TheThe impactimpact ofof EuropeanizationEuropeanization processprocess onon thethe mobilizationmobilization ofof locallocal actorsactors inin EuropeanEuropean cities.cities.
A comparative analysis of Krakow and Glasgow
Anna Sobczak European University Institute
A paper presented for the EURA conference “Vital City” Panel: Urban Governance
Glasgow, 12-14 September 2007
EURA Glasgow 2007 [email protected] 1 ResearchResearch QuestionQuestion
HowHow locallocal actorsactors mobilizemobilize themselvesthemselves andand cooperatecooperate aroundaround thethe EUEU fundedfunded projectsprojects inin EuropeanEuropean cities:cities: •• DoesDoes thisthis mobilizationmobilization changechange thethe existingexisting powerpower structurestructure ofof thethe city?city?
HowHow thethe mobilizationmobilization ofof locallocal actorsactors differdiffer inin aa citycity fromfrom anan oldold andand aa newnew EUEU membermember state?state?
EURA Glasgow 2007 [email protected] 2 MobilizationMobilization ofof locallocal actorsactors aroundaround thethe EUEU fundedfunded projectsprojects
TopTop--downdown (decision(decision making):making): •• EUEU SFSF PartnershipPartnership principleprinciple
BottomBottom up:up: •• PolicyPolicy networks,networks, partnershipspartnerships
VerticalVertical andand horizontalhorizontal
ActorsActors ??
EURA Glasgow 2007 [email protected] 3 TheThe PartnershipPartnership inin thethe EUEU documentsdocuments
19881988 CloseClose consultationconsultation btwbtw EC,EC, MSMS && competentcompetent authoritiesauthorities •• VerticalVertical dimensiondimension
Art.10,Art.10, PPPP 20002000--20062006 •• VerticalVertical && horizontalhorizontal dimensiondimension (+eco(+eco && soc.)soc.) •• CreationCreation ofof institutionalinstitutional settingsetting
EURA Glasgow 2007 [email protected] 4 Development Plan Member State Community Support Framework European Commission
Programming National Appointed by Consultative Member role of partners State Single Programming Regional Document Local
Operational Member State Programme European Commission
Member State
Programme Management Authority Complement Monitoring Committee
Partners
Consultative role of partners Member State OR National Management/ acting through implementation Regional Appointed by the Management Authority Member Local State Monitoring Committee Private
Public EURA Glasgow 2007 [email protected] 5 Member State Participation of partners in Monitoring Committee National Monitoring Appointed Acting Different power of Committee Regional by the through legitimacy Member State Monitoring Local Equal Consultation voting Private right
Public
Member State Ex-ante evaluation Managing Authority
Monitoring Committee Consultative role of partners
Partners OR
acting through Independent evaluator Evaluation Mid-term Management Authority evaluation Under supervision of Managing Authority Monitoring Committee
In cooperation with
MS EU Commission
Independent evaluator Consultative role of partners
Ex-post Under supervision of OR evaluation European Commission acting through In cooperation with EURA Glasgow 2007 [email protected] Management Authority 6 Policy Networks in the Literature
highly complex informal relationships in the policy process (Kenis and Schneider 1991) the interwoven structure of vertical and horizontal dimensions in the EU structural funds’ policy making process (Heinelt and Smith 1996) a strong interdependence betwbetweeneen institutions, ongoing interactions among network members based on trust as well as formal rules negotiations by network participations (Rhodes 1999; Rhodes 1997)
Îreflects not only arranged horizontal and vertical relations between actors/ institutions but represents also a particular power structure of the city the relations between the actors • Insufficiency of the formal politico-institutional arrangements and hierarchy
• Decisions outside of the conventional channels
EURA Glasgow 2007 [email protected] 7 GlasgowGlasgow casecase studystudy
InstitutionalizedInstitutionalized partnershippartnership •• RhetoricRhetoric ofof partnershippartnership •• IsomorphismIsomorphism ofof vocabularyvocabulary
GlasgowGlasgow CityCity CouncilCouncil •• LabourLabour strongholdstronghold
SustainabilitySustainability ofof thethe structurestructure
PersonalPersonal andand professionalprofessional contactscontacts ÎÎEuropeanizedEuropeanized EntrenchedEntrenched citycity eliteelite •• SEPSEP (PMC,(PMC, PIC,PIC, AG)AG)
EURA Glasgow 2007 [email protected] 8 ExamplesExamples ofof partnershipspartnerships inin GlasgowGlasgow
Strathclyde European Partnership Scottish Enterprise West of Scotland Colleges Partnership Glasgow Community Planning Partnership Glasgow Alliance • 8 Social Inclusion Partnerships Glasgow Disability Learning Partnership Glasgow Healthy City Partnership Glasgow Action Partnership Glasgow Economic Forum Partnership Glasgow Sustainable Tourism Partnership Glasgow Council for Voluntary Sector
EURA Glasgow 2007 [email protected] 9 StrathclydeStrathclyde EuropeanEuropean PartnershipPartnership
a group of organisations who access 2000-06 European Structural Funds in Western Scotland to carry out economic regeneration projects.
The partnership consists of around 200 public agencies: • European Commission • Scottish Executive and other central government agencies • Local Authorities • Scottish Enterprise and Local Enterprise Companies (LECs) • Universities and Further Education Colleges • Enterprise Trusts and Local Economic Development Initiatives • Area Tourist Boards • National and regional bodies involved in Economic Development
• Voluntary bodies and charitable organisations and communities involved in Economic Development
• Environmental Agencies • Equality Agencies
EURA Glasgow 2007 [email protected] 10 EURA Glasgow 2007 [email protected] 11 EURA Glasgow 2007 [email protected] 12 SEP Programme Implementing Committee SEP Board of Directors SEP Programme Monitoring Committee Global Connections (Scotland) Ltd
Glasgow City Council Inverclyde Council European Commission Access North Ayr East Dunbartonshire Council South Lanarkshire Council East End Partnership Ltd West Dunbartonshire Council North Ayrshire Council Ekos Consultants Scottish Enterprise Dunbartonshire Scottish Enterprise Renfrewshire
University of Strathclyde The Bambury Regeneration Centre The Scottish Executive North Lanarkshire Council Cumbernauld College Langside College The Scottish Executive
Clydebank Re-Built Clydebank Re-built University of Glasgow Scottish Environment Protection Agency Drumchapel Opportunities Centre for Travel and Tourism Community Enterprise in Strathclyde North Ayrshire Council Scottish Enterprise Lanarkshire Cunninghame Housing Association Ltd
Glasgow City Council Inverclyde Council Scottish Enterprise Lanarkshire South Lanarkshire Council European Commission Scottish Enterprise Ayrshire West of Scotland Colleges’ Partnership Business Gateway Lanarkshire The University of Glasgow
The Scottish Executive Greater Glasgow and Clyde Valley Tourist Board Scottish Enterprise Ayrshire Scottish Natural Heritage The Wise Group Glasgow Community Planning Partnership Ltd The Scottish Executive Scottish Enterprise Lanarkshire Lanarkshire Enterprise Services EURA Glasgow 2007 [email protected] 13 Reid Kerr College
Communities Scotland Advisory groups 2000-2006 Programme at SEP Ltd
Competitiveness & Innovation Economic & Social Cohesion Competitive Locations Labour Market
Scottish Enterprise National Scottish Enterprise Dunbartonshire Glasgow City Council North Ayrshire Council Scottish Enterprise National John Wheatley College South Lanarkshire College Govan Initiative Ltd The Scottish Executive Community Enterprise in Strathclyde The Scottish Executive
South Lanarkshire Council Scottish Enterprise Glasgow The Scottish Executive Renfrewshire Council The Scottish Executive East Ayrshire Council The Scottish Executive The Lennox Partnership
South Ayrshire Council Glasgow & Clyde Valley Structure Plan Lifelong Learning GCVS Joint Committee Cunninghame Housing Association Ltd Barnardo’s Scotland The University of Glasgow AILLST Tourist Board East Renfrewshire Council Scottish Enterprise Stow College Glasgow Smaller Areas SIP Dunbartonshire Communities Scotland Renfrewshire Council Scottish Enterprise Ayrshire Business Gateway Glasgow The Wise Group Queens Cross Housing Association Ltd Central College of Commerce The Scottish Executive North Lanarkshire Council Scottish Environment Protection Agency Glasgow City Council University of Paisley Cardonald College Govan Initiative Ltd Scottish Enterprise Ayrshire Ayr College North Lanarkshire Council South Lanarkshire Council Partnership West of Scotland Colleges’ Greater Easterhouse Development Ltd
North Lanarkshire Council Glasgow North Ltd Glasgow Film Office Gorbals Initiative
The University of Strathclyde Greater Govan Social Inclusion Scottish Enterprise Renfrewshire Partnership Scottish Enterprise National
EURA Glasgow 2007 [email protected] 14 KrakowKrakow casecase studystudy
““InterregnumInterregnum”” (new(new && old)old) && politicalpolitical cleavagescleavages • “Tabula rasa” approach vs. path dependency • Overlapping competencies and tensions MainMain statestate institutionsinstitutions besetbeset byby conflictsconflicts PartnershipPartnership PrinciplePrinciple asas illusionillusion ofof powerpower -- IROPIROP • Expert panel and Regional Steering Committee Anonymity & political influence Role of universities Vertical and horizontal cooperation “ad-hoc” partnerships PolicyPolicy networksnetworks aroundaround thethe EUEU fundedfunded projectsprojects withwith nono statestate actorsactors
EURA Glasgow 2007 [email protected] 15 The selection process of projects to be funded from Integrated Regional Operational Programme
Application Formal Merit-based Recommendation Selection Decision Assessmen Assessment of projects about the t from the co- Ranking funding list
Marshall Regional Beneficiary Office Expert Panel Steering The Voivodship Committee Board
Dept. of Structural Funds Ranking Ranking list list
The selection process of projects to be funded from Integrated Regional Operational Programme
EURA Glasgow 2007 [email protected] 16 Regional Steering Committee for the evaluation of IROP in Małopolska Region
Group 1 Group 2 Group 3
Marshall of the Malopolska Head of the County Tarnowskie Chamber of Commerce and Trade in Krakow Deputy Voivod of Małopolska Head of the County Suski Małopolska Chamber of Craft and Business in Krakow
Ministry of Economy and Labour Chair of Convent of Heads of Małopolska Solidarność Trade Union Counties in Małopolska
Ministry of Economy and Labour Mayor of city and commune Polish Trade Unions Alliance in Dobczyce Małopolska
Ministry of Agriculture and Rural Chair of Forum of head of Communs Krakow Foundation “Center of Development and Mayors in Małopolska Information, Meetings, Dialogue, Upbringing and Prayer in Auschwitz
Ministry of Culture Head of the Rural Commune Mszana Małopolska Tourist Organization Dolna
Ministry of Infrastructure Head of the Rural Commune Dean of Mechanic Engineering and Rzepiennik Strzyżewski Robotics, Academy of Mining and Metallurgy
Ministry of Education and Sport Mayor of Oświęcim Chancellor or Academy of Agriculture in Krakow
Ministry of Environment Deputy of Mayor of Krakow Chancellor of Jagiellonian University EURA Glasgow 2007 [email protected] 17 ExamplesExamples PartnershipsPartnerships inin KrakowKrakow
COGITO – Krakow Initiative for Social Economy Education for Integration – Partnership for Refugees (Development Partnership) We Can Do More – Partnership in Support of Social Co-operatives The Social Economy for the Amber Trail Greenway Labour Market Consensus– Innovative Model of Vocational Activation of Women The Partnership of Initiatives for Nowa Huta The Academy of Entrepreneurship. Development of Alternative Forms of Employment Labour Market Consensus– Innovative Model of Vocational Activation of Women Partnership for Improving Access of the Blind to the Labour Market EURA Glasgow 2007 [email protected] 18 ConclusionsConclusions
PartnershipPartnership asas empowermentempowerment vs.vs. differentdifferent realityreality inin empiricalempirical casescases Glasgow:Glasgow: • Control of purse strings by entrenched elite • Hiding behind the mask of partnership “Matryoshka model” of partnership • Partnerships = policy networks KrakowKrakow • Passive participation in line with political interests • Role of universities – “academization” of decision making • Top down mobilization ≠ bottom up Beneficiaries of EU funded projects ≠ institutionalized partnership • Emergence of new structure (partnerships in social economy) ÎÎ IllusionIllusion ofof powerpower
EURA Glasgow 2007 [email protected] 19 ProblemsProblems
DefinitionDefinition partnershippartnership vs.vs. policypolicy networknetwork
InteractiveInteractive cooperationcooperation •• HomogenousHomogenous vs.vs. heterogeneousheterogeneous •• HorizontalHorizontal vs.vs. verticalvertical
H (consulting)
V (decision making, IGVT, partnership)
EURA Glasgow 2007 [email protected] 20 PartnershipPartnership andand networksnetworks
DefinitionDefinition vs.vs. practicepractice
ÎÎ contextualcontextual andand plasticplastic
EURA Glasgow 2007 [email protected] 21 Thank you
EURA Glasgow 2007 [email protected] 22 DefinitionsDefinitions ofof Europeanization:Europeanization:
thethe EuropeanEuropean supranationalsupranational institutionsinstitutions’’ impactimpact andand thethe responseresponse ofof thethe actorsactors onon national,national, subsub--nationalnational andand locallocal levelslevels (Boerzel(Boerzel andand RisseRisse 2000;2000; OlsenOlsen 2002).2002).
thethe processprocess ofof emergenceemergence ofof newnew structuresstructures ofof governancegovernance,, andand political,political, legallegal andand socialsocial institutionsinstitutions andand policespolices associatedassociated withwith themthem (Green(Green--Cowles,Cowles, Caporaso,Caporaso, andand RisseRisse 2000);2000);
EURA Glasgow 2007 [email protected] 23 EuropeanizationEuropeanization onon locallocal levellevel
Changes in policies, practices, preferences or participants within local systems of governance, arising from the negotiation and implementation of EU programmes (Bache 2003)
EmergenceEmergence ofof aa newnew systemsystem ofof governancegovernance atat allall levels,levels, whichwhich resultsresults inin increasingincreasing participationparticipation ofof variousvarious groups,groups, civilcivil society,society, involvedinvolved fromfrom conceptionconception toto implementationimplementation ofof newnew policiespolicies
EURA Glasgow 2007 [email protected] 24 CaseCase study:study: KrakowKrakow
Structure: interregnum and Political cleavages Emerging of new institutions • Information centres • New “EU” dept. Changing role of institutions: • Universities and research centres SF Management: • role committees and expert panel Learning attitude, importing a model
Europeanized Corporatist structure ÎConflict and competition Îshort-term and lack of sustainability
EURA Glasgow 2007 [email protected] 25 EURA Glasgow 2007 [email protected] 26 RoleRole ofof actorsactors andand partnerspartners inin variousvarious stagesstages ofof SFSF managementmanagement
ProgrammingProgramming
Management/ImplementationManagement/Implementation
MonitoringMonitoring
EvaluationEvaluation
EURA Glasgow 2007 [email protected] 27 Table: Management of structural funds in Scotland
Management Advisory groups Managing Authority Executive. & Paying Authority
Competitivenes Policy groups s & Innovations Horizontal themes Strathclyd Programme The Scottish e Economic & Monitoring Executive European Social Cohesion Committee Partners Partnershi Programme Enterprise, in p Implementi Sustainable Transport and Partnershi Programm ng developme Lifelong Competitive p e Committee nt, Learning Locations Department
equal opportuniti Labour Market es appointed private, by the education and Minister for voluntary Finance of innovation European sectors, the the Scottish Structural Funds social Executive Division partners
Monitoring, supervising
Assessment, Appraisal Decision Application Administratio n
Formal approval EURA Glasgow 2007 [email protected] 28 R Małopolska Voivodship e Małopolska Seymik Marshall’s Office Marshall of Małopolska Voivod gi Małopolska Central Government o n Department for al Regional Policy a and Structural ut Funds h Małopolska Agency for Regional Development or MARR, structural funds iti distribution in Małopolska es
Local Krakow City Council City Management level Rada Miasta Board Cities Krakow City Office Mayor of Krakow Urząd Rady Miasta Committee for Department for the structural Strategy and Agency for funds City Developmen Development t of Krakow
Distri ct level 18 District Councils Dzielnica
EURA Glasgow 2007 [email protected] 29 Chamber of Commerce Programme and Trade Glasgow Monitoring Scottish Alliance Committee Enterprise Euro Info Glasgow Point
Tourism Board Glasgow Universities City Council University of Glasgow
Strathclyde SCVO University Strathclyde Research European institutes Partnership
EURA Glasgow 2007 [email protected] 30