Metropolitan Regions As a New Spatial Planning Concept
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STUDIES IN SPATIAL DEVELOPMENT Die Umsetzung des Konzeptes der Metropolregionen in der planerischen Praxis war Hauptthema 8 eines kürzlich an der Universität Tübingen abgeschlossenen Forschungsvorhabens. Zu den zentralen Fragen zählten Chancen, Hemmnisse und Herausforderungen bei der praktischen Umsetzung einer Politik, die auf Verbesserung der Wettbewerbsfähigkeit von Metropolregionen zielt. Bei der hier vor- gestellten umfangreichen empirischen Studie liegt der Schwerpunkt auf dem Umsetzungsprozess in Baden-Württemberg. Dieses Bundesland bietet eine vielfältige Umsetzungslandschaft, die durch eine Vielzahl unterschiedlicher Ansätze geprägt ist. Dazu zählen sowohl die älteste als auch die jüngste Generation anerkannter Metropolregionen, sowie grenzüberschreitende Einfl ussbereiche. Die Auswertung einer bei den Gemeindeverwaltungen durchgeführten Befragung – in Verbindung mit ausführlichen Interviews mit sonstigen Akteuren und Planungsbehörden – ermöglicht Einblick in einen dynamischen Prozess und weist auf signifi kante Unterschiede sowohl bei der Planung als auch bei der Umsetzung hin. Erkennbar wird eine beträchtliche Lücke zwischen Theorie und Praxis, vor allem im Bereich der fl exiblen Geometrien und bei den Strukturen der metropolitan governance. Die zunehmende Diskrepanz zwischen Funktions- und Verwaltungsräumen führt zu Tendenzen der Metropolitan Regions and Spatial Development Überdimensionierung und zu Marginalisierungsängsten. Bei dem vorgesehenen Konzept der groß- fl ächigen Verantwortungsgemeinschaften fehlte es für die Akteure in ländlichen Räumen an Trans- parenz und an Glaubwürdigkeit. Dazu zählte auch die Befürchtung der Abkopplung von der in den Part 4 Agglomerationsräumen stattfi ndenden Entwicklung. Heidi Elisabeth Megerle Implementation of the metropolitan region concept in planning practice was the topic of a recent research project carried out at the university of Tübingen. Key questions include how this policy, aimed at enhancing the competitiveness of metropolitan regions, is implemented, what opportunities Metropolitan Regions it offers and what obstacles and challenges have to be overcome. The extensive empirical investiga- tion presented here focuses on the actual implementation process in Baden-Württemberg, which as a New Spatial Planning Concept presents a multi-faceted implementation landscape with a variety of different approaches, including the oldest and youngest generation of accredited metropolitan regions as well as cross-border areas Aspects of Implementation, Using the Example of infl uence. The analysis of surveys of community offi cials combined with extensive interviews with stakeholders of South-Western Germany and planning authorities provides insight into a dynamic process and highlights signifi cant differences in planning and implementation practises. A considerable gap is revealed between planning theory and practice, especially in terms of fl exible geometries and metropolitan governance structures. The increasing discrepancy between functional and administrative territories has led to over-extension trends as well as to fears of marginalisation. The envisaged concept of large scale communities of responsibility lacked transparency and credibility for actors in rural areas, leading to fears of being left behind from the development in agglomeration areas. ISBN 978-3-88838-234-5 www.ARL-net.de Metropolitan Regions as a New Spatial Planning Concept Metropolitan Regions as a New Spatial Planning Concept Aspects of Implementation, Using the Example of South-Western Germany A sign on the side of B 27 at the border between the Stuttgart Regional Association and the Neckar/Alb Regional Association (Megerle 2008). It reads: Welcome! Here begins the future I PRINTED ON PAPER AWARDED WITH THE EU ECO-LABEL SSD No. 8 ISBN: 978-3-88838-234-5 ISSN 1619-1986 All rights reserved • Published by ARL • Hanover, Germany 2009 ©Akademie für Raumforschung und Landesplanung (Academy for Spatial Research and Planning) Layout: M. Kappenberg, O. Rose Printed in Germany by poppdruck, 30851 Langenhagen Ordering possibilities: via book trade VSB-Verlagsservice Braunschweig Postfach 47 38 38037 Braunschweig Germany Tel. (+49-18 05) 7 08-7 09 Fax (+49-5 31) 7 08-6 19 E-Mail: [email protected] Onlineshop of the ARL: www.ARL-net.de Publisher’s address: Akademie für Raumforschung und Landesplanung (ARL®) Leibniz-Forum für Raumwissenschaften Hohenzollernstraße 11, 30161 Hannover, Germany Tel. (+49-5 11) 3 48 42-0, Fax (+49-5 11) 3 48 42-41 E-Mail: [email protected] Internet: www.ARL-net.de II Academy for Spatial Research and Planning STUDIES IN SPATIAL DEVELOPMENT Metropolitan Regions and Spatial Development Part 4 Heidi Elisabeth Megerle Metropolitan Regions as a New Spatial Planning Concept Aspects of Implementation, Using the Example of South-Western Germany No. 8 Hanover 2009 III Author Author Megerle, Heidi Elisabeth, Dr., Geographical Institute of the University of Tübingen, Rümelinstraße 19-23, 72074 Tübingen Secretariat of the ARL Scientific Division „Population, Social Structure, Settlement Structure“ Head: Dr. Gerd Tönnies ([email protected]) IV Contents Table of contents Table of contents V List of figures, maps and tables VIII List of abbreviations for the figures and other abbreviations XI Preface XII Introduction 1 Part I Methodological, theoretical and conceptual basis 3 1 Methodological basis 3 1.1 Data Sources and methodological approach 3 2 Theoretical and conceptual basis 6 2.1 Metropolis and metropolitan region – multifaceted terminology 6 2.2 Metropolitan regions as objects of research for spatial planning and 8 geography 2.3 Research approach to this investigation 9 3 Current framework conditions 10 3.1 The global level: the effects of globalisation and international competition 10 3.2 The European level: the Lisbon and Göteborg strategies and polycentric development 10 3.3 The Federal Republic of Germany: reorientation of spatial development policy 11 3.4 The neighbouring countries of France and Switzerland 12 4 Metropolitan regions as a new spatial planning concept 13 4.1 Metropolitan regions within the European Union 13 4.2 The European metropolitan regions within the Federal Republic of Germany 15 4.2.1 Functions of the metropolitan regions 16 4.2.2 Developments since the turn of the millennium 17 4.2.3 Future development of the concept 19 4.3 Metropolitan regions in France and Switzerland 21 4.4 Eurodistricts and European catchment areas as transnational approaches 23 5 Issues of implementation in planning practice 24 5.1 Re-orientation or paradigm shift in spatial planning? 24 5.2 Flexible geometries versus strict territorial delimitations 25 5.3 Large-scale communities of responsibility or marginalisation of rural areas? 28 5.3.1 Metropolitan regions as growth engines and the backbone of the Lisbon strategy 28 5.3.2 Growth regions outside metropolitan regions 29 5.3.3 A new orientation of spatial planning policy and its consequences for rural areas 30 V Contents 5.3.4 Large-scale communities of responsibility and spill-over effects 32 5.4 Changes in the subsidy structure 34 5.5 Metropolitan/regional governance – new management forms and new planning culture 36 5.5.1 Institutional restructuring 37 Part II Implementation in south-western Germany 39 6 The European Metropolitan Region of Stuttgart (EMRS) 42 6.1 The current situation in the metropolitan region 42 6.2 New orientation of regional planning – the Verband Region Stuttgart (VRS) 44 6.3 Expectations for the Metropolitan Region of Stuttgart 46 6.4 The discussion process regarding the problem of delimitation 48 6.4.1 Expansion of the metropolitan region 49 6.4.2 Assessments by the municipalities 52 6.4.3 Flexible geometries and network structures 55 6.5 Planning culture and metropolitan governance 56 6.5.1 Expansion of the spectrum of actors 58 6.5.2 The creation of new structures 60 6.5.3 Assessment of management options by the municipalities 62 6.6 Implementation strategies: lighthouse projects and guiding principles 63 6.6.1 Regional development concept including the development of guiding principles 65 6.6.2 Lighthouse projects within the Metropolitan Region of Stuttgart 65 6.7 Financing problems experienced by the Metropolitan Region 66 6.8 Internal and external integration of the Metropolitan Region of Stuttgart 68 6.8.1 External integration of the Metropolitan Region of Stuttgart 68 6.8.2 Internal integration of the Metropolitan Region of Stuttgart 70 6.9 Cooperation or competition between the EMRS and other regions 73 6.10 Summary and prognosis 74 7 The Rhine/Neckar European Metropolitan Region 76 7.1 Current situation in the urban agglomeration 76 7.2 The Rhine/Neckar European Metropolitan Region 77 7.2.1 Stages in the process of recognition as a European Metropolitan Region 78 7.2.2 Metropolitan functions and political will 79 7.2.3 Expectations for the Metropolitan Region 80 7.2.4 Organisational structure and spectrum of actors 81 7.2.5 Delimitation and regional awareness 86 7.2.6 Planning culture and metropolitan governance 92 7.2.7 Internal and external marketing 93 7.2.8 Strategies for implementation and financing 94 7.3 Summary and prognosis 97 VI Contents 8 Areas outside accredited metropolitan regions 99 8.1 The potential Upper Rhine Metropolitan Region 99 8.2 The Strasbourg/Ortenau Eurodistrict 103 8.2.1 The current situation within the urban agglomeration area 104 8.2.2 The Strasbourg/Ortenau Eurodistrict 105 8.2.3 The French Metropolitan Region of Strasbourg/Ortenau 107 8.2.4 Metropolitan projects