Governance in Cross-Border Agglomerations in Europe: the Examples of Basle and Strasbourg Reitel, Bernard

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Governance in cross-border agglomerations in Europe: the examples of Basle and Strasbourg Reitel, Bernard

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Empfohlene Zitierung / Suggested Citation: Reitel, B. (2006). Governance in cross-border agglomerations in Europe: the examples of Basle and Strasbourg. Europa Regional, 14.2006(1), 9-21. https://nbn-resolving.org/urn:nbn:de:0168-ssoar-48112-3

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Bernard Reitel

Introduction Since the 1990’s new projects have been cerns the interactions between the public During decades, the border located on worked out in Basle and Strasbourg at actors on the border-territories and on the Rhine was considered as a conflict- the level of the agglomeration and a new the border-cities. ual border between France and Germany cross-border cooperation has been devel- (Febvre 1997, p. 195). But it was also oped, initiated by the European Union. Cities and urban spaces on borders one of the first symbols of international The purpose of this paper is to under- As peripheries of the State territory, the cooperation: according to the treaty of stand how the public authorities see the border areas are under the control of Vienna (1815), the Rhine was open to in- development of their own territory in the some major State institutions, especially ternational traffic (Ferro et al. 1981, p. projects for the metropolitan cross-bor- the military power (Foucher 1986, p. 79). 377). der areas. The projects will be analyzed In theory, the States do not encourage Outside the periods of war, the border in the two agglomerations of Strasbourg urbanization on the borders which often was a line crossed by the international and Basle. Does the merging involved in appear as areas without major cities. But trade but also through bilateral relations these projects help to foster the growth when border-towns exist, it is mainly due (Hau 1987, p. 139). Some entrepreneurs of a new kind of governance’s system to the will of the States. tried to benefit from legal or economic at agglomeration scale? Is the system of In several cases, the development of advantages by using the differences cre- governance the result of the confronta- the town is linked to the regulative func- ated by the border (less restrictive law, tion of national political systems or is it tions of the State (military places, im- better prices or wages, etc.). The region, a new pattern which is overstepping the portant customs administration). Some known as the Upper-Rhine Valley, was borders? Which functions of the border of the border-towns have become trade one of the first experiences of cross-bor- are used in this system? places on account of their location on a der cooperation on a regional scale. major transport axis. Part of the local The Rhine is not only an international Stakes of governance in metro- economy depends on the exploitation waterway, it is also a corridor of cities, politan areas and in cross-border of differences (regulations, costs, repre- where several major towns of Europe are regions sentations) between the administrative located (Juillard 1968, p. 43; Brunet The concept of governance merges on and tax systems, by using legal or illegal 1997, p. 56). With the merging of Na- a time where the State does not appear methods. In the major cases, the depend- tion-states between the 17th and the 19th as the only actor of the public initiative ence of the border-towns upon the State century, a part of the upstream way be- anymore. The number of actors interfer- is much higher than for other cities either came a border. Basle, on the Rhine, and ing in the process of decision making, because the State exerts a strong control Strasbourg, located 3 kilometres from has significantly increased in the last over its territory (Reitel et al., p. 11). the river, both became border-cities. decades. The importance of the econom- In the Upper Rhine Valley, Stras- Their development was partly related to ic actors, especially the global firms, is bourg and Basle are much more than the border: depending on the periods, it largely underlined. But two other types border-towns: they have both interna- brought mostly advantages or disadvan- of actors have to be considered. First tional functions. Despite their small size, tages. Nowadays, each of those two cities the actors of the civil society are play- both Basle and Strasbourg are regional can be considered as metropolis of small ing a greater role: associations, network metropolises in Western Europe which size in Western Europe (Rozenblat et of associations, Non Governmental Or- are inserted in international networks. al. 2003, p. 51). On each of the opposite ganizations (NGO), etc. Second, in the Near Basle and Strasbourg, on the op- sides of the border, the smaller localities decentralization’s process observed in posite side of the border, small towns became border-towns. A cross-border several countries, the central State has began to grow, in the 20th century, and urban space was growing, with a core transfered a part of its competencies to sometimes even earlier (Fig. 1, Fig. 2). grouping the functions of the metropolis local and regional public authorities. On the one hand, they can be considered and including the largest part of the pop- Governance seems to give an an- as genuine border towns (importance of ulation, and with suburbs on the oppo- swer to the complexity of the relations customs, trade, etc.); on the other, on ac- site side of the border. These cross-bor- between these many actors: it implies count of the continuity of the building der agglomerations are now a disturbing the mergence of new principles of pub- area, as suburban towns. For this rea- contradiction: a territorial discontinuity lic powers based on cooperation and on son, we call them suburb border towns. separates a building area (morphologi- negotiation. The partnership between the The growth of Kehl depends largely on cal continuity) connected by functional public authorities and the private actors its being located near Strasbourg but in links (Reitel et al. 2002, p. 69; Sandtner are often presented as representative of another territory (Zander 2002, p. 157). et al. 2000, p. 18; Waack 2000, p. 189). these new relations. But, our focus con- In the suburb of Basle, only Lörrach, lo-

9 cated 10 kilometres north of Basle, was Cross-border agglomeration Strasbourg-Kehl a real town (its autonomy was won in Centralities and political authorities 1681). The development of the other suburb border towns began at the end of the 19th century when Basle was affected by FRANCE GERMANY an important wave of industrialization (chemicals, textile) (Polivka 1974). The BADEN- development of the suburb border town CUS WÜRTTEMBERG associates the advantages of proximity (to a city with a great economic devel- Strasbourg Kehl opment) and of location in another national State. The urbanization depends Departement Offenburg Bas-Rhin on contradictory factors which are not Kreis Ortenau simultaneous in time: it spreads across the State’s boundary, and cross-border agglomerations have merged in the 20th century. However, the public manage- Note: Forms and areas are not on scale. ment and the urban planning policies are elaborated at national level and are still Political system Spatial organization very different. Agglomeration and main centrality One of the aims of the public power, international border cross-border agglomeration especially the States, is to keep the co- local authority main pole herence and the integrity of its territory suburb border town (Anderson 1996, p. 48). The border ap- IfL 2006 Conception: Bernard Reitel other important town pears not only as a political line, but Realization: JP Droux, atelier de cartographie du CRESAT/UHA also as a separation between systems of Figure 1: Centralities and political authorities in the cross-border agglomeration Stras- signs (language, rules, administrative bourg-Kehl grid, etc.), ideologies, identity, cultural Source: ADEUS behaviours and temporalities (Raffes- tin 1980, p. 107). Otherwise, the border is characterized by 4 main functions Three-national agglomeration Basle that will now be observed: manifesta- Centralities and political authorities tion, regulation, differenciation, relation (Raffestin 1986, p. 17). First, each border manifests the will of the power: GERMANY FRANCE the territorial control expressed by the military power or by the importance of ALSACE C.C. Kreis the civil power, and a weakening of the TROIS- Lörrach BADEN-WÜRTTEMBERG power beyond the border. Second, regu- FRONTIÈRES Departement WR Lörrach lation means that the border operates like Huningue Rheinfelden (D) a commuter which could be turned on or Haut-Rhin Saint-Louis Basel Rheinfelden (CH) off. As the case may be, it serves either BS Liestal to join and articulate or to separate and BL AARGAU take apart. Third, the establishment of the border produces economic, cultural SOLOTHURN and political differences. Fourth, the contiguity of the territories allows for relations, which can be legal or illegal, WR Weil am Rhein consisting in the trading of produce, but SWITZERLAND BL Basel-Land also taking the form of confrontation, Note: Forms and areas are not on scale. BS Basel-Stadt experiments, circulation, etc. This frame of four functions will be used to analyze Political system Spatial organization: the management by the public power. Ur- Agglomeration and main centrality ban projects are one of the ways used by international border cross-border agglomeration public authority (municipalities) to mark federated state main pole local authority their territory (Ascher 1997, p. 49). But, suburb town the stakes often concern the whole ag- IfL 2006 Conception: Bernard Reitel other important town glomeration. The urban project does not Realization: JP Droux, atelier de cartographie du CRESAT/UHA only express the will of the municipality, Figure 2: Centralities and political authorities in the three-national agglomeration Basle but it is inserted in the national frame of Source: ATB-TAB; Conceil general du Haut-Rhin, Land Baden-Würtenberg urban policy and has to conform to the

10 Europa Regional 14(2006)1 national rules concerning urban plan- roads. For cross-border agglomerations, The border introduces a perturbation in ning (Jouve 2003, p. 90). this means that a section of the bypass the organization of the agglomeration The planning of the territory of the mu- road must be located in the neighbouring which turns out to be made up of sepa- nicipality follows different patterns, but country. In that case, the condition is that rate parts. Local authorities do not have the centre and periphery pattern seems the two countries must have the same vi- the same power and the same rules in to be applied more or less everywhere. sion of the organization of their network each country, so that the settlement of In border cities, there is a real originality and of the necessity of connecting. But it problems on the border or nearby always because the border is considered as a spe- is also required that they should be mu- takes a long time (Marcou et al. 1997, cific limit. The foreign municipalities or tually informed of the projects, in order p. 13). The cities are under the supervi- populations, even if they are contiguous, to be able to negotiate, to intervene in the sion of the central State and for this rea- are not acknowledged under the national debate and to take part in the decision. son, the management are clearly separa- rules and have in theory no capacity to As opposed to many agglomeration of ted. No local authority is empowered to influence a project. For this reason, the similar size, Basle and Strasbourg have make plans for the whole agglomeration. border was often considered as an area only sections of bypass roads. However, in Western Europe, boundaries of relegation for the location of facilities There are few instances of the func- have faced several major changes for the that create nuisances (big industrial es- tion of regulation: the best-known of last decades. tates, incineration factory, harbour near them is the realization of the Airport the Rhine in Strasbourg; psychiatric hos- Basle-Mulhouse (Euroairport). A con- Cross-Border cooperation: The pital, prison in Basel). The urban plan- vention signed between France and Swit- End of the Limits of Sovereignty? ning is quite similar on both sides of the zerland in 1949 authorized the construc- In a globalized world, flows are on the border, even if the great cities, on account tion of the airport on French territory, increase and interactions between places of their size, have thus located many five kilometres from the centre of Basle, and States multiply (Foucher 2000, p. more facilities than the suburban border and it was connected to Switzerland by 81). On the other hand, the process of towns. Nevertheless, the leisure aspects a custom-free road. The airport admi European construction transfers some are also taken into consideration, espe- nistration is managed by a council where powers from the national States to the cially on the Rhine, with parks, private French and Swiss authorities are repre- European Union, resulting in a system of gardens (“Schrebergarten”), pedestrian sented on equal terms. It is considered as shared sovereignty (Hooghe et al. 2001, lanes laid out in several sections of the an exemplary cross-border cooperation p. 5). The EU has initiated different pro- border, but with few connections across which enabled the authorities of the two grammes to increase integration on se- the border. On agglomeration level, even countries to meet regularly and to con- veral levels. Cross-border cooperation if there is a continuity in the building, the front their practice (Walker 1995, p. 2). is a way to manage the changes in the area close to the border appears to be one But the border also plays a role of functions of the borders in areas which of significant discontinuity. connection: the policy of the border-city are contiguous but belong to different On the other hand, despite their small can be influenced by the planning con- countries (O’ Dowd 2002, p. 111). It con- size, the suburban border towns are ceptions of the neighbouring country. sists in a partnership between actors on genuine central places and enjoy ameni- For example, when the “Communauté regional or on local levels. It is a way to ties which would probably not be there Urbaine de Strasbourg” (CUS) decided structure and to regulate the necessary without the existence of the border. Kehl, to elaborate a new circulation plan in overcoming of the border. Lörrach, Saint-Louis have hospitals, and 1990, the council looked first towards The principles of cross-border coop- commercial centres. Kehl has its own the German cities of Freiburg and Karls eration were formulated by the Council harbour facing Strasbourg. Weil am ruhe, 80 kilometres away. The council of Europe (O’ Dowd, p. 117). But the first Rhein and Huningue each have a harbour imported some of their ideas (the im- real initiatives came from actors of the on the Rhine, one kilometre distant from pulse given to the bicycle network, the civil society or from public authorities on the harbour of Basel. But the zone of in- organization of the public transport a regional level in the core of Western Eu- fluence of the public facilities is limited with restrictions against cars, the de- rope, the highly urbanized areas close to to the border and their existence often re- velopment of the public space, etc.) and the Rhine valley, after the creation of the inforces the boundary (Dege 1979). applied them on its own territory. In this Economic European Community. One of The border is also a line which un- case, the proximity of a foreign country the first experience, the Regio Basilien- derlines some sharp differences. This appears as an opportunity to observe sis, took place between Germany, France is particularly clear on the urban trans- different experiences and transfer them and Switzerland in an optimistic period port network. For example, some charge to one’s own territory. of European construction (Raffestin et breakings are still remaining, especially In fact, Basle and Strasbourg did not al. 1974, p. 196). The aim was to build in the collective transport networks (Rei- face the same stakes with the border. In new relations across the border consid- tel 2001, p. 261). In Basel the end stations both cases, it appears that the border sep- ered as a barrier preventing contacts by of several tramway lines are located near arates different cultures in management people who shared a common view of the the border. During a long time, there was and urban policies, and that each power future. For those reasons, new visions of no single tariff area at the level of the ag- tries to assert and to mark its territory. a cross-border area were elaborated. The glomeration but only at the national lev- Between Strasbourg and Kehl, the Rhine creation of the cross-border regions was el. Otherwise, many agglomerations loca and the neighbouring areas manifest a kind of paradox. It was supported by ted on a major transport axis try to divert a large discontinuity at agglomeration the States which wanted to control the the international road traffic to bypass level. process: they founded several organiza-

11 tions under their management. But, the til the middle of the 1990’s. France then involved). A new step was made in 2001 creation of cross-border regions was adapted the Madrid’s Convention (1980) with the creation of an association TAB also considered as an alternative to the and signed several agreements with all where every public authority is repre- Europe of the States and a way to build the neighbouring States permittting the sented and which functions as a politi- another frame for Europe. Another stage creation of new cross-border authori- cal council, namely by defining the main was reached with the creation of the Sin- ties to which municipalities or regional orientations for the agglomeration. An gle Market (1993). One function of the authorities could transfer some of their urban planning office was also created national border was abolished, and the responsibilities. and is in charge of the coordination and Interreg program was conducted with In the Upper Rhine valley, cross- the realization of the projects. the aim to facilitate the emergence of border cooperation began early com- The history began also in Strasbourg cross-border new projects and to trans- pared to other European regions. After in the 1990’s. A new strategic planning form those borders from lines of division the creation of the Regio Basiliensis in document took into account of the dis- to links. 1963, initiated by people from the civil mantling of the French-German border Despite the general orientations pro- society from Basle (entrepreneurs, re- and suggested to intensify the relations vided by the European Union, each State search workers in social and economic with the neighbouring German city of defines its own cross-border policy, ac- sciences), a intergovernmental commis- Kehl (CUS 1990, p. 108). At the same cording to its political culture and his- sion was established in 1975 by the three time, the CUS was considering a plan to tory. In Switzerland, a cross-border co- States, covering a larger area, and was retrieve old harbour and estate fallows operation was initiated by the Cantons given the name of “Upper Rhine Confer- between the Rhine and the city centre of Geneva and Basle (Leimgruber 1989, ence” (Conference 1999, p. 159). Work- (ADEUS 2004). An international urban p. 53). The Confederation participates ing committees were created in several planning contest was organized by the in the transnational commissions, but in fields: country planning, transport, envi- two urban authorities with the objective practice devolves the real power to the ronment, etc. (Fig. 3). The French region- to devise a masterplan for an area, 4 Cantons. The Interreg program (1990) al authorities (Conseil Régional, Conseil kilometres long and 400 metres broad, was enforced in the border regions of Général) were associated to the Confer- between the two city centres. The first Switzerland and the Confederation has ence, but they also tried to develop di- realization was to start from each ex- made a special effort to follow the EU rect partnership with the neighbouring tremity and especially on the eastern orientations (Lezzi 2000, p. 17). The ac- territories: the Conseil Général du Bas- side, and the project of a garden located tion of the Confederation is an attempt Rhin signed a chart of cross-border co- on the two banks of the Rhine and con- to harmonize the cross-border connec- operation with the neighboured Länder nected by a new pedestrian and cycling tions on the whole territory and to obtain (Baden-Württemberg and Rheinland- bridge was developed (Krieger 2004, a share of the subsidies of the EU (Saez Pfalz). After 1990, the Interreg programs p. 24). The public relations between et al. 1997, p. 35). and the new legal opportunities adopted the two cities were increasing. In 2000, In the former Republic of Germany, by the European Parliament gave a new due to a new French law on urban and the territory was surrounded by two types impetus. Strasbourg and Basle initiated spatial planning, the CUS started to put of borders: the “iron curtain” dividing it great projects in the second period (In- into effect a legal document on spatial from the German Democratic Republic terreg II). The historical process, how- planning covering the whole urban re- and Czechoslovakia, and the boundaries ever, was different in the two cities. gion. The “Schéma de Cohérence Ter- with the western countries (Lengereau In 1996, the authorities of the three ritoriale (SCOT)” must take the princi- 1990, p. 69). The unification of Ger- countries met symbolically on a boat on ples of sustainable growth into account many introduced new considerations: the Rhine and decided to launch a project (Sohn 2004, p. 157). A cross-border the eastern borders, like all the eastern called Trinational Agglomeration Basle analysis which was partly financed by territories, received great attention from (TAB). The aim of the project was to give Interreg subsidies was commissioned. the Federal State (Lepesant 1998, p. 15). an overall vision of urban planning for Published in 2001, it was the first anal- On the other borders, the Länder remain the agglomeration as if it had no borders. ysis at that level in this area. After the the main political authority involved in A think tank was created, composed of change of the municipality council and partnership. The degree of cooperation elected representatives, urban and spa- its metropolitan authority in 2001, new varies, since all the Länder do not have tial planning experts coming from local orientations were given to the SCOT the same size or pay the same attention and regional authorities in France and (Sohn 2004, p. 166). The local authori- to their international borders. Germany and the cantonal authorities of ties on both sides completed new stu In France, cross-border cooperation Basle-City and Basel-Land. After several dies in order to elaborate projects in was controlled by the central State. The thematic studies, a development concept the cross-border area (ADEUS 2004, p. intergovernmental commissions were was published in 2001: it gave the main 9). In 2003, the French and the German for a long time the only cross-border strategic orientations and presented 27 governments decided that the new con- cooperation institutions allowed by the key-projects in 3 major fields (transport, cept of European collectivities should French government (Saez et al. 1997, p. green areas and urban planning) (TAB be experimented between Strasbourg 32). But the new powers won through 2002, p. 26). From the beginning, an and Kehl because of its symbolic im- the law of decentralization (1982) by original system of governance had to be portance (French-German reconcili- the regional and the local authorities invented: it was based on dialogue and ation, the seat of the European parlia- opened new perspectives, even if the le- consensus (aiming to find a general point ment). A new institution (Eurodistrict) gal possibilities were still restricted un- of view acceptable to all the territories was created in 2005 on the basis of the

12 Europa Regional 14(2006)1 new legal structure promoted by the Cross-border agglomerations of Strasbourg and Basle European Union1, through the conven- Institutional environment tion associating the CUS, the German Kreis of Ortenau and the main cities of the Kreis (Fig. 2). The aim of the Euro- GERMANY district is mainly to conceive the future of the cooperation and to plan new spatial projects. RHEINLAND- During a long time, the central State has PFALZ considered the border as a line of inse- curity: a policy of strong control was developed on the border’s areas. For these reasons, there were few relations allowed between local authorities through the borders. The interests of the State and of the local authorities were not always the same, and this has become sources of conflicts sometimes. In the European Departement Bas-Rhin integration’s process, the boundaries are FRANCE not uncertain anymore. It appeared to be CUS easier than ever before to overpass the borders and to develop cooperation. Strasbourg Kehl BADEN- WÜRTTEMBERG Kreis Metropolitan areas and governance Ortenau In Western Europe, the process of urba- ALSACE nization overcomes all territorial limits and especially the limits between local authorities (Leresche et al. 1995, p. 27). The major agglomerations have been di- Departement vided, sometimes for decades, into seve- Haut-Rhin ral municipalities. So, one rarely finds a C.C. Kreis single political authority in charge of a TROIS- Lörrach FRONTIÈRES whole agglomeration. In other respects, WR Lörrach Huningue however, a new step towards urbaniza- Saint-Louis tion has been made: in the process of BS Basel metropolization, the populations and the BL AARGAU major activities (especially management, JURA research, etc.) are concentrating in large SOLO- urban areas throughout the world (Lere- THURN sche et al. 1995, p. 28). At the same time, local governments and municipalities in charge of the core SWITZERLAND WR Weil am Rhein of the metropolitan areas have integrated BL Basel-Land the component of the globalization pro Note: The forms and the scale of the area and the territories are not respected. BS Basel-Stadt cess (Ascher 1995, p. 204). Two contradictory trends characterize the inter- Political system Spatial organization actions between cities: cooperation and Agglomeration and main centrality competition (Brunet 1997, p. 70). The international border cross-border agglomeration cities need to improve their image and to federated state Metropolis city make it known at the global level. Coop- local or regional authority (D: Kreis; F: Région, Départe- suburb border town eration and the rise of interdependence ment, Structure intercommunale) seem to be an answer to the increase of Upper Rhine Valley Area the complexity of management and to the

IfL 2006 gap between functional areas and politi- Auteur: Bernard Reitel cal territories (Jouve et al. 1999, p. 14). New conceptions in public management Figure 3: Institutional environment in the cross-border agglomeration of Strasbourg and are resorted to in order to reach that aim Basel (Jouve et al. 1999, p. 23). Governance Source: Conférence Franco-Germano-Suisse d‘aménagement du territoire consists in building new relations with private firms and other municipalities

1 www.espaces-transfrontaliers.org 13 and in looking for experiences in man- Basle Strasbourg agement in other cities of the world. It also consists in the emergence of a new Cross-border Population Percentage Population Percentage Agglomeration a) (2000) (%) (2000) (%) political level or the articulation of existing authorities with the aim to plan the Total 604,600 100.00 460,700 100.00 present and the future organization of Core (city) 166,600 27.54 264,100 57.33 the whole urban area. EU has defined a German suburb 90,800 15.02 33,500 7.27 polycentric and well-balanced spatial development which leans on “dynamic, at- Main border-town tractive and competitive cities and urban Lörrach 45,700 7.27 Kehl areas” (Commission Europeenne 1999, p. Weil am Rhein 28,900 4.78 23). This concerns especially the “gate- cities” which concentrate the major eco- French suburb b) 34,500 5.71 163,100 35.40 nomic, cultural and scientific facilities Main border-town 1.01 - and which connect Europe with other re- 3.31 gions of the world. But the general orien- Huningue 6,100 1.01 tations of urban policy are elaborated at Saint-Louis 20,000 3.31 national level. Two questions will be dis- cussed here. First, how and since when Swiss suburb 312,700 51.73 - - is the metropolitan process integrated in Cross-border area TAB-ATB Strasbourg- the national urban policy? Second, are Ortenau institutional answers given to the po- 592,900 859,400 litical fragmentation of the metropolitan Metropolitan Canton Communauté authority of Basel Urbaine de and agglomeration areas? Strasbourg In Germany, since the 19th century, in 188,100 451,300 accordance with a Prussian law (Städte- Tab. 1: Basle and Strasbourg: population of the agglomerations and of the cross-border ordnung), the political limits of the city area have been set further back as the ur- Sources: Trinationale Agglomeration Basel, Bundesamt für Statistik (CH), Statistisches Landesamt Baden-Württem- berg (D), INSEE (F) banization expanded (Jouve et al. 1999, a) The population of the agglomeration is the addition of the definition of agglomeration in each country accord- p. 226). The new urbanized areas were ing to national criteria. incorporated into one political institu- b) For France 1999 tion (Eingemeindung). The aim of the administrative reform ordered by the areas (75 municipalities and 9 Kreise for national territory. The stake was the FRG in the 1960s was to have munici- Frankfurt), but it does not always enjoy organization of “regional metropolitan palities that were in a better position to fiscal autonomy. The authorities have not areas” which had to be equipped with plan and organize their future extension all assumed the same responsibilities be- facilities of a high level for the firms and (Reitel 1980, p. 86). The incorporation cause those operations are often initiated the population. Two orientations were of smaller municipalities permitted to by the Land. Otherwise, the major city given: the creation of planning offices increase widely the territory and the size of the area attempt to control the future (OREAM) 3 in large urban areas, which of the cities and to rationalize the public development and to divide the burden of were meant for the elaboration of the fu- management. The reform concerned all the major expenses for the central ameni- ture projects; the creation of a political the territory of the FRG, though it was ties. For the first time, these frames in- authority in charge of the whole agglom- applied differently in each Land. But the clude new considerations of govern- eration, the “Communauté Urbaine”. 8 urbanization’s process has not stopped at ance: large representation of the actors, were created by the government: in the the new limits of the cities. After 1974, communication policy, development of institutional frame of France, those new the Federation applied a specific policy a metropolitan consciousness, etc. Flex- institutions had a great political and fis- in several fields (accessibility, environ- ibility and mediation replace hierarchy cal autonomy, and their power covered ment, housing, etc.) in 45 great urban- and subsidiarity. large fields. The Communauté Urbaine ized areas (Verdichtungsraum). In 1993, In France, the metropolitan facts de Strasbourg (CUS) was one of the 14 metropolitan urban areas, which were have been taken into consideration by metropolitan authority which was cre- considered as the main competitive eco- the government since 1963 (policy of ated in 1968 and now covers 28 munici- nomic poles of Germany, were identified the “Métropole d’équilibre”2) (Deyon et palities (Tab. 1). But, these experiences by the ministry for housing and planning al. 2000, p. 40). The aim was to control remained short-lived. The central State (Bundesministerium 1993). It was sug- the urban growth of the agglomeration transferred new powers to all the other gested to reinforce their political autono- of Paris by supporting 8 important ag- public territories in 1982, especially my by developing cooperation and part- glomerations fairly distributed over the the municipalities (the decentralization nership at the level of the whole urban process). It revealed the fragmentation region. Several cities such as Stuttgart, 2 The purpose was to control the urban growth of Paris of local power in France and obliged the Hannover, Frankfurt used the new politi- by supporting 8 great agglomerations: Lille, Nantes, State to elaborate new rules to promote Bordeaux, Toulouse, Aix-Marseille, Lyon, Metz-Nancy, cal frames (Jouve et al. 1999, p. 229). The Strasbourg. The State brought them financial contribu- new authority sometimes covers large tions to develop their accessibility, their facilities, etc. 3 Organisme d’Etudes des Aires Métropolitaines.

14 Europa Regional 14(2006)1 cooperation between the 36,000 munici- in 2001 (Gerheuser 1988, p. 243). The tion. In France and in Germany, the ini- palities. Two laws were adopted (one in aim of this policy is to help the devel- tiative is taken by the main cities and the 1992, the other in 1999) which oblige opment of projects at the agglomeration metropolitan authority when it exists. every municipality to belong to a new level and to improve the cooperation The Länder are also largely present in authority having fiscal autonomy and between cities, municipalities and Can- the discussions. to transfer several of their powers (Ber- tons. A three-party Conference on ag- In all cases, the construction of a gover- nard-Gelabert 2001, p. 7). In the large glomeration was created and associated nance system is a challenge to the classi- agglomerations, that authority does not the Confederation, the municipalities cal hierarchical political grid and oblige yet cover the whole of the urban area: and the Cantons (Conseil Federal 2001, the different political authorities to incre- several suburban municipalities try to p. 97). The Confederation also created ase discussions and relations. The will is resist and to build their own local au- new financial equalization systems to always to cross the political boundaries. thority, especially when the main city help the financing of great projects. No The cross-border cooperation is quite re- is known to have economic difficulties. introduction of political authority is en- presentative of this movement, but it is Since 2004, the government has initiated visaged for the moment. The governance also a specific case. The dismantle of the a new policy of “metropolitan projects” pattern is an attempt to promote coop- borders introduces a new era of uncer- to foster the development of new metro- eration between all public powers and tainty for the local territories: they try to politan functions and to increase coop- concerns the small agglomerations as reduce it by developing more relations eration at regional level. Strasbourg is well as the biggest ones. The Canton of with their foreign neighbours with the one of the 17 areas selected. Basel-city, the smallest of Switzerland help of the European Union. For these In the decentralization’s process, even (37 km2), is composed of 3 municipali- reasons, they have to imagine new con- if the sharing of the responsibilities of ties one of them being the city of Basel ceptions of governance. each local authority seems to be clear, where all the main political institutions for all the main fields (transport, devel- are located. It has 2 international bor- New functions of borders in the opment, environment, housing, etc.), the ders, (one with France, the other with system of governance at agglome- authorities have to coordinate their ac- Germany) and an “internal border” with ration level tions. They were prepared to have new the Canton of Basel-Land, which has its Two types of documents were consulted: power, but not to have relations with own government and policy. Basel is official planning documents imposed by other collectivities. In theory, the central not only a three-national agglomeration, the national laws; documents describing State is the regulator of the system, but in but in Switzerland a “four-cantonal ag- strategic orientations produced by the fact, it is not able to face the dispersion of glomeration”: the process of urbaniza- public authorities. The first one are al- the responsibilities and to persuade the tion crossed the boundaries of the two ways realized on territories in national collectivities to coordinate their action. Cantons (Fig. 1). Contrary to what hap- frame (Schéma de Cohérence Territorial, The national governance system is made pens in Strasbourg, the public authority Richtplan, Regionalplan, etc.); the second of cooperation and opposition and de- of the agglomeration seems to be very one are elaborated at cross-border level pends on the good will and the strength fragmented, but the four Cantons belong (Agglomération Trinationale de Bâle, of the collectivities. to the association “Nordwestschweiz”, Strasbourg-Ortenau) or in the existing In Switzerland, the organization of where they discuss problems on a re- collectivities (projet d’agglomération the State includes three levels: confed- gional level. de Strasbourg for example). Other do- eration, canton, municipality. The po- In the three States, the governments cuments produced on higher level were litical power of the cities has long been try to correct the distortion between also consulted: the plan describing the underrated (Gerosa 1988, p. 121) in political and functional areas. Those future of the cross-border region of the comparison with the communes of the corrections do not necessarily result in Upper-Rhine valley, the former vision of mountains and of the rural areas. The the creation of a new political territory. the Regio Basiliensis (elaborated in the policy of the cities is often dependent of In all cases, we find them experiment- 1970’s). Several interviews were made the will of the Cantons. The Confedera- ing new systems of governance. Outside with employees of the urban planing of- tion noticed that Switzerland is involved France, flexibility is considered as a ma- fices in each city. in the process of metropolization (Lere- jor means. The main impulse is given The analysis tries to determine the sche et al. 1995, p. 168). But the local at the national level, but a substantial spatial strategies of the collectivities and public power is fragmented into 26 Can- autonomy is left to the local or regional the way they consider the cross-border tons and 2900 municipalities. Research- actors. There is no real harmonization cooperation. Several criteria were taken ers of the Ecole Polytechnique Fédérale at national level. The approach remains into account: the collectivities involved, de Lausanne observe the great function- experimental, but it helps to create a col- the legal frame of cooperation, the type al interconnections between 5 metropol- lective consciousness at agglomeration of relations, the planned spatial projects, itan areas largely open to the world and level. If the aims are similar in the three the means allocated (technical and hu- suggest to strengthen this polycentric States, the means are not necessarily the man resources), the realized operations, urban area called “Swiss Metropolis” same and vary according to the history etc. The 4 properties of the border de- (Walter et al. 1999, p. 23). The Confed- of each political system. In Switzerland, scribed by Raffestin (ibid) were used as eration abandoned the policy of concen- the coordination depends on the quality an analysis grid. The aim is to see which trated decentralisation (which promoted of the collective projects (which means properties of the borders are the most the towns of small and middle size) and negotiation and consensus) and the Con- used by each collectivity, in which cases initiated a new policy of agglomerations federation plays a real role of coordina- and for which purpose.

15 Border as legitimacy: the power of progressively built in the course of the and in Switzerland, due to federalism, relations cross-border process rather than really relations are more dependent on hierar- All European territories are subjected to anticipated. They need human, technical chy and subsidiarity, the closest political similar processes: European integration, and financial resources (statistical and collectivity is in charge of the operation: globalization, increasing demand for lo- planning offices, lawyers, etc.) to reach cities and Kreise (as a decentralized rep- cal democracy and the need of a local their goal, and they are not necessarily resentative of the Land), Cantons. identity (Anderson 2002, p. 3). Location under their control. In the TAB projects, On the second level, a system of go- on the border brings in a special factor: the resources are concentrated in the two vernance proceeds from official cross- the collectivity confronts daily a foreign Cantons of Basel. In Germany, they are border cooperation which, however, also country, its institutions, its way of life allocated to the “Kreis” and the cities reflects implicit power relations. The (Donnan et al.1999, p. 56). Cross-border (Lörrach, Weil am Rhin). In the French cross-border relations appear to be unba- cooperation means developing interna- part of the TAB, they are deposited with lanced because of the difference in size tional relations, which have been highly the “EPCI”, in the city of Saint-Louis, but and power between the Metropolitan regarded since the creation of the EU, the studies are for the most part conduct- authorities and the other collectivities. and here, on account of the geographi- ed by the planning office of the Dépar- The Metropolis concentrates the resour- cal proximity, they can be constant and tement du Haut-Rhin which has its seat ces, which is not the case with the other regular. It is a way for it to legitimize its in Colmar (70 kilometres from Basel). In collectivities. But the border also restores own proper power. the case of Strasbourg, the CUS has its some balance, since the small collecti- International relations were not re- own resources, and on the German side vities are recognized as equal partners, ally taken into account in the French the resources are shared between the despite their smallness or their economic decentralization’s process. Additionally, city of Kehl and the Kreis Ortenau. This weakness. They can offer much more the creation in several steps of new col- organization is a clear reflection of the than the local resources by mobilizing lectivities in the 1990’s compelled the rules current in each national State (Tab. the resources at different levels in their communes to transfer a part of their 2). In France, the system of governance is own national system. competence (Bernard-Gelabert et al. based on a partnership resulting from co- The incentives of the European Un- 2001, p. 10). The fact that they were of operation but also from power relations ion achieve their purposes of developing recent birth and obtained small recogni- between the collectivities. The Central cross-border cooperation and transform- tion from the population obliged them State is of course involved, but each col- ing the border into an interdependence to legitimize its political action. The lectivity sees in the cross-border relation line (Martinez 1994, p. 4). The local au- “Communauté de communes des Trois- a way to gain in legitimacy. In Germany thorities are aware that the major differ- Frontières” in the French part of the agglomeration of Basle is the leading po- Level and means France Germany Switzerland litical agent involved with the two cities of Huningue and Saint-Louis. In both LOCAL Commune Gemeinde, Stadt Commune, Ville agglomerations, the Kreise play the lead- Etablissement Public Kreis de Coopération Inter- ing role on the German side: they need to communale give an impetus to their action which is Pays (project and not well known to the population. On the coordination structure) other side, due to subsidiarity, the Land lets the Kreis act in its name because of Groupement Local de Coopération Transfrontalière (GLCT); District européen its geographical proximity to the border. REGIONAL Département Region In France and in Germany, cross-bor- (planning authority) der cooperation compels collectivities to Région organize new relations within their own Land Canton national State: it is a way to harmonize NATIONAL République française Bundesrepublik Schweizer Eid- their points of view before they face the Deutschland genossenschaft foreign authorities. The system of gov- Type of State Unitary State with Federation Confederation ernance has two levels of organization: devolution one active in each national territory (lo- Relations between Partnership and Hierarchy and Affirmation of the cal level), the other in the international political authorities competition subsidiarity federated State area (agglomeration level). On the first Technical and Scattered, overlapped, Hierarchy, specia- Concentration in level, a collectivity plays a leading role human resources mostly shared lized, mostly shared the federated State in the cross-border relations in the capacity of a spokesman. That political role Public actors is played by the Canton in Switzerland major actor involved in the cross border cooperation (Basle-city, Basle-Land), by the Kreise secondary actor involved in the cross border cooperation in Germany (Ortenau, Lörrach) and the little presence or absence Etablissements Publics de Coopéra- tion Intercommunale (EPCI) in France Tab. 2: Main political structure in France, Germany and Switzerland and in the cross-bor- (CUS; Communautés de communes des der agglomeration of Basle and Strasbourg Sources: Conférence Franco-germano-Suisse d’aménagement du territoire (1999); Mission Opérationelle Transfon- Trois-Frontières). Their leading role was talière (2003)

16 Europa Regional 14(2006)1 ences concern the cultural and the legal The dismantling of the European bor- tenschau, a garden and art festival organ- aspects and devote part of their energy ders leads to the breakdown of that or- ized by Kehl and Strasbourg in 2004 was to understanding the functioning of the ganization. The restraining function of a way to reinforce its centrality and its neighboured territorial system. On the the border is blurred, and the population image (Krieger 2004, p. 189). The bor- other side, there is a cultural confronta- of the whole agglomeration can now be der is erased (the continuity of the urban tion which gives them a special identity considered as potential consumers. The space is stressed), but on the other side, which is a trump card in the competition border is not a barrier anymore and it can the differences are maintained: Kehl is between territories on global or European not underline the identity. The border-ci- a place near Strasbourg, in its suburban scale. ties react by using the changes in a posi- area, but with a German identity. The The border makes manifest the power tive way. They reinforce their centrality, suburban border-cities of the Three-na- relations between collectivities, in the carrying out a strong urban planning tional Agglomeration of Basle conducted very attempt to regulate them by cross- policy. To reach this aim, they develop a similar policy, but using the image of border cooperation. But, for the suburban a contradictory policy: they assert their art and of innovation in architecture in border-cities, the border has also another affiliation to the urban space (the agglo- the continuity of Basle. signification. meration), but at the same time construct The suburban border-cities exploit an image based on the differences repre- two functions of the border: difference Border as resource: the strategy of sented by the border. and regulation. In a way, the ambiva- the suburban border-cities The case of Kehl is highly illustrative. lence of the border is considered as a The suburban border-towns were all fa- Since the end of World War II, Kehl has resource. All the city councils argue the cing the same challenge: the border was been known to the population of Stras- same way: as part of the agglomeration, a difficulty but it also offered protection bourg for its commercial centre offering they can apply for European funds, and and opportunities. A political and eco- products which are unobtainable or less as collectivities in their own State they nomic centrality is established through expensive than in France. Just across can claim that they are a showcase. But the location on the border which is also the Rhine, Strasbourg is famous for its in all cases, the strategy of the suburban a strong element of identity. On one side, European institutions. Kehl used this border-cities depends on the orientation it restrained some flows, the border-town European image to obtain in the 1990s of the metropolitan authorities. being the last centre for the people who to be the seat of cross-border institutions did not want to cross the boundary. On (Euro-Institut, Infobest, etc.). On the Border as relation: the governance the other side, due to the existence of other hand, Kehl built green areas along systems of two metropolitan areas differences (rules, taxes, etc.), a specific the rivers to underline its German origi- The building of a cross border urban commercial offer existed and attracted nality (preserving nature in the city, its area is one of the strategic orientations people from the neighbouring countries. situation on the Rhine). The Landesgar- of the two metropolitan authorities and this supposes cooperation through the borders. But, the orientations are not the City, metropolitan authority Strasbourg Basle same in the two agglomerations: the strategies, the means allocated, the relations Territorial situation Local Border city, former Enclave, State-city between the collectivities are the results Republic of a complex history. It all depends on National Periphery of a Periphery of a the way each national State and natio- medium-size State small State nal territory was built up (in time and in European Near the Rhine axis Node on the Rhine axis space) and of the relations between the States. It is also the result of the confron- Vision of the National Unitary Federate territory tation between several national systems Integrated territory Association of (political and cultural) and of the rela- territories tions developed between the “local” pu- 1 boundary network of borders blic authorities (Tab. 3). Border (general) Protection and relation Regulation The cross-border cooperation is a way to strengthen their participation in a glo- Dyade Symbol of International gate reconciliation bal competition, for three reasons. First, it is an addition to the size of the me- Identity and image National Showcase, Gate metropolis strategy Symbol of tropolis and to its readability. That area reconciliation has more diversity than the city itself. Metropolitan authority European metropolis Small «worldcity» Second, it helps to build an international and European image. A cross-border ag- Suburb border cities German suburb of French and German a French city suburb of a Swiss glomeration means urban spaces in sev- metropolis eral countries and the resulting knowl- European city in the cross-border area Architecture and Art edge and experience of several national systems. Third, the agglomeration is Tab. 3: The cross-border governance’s system in Basle and Strasbourg and its territorial easy to find on a map of Europe because components Sources: TAB (2002); Kanton of Basle-City: Zukunft Basel (2001); ADEUS (2004); websites, interviews there are very few large cities located on borders.

17 In the two agglomerations, a flexible sys- p. 31) and engaged in partnerships with Strasbourg and in Basle (Tab. 3). First, tem of governance worked out in part- other large cities in Europe. The border each State has a different vision of its nership was developed. It was based on was considered as a barrier limiting the territory and its borders and that vision projects and visions of urban planning influence of the city. Outside Kehl, the influences the relations established by and was relied on good will. But the need cross-border area was largely ignored. the metropolitan authority. France has a to create a more definite structure, that At the end of the 1980’s, the CUS consid- integrated vision (Citron 1987): the ter- could be recognized by the public aut- erably raised the cross-border relations ritory was long considered as homoge- horities and the population in each state, with the aim to increase the influence of neous and unique and surrounded by a became apparent. Strasbourg on the right side of the Rhine. single militarized border. Border regions Basle is building a territory based on But the balance between Strasbourg and were peripheries which had to be fully its three-national agglomeration, and Kehl is very difficult achieved owing to integrated to the territory and to the na- along a Swiss-made method of dialogue the disparity in size. The cross-border tion. The State exercised a powerful con- between all the major political agents cooperation is now built on another level trol on the border-regions and had built and decisions taken in common (TAB with the Kreis of Ortenau. The Eurodis- a powerful military and defence system ibid). In 2001, the association TAB was trict created in 2005 intended to organize from the 17th to the 20th century (Nord created: its composition is one third of and realize the main project at agglom- man 1998). Strasbourg was a military the representatives for each country, and eration level. The ambition was very place in the French territory, but also in it holds a general assembly every year. high when the first discussions began the German system (Livet et al. 1982). Even if the Swiss Cantons seem to be the in 2003. An agreement was difficult to That was not the fact in Basel. Switzer- most powerful, some kind of regulation find because the authorities did not have land is a heterogeneous territory made exists, because the TAB has three com- the same vision about the competences of different States organized in a Con- ponents which have in theory an equal to transfer. Besides, each component federation. Such an association of terri- political power. The relations are based wanted to house the seat of the new or- tories means that there are several kinds on mutual respect: for every problem ganization. For both states, France and of borders: inner, between the Cantons the best solution is a collective, consen- Germany, Strasbourg-Ortenau appears and between the linguistics groups, sual solution, which it inevitably takes as a symbolic “territory” on account of outer, with other Countries. The border time to find. The governance’s system is its troubled history. However, in com- of Switzerland is defined by regulation, largely inspired from the Swiss system parison with Basle, the relations are which means openness rather than clo- of collegiality combined with consen- more conflicted. The event of the garden sure. There are less tensions on the outer sus (Leresche 2001, p. 21). The system and art festival was very symbolic: it was border than on the inner border: Switzer- works thanks to the determination of the considered as a big French-German event land appears as “a intricate network of public agents, and to the existence of a and attracted more than a million visitors borders” (Leimgruber 1989, p. 115). genuine cross-border consciousness, from both countries, but each authority Second, despite their location on the which emerged during the 1960’s and handled its own part of the garden and Rhine as the major transport axis, Stras- the 1970’s and which was encouraged by created its own program of events. But bourg and Basle do not play the same role the Regio Basiliensis. Even though there the final result is that the agglomeration on the transport network. Strasbourg was was a decrease in the relations during the has now a real cross-border place, the considered as a military place and a gate 1980’s, the political, economic and plan- “garden of the two banks” located on ei- of France on the Rhine. The military pow- ning actors thought that part of the fu- ther sides of the Rhine and a symbol, the er was enabled to control the network and ture depended on good relations with the bridge (Die Passerelle) linking the two the transport facilities. For example, the neighbouring territories. Those images banks. The bridge and the garden are airport of Strasbourg was managed by the and the representation of an area “with- now new concrete symbols of cross-bor- military power until 1996 (Kleinschmag- out border” helped the public actors to der relations, places where the German er 1997, p. 49). The transport network cross the borders. Cooperation is a mat- and the French, people from Strasbourg (motorway, railway) was improved along ter of time, but the level of the relations and from Kehl, mix together. with the rest of the French territory, but changed. They were first developed on One may note by the way that the the connection with Germany was long the regional level (1960’s); but nowadays system of governance seems to be more largely ignored. Despite its location on the they are more concentrated on the ag- complicated in Basle but also more bal- French-German border, Strasbourg is not a glomeration level. Geographical proxim- anced than in Strasbourg. The Canton great centre of connection between France ity is an important factor in the increase of Basle-city considers itself as a small and Germany: it has a peripheral position of the relations, for it makes frequent territory, an enclave encircled by sev- in France and on the Rhine transport axis. and improvised meetings possible. The eral kinds of borders. By reason of its On the contrary, Basel was considered as TAB association gives a definite shape power, the Canton was in a position to one of the main gateways of Switzerland independent from each collectivity. It is undertake an international policy with to the world (through the Rhine) (Bergier linked to the policy of agglomerations the neighbouring States of France and 1983, p. 287). The aim of the Confedera- initiated by the Confederation. Germany (Staehlin 1988, p. 153). But it tion and the Canton is also to maintain ef- The cross-border public relations are has also developed cooperation with the ficient connections with the neighbouring more recent in Strasbourg. After the neighbouring Cantons in Switzerland. countries. Basel is a major railway and in- Second World War, with the help of the Even if during the last 15 years the ternational junction, a stopping place be- Central State, the city developed a “Eu- cross-border relations have increased, tween north and southern Europe, but also ropean ambition” (Kleinschmager 1997, a difference in degree exists between between western and eastern Europe.

18 Europa Regional 14(2006)1 Third, the development is dependent on le at local level: the collectivities are de- legitimize their action in that way and to the relations between the national States veloping visions and projects which con- assert themselves within the national po- and the metropolitan authorities, and the tribute to shape the consciousness of be- litical system. The metropolitan authori- autonomy that is granted to these aut- longing to a cross-border agglomeration. ties take advantage of their cross-border horities. In the French political system, Cross-border relations are not a simple image at international level to show that the CUS has great power, but the main component of little significance in the they occupy an original position and that responsibilities remain in the hands of international relations between neigh- they have experiences in complex public the central State (Peter 2001). Despite bouring States, but are the expression management. its large autonomy within the French of real proximity links between foreign There are some incidental differences system, the CUS is not considered as a collectivities separated by a boundary. between the processes in the two agglom- full-size partner because the legislative The increase of such a cooperation ma- erations. The system of governance is in- capacity is missing which means that the nifests the assertion of public power at fluenced by the political system in which collectivity as not a complete control of local level and points to a transfer of the the metropolitan collectivity is located. its territory. In Basel, the main ameni- interest of the national States in France The experience of international relations ties are controlled and financed by the and in Germany from their own bounda- at different levels of the Canton of Basle Canton or by private foundations. This ries to the outside borders of the Europe- is much higher than that of the Commu- direct control is lacking in Strasbourg an Union. The Swiss Confederation and nauté Urbaine de Strasbourg. This is the where strenuous negotiations take place the Cantons are deeply involved in that result from the complex history of the between the CUS and the Central State process. The relations are not forced into relations between France and Germany for the development and maintenance of conformity with a norm: they are made and the strong control exercised by the the metropolitan amenities, which are of the confrontation of public authorities national government in both the German partly controlled and financed by the which do not have the same competences and the French political systems. The central State which intended that the city and the same autonomy. political organization of Switzerland should be a showcase of France. In fact, The cross-border governance’s system entails a great autonomy for the Canton the power next to the border is marked- thus elaborated consists in regulation and of Basle. That fact, combined with the ly higher in Basel than in Strasbourg, so combines balance, flexibility and mutual proximity of the border, the smallness of that the decisions can be taken very quic- recognition. In the case of Strasbourg, the the territory and the location on a major kly, if necessary. The proximity helps to balance has been established by the im- European transport axis, forces the Can- have a good appreciation of the border, plication of the German Kreis of Ortenau ton to take a strategic view of its future a knowledge of way the political institu- as representative of the Land and of the development. tions are organized in the neighbouring communes. In the case of Basle, the bal- countries. Basel has a long-standing ance resides in the negotiations between know-how in the matter of cross-border the three components. The decisions con- References relations and negotiation, which is not cerning the projects are made in common ADEUS (2004): Aménagement du terri- the case for Strasbourg, where during a and each authority has the duty to trans- toire. L’axe Strasbourg-Kehl. Le temps long time all the international relations late it into its own national system. The de l’action (2004). In: Dimension vil- were controlled by the central State. process sometimes takes a long time and les 44. The two metropolitan collectivities requires mutual trust and the knowledge ADEUS (2004): Livre blanc Strasbourg- of Strasbourg and Basle do not develop of the foreign political system. The flexi- Ortenau. Orientations et projets pour the same strategy with their neighbour- bility appears in the weak degree of insti- un développement commun. Stras- ing and foreign public authorities. In the tutionalization of the governance system. bourg. governance system of TAB, the border is The process, however, also testifies to the Ammon, G. and M. Hartmeier (1998): used for the purpose of relation, but in fragility of the system. Institutionaliza- Le fédéralisme et le centralisme : Strasbourg, the border is rather used as tion is a way to secure the perpetuation of les deux principes fondamentaux de a means of regulation. Additionally, the the process in time and to give shape to l’organisation territoriale. In: Ammon, cross-border process in Basel is gaining a new territory. The governance’s system G and M. Hartmeier: Fédéralisme et in autonomy and having an organization also has a strategic dimension: the collec- centralisme. L’avenir de l’Europe entre of one’s own, while in Strasbourg the tivities have to imagine a common future le modèle français et le modèle alle- cross-border process is more character- and to look ahead for harmonization, co- mand. Economica, pp. 3-23. ized by confrontation and relations of operation and complementary. That goal Anderson, J. (2002): New borders for a power. Despite these facts, the cross- also compels them to think about their changing Europe: cross-border coope- border cooperation has substantially in- own territories and identities. ration and governance. London. creased in the two agglomerations. The Cross-border cooperation appears Anderson, M. (1996): Frontiers. Territo- cross-border cooperation helps the met- more and more as made possible by ry and State formation in the modern ropolitan authorities to be better noticed structural links resulting from negotia- world, Cambridge. on the global level. tions and new concepts. Cooperation re- Ascher, F. (1995): Métapolis ou l’avenir quires equality between the several pub- des villes. Odile Jacob. Paris. Conclusion lic authorities: in the cross-border pro Ascher, F. 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