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Cross-Border Regions in Europe Significance and Drivers of Regional Cross-Border Co-Operation

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Cross-Border Regions in Europe Significance and Drivers of Regional Cross-Border Co-Operation CORE Metadata, citation and similar papers at core.ac.uk Provided by Spiral - Imperial College Digital Repository Definite version appeared in European Urban and Regional Studies 10(2): 153–171. CROSS-BORDER REGIONS IN EUROPE SIGNIFICANCE AND DRIVERS OF REGIONAL CROSS-BORDER CO-OPERATION Markus Perkmann Abstract The 1990s have seen a strong surge in the number of cross-border regions all over Western and Eastern Europe. The article analyses the emergence of these local cross-border institutions in public governance by addressing their context, dimensions and causal underpinnings. First, it offers a brief background on the history of cross-border regions in Europe and related EU policies to support them. Second, it provides a conceptual definition of crossborder regions and their various forms and positions within the wider context of other transnational regional networks. Third, it analyses the empirical dimensions of European cross-border regions, including their frequency, geographic distribution and development over time. It concludes by linking cross-border regions and their various forms to institutional conditions in specific countries as well as the effects of European regional policy. It is argued that small-scale cross-border regions have flourished in particular because of their increasingly relevant role as implementation units for European regional policy in a context of multi-level governance. KEYWORDS ; cross-border co-operation ; cross-border region; EU; Euroregions; Interreg; interregional co- operation with their cross-border counterparts, local There are more than 70 cross-border regions in and regional communities can emancipate Europe today, operating under names such as themselves vis-à-vis nation-state dominance ‘Euroregions’, ‘Euregios’ or ‘Working (Cappellin, 1992; Murphy, 1993; Gonin, 1994). As a Communities’. Although some of these initiatives result, these works tend to neglect the empirical date back to the 1950s, the 1990s saw a large increase analysis of actual cases and concentrate on in cross-border regions (CBRs) all over Europe. In normative prescriptions. fact, today there are virtually no local or regional The more empirically focused literature makes authorities in border areas that are not somehow useful contributions to the study of single cases involved in cross-border co-operation (CBC) from various disciplinary perspectives (Beck, 1997: initiatives. (1) The European Commission supports 118; Scott, 1998; Church and Reid, 1999; Blatter, these initiatives with approximately €700m per year, 2001; Perkmann and Sum, 2002). However, the complemented by a similar amount by European overall picture tends to remain opaque. As nation states. Anderson, a long-standing scholar of borders and These stylized facts indicate that CBRs deserve border regions, notes, research agendas are more some attention in terms of their empirical common than precisely formulated arguments and significance, given the recent boom of CBC as well clear conclusions (Anderson, 1997). as the growing involvement of the EU authorities. This article attempts to fill a noticeable gap in They also seem to validate the qualitative evidence the literature by addressing three main issues. First, put forward under labels such as neoregionalism it aims to clarify what CBRs are exactly and how (Balme, 1996b), the New Regionalism (Keating, this type of international co-operation relates to 1998; MacLeod, 2001) or the Europe ‘with’ the other ways of international involvement of noncentral regions (Kohler-Koch et al., 1998). On a global governments (NCGs) in Europe. Because of level, Jessop (2002) illustrates various different ways the multi-disciplinary and therefore fragmented in which CBRs have emerged and investigates their nature of the literature, a variety of concepts have scalar implications in terms of institutional orders been put forward, making it difficult to grasp the and strategic capacity-building. significance of the many types of cross-border cooperation Moreover, an increasing number of cross-border initiatives. co-operation initiatives have been subject to case Second, on the basis of the conceptual studies in the literature. Numerous authors have clarifications put forward, the article intends to shed produced a wealth of work in various disciplines some light on the actual empirical significance of the such as geography, political science, international CBR phenomenon in Europe as a whole. This relations, administrative science and sociology. includes the simple, but yet unanswered questions However, a considerable part of the literature has of how many initiatives there are and what strong normative inflections, arguing that by cooperating characteristics they have. This serves to develop a 1 macro-view on CBC which complements the co-operate across borders has widened considerably. microperspectives that are dominant in the literature. To a large degree, this can be related to macroregional Third, a few hypotheses on the determinants of integration in Europe. In particular, two CBC are put forward, both in terms of the impact of supranational bodies, the Council of Europe (2) and nation-state-specific variables as well as the role of the European Union, were important for improving EU policy-making in simultaneously promoting and the conditions under which NCGs could co-operate shaping CBC. across borders. Whereas the Council of Europe has In terms of methodology, the article adopts a mix been particularly active in improving the legal of quantitative analysis, primary case study research situation, the European Commission provides and secondary evidence provided by the case study substantial financial support for CBC initiatives. literature. I created a directory of European CBRs Legally, the idea of an administrative body in that constitutes the core of the quantitative charge of a subnational cross-border area is evidence, while interpretive judgement is provided relatively difficult to implement. The first CBRs by my case study research over the period were based on agreements with varying degrees of 1998–2000. A total of 42 interviews with individuals formality and mostly relied on good will. The involved both in CBC initiatives and EU regional classical form of these mostly small-scale policy were carried out. Additional evidence was arrangements along the Rhine axis is the ‘twin gathered from secondary material as well as policy association’: on each side of the border, documents published by CBC bodies. municipalities and districts form an association The arguments are presented in the following according to a legal form suitable within their own order. The introductory section offers an overview national legal systems. In a second step, the on CBC in Europe today and its supranational associations then join each other on the basis of a context. Subsequently, a definition of CBC is cross-border agreement to establish the CBR. developed by synthesizing the main characteristics In 1980, on the initiative of the Council of of CBC as provided by the evidence. From this, the Europe, a set of European countries concluded an notion of ‘cross-border region’ is derived, with international treaty, the so-called Madrid particular emphasis put on its various forms and Convention, as a first step towards CBC structures manifestations. To locate CBC activities in a wider based on public law. The convention has been context of interregional co-operation, their signed by 20 countries and was recently updated relationship to other types of such activities is with two Additional Protocols (Dolez, 1996). It explained. provides a legal framework for completing bi- and In the second main section, the concepts are multinational agreements for public law CBC related to the empirical evidence primarily through among NCGs. Examples of such agreements are the an analysis of the database of CBRs compiled for BENELUX Cross-border Convention of 1989 and this study. This serves to determine the overall the German–Dutch cross-border treaty of 1991. For patterns of European CBC, including its actual instance, the Euroregion Rijn-Waal on the Dutch– incidence, geographic distribution, etc. The article German border has been one such cross-national concludes with two main hypotheses on those public body since 1993. However, the decisions put factors that facilitate CBC, in particular the role of forward by such agencies are binding only on the nation-specific institutions and EU regional policy. public authorities within the cross-border area concerned and not on civil subjects (Denters et al., Introduction: cross-border regions and 1998). their supranational context In Scandinavia, CBC has been promoted since the 1950s when the Nordic Council was founded. The ‘Treaty of Co-operation between Denmark, The first ‘official’ CBR, the EUREGIO, was Finland, Iceland, Norway and Sweden’ (Treaty of established in 1958 on the Dutch–German border, Helsingfors) in 1962 provided a basis for cooperation in the area of Enschede (NL) and Gronau (DE). in legal, cultural, social, economic, Since then, such ‘Euroregions’ and other forms of transport and environmental matters (Malchus, cross-border co-operation have developed 1986: 44). throughout Europe. Today, in more than 70 Compared with the Council of Europe, the cases, municipalities and regional authorities cooperate CBC-related activities of the EU are primarily with their counterparts across the border in financial. Many CBC initiatives are eligible for more or less formalized organizational
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