Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 , LLU ESAF, 27-28 April 2017, pp. 102-109

DEVELOPMENT OF THE MANAGEMENT RECOMMENDATIONS FOR THE ACCOMPANYING ADMINISTARTIVE TERRITORIES: CASE OF Inga Jekabsone 1, Dr.admin.cand .; Biruta Sloka 2, Dr.oec., professor; Ansis Grantins 3, PhD student Abstract. An accompanying administrative territory or satellite town is a concept in urban planning that refers essentially to smaller metropolitan areas that are located somewhat near to but are mostly independent of larger metropolitan areas. Taking into account the rapid social economic development of satellite towns, which leads to the population growth in these municipalities, it is important to ensure the well-being for their citizens. The studies have proved that society well-being is directly related to the involvement of citizens in decision-making processes. In this context, it is important to ensure the management of the municipality where citizens are playing important role. Especially, it is important in satellite towns where society participation level and local patriotism is relatively low. However, the theoretical management issues of satellite towns are not analysed properly in scientific literature. Mostly researchers focus on spatial planning of these territories. The aim of the paper is to propose possible management guidance for accompanying administrative territories of Riga based on case study approach.

Within this research, the analysis of scientific publications and scientific research are carried out; qualitative and quantitative research methods, including grouping, graphic analysis, expert survey, semi- structured interviews, focus group method, and case study are applied. The main results and conclusions of the paper: based on the designed methodology on identification of accompanying administrative territories, 25 accompanying administrative territories around Riga were determined. One of the accompanying administrative territories – municipality – was analysed from different perspectives (well-being indicators, public services, citizens’ engagement etc.). The authors have provided management guidance for accompanying administrative territories on citizens’ engagement, public service provision, and budgeting process .

Key words: municipalities, accompanying administrative territories, management, recommendations. JEL code: I31, I38, H75, H83 Introduction accompanying territories - it is a huge challenge During the last decades, importance of local for these municipalities to build such a governance in promotion of citizen well-being has management that would promote citizen well- been stressed, because particularly the local being, engage citizens in decision-making and governance has direct links with citizens – both foster local patriotism. informative and financial. In addition, nowadays The history of accompanying administrative the governance of i.e. metropolitan suburban territories has been extensively studied (Thomas, areas or accompanying administrative territories 1997; Merlin, 1980; Zyari, 2006; Zamani & Arefi, is very outstanding, considering the rapid 2013); however, the experiences of changes in socio-economic development of these accompanying administrative territories in territories, growth of population in these Central and Eastern Europe have only recently territories and other factors. In contrast to been brought into focus (Prasca & Olau, 2013; others, accompanying administrative territories Young & Kaczmarek, 2008; Kissfazenas, 2015). have strong linkage to metropolis – large part of Nevertheless, in scientific literature by now citizens of accompanying administrative there is not much attention paid to challenges of territories work, study or have leisure activities in suburban management. More emphasis is placed metropolis, whereas in their hometown they particularly on issues of environment, spatial receive only certain services and have weak planning and provision of infrastructure in these engagement in decision-making in municipality. territories that are related to metropolis (e.g. This kind of situation has also developed in Riga Rumbakaite, 2012; Rumbach, 2014; Liquan &

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 102 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 Junqing, 2016). Taking into consideration that 1) Public well-being is affected by relationships almost 400 thousand inhabitants of 1 live in with municipality. Therefore, the promotion of accompanying administrative territories of Riga citizen well-being management of Riga and this number is continuously growing, it is accompanying administrative territories crucial to ensure effective exchange of should be based on public involvement, co- information upon topicalities in municipality, responsibility and reflective communication needs-oriented public services, including principles. municipal events, as well as decision-making 2) By performing its functions, the municipality process in municipality, which is transparent for should pay particular attention to such everybody. subjective well-being forming areas like The aim of the paper is to propose possible education and development, health, management guidance for accompanying infrastructure, culture and sports, private administrative territories of Riga based on the activities and initiatives. case study approach. Research results and discussion In order to achieve the aim, the following 1. Determination of the accompanying tasks are formulated: administrative territories of Riga 1) to present the possible methodology on Most often accompanying administrative determination of the accompanying territories are referred to as satellite towns, administrative territories; populated places belonging to metropolitan 2) to analyse the management issues of typical agglomeration that are connected to metropolis accompanying administrative territory (case in terms of transport, economy, commuting etc. study of ); links (State Regional Development Agency, 3) to provide the management guidance for the 2009). The main characteristic of such towns is accompanying administrative territories based strong linkage to metropolis, around which these on the results of the case study. administrative territories have been established. The research object are accompanying Between satellite towns and centre of administrative territories. agglomeration there exists substantial Within this research, the analysis of scientific commuting – a big share of inhabitants living in publications and scientific research are carried satellite towns work, study and spend their out, qualitative and quantitative research leisure time in metropolis (Golany, 1976; Mengyi, methods, including grouping, graphic analysis, 2011). expert survey, semi-structured interviews, focus The above mentioned characteristics of group method, case study are applied. satellite towns in case of Latvia most prominently During the research, the answers to following can be observed in Riga agglomeration. By questions would be found. analysing Riga agglomeration territory, one can • Does public involvement in decision-making conclude that in daily commuting realm of Riga is influences the level of citizen well-being? included territory, which encloses almost whole • Which well-being aspects should municipality former , Jurmala and Jelgava cities, affect in promotion of higher level of well- the biggest part of and separate being? rural parts of Limbazi, Bauska, Jelgava and The theses to be defended as results of the Tukums districts. Riga city’s range of impact does research outcomes: not include whole – remote parts of former Limbazi and Tukums districts are 94 1 According to the data of the Office of Citizenship and Migration Affairs, l not included. Riga city’s range of impact includes 397 323 inhabitants live in Riga’s accompanying administrative territories as of 01.01.2016.

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 103 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 not only local rural municipalities, but also other Garkalne district, Ikskile district, Jurmala, bigger cities – republican level cities like Jurmala district, Adazi district, Ropazi district, and Jelgava, former district centre Ogre and district, Seja district, Incukalns district, several smaller satellite towns. Jelgava city has Ogre district, Iecava district, Jelgava, Kegums two-fold situation –as the centre of Zemgale district, Vecumnieki district, Ozolnieki district, region it has to recon with the fact that big share district, Krimulda district, Lielvarde of its inhabitants and enterprises have daily links district. with Riga (State Regional Development Agency, Accompanying administrative 2009). territories of Riga Taking into consideration that there are many Administrative territories of Riga definitions of accompanying administrative which are included in the zone of influence of Riga, but are not territories, in case of Latvia these are defined as its accompanying administrative districts and republican cities, which are situated territories within a reachable distance from metropolis Riga, which they have close economic and social links with. These administrative territories have bigger challenges in contrast to other administrative territories in promoting citizen well-being, taking into consideration rapid socio-economic development, relatively weak municipality links with public as well as low level of local patriotism.

In order to determine Riga accompanying Source: author’s calculations based on the State Revenue Service and public transport data (as of 01.10.2015) administrative territories, it is considered that Fig. 1. Riga accompanying administrative those are administrative territories included in territories: results of calculation agglomeration of Riga, which have a pronounced 2. Analysis of the management issues characteristic of orientation towards the centre of of accompanying administrative territories agglomeration (Riga), considering different In order to highlight the possible management indicators: issues of accompanying administrative territories, 1) amount of inhabitants and intensity of the self-assessment of the mayors of Riga commuting to Riga in 2014 from accompanying administrative territories on administrative territories, based on personal management of municipality (Central Statistical income tax; Bureau, 2013) was analysed. It can be concluded 2) reachability of territories from Riga. that compared with the average situation in Territories calculated to be accompanying Latvia, the mayors of Riga accompanying administrative territories of Riga and territories administrative territories are in stronger positions which are included in the zone of influence of in the following issues: the chairmen of local Riga, but are not its accompanying administrative governments should be directly elected, the territories are displayed in Figure 1. number of members of the local government is In accordance with the methodology too big. The leaders of Riga accompanying developed (Jekabsone et.al., 2016), 25 administrative territories on average evaluated accompanying administrative territories of Riga higher the performance of health care have been identified: Babite district, Marupe institutions, social care institutions as well as district, Kekava district, Stopini district, Salaspils sports institutions and public policy institutions. district, Carnikava district, district, In turn, schools and pre-school educational

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 104 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 institutions were assessed by them lower than on with Riga accompanying administrative average in Latvia. In case of assessment of the territories, it could be concluded that in Riga overall functioning of the municipal accompanying administrative territories the administration, the leaders of accompanying involvement of society in in decision-making administrative territories of Riga assessed it processes is lower. Trend indicators show that slightly higher than the average in Latvia. the involvement in decision-making processes In addition, if the situation of citizens’ has increased during the last years, however it is engagement in the overall Latvia was compared still insufficient and should be improved (Fig. 2).

Riga accompanying Latvia administartive territories

Very high High High Medium Medium Low Low Very low

Source: Central Statistical Bureau, 2013 Fig. 2. The assessment of mayors of municipalities of participation of society in decision-making processes(% of the number of municipalities) In order to analyse in depth the management 1) it is one of the 25 identified accompanying issues of the accompanying administrative administrative territories of Riga, according to territories the case study approach was used. the developed methodology; During the last decades scientists employ case 2) according to calculated Well-being index study analysis in order to create theoretical (Jekabsone et al., 2016), the objective well- concepts upon various processes (Edmonson et being level of this administrative territory al., 2001) and internal organisation (Galunic & should not have extreme values, i.e. well- Eisenhardt, 2001; Gilbert, 2005). Main reason of being index should be between medium high popularity of this approach is that this is one of to medium low; the best (if not the best) method, which ensures 3) the functions carried out by municipality and link between absolute qualitative proof and main offered services should be broad enough, deductive studies (Eisenhardt & Graebner, 2007). which could provide with information about In order to carry out the case study analysis, ability of municipality to affect different public a set of sequential steps is applied, according to well-being aspects; which case study analysis is performed 4) there should be political and administrative (Figure 3). management support in order to carry out in- In order to choose the appropriate case study, depth study of municipality, which would allow which could serve as a basis for development of to have manifold data. guidelines for management of Riga accompanying administrative territories, the following criteria were put forward:

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 105 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109

Source: author’s compilation, adapting Yin (2013) Fig. 3. Set of sequential steps for case study analysis Taking into consideration all the criteria set administration to analyse well-being level in above, Salaspils municipality was chosen as municipality as well as ability of municipality to appropriate Riga accompanying administrative improve it. territory, concerning the political will and will of Table 1 The description of main well-being indicators in Salaspils municipality

Well-being indicator Situation in Description of situation in Salaspils (number of answers) Salaspils* There are compliant educational institutions and high-quality schools “Education/ training” (249) Medium in sufficient numbers. There is no access to high quality medical care and a good, qualified “Health” (234) Bad physician. “Employment/ economic Inadequate salaries. High taxes. Two adults cannot earn enough to Bad activity” (216) be able to pay all expenses. “Infrastructure” (178) Bad Bad infrastructure. There is no pedestrian crossing on the highway. “Leisure/ culture/ sport” Good Opportunity to engage in things like that you like. (177) “Family life/ relationship” Good Family traditions and values are tended. (124) “Private activities and Possibility of organizing sports events, to take up the initiative, to Good initiatives” (122) adopt healthy lifestyle, to establish organizations. “Alimentation” (96) Bad Available malnutrition. Insufficient funds until the next salary. “Access to means of living” Bad Inability to sustain yourself. (85) Available residence. Good living conditions (warm, spacious “Housing” (78) Medium dwelling). Available apartments for the disabled persons. Promotion of material recycling. There is a possibility to participate in “Environmental equlibrium” Medium joint work. Ecologically clean environment. Access to clean water (67) reservoirs with the possibility of swimming. Political life is poor, high levels of corruption. No cues for “Management, finances and kindergartens. Insufficient attention to other security measures in the organization of municipality” Medium social field. Big bureaucracy. Formal participation in decision-making (64) processes. The possibility of self-improvement. Personal time devoted to hobbies “Personal development” (63) Medium and non-formal education. People feel the need for the development “Commitment in society” Helping others, donating, participating actively in the political Good (62) decision-making processes. Preventive work for safety is carried out. The road safety is “Physical safety” (60) Medium improved, including the safety of pedestrians. Salaspils is safe. *assessment of situation: very bad, bad, medium, good, very good Source: Results of analysis of 25 homogenous groups in Salaspils – results gained from 3 meetings. September, 2010 until May 2011(from 2867 answers)

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 106 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 During the case study research in Salaspils • public involvement in budget making process; municipality, the SPIRAL methodology for • citizen involvement in public services measurement of subjective well-being indicators development. was approbated based on Jekabsone & Sloka Based on Salaspils municipality’s experience (2014). The methodology allowed building of for development of more effective dialogue different well-being indicators covering whole between municipality and public, it is suggested spectrum of well-being concept. All developed to organise a union of public organisations, where indicators were assessed by the citizens of the main non-governmental organisations, municipality (from very good to very bad). By interest groups and associations of municipality using focus group method, a total of 65 would be represented (Local Support Group). In indicators was developed, main indicators of contrast to advisory councils, which are being which are symmarised in Table 1. convened upon solving particular issues, this Main conclusions regarding the case study union would have broader mandate – analysis (well-being indicators research) of municipality would organise regular (once or Salaspils district municipality are as follow. twice a month) meetings with this union, they • Research results showed that well-being would have an opportunity to address unclear concept is complex, it contains various issue as well as to make proposals. In addition, aspects – both material and immaterial (like during these meetings task force for organising ability to develop, build relationship, certain activities would be formed, as well as implement one’s initiatives, to build results of such joint activities would be constrictive dialogue with municipality – wide presented. range of well-being indicators proves that). Municipalities have ability to directly influence • Municipality can affect different subjective the well-being of their citizens, providing services well-being aspects of its citizens (e.g. well- to them. In order to develop services, being indicator “Education/ training”). municipality citizens are satisfied with, it is • Well-being of citizens of municipality is linked necessary to involve them in development of with ability to get involved in decision making these services. Usual practice in municipalities is process (well-being indicator “Management, to involve citizens in evaluation of services, finances and organization of municipality”). however, in order to have a greater effect it would be necessary to engage public in earlier 3. Development of the management guidance for the accompanying phases of service development – in planning, administrative territories implementation and development. After analysing the experience of Salaspils It is important to involve public also in district municipality, the recommendations for budgeting process, thereby ensuring accompanying administrative territories of Riga implementation of financial accountability were developed in the following areas: principles and confidence building towards • community platform or forming of the Local municipality. It would be necessary to involve support group; Local Support Group into this process, which • defining the methodology for well-being provides its own proposals upon the budget evaluation and improvement; topicalities of the upcoming year. • public involvement in decision-making and Conclusions, proposals, incorporation of principles of well-being recommendations promotion in development of municipal 1) In comparison with other administrative planning documents; territories for municipalities of accompanying

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 107 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 administrative territories, it is very crucial to being? The study concerning Salaspils district improve the dialogue with citizens, taking into municipality, where the link between the consideration their strong links with the city municipal functions and services and main (metropolis) and socio-economic subjective well-being indicators that were development. Therefore, in order to improve elaborated by citizens was analysed, showed social well-being, the management of that municipality should more focus on such accompanying territories shall be based on sectors like improving of infrastructure, principles of public involvement, co- culture, sports and educational services, social responsibility and reflective communication. and health services diversification. At the Here it is important to have continuous same time, paying attention to involving political will for having public participation. citizens in improving of those services, 2) During the research, the methodology for the thereby contributing to the implementation of definition of accompanying administrative those initiatives and involvement society in territories of Riga was provided. Based on the taking of important municipal decisions, which amount of inhabitants and intensity of are crucial aspects of subjective well-being, commuting to Riga and reachability of the too. territories from Riga, 25 accompanying 5) The theses to be defended were confirmed. administrative territories of Riga were defined. Management of accompanying administrative 3) Within the scientific literature, there is a little territories significantly affects the well-being focus on i.e. management of accompanying of its citizens. The well-being indicator administrative territories. More often these "Municipal management, finance and territories are discussed from the territorial organization" has been rated as one of the development point of view. In such situations most important indicators of subjective well- when the problem in theoretical literature has being (14th place out of 65 subjective well- been little explored, one of the best being indicators in Salaspils municipality). In approaches is to develop a theory according to comparison to other administrative territories, case study analysis that enables to form for municipalities of accompanying theoretical constructions, recommendations administrative territories it is very crucial to stemming from empirical data which are improve the dialogue with citizens, taking into based on case study analysis. consideration their strong links with city 4) During case study in Salaspils district (metropolis) and socio-economic municipality, the following answers to development. Therefore, in order to improve research questions were found social well-being, the management of Does public involvement in decision-making accompanying territories should be based on influences the level of citizen well-being? principles of public involvement, co- Study results showed that involvement in responsibility and reflective communication. decision-making is one of the key subjective Here it is important to have continuous well-being indicators (14 th place out of 65 political will for having public participation. subjective well-being indicators for Salaspils). 6) The recommendations to Riga’s accompanying Therefore, there is a sufficient ground to claim administrative territories: that citizen involvement in decision-making • according to the proposed methodology, to increases the level of well-being. establish a community platform or the Local Which well-being aspects municipality should Support Group, which would unite non- affect in promotion of higher level of well- governmental organisations of municipality,

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 108 Proceedings of the 2017 International Conference “ECONOMIC SCIENCE FOR RURAL DEVELOPMENT” No 45 Jelgava, LLU ESAF, 27-28 April 2017, pp. 102-109 leaders of interest groups and which could be • to include the principles of citizen well-being used to establish a dialogue with public as well promotion in municipal planning documents; as involve them in implementation of • to ensure citizen involvement in budgeting particular activities, decision-making and process; development and improvement of services; • to promote forming of community networks, • to consider possibility of carrying out a strengthening of the current NGO capacity, as subjective well-being study within a well as promoting the establishment of new municipality; it would be advisable to NGOs. implement such studies along with the The paper was supported by the National development of the new Development Research Program 5.2. EKOSOC-LV planning programme (every 5-7 years) or election of new municipal council (every 4 years); Bibliography 1. Balockaite, R. (2012). Coping with the Unwanted Past in Planned socialist Towns: Visaginas, Tychy, and Nowa Huta. SLOVO, Volume 24, Issue 1, pp. 41–57. 2. Central Statistical Bureau (2013). Self-assessment of Latvian Municipalities. Retrieved: http://www.csb.gov.lv/sites/default/files/nr_39_latvijas_vietejo_pasvaldibu_pasvertejums_2013_13_00_lv.pdf Access: 03.01.2017 3. Edmondson, A. C., Bohmer, R. M., & Pisano, G. P. (2001). Disrupted Routines: Team Learning and New Technology Implementation in Hospitals. Administrative Science Quarterly, Volume 46, pp. 685–716. 4. Eisenhardt, K.M., Graebner, M.E. (2007). Theory Building from Cases: Opportunities and Challenges. Academy of Management Journal, Volume 50, Issue 1, pp. 25–32. 5. Galunic, D. C., & Eisenhardt, K. M. (2001). Architectural Innovation and Modular Corporate Forms. Academy of Management Journal , Volume 6, pp. 1229–1249. 6. Gilbert, C. G. (2005). Unbundling the Structure of Inertia: Resource versus Routine Rigidity. Academy of Management Journal, Volume 48, pp. 741–763. 7. Golany, G. (1976). New-town Planning: Principles and Practice . New York: Wiley, p. 414. 8. Yin, R. K. (2013). Case Study Research: Design and Methods (5th Ed.). Thousand Oaks, CA: Sage. 9. Young, C., & Kaczmarek, S. (2008). The Socialist Past and Post-socialist Urban Identity in Central and Eastern Europe: The Case of Lodz, Poland. European Urban and Regional Studies , Volume 15, pp. 53–70. 10. Jekabsone, I., Sloka, B., Grantins, A. (2016). Analysis of Well-being Indicators in Satellite Towns, Case of Latvia. In: Proceedings of the 2016 International Conference “Economic Science for Rural Development”, No 42, Jelgava, LLU ESAF, 21-22 April 2016, pp. 86-92. 11. Jekabsone, I., Sloka, B. (2014). The Assessment of Well-being in Context of Regional Development. Economics and Business , Volume 26, pp. 28-35. 12. Kissfazekas, K. (2015). Relationships between Politics, Cities and Architecture Based on the Examples of Two Hungarian New Towns. Cities , Volume 48, pp. 99–108. 13. Liquan, X., Junqing, Z. (2016). The New Town Development in Ecological Sensitive Area Based on Resilience Thinking. Procedia - Social and Behavioral Sciences , Volume 216, pp. 998 – 1005. 14. Mengyi, C. (2011). From Satellite Towns to New Towns, Evolution and Transformation of Urban Spatial Structure in Chinese Metropolises. Dissertation. Hong Kong: The University of Hong Kong, p. 85. 15. Merlin, P. (1980). New Town Movement in Europe. The Annals of American Academy of Political and Social Science , Volume 451, pp. 76–85. 16. Prasca, M., Olau, E. P. (2013). Urban Patterns of a Communist Industry. Case study: the New Towns of Beius Land, Romania. Revista Romana de Geografie Politica , Volume 15, Issue 1, pp. 66–75. 17. Rumback, A. (2014). Do New Towns Increase Disaster Risk? Evidence from Kolkata, India. Habitat International , Volume 43, pp. 117-124. 18. State Regional Development Agency (2009). Pasvaldību raksturojums pec dazadam attistibu ietekmejosam pazimem (The Description of Municipalities by Different Development Characteristics). Retrieved: http://www.vraa.gov.lv/uploads/petnieciba/RAL-2009-6-7.pdf Access: 03.01.2017 19. Thomas, W. (1997) The New Towns: Taking a Long-term View. Town and Country Planning , Volume 66, Issue 5, pp. 138–140. 20. Zamani, B., Arefi, M. (2013). Iranian New Towns and their Urban Management Issues: A Critical Review of Influential Actors and Factors, Cities , Volume 30, pp. 105–112. 21. Zyari, K. (2006). The Planning and Functioning of New Towns in Iran. Cities , Volume 23, Issue 6, pp. 412–422.

1 Corresponding author. Tel.: + 371 271116147. E-mail address: [email protected] 109