transnational issues as identified in Chapter A1. This exercise reveals the relation between existing and proposed projects (in terms of their main focus) and also shows clearly which issues have received the most and least coverage by all projects. Secondly, the same method is used with regard to the full list of priority themes as identified in Chapter B. Again the matrix reveals the interrelation of approved and proposed projects, as well as the extent to which each theme is responded to by all projects. In each case, when creating the matrix, each project is assessed by briefly reviewing its summary information. It is important to note, therefore that the matrices are not the result of in-depth analysis and consequently serve only to provide an initial scoping of the current situation. Each project can be listed more than once according to the number of issues or themes it appears to address. Attention is only given to the main focus of the projects when identifying which issues/themes are covered. Other less explicit aspects of the projects are not considered here. 3.1 Mapping Existing and Proposed Projects against Transnational Issues Figure C4 below represents the result of a mapping exercise to assess which of the existing NWE INTERREG IIIB and which of the proposed projects address the range of transnational issues identified in Chapter A1.

Thematic Issue Grouping

Key Transnational Issues

NWE Approved Projects

(INTERREG IIIB)

Proposed Projects

EU Enlargement

Lisbon performance CROBUS PARKS NENSI BRAIN DRAIN IMAGE ELAT Bizz 2 Bizz EPROC ReUrba II TESIS

Hinterland Effects of Global Centres Inter-regional Spatial Development Channel Tunnel SME Growth and Innovation Broadband in Ardennes-Eifel-Hunsruck area

Ageing of Europe

Large scale migration

Regional variations of overall population change

Hinterland Effects of Global Centres

Rural depopulation EPROC CITIZEN FIRST

Broadband in Ardennes-Eifel-Hunsruck area

Demographic Change

Demographic challenges

Spatial concentration EUROPOLIS REVIT

Hinterland Effects of Global Centres Management of Urban Growth

Polycentric vs. monocentric trends SPAN POLYNET

Hinterland Effects of Global Centres Channel Tunnel Settlement Patterns

Potential transnational urban regions ELAT CROBUS PARKS

Inter-regional Spatial Development Channel Tunnel SME Growth and Innovation

Transport infrastructure

Long distance inter-modal services

FINESSE LIIFT IPPN DIPCITY

Development of Waterway Transport ITS on the Trans-EU Road Network Inter-modal Freight on E-W Corridors Intermodal Freight on N-S Corridors

3. Comparison with approved projects

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for fresh produce ITS to Improve Intermodal Freight

Road pricing Coordinating Road Pricing Policies

Public transport LIRA-2 HST Integration OPTIMUM 2 HST Connect

Expansion of regional airports DART

Unequal accessibility HST Platform HST Integration Eurovéloroute OPTIMUM 2 CITIZEN FIRST HST Connect

Coordinating Road Pricing Policies Inter-modal Freight on E-W Corridors Intermodal Freight on N-S Corridors for fresh produce

Intra-EU maritime transport FINESSE IPPN

Inter-modal Freight on E-W Corridors Intermodal Freight on N-S Corridors for fresh produce

Rising energy price

Use of ITS ITISS IPPN EPOS

ITS on the Trans-EU Road Network ITS to Improve Intermodal Freight

R&D development and employment NENSI ELAT

SME Growth and Innovation

Advanced telecommunications infrastructure

Digital divide CITIZEN FIRST Broadband in Ardennes-Eifel-Hunsruck area

Increasing exposure to natural and technological hazards

NEW! DELTA EPOS

Climate Change, Rising Sea Level RDP for Rhine Scheldt Delta Integrated Approach to Maritime Risks

Impact of climate change ESPACE BRANCH

Climate Change, Rising Sea Level Integrated Development of Coastal Zones

Flood risk management JAF SCALDIT AMEWAM Floodscape FAR WARELA FOWARA SDF Urban Water FaF SAFER TIMIS NOFDP NOAH SAND

Climate Change, Rising Sea Level Integrated Development of Coastal Zones RDP for Rhine Scheldt Delta

Increase in pollution Urban Water NEW! DELTA

Integrated Development of Coastal Zones RDP for Rhine Scheldt Delta Integrated Approach to Maritime Risks

Landscape fragmentation and reduction in biodiversity

HEATH Integrated Development of Coastal Zones Saar-Lor-Lux as a Vital Green Heart

Environmental protection and enhancement

Developing alternatives to fossil fuels Minewater Integrated Development of Coastal Zones

Natura 2000 NEW! DELTA

Growing pressure from tourism PROGRESS Integrated Development of Coastal Zones

Natural and cultural assets

Role of cultural heritage and creative industries in economic innovation

BLUE LINKS CROSSCUT WIHCC ARTERY ENCOURAGE PROHOLZ-PROBOIS ERIH II Geoparks MESH HEATH NEW! DELTA CSS

The Limes for Territorial Cohesion Saar-Lor-Lux as a Vital Green Heart

Fig C5: Mapping of projects against transnational issues

3.1.1 Coverage of transnational issues by existing projects Of the key transnational issues identified, those concerned with cultural and natural heritage, accessibility (particularly related to the HST network), Lisbon performance,

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and the management of flooding risks are the ones most frequently addressed by approved projects in the NWE INTERREG IIIB programme. Issues that are less well addressed by projects in the current programme include developing alternatives to fossil fuels, increasing pollution, landscape fragmentation and reduction in biodiversity, increasing exposure to natural and technological hazards, growing pressure from tourism, and the expansion of regional airports. ICT is a featured resource of several approved projects (Bizz2Bizz, ITISS, VEPS, ELAT) but currently only one initiative, CITIZEN FIRST, focuses on issues of the take-up of ICT and tackling the digital divide. It appears from this brief assessment exercise that there are currently no approved projects specifically addressing the issues of: road pricing and demographic challenges including large scale migration and rising energy prices. On this last issue, it is worth mentioning that emerging energy price rises are not explicitly targeted by any existing project, although the Minewater project (developing geothermal energy sources) could be considered relevant in that the main objective is development of a renewable energy source. Less directly, this issue is also addressed to some extent by projects focused on encouraging modal shift (towards more sustainable transport modes with greater fuel efficiency). 3.1.2 Coverage of transnational issues by proposed projects With reference to the table in Figure C4 again, the exercise of mapping project proposals on to transnational issues reveals a more even spread of projects against issues – this is unsurprising given that it was an implicit aim of each of the Three Studies to propose projects that addressed all the transnational issues they have highlighted. With only 18 projects, it is difficult to see a clear pattern emerging, although there appears to be a slight concentration of coverage on issues related to Lisbon performance and the development of intermodal transport services. However not all the issues were covered: the expansion of regional airports, rising energy prices, support of Natura 2000, development of public transport, and demographic challenges such as European ageing and large scale migration rural depopulation and general demographic challenges are not specifically addressed by any of the proposals. All of the projects proposed by the Three Studies appear at least once in the matrix, confirming the expectation that all the project proposals have some relevance to transnational issues identified. 3.1.3 Issues to be addressed by future projects The results of the mapping exercise (Figure C4) suggest that there is a clear need for a number of future territorial cooperation projects to address issues relating to population ageing, migration on a macro scale, demographic challenges and rising energy prices. These issues are only currently emerging or have only recently received growing attention, so it is not surprising that current cooperation activities are not focused in these areas. However, these particular issues are not specifically

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addressed by any of the proposed projects either, so there is a need for further consideration beyond the work done by the Three Studies. While certain issues are being addressed to a minor extent through current cooperation, there is an apparent requirement for future projects to further focus on issues related to variations in population change, problems of rural depopulation, public transport and the Natura 2000 network. 3.2 Mapping existing and proposed projects against priority themes Figure C5 below is the result of a mapping exercise to reveal the extent to which both approved and proposed cooperation projects respond to the priority themes identified in Chapter B. For the approved projects a distinction is drawn between those approved early (2002-2003) in the current funding period and those approved more recently (2004-2005).

Priority Themes/Policy Options Approved Projects Approved 2002-03

Approved 2004-05

Proposed Projects

Lisbon Agenda (economic competitiveness) Strengthening the metropolitan regions EUROPOLIS

POLYNET Harnessing the Hinterland Effects of Global Centres

Supporting the growth of SMEs in NWE TESIS NENSI EPROC

Spatial Planning for SME Growth and Innovation

Attracting and maintaining highly skilled workers ReUrba II BRAIN DRAIN IMAGE CRII SPATIAL METRO

Harnessing the Hinterland Effects of Global Centres Spatial Planning for SME Growth and Innovation

Enhancing the knowledge economy outside the urban centres

NENSI BRAIN DRAIN ELAT

Harnessing the Hinterland Effects of Global Centres Inter-regional Spatial Development Programmes Channel Tunnel Spatial Planning for SME Growth and Innovation Broadband in Ardennes-Eifel-Hunsrück area

Supporting development of transnational technology clusters

TESIS ELAT CROBUS PARKS

Inter-regional Spatial Development Programmes Channel Tunnel Spatial Planning for SME Growth and Innovation

Investing in R&D to promote knowledge-based economy

NENSI ELAT

Inter-regional Spatial Development Programmes Spatial Planning for SME Growth and Innovation

Stimulating deployment and take-up of ICT TESIS ELFE

Broadband in Ardennes-Eifel-Hunsrück area

Gothenburg Agenda (environmental sustainability) Encouraging economic activity that contributes to environmental sustainability

PROGRESS ENCOURAGE PROHOLZ PROBOIS ARTERY CROSSCUT Eurovéloroute HEATH ISLA

Promote the development of freight waterway transport Integrated development of coastal zones RDP for Rhine Scheldt Delta (RSD)

Reducing the global environmental impact of NWE Hospital Cooperation LIIFT ENCOURAGE RHINENET REVIT BRANCH Minewater REDUCE DIPCITY

Protecting and managing the natural resources of NWE

SAIL II AMEWAYAM FOWARA SOS II PROGRESS

Transnational coordination in road pricing policies Climate change, rising sea level Integrated development of coastal zones

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RHINENET MESH COREPOINT NEW! DELTA

Integrating and networking ecological habitats to tackle fragmentation

PROGRESS BOUNDLESS PARKS HEATH NEW! DELTA

Integrated development of coastal zones

Sustainable management of water resources SCALDIT JAF Floodscape RHINENET WIHCC AMEWAM TRUST NOFDP Urban Water CYCLEAU

Promote the development of freight waterway transport Climate change, rising sea level

Sustainable development, prudent management and protection of other natural resources and of cultural heritage

SOS II PROHOLZ PROBOIS BOUNDLESS PARKS CSS ISLA COREPOINT

The Limes for territorial cohesion Climate change, rising sea level

Demography / Migration Responding effectively to the transnational spatial impacts of demographic change

Planning for and managing population decline particularly in rural areas

BRAIN DRAIN

Maximising opportunities of the ageing population through spatial planning

Territorial Cohesion and Settlement Patterns Encouraging territorial cohesion across NWE by maximising the economic potential of transnational areas

Inter-regional Spatial Development Programmes Channel Tunnel

Maximising the competitiveness of weak MEGAs (potential of medium-sized cities)

EUROPOLIS Bizz 2 Bizz CSI CRII

Inter-regional Spatial Development Programmes

Increasing complementarities and synergies between small and medium towns/cities

BRAIN DRAIN Harnessing the Hinterland Effects of Global Centres Inter-regional Spatial Development Programmes

Strengthening nodes and networks and stimulating co-operation between cities and towns

SPAN POLYNET

Harnessing the Hinterland Effects of Global Centres Inter-regional Spatial Development Programmes Action Project to Manage Urban Growth Promote the development of freight waterway transport

Strengthening urban-rural relationships that contribute to a balanced development of the NWE territory overall

NENSI LIFESCAPE

Inter-regional Spatial Development Programmes Action Project to Manage Urban Growth Saar-Lor-Lux as a vital Green Heart

Ensuring the integration of rural areas with networks of urban centres to ensure their complementary spatial development

SAIL II DART

Inter-regional Spatial Development Programmes Saar-Lor-Lux as a vital Green Heart

Enhancing the role of small towns in providing services for peripheral areas

Maintaining rural services LIFESCAPE

Accessibility Improving accessibility (not just in physical terms) to jobs, recreation, services and opportunities within NWE

Hospital Cooperation SAUL PROGRESS ARTERY BOUNDLESS PARKS ELFE HEATH CITIZEN FIRST VEPS

Channel Tunnel Spatial Planning for SME Growth and Innovation Broadband in Ardennes-Eifel-Hunsrück area Saar-Lor-Lux as a vital Green Heart

Achieving sustainable mobility within NWE in a perspective of long-term traffic growth

HST Platform LIRA II ITISS HST Connect DIPCITY

Channel Tunnel Promote the development of freight waterway transport Transnational coordination in road pricing policies Intermodal Freight on East-West corridors Intermodal Freight on North-South corridors

Tackling problems of digital divide through infrastructure provision (such as access to broadband and training)

CITIZEN FIRST ELFE

Broadband in Ardennes-Eifel-Hunsrück area

Improving accessibility by increasing efficiency of land-based, maritime, and air transport corridors

FINESSE LIIFT HST Integration Optimum II

Transnational coordination in road pricing policies Intermodal Freight on North-South corridors

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ITISS HST Connect SPATIAL METRO

ITS to improve intermodal freight

Encouraging modal shift towards more sustainable transport systems,

HST Platform LIRA II LIIFT HST Integration Optimum II FINESSE ITISS IPPN HST Connect DIPCITY

Promote the development of freight waterway transport Transnational coordination in road pricing policies Intermodal Freight on East-West corridors Intermodal Freight on North-South corridors

Encouraging inter-modal freight transport systems within NWE

LIIFT FINESSE IPPN DIPCITY

Promote the development of freight waterway transport Intermodal Freight on East-West corridors Intermodal Freight on North-South corridors

Increasing the competitiveness of rail and waterway transport

LIIFT

Promote the development of freight waterway transport Transnational coordination in road pricing policies

Developing high speed freight services HST Integration ITS to improve intermodal freight Promoting use of Intelligent Transport Systems (ITS) to improve inter-modal services

HST Platform Optimum II ITISS

Intermodal Freight on East-West corridors ITS to improve intermodal freight

Improving the external access of NWE by increasing efficiency of land-based, maritime, and air transport corridors

HST Integration Optimum II HST Connect

Transnational coordination in road pricing policies Increased use of ITS on the Trans-European Road Network Intermodal Freight on East-West corridors ITS to improve intermodal freight

Cultural and Natural Diversity Recognising and valuing cultural and natural diversity of NWE

SOS II PROGRESS BLUE LINKS SERPENTRION EGHN PLANARCH Crossing the Lines ISLA EMDI ERIH II HEATH

The Limes for territorial cohesion RDP for Rhine Scheldt Delta (RSD)

Maximising the diversity of NWE as an asset SOS II SERPENTRION CROSSCUT PROHOLZ-PROBOIS EGHN

Saar-Lor-Lux as a vital Green Heart

Capitalising on cultural and natural assets PROGRESS MAYA II BLUE LINKS SERPENTRION PROHOLZ-PROBOIS ARTERY BOUNDLESS PARKS WIHCC Geoparks Crossing the Lines Eurovéloroute ERIH II

The Limes for territorial cohesion Saar-Lor-Lux as a vital Green Heart

Climate Change Assessing the implications of climate change for spatial development patterns and developing long term strategic response

ESPACE BRANCH

Climate change, rising sea level

Rising Energy Prices Addressing the impact of the rising energy prices and potential fall in energy supply on settlement patterns

Encouraging development of renewable energy generation

Minewater

Managing and Prevention of Risk Managing and prevention of risks (incl. maritime safety)

EPOS NEW! DELTA

Increased use of ITS on the Trans-European Road Network Climate change, rising sea level RDP for Rhine Scheldt Delta (RSD) Integrated approach to maritime risks

Minimising risk of transporting dangerous goods in urbanised areas

Develop risk management capacity with particular regard to flooding

JAF FAR Floodscape SCALDIT FOWARA WARELA

Climate change, rising sea level

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SAFER FaF SDF NOFDP Urban Water NOAH TIMIS SAND

Minimising transnational air, water and soil pollution CYCLEAU Berisp REDUCE Urban Water

RDP for Rhine Scheldt Delta (RSD) Integrated approach to maritime risks

Governance Encouraging cross-sectoral policy integration SAIL II

COREPOINT RDP for Rhine Scheldt Delta (RSD) Integrated approach to maritime risks

Encouraging policy integration and partnership between urban and accessible rural areas

Inter-regional Spatial Development Programmes

Building capacity for territorial cooperation SAIL II NOAH COREPOINT

RDP for Rhine Scheldt Delta (RSD)

Promoting vertical and horizontal partnerships SAIL II EUROPOLIS SPAN CSI

Figure C6: Mapping of projects against priority themes

3.2.1 Existing projects – extent to which priority themes are addressed Figure C5 reveals that some of the priority themes are well covered by existing projects, but others are not as thoroughly addressed. Amongst all the priorities identified, those concerned with environmental sustainability, accessibility and diversity of culture and nature are covered by many approved INTERREG IIIB projects. Aside from these priority themes, other specific priorities have also been well addressed by existing cooperation activity: developing risk management capacity with regard to flooding is particularly well covered (although other risk-related priorities are less well addressed), and numerous projects consider the attraction and retention of highly skilled workers. Other themes that are less thoroughly addressed but still receive reasonable coverage by approved projects include the Lisbon Agenda, territorial cohesion, and the managing and prevention of risk and governance. Priorities belonging to the themes of demography and migration, climate change and rising energy prices receive very little specific focus from existing projects. This is perhaps to be expected, given that these priorities reflect emerging trends and issues. 3.2.2 Proposed projects – extent to which priority themes are addressed Looking at the extent to which project proposals from the Three Studies address the priority themes, the mapping exercise reveals a slightly different pattern to that of the existing projects. It is important to note, however, that there are far fewer proposed than approved projects, and this must be kept in mind when considering the level of coverage of all the projects. Priorities under the themes of Lisbon Agenda/economic competitiveness, territorial cohesion and settlement patterns, and accessibility are reasonably well covered by the project proposals.

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Gaps in the table show that priorities concerning environmental sustainability, cultural and natural diversity, risk management and governance are less thoroughly addressed by these projects. Receiving little or no coverage from the proposed projects are the themes of demography/migration and rising energy prices poorly covered. As with the comparison of existing projects against priorities, the fact that these priorities reflect emerging issues may offer some explanation for this. However these issues are highlighted within same studies that proposed the projects, so there a disparity here. 3.2.3 Priorities to be addressed by future projects The process of mapping both approved and proposed projects against the full list of priorities enables us to make some suggestions for the focus of future cooperation activity. Priorities related to environmental sustainability, accessibility and diversity of natural and cultural heritage have been well covered by current cooperation projects, and this should continue. Priorities that have not, up until now, been as thoroughly addressed, fall within the themes of the Lisbon Agenda, territorial cohesion and risk management. The ‘empty’ spaces in the table reveal that further work is required to identify future projects that are capable of addressing priorities relating to demography, migration and rising energy prices. Also, to a certain extent, more project proposals are needed to continue the strong coverage of priority themes as mentioned above. In particular, this is necessary for the themes of environmental sustainability and cultural and natural diversity, where there is currently a weak response from the projects proposed by the Three Studies.

There are very significant differences in the way this question has been dealt with in the Three Studies. Study 1 does not deal with the question explicitly at all, and so no assessment of the impacts of the proposed projects related to polycentric territorial development can be presented here. The question is answered quite explicitly in Study 2, but only in a rather general way in Study 3. The point is made in the two last studies that it is very difficult at this stage to give a detailed assessment of the possible impacts of the potential transnational projects that have been identified. It is suggested that such an assessment would be more fruitful at a later stage when the exact nature of the projects has become clearer. 4.1 Impacts of potential projects related to infrastructure In the transport sector, numerous projects promote greater use of rail, both for freight and passenger transport. The increase of the share of rail transport in NWE would likely contribute simultaneously to several objectives. It should contribute to reducing traffic congestion and therefore help to increase traffic efficiency and

4. Social, economic and environmental impacts of projects

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environmental sustainability. It should also make the transport systems of NWE less dependent upon oil energy sources, the price of which is likely to increase significantly in the future. The availability of an efficient transnational rail network in NWE, which has managed to overcome the current constraints of interoperability, incompatible national regulations, non-cooperation between operators from different countries etc., would ensure a high level of accessibility throughout NWE and also strengthen its territorial cohesion. However, even a significant increase in the use of rail will not change the overall modal split of traffic by more than a small amount, and measures will still be needed to deal directly with congestion on other transport modes, especially road. Transnational cooperation aimed at promoting maritime and inland waterway transport would contribute significantly to improving the environment, as they are the most sustainable modes of transport. There would also be significant economic efficiencies, because under present conditions they have the lowest haulage costs, particularly in the case of maritime transport. There are other projects which would have positive environmental and social impacts. These mainly concern the promotion of public transport in the most densely populated areas of NWE, as well as in low-density rural areas which have high proportions of elderly people. Increasing security in transportation and reducing the number of accidents, especially through the greater utilisation of ITS technologies, would generate social benefits primarily, but also economic and environmental ones. Reducing the risk of a digital divide in relation to broadband networks is of crucial importance for ensuring territorial cohesion. Moreover, it is not neutral in terms of economic and social benefits either. Rapid access to the Internet is an essential factor in the locational decisions of enterprises. It is also of significant importance in preventing the social and cultural marginalisation of population groups. 4.2 Impacts of potential projects related to cultural and natural heritage There is no assessment of the possible impacts of individual projects or indeed themes. Instead, the impacts are listed by type. The possible social impacts are listed as:

• Improvement of quality of life by building on existing local and regional natural and cultural assets

• Enhancing sustainability by increasing feelings of belonging • Increasing social cohesion as a result of greater long-term cooperation • More innovative ideas as a result of higher quality environments

Possible economic impacts are given as:

• Economic growth based on cultural or natural identity • Economic profit based on the tourism industry • Economic growth based on the greening of society and policies promoting

sustainability • Economic cohesion as a result of more long-term cooperation • Improvement and securing of prosperity as a result of working together • Production of tailor-made solutions for regional economies

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Possible environmental impacts are listed as: • Improvement of the environment, e.g. in air quality and water quality • Decrease in maritime, industrial and nuclear power plant accidents • More sustainable actions of consumers and producers, resulting in a decrease

in amounts of waste, reduction in energy use, and more renewable energy (re)sources

• Optimalisation instead of maximalisation as a result of a more integrative approach

5.1 Baseline information Consultation with key actors in the NWE area has stressed the need for the collection of spatial data to inform policy making at the transnational and European level. In particular regard to polycentricity issues, the use of a ‘spatial information monitoring system’ has been suggested, which could build on the ESPON 1.1.1 study to improve understanding and progress on polycentric territorial development in the NWE territory. There is a perceived need for improvements in cartographic representation of aspects of spatial development, alongside a requirement for better understanding of the role of GIS and spatial analysis (as opposed to more general representations). Data relating to recent policy developments and trends (such as a ICT development and demographic change) is considered necessary, as is the analysis of current and anticipated change in the NWE area and its relationships with other EU and world regions. It is suggested that forthcoming results from the ESPON 1 programme could be a valuable contribution to a transnational knowledge base that would assist the ex-ante assessment of the future cooperation programme. 5.2 Indicators A key challenge is identified in that there are currently no commonly accepted indicators allowing measurement of transnational or cross-border cooperation vertically and horizontally within government and private sectors. To ensure that transnational cooperation is evaluated more coherently in the future, it is felt that a debate on indicators and data is needed. The key message from the studies is that future monitoring should feature a combination of both quantitative and qualitative indicators that allow the evaluation of the effects of mutual learning, the territorial impact of projects, contribution to the Lisbon-Gothenburg Strategy, and policy influence for territorial development. Qualitative indicators would measure changes in practice and attitudes, but should be proven by tangible elements. No specific indicators have been suggested for cooperation concerning polycentric territorial development or the management of cultural and natural heritage, however

5. Monitoring the achievements of the future NWE territorial cooperation programme

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several have been proposed that relate to the field of transport infrastructure and ICT. These are shown in the extract from Study 2 below.

In the transport sector, the measurement of results may relate to: • The adaptation and change of planning strategies and policy measures, so that they better correspond to the jointly defined objectives and also to the new jointly identified challenges. This may concern the inclusion of a transnational dimension into national and regional programmes and strategies, when these are being revised or newly elaborated, the formalisation of bi- or multilateral decisions related to the development of transnational infrastructure as well as the elaboration of transnational surveys and forecasts before programmes and strategies are adopted etc.; • The development of more integrated approaches in the planning and conception of transport systems with transnational significance, including better balance between transport, environment and settlements, in particular on the TEN corridors; • The number, quality and relative significance of new services generated in terms of transnational connections ensured by sustainable transport modes. This may relate to rail, maritime and waterway as well as to inter-modal services. Transnational services developed on a provisional and experimental basis before their profitability is ensured, should also be taken into account. • The stronger involvement in cooperation activities of strategic stakeholders from the private and public sectors. This should refer mainly to national and regional authorities in the field of transport, to railway companies and other private and public operators (maritime sector, port authorities, large logistic companies etc.); • Progress in the rationality and coherence of developments in sectors with intense competition (for instance ports’ expansion, railway companies etc.). Particularly important aspects are the rationalisation of investments, the creation of win-win situations, the prevention against unprofitable strategies; In the field of Intelligent Transport Systems, results may be measured against: • The number and quality of applications developed and implemented and the level of their transnational significance. An important aspect is the transnational extension of applications which have been developed and applied in only one country, as far as this may improve the traffic situation in transnational areas and along transnational corridors; • The increase of safety in transport in the areas where such applications are implemented. This can be measured by the reduction in the number of accidents and casualties; • Increased traffic fluidity and transport efficiency, which result of a reduction of congestion through better traffic management in areas supplied with new ITS systems. Various types of measurement can be carried out, such as the evolution of average speed on specific sections at traffic peak hours, the evolution of traffic flows (vehicles/hour) at specific points of the network etc.;

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• The progress of the share of sustainable transport modes which may result from the use of ITS technologies (intermodal chains, public transport). As far as advanced telecommunication infrastructures are concerned, the measurement of results could be based on: • The reduction of the size of areas not serviced by broadband networks and similar high-capacity infrastructure; • The development of innovative solutions, in terms of financing and operators, to realise high-speed telecommunication infrastructure in areas with market failure, in particular in those of transnational character; • Progress in the networking of clusters/growth poles/centres of excellence through advanced telecommunication infrastructure in areas with transnational character.

Indicators relating to the environment and natural heritage receive brief consideration, and attention is drawn to the work of Eurostat, EEA and IUCN (World Conservation Union). There are thought to be promising developments in monitoring based on the use of natural and environmental databases, and those developed by the EEA perhaps have the most potential in this regard. Information relating to cultural heritage is seen to be fragmented, leading to problems with definitions and a lack of understanding of content. Cooperation on a transnational level is considered necessary to bring together data from individual countries and secure agreement on appropriate indicators. 5.3 Targets From the limited consideration of targets evident amongst the Three Studies, it appears that, as with the message concerning indicators, thinking is aligned with the introduction of qualitative elements. Changes in practices and attitudes should be featured amongst other targets and could cover, for example, changes in the involvement, behaviour and attitude of operators and stakeholders which help to eliminate obstacles and facilitate achievements of project objectives. It is proposed that the involvement of strategic stakeholders should be given more importance in cooperation activities; that this factor should be considered when selecting projects in order to improve the potential for concrete actions resulting from cooperation activities. Again, as with indicators, targets only receive specific attention in Study 2. Suggested targets related to transport and telecommunications are as follows: In transport, targets should be related to • the development of new services in sustainable transport modes (railway,

waterway, maritime transport) • the solution/elimination of well-identified technical or procedural obstacles

(interoperability, regulations) • the elaboration of specific knowledge bases (freight availability on specific

corridors, networking of transport

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• the achievement of transnationally harmonised solutions (road pricing). In ITS targets should be related to • the types, quality and amount of applications developed or expanded which have

a significant transnational impact, either directly for “transnational” transport users or indirectly through transnational transfer of know-how and information.

For advanced telecommunication networks, targets should be focused on tangible criteria related to • the reduction/prevention of digital divide (for instance progress of accessibility to

broadband networks in specific areas) • the networking of specific clusters/centres of excellence having transnational

character In addition to the consideration of targets at project level, it is suggested that targets should be elaborated for strategic cooperation. Study 2 contributes the following objectives in this respect: • The identification and political validation of transnational issues and related

cooperation activities with strategic character; • The political accompaniment of these cooperation activities with the aim to

smooth potential difficulties and to optimise the benefits; • The identification of structural changes in a number of policies and planning

strategies related to the outcome of cooperation activities; • Stronger measures related to the operational implementation of proposals and

recommendations stemming from the cooperation activities. 5.4 Notes from forthcoming Mid Term Evaluation (MTE) Based on the material presented to the Programme Monitoring Committee in Stuttgart, 30 November, the MTE will offer an evaluation of programme indicators and targets that calls for some changes to be made. 5.4.1 Indicators The MTE considers that all indicators currently in use are relevant to the programme and its objectives, however only a few are viewed as being well defined and operational. There is a call for greater clarity in distinguishing between indicators relating to project outputs, results and impacts. Current indicators concerning outputs and results, due to their qualitative nature, are criticised for leaving much room for interpretation. In contrast with the message coming from the Three Studies, the MTE appears to call for a reduction in the number of indicators of a qualitative (what it terms ‘chewing gum’) nature which are characterised by vague definitions.

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Key recommendations for taking forward the current system of indicators include:

• reducing the overall number of indicators • ensuring indicators are clearly, unequivocally defined • using baseline information where possible

5.4.2 Targets The MTE is not able to offer a comprehensive evaluation of targets due to a number of cooperation projects having only recently started. It observes that assessment has been focused on the measures detailed in the Programme Complement. The MTE also comments that the extent to which projects fall short of the targets proposed by this document may indicate that the targets were not realistic enough. In addition, the evaluation concludes that most targets in use for specific outputs and results are ‘rather subjective and difficult to measure’.42

6.1 Territorial State and Perspectives of the Union

At their meeting in Rotterdam in November 2004, the EU Ministers for Spatial Development launched an agenda for the period until the end of the German Presidency (first half of 2007) for following up the ESDP process by focusing on the elaboration of territorial cohesion in the light of the Lisbon-Gothenburg strategy for economic growth and sustainable development. A key action in this respect was to produce an evidence-based policy assessment addressing the ‘Territorial State and Perspectives of the Union’ through a process of cross-disciplinary dialogue with the EU institutions as well as local and regional actors. As part of that process a ‘Scoping Document’ was produced and endorsed by the Ministers for Spatial Development and the European Commission at the Informal Ministerial Meeting in May 2005 in Luxembourg. The ‘Scoping Document’ is now being further developed under the coming EU Presidencies (UK, Austria and Finland) in cooperation with ESPON Coordination Unit, and will be presented to the Ministerial Meeting held under the German Presidency in 2007. One important aspect of the Scoping Document is its reflections on future EU Cohesion Policy and in particular the new Objective 3 on European Territorial Cooperation (ETC). Objective 3 and its trans-European dimension is seen as playing an important role both in strengthening the structure of the European territory and in promoting better territorial governance in the EU. The Scoping Document suggests that, the proposed ETC will be stronger than the current INTERREG III programme because: it will be ‘mainstreamed’, more coherent in its zoning, and more strategically focused on strengthening territorial cohesion. As the EU Ministers for Spatial Development will play a key role in applying ETC, it is

42 From Update Mid Term Evaluation presentation to PMC in Stuttgart 30 November.

6. Future Direction for European Territorial Cooperation Projects

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important to consider how the analyses and priorities of the assessment on the ‘Territorial State and Perspectives of the European Union’ could be applied by stakeholders. It is proposed that ETC should have a stronger focus on strategic projects, in addition to a continuing emphasis on the development of innovative approaches and the exchange and dissemination of best practices on common issues. Such strategic projects may cover multiple (sub) projects and investments. They should improve (trans) European territorial governance, for example by developing common approaches, networks and integrated development strategies. 6.2 Examples of potential strategic projects for post-2006 period The Scoping Document provides a number of examples of strategic projects as outlined below:

• The integrated development of metropolitan axes with a cross-sectoral focus,

including: o optimizing multimodal infrastructure and flows of transport o Supporting economic activity o Improving the (peri-)urban environment of living and working o Connecting urban networks o The development and protection of natural resources, such as measures to

minimize the effect of infrastructure on nature and to reduce negative environmental effects

o Synchronizing plans and procedures for planning and procurement, including the promotion of trans-European consortia for public-private-partnership, preparation and implementation of infrastructure projects.

• The integrated development of coastal zones, combining joint management of

maritime risks, including: o Coastal defences o Protection and development of areas of high natural value (e.g. wetlands) o Development of short sea shipping links o Investing in sustainable energy systems, including natural gas and wind

power o Sustainable development of the economic potential of the coast, including

recreation and tourism o Action to optimize the environmental quality and economic potential of

coastal areas. • An integrated approach to water management in river catchment areas,

o Combining the implementation of flood risk reduction measures o Investing in multifunctional land use and the recreational potential of

rivers o Taking measures to improve water quality and nature development o Enabling efficient transport on rivers

• Innovation projects leading to strategic trans-European partnerships between

knowledge institutions and other partners in the innovation process, including SME and venture capital participation in public knowledge valorisation and exploitation. Partnerships should lead to:

o Better utilisation of research-infrastructure o Exchange facilities for researchers

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o Better trans-European linkages between investors and researchers o Access for SME’s to public knowledge dissemination instruments o Sharing of experience of spatial, environmental and cultural policies and

policies for promoting innovation in a regional and urban context, including policies to attract innovative and R&D investments.

• In general there may be a case for supporting projects that aim at urban

growth poles and networks and connecting them to other networks, aiming at strategic alliances.

The Scoping Document also refers to examples of good practices from INTERREG III projects. Those funded under the INTERREG IIIB NWE Programme are outlined in Appendix A

Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi

Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

1.1 Outline of Chapter

1. Introduction

Chapter D Other Spatial Visions

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This chapter contains a review of the key issues and objectives of other INTERREG “Visions”, with particular attention given to the cooperation areas that substantially overlap the NWE area. Section 1 includes this chapter outline and provides a brief illustration of the INTERREG IIIB areas and the extent to which the NWE area overlaps with those neighbouring it. The following sections look at the vision material currently under development (where it exists) of other regions beginning in Section 2 with the regions that most substantially overlap with NWE. Sections 3 and 4 respectively focus on areas that marginally overlap, or have no overlap with the NWE area. Where possible, comparisons in the process and content of visions are made with the NWE Spatial Vision43. 1.2 INTERREG IIIB Programme Areas

The INTERREG III Community Initiative (total budget €4,875 million at 1999 prices44) aims to stimulate interregional cooperation in the EU between 2000-06, with a primary objective of strengthening economic and social cohesion throughout the EU. Moving towards this goal has involved the fostering of balanced development across the continent by means of cross border, transnational and interregional cooperation. Strand B of the INTERREG III initiative covers transnational cooperation and involves national, regional and local authorities in the formation of large groups of European regions. Cooperation at this level aims to promote better integration within the Union.

So far there have been nearly 700 projects approved, involving more than 7000 partners across all of Europe. Map D1 shows how the INTERREG IIIB partners are distributed throughout Europe. It can be clearly seen that the countries situated around the Baltic Sea contain the highest number of partnerships. In NWE, areas with the least partners include southern Ireland, central England and central/eastern France.

1.3 Extent of overlap between NWE and other INTERREG IIIB areas

43 Further analysis will be provided by the forthcoming results of the ESPON – INTERACT Thematic Study, Spatial Visions and Scenarios, which focuses on analysis of ESPON and INTERREG IIIB activities. The Final Report is due in March 2006 44 From http://europa.eu.int/comm/regional_policy/interreg3/abc/abc_en.htm

Map D1: Number of INTERREG IIIB partners in NUTS2 regions Source: Illés, I (2005) Integrated analysis of transnational and cross-border spaces. Presentation at ESPON seminar, Manchester 2005

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Figure D1 shows all the INTERREG IIIB cooperation areas: a total of ten on the EU continent including that of NWE. As the images illustrate, all of the INTERREG IIIB regions overlap with neighbouring regions to some extent. The result of these overlaps is that around 80%45 of EU regions are included in more than one cooperation area, and some regions are included in several. For example, the Highlands and Islands region in the UK is included in four areas, and regions in southern Germany, southern Spain and Portugal, northern Italy and most of Scotland are included in three areas. Map D2 (below) shows the extent of overlap between cooperation areas.

Focusing on the NWE area in particular, a varying degree of overlap with other areas is observed. Two regions substantially overlap with North West Europe; three other regions have a marginal overlap and the remainder either meet the NWE area along its border or are completely separate from the region. The extent of overlap of each region is identified in Figure D2 (below).

45 Illés, I (2005) Integrated analysis of transnational and cross-border spaces. Presentation at ESPON seminar, Manchester, 2005

Fig D1: INTERREG IIIB (2000-2006) Cooperation areas. Source – Europa

Map D2: Overlap of INTERREG IIIB cooperation areas Source: Illés, I (2005) Integrated analysis of transnational and cross-border spaces. Presentation at ESPON seminar, Manchester, 2005

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Extent of overlap with NWE area

INTERREG IIIB Region

Substantial overlap North Sea Region Atlantic Area

Marginal overlap Northern Periphery Alpine Space CADSES

No overlap

South West Europe (meets NWE border) Western Mediterranean (meets NWE border) Archimed Baltic Sea

Fig. D2: Extent of overlap of INTERREG IIIB regions with NWE

Section 1 identified the most substantial overlaps of the NWE cooperation area (Map D3) to be with the North Sea Region and Atlantic areas. This section considers both of these areas in turn and presents summary information on the Vision objectives and process, where this exists. 2.1 North Sea Region The INTERREG IIIB North Sea Region (NSR) has considerable overlap with the North West Europe area. Regions that are covered by both areas are mainly in Scotland and the East of England, and partly in Belgium and the Netherlands. Map D4 (below) shows the extent of the North Sea area.

2.1.1 NorVision In common with NWE, a vision for spatial development in the NSR was developed as part of the INTERREG IIC Programme in order to relate the ESDP to the context of this area46. Officials in national and local government from each country in the NSR formed a Vision Working Group and, in collaboration with the North Sea Secretariat and an external consultant, produced in 2000 an advisory document entitled NorVision47. In mid 2004 the North Sea INTERREG IIIB Monitoring Committee initiated the process of selectively updating NorVision to produce what will be termed a New Spatial Agenda for the North Sea Region48. At the time of writing (November 2005) the New Spatial Agenda is at draft report stage. Key messages from both NorVision and the draft Spatial Agenda are summarised below.

46 More specifically, the INTERREG IIC North Sea Region area, which is slightly different to the INTERREG IIIB North Sea Region area. 47 Add full ref 48 From NSR website http://www.interregnorthsea.org/index.asp?id=111

2. ‘Visioning’ in regions substantially overlapping with the NWE area

Map D3: NWE Programme area

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The Vision document for the North Sea Region contains ten key Vision Statements which address spatial development issues in the area from three different perspectives: the entire North Sea Region, its urban regions, and its rural areas. Figure D3 sets out these statements.

NorVision - 10 Vision Statements

The North Sea Region as a whole 1. A NSR well integrated into the Development of the European Space and into the World Economy 2. A NSR with a balanced spatial structure 3. The NSR - a Model for Democratic and Co-operative Planning 4. The NSR, which takes care of its Natural Resources and Ecological Equilibrium and its Cultural Heritage

Urban Regions 5. Urban Regions in the NSR Developing in an Environment Friendly Way 6. Urban Regions as Motors of Economic Regional Development 7. Urban Regions which Promote Social Integration 8. Urban Regions which are Attractive Places for their Populations and Visitors

Rural Areas 9. Human Activities which are in Harmony with Nature 10. Rural Populations participate fully in Economic and Social Progress

Fig. D3: 10 Vision Statements from NorVision, p.37 For each of the ten spatial vision statements, NorVision elaborates a set of specific aims (shown in Figure D4) intended to contribute to their achievement.

Vision Statement Aims

1. A NSR well integrated into the Development of the European Space and into the World Economy

• High-quality access to knowledge allows all parts of the NSR to join knowledge-based developments.

• High-quality transport infrastructure and services link the NSR with other regions.

• Effective internal transport links with focus on sustainability within the NSR ensure that all parts of the region share the benefits from external integration.

• Co-operation across regions and countries enhances the effectiveness of spatial development.

• The NSR’s common interests are effectively brought forward vis-à-vis national and international bodies.

2. A NSR with a balanced spatial structure

• Reasonable sustainable accessibility for populations in all parts of the NSR to differentiated employment markets, education facilities, cultural activities, and information is ensured.

• Cross-sector co-ordination at all levels helps to make sector policies instrumental for spatial

• policies (in addition to sector objectives). • Large single or multi-sector projects are located and designed so

as to support wider spatial

Map D4: North Sea Region

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• development objectives.

3. The NSR - a Model for Democratic and Co-operative Planning

• Improved communication between the elected and the electorate minimises barriers.

• Improved tools for effective participation are applied. • Transnational consultation on spatial development plans is

enhanced.

4. The NSR, which takes care of its Natural Resources and Ecological Equilibrium and its Cultural Heritage

• Planning systems are directed towards sustainability. • Natural resources are restored and are developed in sustainable

ways. • Management of ecological, natural and cultural heritage in non

officially protected areas is effective. • Environment friendly forms of energy production are more widely

used. • Spatial policy tools contribute to the protection of the North Sea

ecology.

5. Urban Regions in the NSR Developing in an Environment Friendly Way

• Disadvantages caused by vehicular traffic is reduced and alternatives to the car are promoted.

• Limit the use of green-field land for urban expansion and re-use brownfield land.

• Land use pressure on valuable areas is minimised, seeking other ways to satisfy new housing, recreational and business area demand.

6. Urban Regions as Motors of Economic Regional Development

• Networking contributes to the strengthening urban regions. • Good accessibility to and within urban regions supports regional

economic development. • Regional centres, including intermediate cities and towns, make

effective use of their potential • for new economic activities.

7. Urban Regions which Promote Social Integration

• Integrated urban–regional development is sensitive to social diversity and inclusion.

8. Urban Regions which are Attractive Places for their Populations and Visitors

• Urban structures respond increasingly to the needs of quality of life.

• Urban regeneration is widely practised. • Buildings and urban complexes provide diversity and have an

attractive design. • Urban development management has been introduced.

9. Human Activities which are in Harmony with Nature

• Human activities are harmonised with strategies for protection of the environment.

• Environment friendly forms of tourism have been widely introduced.

10. Rural Populations participate fully in Economic and Social Progress

• Service functions in rural areas are supported. • Rural economies have been promoted. • Information technology and innovation support the development

of peripheral, nonagglomeration, regions.

Fig. D4: Aims of the Norvision Spatial Vision Statements

2.1.2 The New Spatial Agenda for NSR Although it has been stressed that the original NorVision document does not require evaluation or reworking, the aim of the new Spatial Agenda for NSR is to focus on emerging issues of growing importance which were not thoroughly addressed in the original Vision document49. A Working Group of representatives from each country in the area identified five themes as follows:

• Coastal Water Management • Transport and Accessibility • Facilitating innovation and the transfer of knowledge and technology • Energy • Demographic change

49 From http://www.interregnorthsea.org/index.asp?id=111

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For each theme a study has been commissioned, each to produce a report. It is intended that the findings of these five reports will be summarised as part of a final synthesis report, to be adopted by the Programming Monitoring Committee and to “sit alongside and complement the original Norvision document”50. The summary challenges, presented in the draft reports for each study, are outlined below in Figure D5.

Summary Challenges from NSR Draft Spatial Agenda Reports

Coastal Water Management • Effective application of Integrated Coastal Zone Management, widened to coastal sea areas and

clearly linked to statutory planning and regional development • Forward looking use coordination in sea areas • Risk management for coastal zones (land- and sea-side) and open seas

• Information and Technology

Transport and Accessibility • A competitive North Sea Region with efficient transport systems responding to • changing market conditions • A transport system that respects environmental and other risk concerns

• A transport system supporting regional development, integration and equal regional chances

Facilitating innovation • Facilitating a globally leading knowledge, science and technology base • Facilitating science–industry linkages

• Facilitating optimal framework conditions

Energy • Environmental consequences of the increasing use of fossil resources • Increased dependency on imported energy as local resources deplete

• Economic effect of environmental consequences and increased dependency

Demographic change • Supporting an increase in fertility rates through the provision of appropriate and affordable

housing, and relevant infrastructure (such as crèches or day schools) which allow a combination of family planning with parental full-time employment

• Responding to the spatial challenges from an ageing population, including different housing needs, and different transport and leisure requirements

• Accommodating the spatial challenges from lifestyle choices, such as increasing numbers of small households

• Responding to spatial challenges from national and regional migration, such as polarisation effects in urban areas and depopulation of peripheral areas

• Harnessing the magnetic effect of major global cities, particularly London, on young persons and international migrants for the benefit of the whole NSR

• Identifying appropriate approaches to make the built environment, particularly of urban areas, more conducive to the economic and social integration of international migrants

• Responding to the spatial challenges from retirement migration, such as housing market effects and infrastructure requirements.

Fig D5: Summary challenges from NSR Spatial Agenda reports

2.1.3 Comparison between NWE and NSR Visions There are similarities between the NWE and NSR experience in the process of taking forward the original spatial vision: the Working Groups in both regions have identified specific topics for further research and commissioned consultants to conduct individual studies. In both regions these study reports are to be summarised and synthesised to produce a final synthesis report by the end of 2005.

50 ibid.

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In terms of content, it is no surprise that common themes exist between the two original visions, given that both represent a regional interpretation of the same ESDP principles. However, although priorities concerning, for example, balanced spatial development and protection of natural resources, are common to both, differences do exist. A clear example of this is evident in the differing emphasis given to priorities in the area of transport and access. These themes are given considerable attention in the NWE Spatial Vision, but are barely mentioned amongst NorVision’s priorities; it is only later in the work on the Spatial Agenda for NSR that transport and accessibility are identified as important issues. Similarities also exist in the identification of emerging challenges. Issues related to energy and demographic change are featured in the priorities of both regions. In the NSR, these issues have been more explicitly singled out for attention, having been identified by the Vision Working Group as subjects for study. In NWE, these issues have been identified amongst others as part of the consultation for the three themed studies. 2.2 Atlantic Area The overlap between NWE and the INTERREG IIIB Atlantic area is considerable and includes all of Ireland, the west of Scotland, England and Wales, and the north-west of France. Map D5 shows the entire coverage of the Atlantic Area. 2.2.1 The Atlantic Spatial Development Project The Atlantic Spatial Development Project (ASDP) aims (in addition to other more analytical objectives) to provide a spatial vision for polycentric development in the Atlantic Area and make general recommendations for policy development throughout the region. The final project summary report, officially presented in June 2005, identifies five distinct major development areas within the overall Atlantic Area, listed below:

� British and Irish Atlantic Area � French Atlantic North-West Area � French-Spanish Cross-border Area � Western-Iberian Atlantic � South Iberian sub-area

Map D5: Atlantic Area

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Figure D6 is a visual representation of the current spatial strategy for the Atlantic Area, and shows the nominal boundaries of the five development areas. In terms of delineating the sub-areas, it is stressed that no strict lines of division will be drawn and that ‘borders’ remain necessarily blurred, however it is proposed that the sub-areas be considered as projects areas. Although the entire Atlantic Area is still felt to be relevant in the context of European scale cooperation (especially in regards to maritime and rural issues), the project considers that it may be better to differentiate proposals and recommendations by sub-area, rather than aiming for one polycentric development perspective for the whole Atlantic Area. The Summary Report sets out policy recommendations grouped by three main categories: territorial recommendations, sectoral recommendations, and recommendations around linkage with other sub-areas. Under these categories the report considers each of the five sub-areas individually to produce a varied list of area-specific themed priorities. The priorities from this list are too numerous to feature here, but can be found in http://web8956.vs.netbenefit.co.uk/pdf/en_sdea_synthese_final_agcaa.pdf pp. 36-38. The themes by which the priorities are grouped are as follows:

� Strengthening the urban structure � Rurality and low density areas � Internal / external accessibility � Innovation development and R & D � Environment and Risk Prevention � Linkage with other sub-areas

2.2.2 Comparison between NWE and Atlantic Area visions As can be seen from the above list, there are a number of similarities between the priority themes identified in the Atlantic Spatial Development Project report and those featured in the original NWE Spatial Vision and in this study. From the extent of shared themes it appears that there could be considerable scope for synergy between the two programme areas. Difference is evident in the seemingly stronger emphasis given to problems associated with low density and rural regions in the Atlantic Area. This variation

Fig. D6: Atlantic Area Spatial Strategy

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may well be a reflection of the difference in the territorial character of the regions. It is of interest that the ASDP has adopted the approach of tailoring policy and recommendations to specific sub-areas within the overall Programme area. This approach bears some resemblance to the ‘cooperation zones’ concept featured in the NWE Spatial Vision, where it was proposed that future transnational cooperation could be situated within the framework of four zones (Open, Island, Central and Inland) which delineate areas with common issues and characteristics. As has been noted previously in this study, the zones have not been mentioned in any of the three thematic Studies tasked with taking forward the Vision for NWE. As such it is felt that there has been no ‘buying into’ the idea of subdividing areas in NWE.

This section looks at the development of spatial visions in the programme areas that share territory with the NWE area to a minor extent. Three INTERREG IIIB areas have been described in Section 1 of this chapter as having a marginal overlap with the NWE area: Northern Periphery, Alpine Space and CADSES. Of these three, the latter two are either developing spatial visions or building on visions developed under INTERREG IIC cooperation. There is no such process currently taking place in the Northern Periphery area, and so this section looks only at material from the Alpine Space and CADSES regions. 3.1 Alpine Space

The Alpine Space (Map D6) overlaps with the NWE area to a minor extent in parts of western France, south-eastern Germany and (non-member) Switzerland. The ESPON-INTERACT study of EU spatial visions and scenarios (see above) cites the Alpine Space as one of the IIIB programmes that are currently working with the development of spatial visions or conducting comparable activities. However in the course of researching material for this study it has proved difficult to source information relating to any such process within the Alpine Space programme.

In the consideration of measures to be taken with regard to the next programming period, the

3. ‘Visioning’ in regions marginally overlapping the NWE area

Map D6: Alpine Space INTERREG IIIB Programme Area

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programme’s Mid-Term Evaluation Update51 identifies the formation of a spatial vision as a specific issue (p.19). Reference is made to a ‘Prospective Study’, the results of which will be of value in taking forward work on a spatial vision. Unfortunately it has not been possible to obtain a copy of the Alpine Space Prospective Study for analysis.

3.2 CADSES (Central, Adriatic, Danubian and South-East Europe) The CADSES INTERREG IIIB programme covers an area (shown in Map D7) from the Baltic Sea (Germany and Poland) to the Mediterranean, through Austria, the Adriatic, Italy and the Balkans, down to Greece, touching seven candidate countries and seven non-member states. Overlap with the NWE area falls within south-west Germany. 3.2.1 Vision Planet In 1997 Austria and Germany initiated the INTERREG IIC project Vision Planet. The Vision document, published in 1999, set out guidelines and policy proposals within the framework of four fundamental objectives of spatial development common to the whole Vision area: • competitiveness, efficiency and

growth • balanced development and

cohesion • protecting the environment and

the natural and cultural heritage • integration The common spatial development perspective for CADSES consists of policies in five different fields of activity. Figure D7, below, shows these five policy areas, together with specific tasks relating to these, where they have been identified.

Vision Planet Policy areas and tasks

Improving the spatial structure Dealing with growing regional disparities Establishing new urban-rural relationships Dealing with the problem of peripherality Diversification of regional economic structures and mobilising endogenous resources Establishing better access to information and knowledge in all areas.

Shaping the development of cities Priorities in the development of the urban system The transformation of the structure of the cities Urban housing, urban finance and urban services

51 OIR (2005) Mid-Term Evaluation Update INTERREG IIIB Alpine Space Programme 2000-2006

Map D7: CADSES area

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Development of rural areas

Development of transportation and communication

Environmental protection and management of natural and cultural heritage

3.2.2 PlaNet CenSe The INTERREG IIIB project PlaNet CenSe was established as a successor to Vision Planet, and continues in the development of a network of national spatial planning instititutions and experts throughout the CADSES area. It is hoped that the project further develops the policy options from Vision Planet and a key aim is to produce a strategic spatial development document for CADSES which reflects current policy and trends52. At the time of writing, the outputs from the PlaNet CenSe project are limited to a first interim report of the pilot sub-project “Metropolitan Networks”. As such, no comparison can be made between recent developments in the work on spatial visions in NWE and CADSES. 3.2.3 Comparison between CADSES and NWE visions Again, similarities exist between the original visions of the CADSES and NWE areas. Many of the themes are similar, however the most marked contrast can be seen in the singling out of rural development as a key priority for CADSES. Other differences include firstly, the specific mention of urban-rural relationships in the case of CADSES, where this is not mentioned in the NWE Spatial Vision, and secondly, NWE’s reference to the competitiveness of metropolitan areas; a point which does not receive attention by CADSES.

52 Source: http://www.cadses.net/en/projects/apprpro.html?projectId=936

Fig D7: Vision Planet Policy areas and tasks

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Repeating the approach of the previous two sections, this section considers the regions that have no shared territory with the NWE area. Of the 4 INTERREG IIIB Programme areas that do not overlap with NWE (South West Europe, Western Mediterranean, Archimed, Baltic Sea) only one area has developed a spatial vision: the Baltic Sea Region. 4.1 Baltic Sea Region The Baltic Sea Region (BSR) lies to the north-east of NWE and is separated from NWE by territory in northern Germany. The current INTERREG IIIB programme covers 11 countries including parts of north-west Russia and Belarus. Since the EU enlargement on 1 May 2004, the four BSR new member states (Estonia, Latvia, Lithuania & Poland) are fully eligible for participation in ERDF funded projects. 4.1.1 VASAB 2010 The Baltic Sea Region was the first amongst all INTERREG areas to formulate a localised vision for spatial development. ‘Visions and Strategies around the Baltic Sea (VASAB) 2010’ was founded in 1992 and the final report was adopted in 1994 under the title “VASAB 2010. Towards a Framework for Spatial Development in the BSR”. The Vision set out in BSR’s VASAB2010 report consisted of 14 priorities under four main headings, shown below in Figure D8

VASAB 2010 Priorities An urban network of international importance (pearls) • A competitive system of cities gains added value by co-operation across the Baltic Sea and

with Europe • A system of cities ensures spatial cohesion • Links between urban areas and rural hinterland support regional economic and

environmental balance

• Cities offer an attractive urban environment for inhabitants and investment Effective and sustainable links between cities (strings) • The BSR mobility network facilitates environment friendly transport • The mobility network provides conditions for effective integration within the BSR and with

the world • Energy production relies increasingly on renewable and environment friendly sources of

energy

Areas supporting dynamism and quality of life (patches) • Cross-border co-operation contributes significantly to spatial economic and social cohesion • Islands function as a tourism core in the BSR • The coastal zone is planned with careful balance between development and protection

• A Baltic Network of nature areas is designated and protected

4. ‘Visioning’ in regions not overlapping the NWE area

Map D8: Baltic Sea Region

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comprehensive spatial planning in function (system) • Spatial planning contributes to harmonisation and spatial cohesion across borders • Spatial planning is based on the principles of subsidiarity, participation and transparency • Spatial planning contributes to the co-ordination of sector and regional planning

The Committee on Spatial Development in the BSR were quick to take forward the work done in VASAB 2010 by providing, in 1996, a practical framework for the implementation of the Vision in a document entitled “From Vision to Action”.53 In 2001 a review of the original vision document was initiated under the name of VASAB 2010 PLUS Spatial Development Action Programme with a specific remit to focus on cooperation at the national level in spatial development policy.54 The stated aims of VASAB 2010 PLUS have been to provide a review of priorities based on the analysis of future challenges; an assessment of the effectiveness of past action; and to re-design the VASAB 2010 implementation concept including identification of key themes for joint action and possible action projects55. The final report of VASAB 2010 PLUS, produced in 2005, identifies six key themes under which related action may be taken in the future (see Figure D9 below). In addition to these themes, and for each of them, the report offers policy recommendations and proposes potential cooperation projects.

Key Themes from VASAB 2010 Plus

• Co-operation of urban regions on key issues of sustainable development • Strategic development zones important for transnational integration within the

BSR • Transnational transport links important for cross-BSR and cross-Europe

integration • Diversification and strengthening of rural areas • Development of transnational green networks incl. cultural landscapes • Integrated development of coastal zones and islands

.

4.1.2 Comparison between BSR and NWE visions

The process of taking forward the original spatial vision to produce a framework that helps to operationalise spatial development priorities in the future appears to be at a more advanced stage in the case of BSR than in NWE. This is not surprising given the much earlier start in work on a vision for spatial development. There are similarities in the process adopted in both areas in terms of initiating a review to, among other aims, take into account the changing policy context and recent territorial trends. A comparison of the priorities of both spatial visions reveals considerable overlap in the themes covered: both prioritise the development of a network of natural

53 Source: http://www.vasab.org.pl/history.php

54 ibid. 55 Source: http://www.vasab.org.pl/documents.php?go=display&ID=38

Figure D8: Priorities from VASAB 2010

Fig. D9: Key themes from VASAB 2010 Plus

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areas, improved internal and external access, development of renewable energy, economically competitive metropolitan areas, transport systems that favour sustainable modes and cross-border cooperation to strengthen economic functions. There are no great contrasts between the two in terms of content, except perhaps in the BSR’s stated focus on the contribution of the spatial planning system as means of delivery and support. This aspect does not receive attention within NWE’s main priorities. The BSR mentions the management of coastal zones, where NWE does not, and also makes specific reference to rural hinterlands with regard to achieving more balance development. This is not directly reflected in NWE’s priorities, although this may just be down to the terminology used: there is mention of promoting balanced distribution of investment, particularly in ‘weaker regions’. In general terms, from the comparison between the BSR and NWE regions, it appears that there is a lot of common ground covered by the visions, even though there is no shared territory between these areas.

From the review of INTERREG ‘Visions’ in this chapter it can be seen that not all INTERREG programme areas have embarked on a ‘visioning’ process. Of those that have (North Sea Region, Atlantic Area, Alpine Space, CADSES, Baltic Sea Region), all except two (Atlantic Area and Alpine Space) have either recently completed or are currently undertaking work to selectively review and update their original spatial vision documents. The two regions that overlap most substantially with NWE (North Sea Region and Atlantic Area) have developed spatial visions in distinctly different ways, however both present a range of priorities that in many cases bear close resemblance to those identified in the NWE experience. Where there is variation in the focus of priority themes for NWE and these two areas, this appears more to be as a result of differences in the geographical nature of the regions, rather than due to any fundamental disparity in general priorities for spatial development. It seems therefore that there is considerable scope for synergy between the future cooperation activities in these three programme areas. Of the INTERREG areas that either marginally overlap or are completely separate to the NWE area, CADSES and the Baltic Sea Region are the most advanced in their development of strategic territorial policy. In both cases there are many similarities between the priority themes identified for NWE and those in CADSES and the BSR.

5. Conclusion

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Study No 4 Synthesis Report

Towards a Strategic Framework for Action

Simin Davoudi

Paul Ellison Neil Evans

Centre for Urban Development and Environmental Management

Leeds Metropolitan University Brunswick Building

Leeds LS2 8BU United Kingdom Tel: 0113 283 2600 xt 4047

Fax: 0113 283 3190 Email: p.ellison@leedsmet.ac.uk

1. Introduction

Chapter E Concluding Remarks

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Since the introduction of INTERREG, and even prior to that, the Commission has funded several successful cross-border and trans-national co-operations in spatial planning. INTERREG III follows the ESDP approach more closely in terms of: geographical integration of policies at European-wide and transnational level; horizontal co-operation and partnership between sectoral policies; and, vertical co-operation and partnership between the various tiers of government, and with other economic and social partners. Many of the INTERREG III priories for action address the issues of integrated territorial development and within that context the strengthening of territorial cohesion. For example, under INTERREG IIIB, the aim is to:

• Elaborate operational spatial development strategies on a transnational scale, including co-operation among cities and between urban and rural areas, with a view to promote polycentric and sustainable development

• Promote efficient and sustainable transport systems and improved access to the information society

• Protect the environment and promote good management of cultural heritage and of natural resources

The current INTERREG Programme acknowledges the challenges of spatial planning, transport and environment. Of the three streams, IIIB is most directly geared to address the ESDP policy principles of balanced polycentric territorial development, equal access to infrastructure and knowledge, and wise management of the natural environment and cultural heritage. Currently hundreds of projects across Europe are benefiting from the €4.875 billion funding which has been allocated through the INTERREG programme. Amongst such projects, Spatial Visioning projects are particularly relevant to the setting of a strategic framework for the implementation of the concept of territorial cohesion. EU co-financing, particularly through the ERDF has been a significant incentive for the development of transnational cooperation on spatial planning. Hence, the proposed changes to the post-2006 Structural Funds (which is called Cohesion Policy) are watched carefully by those with an interest in continuing cooperation. 2.1 The EU Cohesion Policy EU Cohesion Policy is the second largest area of EU expenditure, with an allocation of €212 billion in the 2000-2006, and a further €22 billion in the new Member States for 2004-2006, operated through Structural and Cohesion Funds. It provides funding to support the development of lagging regions, the restructuring of industrial, rural and urban areas, the promotion of employment, education and training, as well as cross-border, transnational and inter-regional networking. The proposed changes for 2007-2013 period will consolidate the current nine categories of funding for nine separate objectives, into three objectives including:

• Objective 1: Convergence • Objective 2: Regional Competitiveness and Employment • Objective 3: Territorial Cooperation.

2. Mainstreaming European Territorial Cooperation

131

Hence, the Community Initiatives such as INTERREG that have funded most of territorial planning work will be ‘fully integrated’ into the new mainstream Objective 3: Territorial Cooperation. The process by which the identification of priorities and the allocation of funding are governed will also change, as outlined below. 2.2 Community Strategic Guidelines and Territorial Cooperation Since the reform of the Structural Funds in 1988, the implementation of EU Cohesion Policy has been based on multi-annual programmes drawn up by Member States at national or regional levels and approved by the Commission. For larger programmes, Member States prepare Community Support Frameworks (CSFs), which outline the strategic objectives of the funding, and a series of sector-specific or region-specific Operational Programmes, describing the detailed measures and delivery arrangements. For smaller programmes, these two levels of programming are combined in a Single Programming Document (SPD). For the 2007-2013 programming period, the Commission has proposed a new mechanism by which Member States are to spend their Cohesion Policy allocations. Within the new system, a set of Community Strategic Guidelines, agreed by the Council, are issued which provide the framework for the National Strategic Reference Frameworks. These in turn will govern the delivery of individual operational programmes and ensure that overall EU policy objectives are reflected more clearly in the allocation of resources. The official Communication containing the Community Strategic Guidelines for the 2007-2013 was published in July 200556. The Guideline takes account of some of the policy views expressed at the Rotterdam ministerial meeting, with a chapter dedicated to the theme of ‘Territorial Cohesion and Cooperation’ and setting out three clear priorities for Cohesion Policy. These are: • Improving the attractiveness of regions and cities • Encouraging innovation, entrepreneurship and the knowledge economy • Creating more and better jobs The Guidelines put the emphasis on territorial cooperation, stressing the need for complementarity of cross-border and transnational cooperation. Three priorities have been identified, as follows.

• Firstly, cross-border cooperation which is linked to the ultimate goal of

integrating areas divided by national borders that face common problems and require common solutions, particularly through the development of transport and communication infrastructure which contribute to the development of ‘integrated border regions’.

• Secondly, transnational cooperation, which targets ‘structuring actions’ in

macro-regions, for their sustainable and integrated development. This is to be achieved particularly via tangible and intangible actions for the increase of the interconnection of the territories and via actions in the fields of:

o Trans-European Networks o Natural risk prevention o Water management o Maritime cooperation o Research and development networking

56 COM 0299, 05.07.2005

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The designation of transnational zones, of which there are currently thirteen, will also be reviewed with the intention to make the delineation less strict in the future. Indeed, the early draft of the Guidelines, issued in May 2005, included an annex with some tentative suggestion for the future transnational cooperation spaces as a basis for discussion over future zones of cooperation.

• Finally, the Guidelines discuss future interregional cooperation and

suggests that such cooperation should focus on the themes of: innovation, Small and Medium Enterprises (SMEs) and entrepreneurship, the environment and risk prevention, as well as on the exchange of experiences on urban development and cooperation programmes.

However, following the concerns raised by some Member States in the consultations over the Community Support Guidelines, the mainstreaming of interregional cooperation is now seen as an option. The current view seems to imply two forms of interregional cooperation activities. One is that funding would be set aside within the first two Objectives, possibly with a focus on bilateral forms of interregional cooperation. The other is that, larger partnerships and cooperation projects would be supported under Objective 3: Territorial Cooperation. Overall, this stronger orientation towards territorial cooperation, through mainstreaming of the various initiatives is good news. It has been welcomed by many commentators who consider such processes of ‘learning by doing’ as a practical way of enhancing territorial cohesion. However, despite this, it should be noted that there is little reference to spatial planning. The emphasis seems to be on larger, strategic projects with the bulk of funding allocated to infrastructure. Furthermore, greater attention will be placed on urban areas as the engine of economic development, and also on areas with natural handicaps (such as mountainous zones). However, there remain major concerns about the allocation of resources to Objective 3, as discussed below. 2.3 Financial Perspectives Since July 2004 when the Commission brought forward its Financial Perspectives for the 2007-2013, there has been an ongoing debate among the Member States with regard to the difficulties of retaining the proposed ceiling of resources for EU Cohesion Policy. The Commission’s proposal for the global allocation for Cohesion Policy has changed over time. The draft General Regulation earmarked a sum of €336.12 billion; by January 2005. Later, this fell by €6.12 billion (to €333 billion). These figures will probably decrease further to nearer €300 billion. For example, while the Commission’s proposals refer to a ceiling for its own resources of 1.24% of EU Gross National Income (GNI), the so-called ‘Group of Six’ countries (Austria, France, Germany, Netherlands, Sweden and the United Kingdom) continue to promote a reduction to 1% of GNI, which would leave the Cohesion Policy with a budget of just €250 billion (i.e. €83 billion less than anticipated by the Commission)57.

Such reduction will not only affect the overall available resources. It will also change the proportion of allocated resources to each Objective. The Third

57 Bachtler J. et al, 2005, Programming with an uncertain future, IQ-Net Review Paper 16(1), European Policies Research centre, Glasgow (May)

133

Cohesion Report’s58 proposed 78%, 18% and 4% anticipated allocation for the three Objectives respectively has gradually been adjusted to compensate the proposed overall reduction of Cohesion Policy in such a way that more resources are allocated to the Convergence Objective. The ‘negotiating box’ of 15 June 2005, for example, foresees 82.3% of resources being allocated to the Convergence Objective, and only 15.3% and 2.5% respectively to the Competitiveness and Employment, and the Territorial Cooperation Objectives59. Hence, the non-Convergence Objectives (i.e. Objectives 2 and 3) will face major reductions of resources. This in turn may lead to consolidation towards the dominant domestic policy priorities which may not include a spatial dimension. Confronted with 40% cut in resources, future programmes may choose instead to focus on horizontal thematic issues such as the development of SMEs, social capital and innovation, rather than spatially targeted programmes, including territorial cooperation. In the case of the regions that will not be eligible to the Convergence Objective in particular, the inclusion of territorial cohesion-related priorities is likely to depend on the alignment of domestic policies to such aims. More importantly, while the Third Cohesion Report and the Community Strategic

Guidelines have both put a strong emphasis on territorial cooperation, i.e. new Objective 3, such emphasis may not be matched by parallel financial commitments. A number of Member States have highlighted the importance of territorial cooperation during the debate over the Community Strategic Guidelines. However, in the negotiations over the budget for future Cohesion Policy, the new Objective 3 may be de facto penalized60. Furthermore, much of the funding for the Territorial Cooperation is earmarked for the internal borders with new EU member states and the new external border of the EU. 3.1 The value-added of territorial cooperation Current experiences with territorial cooperation are very diverse across regions and countries, depending primarily on the different geographical situations and institutional contexts. Generally, as mentioned in Chapter A2, territorial cooperation is perceived to be valuable, providing opportunities to:

• Establish long-lasting networks • Transcend administrative borders • Enhance European integration • Facilitate exchanges of experiences and good practice. • Strengthen the role of regional actors in management and implementation

of Structural Funds programmes There is broad agreement across the EU25 that territorial cooperation presents an added-value, and that it should be retained in the future, despite the fact that the policy emphasis placed on different types of territorial cooperation varies across

58 CEC, 2004, The Third Report on Economic and Social Cohesion, (COM/2004/107) Luxembourg: OOPEC 59 Luxembourg Presidency 2005, Financial Perspectives 2007-13 Non-Paper: Negotiating Box, 19 May 2005 60 Bachtler, J and Polverari, L, 2005, Delivering territorial cohesion; European Cohesion Policy and the European Model of Society, The Lincoln Institute for Land Policy Working Paper Series, August 2005, MA, Lincoln Institute

3. Future challenges for European Territorial Cooperation

134

countries. As highlighted in the outcome of the Luxembourg Presidency in 2005, some counties, such as Hungary, stress the importance of cross-border cooperation, particularly with external borders; while others, such as France, support the development of long-lasting transnational spaces through ‘structuring projects’ and the involvement of the Eastern and Southern neighbours in European territorial cooperation. 3.2 Potential barriers to effective cooperation Territorial cooperation continues to feature highly on the policy agenda of the Commission and Member States, but despite commitments in principle, the current regulations and strategic guidelines do not seem to solve the typical constraints that have hindered the effectiveness of territorial cooperation in the current programming period. These include for example: the intangible nature of cooperation outcomes, and the difficulty to qualify and quantify the value for money of cooperation projects61. On a more operational level, the complexity, vagueness and the heavy burden of the bureaucratic processes are often seen as major constraints, making it difficult, especially for smaller organizations, to become active partners. Furthermore, communication between partners tends to be problematic, not just because of the languages barriers, but also because of the different national institutional cultures and traditions. It is likely that Objective Three remains to be a multi-purpose but relatively low-budget priority for future European Cohesion Policy. This, coupled with the complexity of delivery, has led to major concerns over the extent to which this type of intervention contributes to territorial cohesion in the future. 3.3 The way forward To make territorial cooperation more effective, there is a need for political ownership of the agenda by all member states at various governmental levels. In the next programming period it is important that the designation of transnational areas as well as the grouping of areas for specific projects reflect a degree of spatially-based shared agenda. While environment and transport measures may seem as obvious areas for adopting a transnational approach to future development (as has been the case for example in Danube basin and the Black Sea area), it is vital that similar attention is paid to the commonality of objectives in projects that deal with strategic spatial planning. Arbitrary boundaries and attempts to bring together as many cooperation areas as possible should be discouraged. The emphasis needs to be on visible success stories and practical achievements in transnational cooperations The Spatial vision Processes, undertaken by a number of INTEREG programmes, have played a significant role in providing a coherent spatial framework for individual projects. However, as this Study has shown, wider ownership of the Process is vital for its future success. In order to take the NWE Spatial Vision forward a proactive dissemination, consultation and communication strategy needs to be developed and implemented by the member states. This can take place through the normal channels of communications at the national and regional levels. However, the critical factor is the need for widening the participation levels to include those actors who have remained less familiar with transnational issues, the added-value

61 ibid

135

of transnational cooperation and the contribution made by the Spatial Vision Process in shaping and framing the territorial cooperation activities. We recommend that Study 4 be revised in the light of feedbacks received from these national and regional consultations. This revised version can then act as a robust evidence-base / technical input for the development of the Strategic Framework for Action (SFA), as was envisaged from the outset. The SFA will in turn provide the basis for the formulation of the next operational programme.

136

POLYNET: sustainable management of European Polycentric Mega-City Regions

The project POLYNET is conducting research which will help us better to understand the process of urban agglomeration in North-West Europe and to develop policy recommendations which, if acted upon, would enhance economic, social and environmental performance – and generally promote European competitiveness in a global context. Developments in information and communication technology is transforming the way in which key knowledge-intensive service industries – banking, insurance, advertising etc – are organised. These developments are causing businesses to transfer information and knowledge in new ways between cities and across national borders.

The changes in business behaviour are causing the emergence of a new urban phenomenon – the Polycentric Mega-City Region (PMCR). A PMCR is a collection of adjacent cities and towns where a number of these individual nodes are mutually supportive, and where the combination provides better overall performance than each operating separately. It is argued that well-planned and managed PMCRs have advantages in the global market place, attracting high value-added international and national businesses and delivering better quality of life

Appendix A: Examples of good practice projects (from scoping document for Territorial State and Perspectives of the Union)

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NWE Delta: North West European Delta

The project facilitates the optimal implementation of the Bird and Habitat Directive. It links port development to nature policy in the Netherlands, Belgium, France and the UK. In the area of the port of Antwerp a network of ecological infrastructure inside a port area will be built, so that natural habitats and species “cohabit” with maritime, industrial and other harbour activities. Connected to the port of Rotterdam [in an area called the Zilk (dunes)] investments shall demonstrate the beneficial links between natural habitats and nature of industrialised (port) areas in close proximity. It displays how restoration of habitats in a dune area can achieve a range of benefits, i.e., enhancement of nature resources, flood protection, recreational functions, agricultural benefits and other economic benefits.

138

ELAT: Eindhoven, Leuven, Aachen Technology Triangle To achieve the overarching goal of the Lisbon Strategy (to become the most competitive and dynamic knowledge-based economy in the world) a transition to a knowledge based economy and society is needed. This can be achieved by better policies for the information society and R&D, as well as by stepping up the process of structural reform for competitiveness and innovation and by completing the internal market. The INTERREG-project ELAT project is an example of a transnational

approach on stimulating innovation. The main objective of the ELAT project is to develop and implement a joint innovation strategy for the "technology triangle" by the knowledge institutes, businesses, and national, regional and city authorities, especially through the use of intensive and innovative ICT. Examples are the development of a joint facilitation programme for "techno starters" and challenging and facilitating the knowledge institutes and businesses to work together in order to develop and combine knowledge. Due to the intermediary position of the ELAT-triangle between the Flemish urban network, the Ruhr Area and the Dutch Randstad, the significance of cooperation within the ELAT-triangle surpasses the scale of these regions. The creation of favourable conditions to become a high technology European region can not occur without cooperation in general and on spatial planning in particular. The high technology triangle in ELAT is one of the first European regions that aim to implement the Lisbon Strategy from a transnational point of view.