TheThe impactimpact ofof EuropeanizationEuropeanization processprocess onon thethe mobilizationmobilization ofof locallocal actorsactors inin EuropeanEuropean cities.cities.

A comparative analysis of Krakow and

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 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 Council European Commission Access North East Council South Council East End Partnership Ltd Council North Council Ekos Consultants Scottish Enterprise Dunbartonshire Scottish Enterprise

University of Strathclyde The Bambury Regeneration Centre The Scottish Executive Council College Langside College The Scottish Executive

Clydebank Re-Built Re-built University of Glasgow Scottish Environment Protection Agency Drumchapel Opportunities Centre for Travel and Tourism Community Enterprise in Strathclyde Council Scottish Enterprise Lanarkshire Housing Association Ltd

Glasgow City Council Scottish Enterprise Lanarkshire Council European Commission Scottish Enterprise Ayrshire West of Scotland Colleges’ Partnership Business Gateway Lanarkshire The University of Glasgow

The Scottish Executive 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 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 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