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Establishing functional interrelations and political governance: on the way to a cross-border metropolitan of Aring, Jürgen

Veröffentlichungsversion / Published Version Zeitschriftenartikel / journal article

Empfohlene Zitierung / Suggested Citation: Aring, J. (2017). Establishing functional interrelations and political governance: on the way to a cross-border metropolitan region of Szczecin. Europa Regional, 23.2015(3), 11-16. https://nbn-resolving.org/urn:nbn:de:0168- ssoar-52892-0

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Bericht Bericht: Establishing functional in- Establishing functional interrelations and political governance − terrelations and political gover- On the way to a cross-border metropolitan region of Szczecin nance − On the way to a cross- border metropolitan region of Jürgen Aring Szczecin

Abstract Zusammenfassung The formation of a cross-border metropolitan region of Szczecin Funktionale Verflechtung und regionale Governance – has passed the first stages, but it is still a long way to go. One of Schritte auf dem Weg zu einer grenzüberschreitenden Me- the reasons for a slow step-by-step-development is the “burden tropolregion Szczecin of history”, meaning the new definition of the German-Polish bor- Die Bildung einer grenzüberschreitenden Metropolregion Szcze- der after World War II and the long-lasting charged relationship cin ist seit den 1990er Jahren auf den Weg gekommen, doch im between the two countries. With the radical changes in Vergleich mit grenzüberschreitenden Metropolregionen an der in 1989/90, ’s entry into the EU in 2004, and the open- Westgrenze Deutschlands stehen Verflechtung und Integration ing of the labor markets, this situation improved considerably. In noch am Anfang. Eine Ursache der vorsichtigen, schrittweisen fact, since these events the cross-border functional interrelations -Entwicklung ist die „Last der Geschichte“ nach 1945. Mit den (labor market, housing market, shopping, crafts and services, for- radikalen Veränderungen in Europa in den Jahren 1989/90, die eign direct investments) have prospered. Similarly, the develop- in den Beitritt Polens in die EU im Jahr 2004 und einige Jahre ment of institutional arrangements shows progress. Within this später zur Öffnung der Arbeitsmärkte mündeten, haben sich die process, however, realizing concrete projects in the local and re- Chancen für eine grenzüberschreitende regionale Integration gional context is much easier than the coordination of interests erheblich verbessert. Etwa seit 2004 zeigt sich eine wachsende on the large scale of states and nations. An important step in the funktionale grenzüberschreitende Verflechtung bei Berufspend- development process of an institutionally stipulated cross-border lern, am Wohnungsmarkt, beim Einkaufsverkehr, in Dienstleis- metropolitan region occurred in 2010, when different local and tung und Handwerk sowie bei Direktinvestitionen. In ähnlicher regional actors on the Polish side joined for a metropolitan ini- Weise zeigt die Entwicklung der institutionellen Regelungen Fort- tiative.1 schritte, insbesondere bei der Realisierung regionaler Projekte. Schwieriger gestaltet sich die großräumige Governance, weil aus - dem Blickwinkel der Nationalstaaten andere Interessen in den Vordergrund rücken. Einen wichtigen Schritt in der Entwicklung Cross-border-development; (cross-border) metropolitan re einer institutionell festgelegten grenzüberschreitenden Metropol­ gion; functional interrelations; regional governance; European region markierte das Jahr 2010, als sich verschiedene lokale und integration regionale Akteure auf der polnischen Seite einer grenzüberschrei- tenden, metropolitanen Initiative anschlossen.

- Grenzüberschreitende Entwicklung; (grenzüberschreitende) Metropolregion; funktionale Beziehungen; regionale Govern ance; Europäische Integration

1 This paper is based on research carried out during the search for partners for the ImeG (Initiative for cross-border metropolitan of ) in the years 2011/2012. Apart from the analysis of literature and planning documents interviews with experts were conducted. In this regard I want to thank Marek Dutkowski, Stanis- law Dendewicz, Lilly Wolny, Petra Schmitt and Frank Segebade for their information and reflection.

11 Europa Regional 23, 2015 (2017) I 3

The burden of history - - that could be lost to Germany again. It took the counties of and Vorpom The Polish-German cross-border met until the in 1990 to mern- on the German side of - ropolitan region of Szczecin has yet to ultimately confirm the international state the border. It measures up to about 30,000 - pass the stage of simply being an idea or of the Polish-German border. The experi km² and is home to 2.077 million people, - - a concept. The functional and political re ences on the German side of the border 81 % of which live in Poland and 19 % in - ality still shows a different picture, even were similarly complex and charged, al Germany. The region is quite large, but out though the situation improved step by step though the official GDR-rhetoric of social side of the urban parts of Szczecin rather - since the end of the cold war in 1989/90. istic friendship administered otherwise. rural and only scarcely populated. Apart Throughout socialism, Poland and the The weight of the Polish-German his from the coastal area of the , this GDR celebrated an official friendship, but tory in the border region is quite heavy is also the case on the German side. The it had no direct effect on the population and still affects the relationship. However, population density averages at about 70 - in the border-regions. Today, the Europe respondents on both sides of the border inhabitants per square kilometer, but there Agreement in 1994 and the foundation of emphasize that the relationship has im are strong differences between the urban - the ‘’ in 1995 can be proved considerably over the last two and rural areas. Around Szczecin (405,000 seen as first steps of a new policy. Poland’s decades. Knowledge and experience sub inhabitants) there are only a few semi- - - entry into the European Union in 2004 was stitute for obsolete stereotypes resulting large cities, namely Szczeciński a fundamental premise for further inte in better cross-border cooperation. (70,000), Świnoujście (40,000), and Pase Spatial Structures - gration and the institutional co-operation walk (17,000) (see Map 1). within cross-border networks. However, in As the region is large in size, the distanc - - everyday life the working population had Today, the metropolitan area of Szczecin es within the region are quite long as well. to wait for free cross-border transition un comprises the region of the West Pomera It is about 113 km from Szczecin to the til Poland and Germany opened their labor nian on the Polish side and port city of Świnoujście, about 149 km to - markets in 2007 and 2012, respectively. Szczecin The institutional improvements sup Location and distances porting a stronger integration in the Slupsk cross-border metropolitan region went A S E hand in hand with a learning process in B A L T I C - both population and politics. People had - Greifswald Woj. to get over the history of nationalism, feel 149 km pomorskie - (Pommern) ings of superiority, war, destruction, per Świnoujście Peen secution, and relocation, Theseth were trau e 113 km matizing events of the 20 century and Re Mecklenb.- ga Vorpommern deeply burned into the collective memory Woj. zachodniopomorskie (Westpommern) of and Germans. While –before World War II – Szczecin 41 km Szczecin I na was a prospering bourgeois German city Stargard Szczeciński

a r located in one day’s traveling distance to d 47 km O POLEN , after the war it became a Polish city Pila - DEUTSCHLAND located at the Western border, far away H a v e from the capital Warszawa. A new popula l Noteć tion from Eastern Poland was relocated to - Gorzów Woj. wielkopolskie Od (Großpolen) Szczecin, but these new inhabitants had no er Wielkopolski links with the bourgeois character, the his

W

rta a Wa r t tory of the city, and the German hinterland. a BERLIN According to several respondents, it lacked Woj. lubuskie 150 km S () - pree 0 25 50 km national confidence in the loyalty of Szcze­ Poznań Maßstab 1 : 2500 000 238 km cin – in spite of the ‘’ of the for mer German city. On the one hand, Szcze­ Staatsgrenze Autobahn Grenze Bundesland/ Hauptstraße IfL 2017 cin was now the border city at the Western Karteninhalt: J. Aring Woiwodschaft Kartographie: B. Hölzel socialist frontier; on the other hand, the border was not acknowledged until the Map 1: Szczecin: location and distances treaty of Warszawa in 1970. Therefore for, long time Szczecin was perceived as a city 12 Bericht: Establishing functional interrelations and political governance − On the way to a cross-border metropolitan region of Szczecin

the German city of Greifswald, and about that solely commuting from Poland to differences in labor costs, market prices 150 km to the large neighbour Berlin. Via Germany is lucrative. and capitalization between Poland and motorway it takes about 1¾ hours to the • In the housing market the stream of Germany. Institutional Arrangements across center of Berlin, by train it takes 2-3 hours. people flows in the same direction. - the border Due to this bad connection by train, there Since 2004, about 1,000-1,500 Poles - is a Polish business working an inexpen have moved to the German side of the sive minibus connection between Szczecin border benefitting from lower real es Hand in hand with the formation of - and the airports of Berlin. tate prices. This is especially the case cross-border functional interrelations, The population of the metropolitan for the German villages in the imme institutional structures and cooperation region shows a slight shrinking process, diate environment of Szczecin, where reaching abroad were set up. But while which is forecasted to intensify in the many of the newcomers have settled. politically it was a quick and easy job to future. It is stronger on the German side • Cross-border-shopping is interesting establish new structures, it takes some and less distinct on the Polish side. Due to for both Poles and Germans. Stories time to vitalize the arrangements. - - - the beginning suburbanization, Szczecin´s about Poles buying certain goods in The political-administrative multi-level - hinterland registers a growing popula Germany and Germans driving to Po system leads to two versions of govern tion. land to shop are often told, but the exact ance: “small-scale local and regional gov Economically, Szczecin has undergone amount is not yet quantified. The same ernance” and “large-scale governance of - an extensive transformational process is true for services in the household. states and nations”. Through projects and - since the fall of the iron curtain. The ship • In crafts and services many Polish every-day activities the former can lead - - building industry, which had been an im companies take advantage of the labor to quick pragmatic success, especially - portant economic driver during socialist cost-difference by offering their ser in terms of topics that catch wide inter - times, broke down during the 1990s. Nei vices in Germany comparatively cheap. est such as tourism, culture, and ecology. - - ther shipbuilding nor the port have spe Consequently, there is little knowledge This was also the case for the cross-border - cific economic relevance for Szczecin any of German craftsmen and service pro metropolitan region of Szczecin, where, more. However, Szczecin is an important viders in the Polish market. The in since 1995, the Euroregion Pomerania has location for higher education. Altogether, creasing economic interrelations in been working successfully in the areas of more than 50,000 students are enrolled at the cross-border region are supported culture, leisure, economics, tourism, and - - the different institutions in the city. through conventions and exhibitions regional politics as well as implementing a The fact that Poland joined the EU in organized by the chambers of com Polish-German youth office. Moreover, co - 2004 had a very positive impact on Szcze­ merce. operation for trans-regional projects was - cin’s economic development, especially on • Cross-border Foreign Direct Invest quickly established. The regional planning the labor market. Up to this year the num ment (FDI) flows in both directions. administrations collaborate formally in an - ber of persons employed decreased both Since 2004 increasing German direct “Oder-Partnership” and through a work - on the Polish and on the German side, but investment has been registered on the group “Traffic, Spatial Geography, Infra - - since 2004 there is strong growth on the Polish side in the metropolitan region structure, and Transport” as well as intui Polish side and slight growth on the Ger of Szczecin – especially in free enter tively when it comes to concrete projects man side. Accordingly, unemployment has prise zones. The predominant share of and events. - declined, particularly in Poland. these direct investments is not from In contrast, the development of large- Functional Interrelations the border area, but originates in the scale governance structures is more diffi - - Northern federal . cult. The officials mainly comprise federal - In reality there are still only a few func The size of FDI from Poland to Germa and national representatives, who put the tional interrelations, but their number is ny is lower. It ignores the immediate focus on large-scale politics, trans-nation - increasing progressively. border area of Germany and focuses al relations and the respective national - • According to experts the labor market on the markets in Western Germany. interests in general. In the process it be - counts about 1,000 Polish commuters Given the short period of free cross-bor comes apparent that in the Polish urban - who cross the border from East to West der traffic, the development of interrela system, the city of Szczecin plays only a on a regular basis. In contrast, there is tions between the regions on both sides minor role. Warszawa and Poznan are im - almost no commuting in the opposite of the border are still in a primary phase. portant, as well as Gdansk and Wrocław. - direction, although the number of jobs According to a study by Maack (2010), Poland is interested in connecting the na is higher on the Polish side. Evidently, however, it has noticeably accelerated in tional traffic infrastructure to the Euro - the differences between West and East both directions between 2004 and 2009. pean transport corridors. Institutionally, in terms of salary and costs of living are Generally, the current system of interrela the search for the “central partner”, which still quite distinct leading to the result tions is still asymmetric and reflects the does not exist in the German multi-level 13 L:\Publikationen\ER\_ER15\ER15_4_NEUE3\Aring\ Aring_2k.ai Europa Regional 23, 2015 (2017) I 3 bearb.: TB 24.-30.01.2017 korr.: TB 08.02.2017 Hö 06.03.2017, 27.04.2017 - Woj. zachodniopomorskie (Westpommern) system of federation, federal states, coun Functional and spatial structure Gd a ties and self-administrated municipalities, ńsk - A so far ended unsuccessfully. The partners Darłowo E Slupsk on the German side are the national gov S I C ernment as well as the federal states of L T Sławno B A Sianów

Brandenburg, -Vorpommern Kołobrzeg - Koszalin Polanów and Berlin, each focusing on different Skandinavien Dziwnów points of interest. Due to their rural dep Greifswald Trzebiatów Kalino Białogard Misdroy II rivation Mecklenburg-Vorpommern and Kamień Biały Bór Pomorski Gryfice Brandenburg quickly perceive Poland as Świnoujście Płoty Świdwin - Połczyn-Zdrój V a competitor (in terms of ports, central III Nowe places …), whereas Berlin seeks part g Warpno Łobez

bur Goleniów Dobra Drawsko ners on the same level and rather looks Pomorskie m Police Wegorzyno Borne - Pasewalk Ha Sulinowo on metropoles. Hamburg, Copenhagen, Szczecin Złocieniec ań - zn Ińsko Po and Warszawa. All in all, the metropoli Stargard Szczeciński Mirosławiec tan area of Szczecin is – hindered by ig Suchań Wałcz Gryfino norance and opposing interests – not yet a w za benefitting from cross-border large scale s r - Piła a /Oder I Człopa governance. In this regard, experts call for Pełczyce IV W Lipiany patience and time, use the spatial asym Berlin Trzcińsko-Zdrój Barlinek metries as excuses, and demand all actors Myślibórz Moryń to work together and move ahead. Dębno Gorzów Wielkopolski The Institutionalization of the Wa Metropolitan Region of Szczecin opa rta O d eur - er d nad Odrą Sü The institutionalization of the cross-bor der metropolitan region of Szczecin as a (Oder) / Słubice - whole is also just beginning. During the hierarchische Rangordnung der Städte Bündelung der Potentiale first decade of the 2000s the “metropoli der Städte tan region of Szczecin” was the issue of landesweites relevantes Zentrum funktionelle Zonen many talks and essays of discourses on regionalübergreifendes Zentrum metropolitan regions without yielding Oderland regionales Zentrum I concrete results (see Map 2). As late as 2010 Maack wrote a relative subregionales Zentrum II Küstenland critical note: gemeindeübergreifendes Zentrum 1. Grades III Mitte “Szczecin has not met the expectations gemeindeübergreifendes Zentrum 2. Grades Choszczno-Wałcz and opportunities to develop into the role IV gemeinderelevantes Zentrum as an urban center for the entire German- - V Szczecinek Polish region. As the political work in the Stadt außerhalb der Woiwodschaft Westpommern municipality of Szczecin still lacks conti nuity, long-term strategies are difficult to Rangordnung der Verknüpfungen execute. It was not until 2008/2009, when landesweit und international Verknüpfungen der wichtigsten Wachstumspole the city finalized the process of finding a general concept for the City of Szczecin regional prioritäre woiwodschaftsinterne Verknüpfungen that started Szczecin to intensify its cross- - subregional border cooperation. As a result Szczecin - has not come closer to the goal of becom 0 25 50 km Quelle: nach Raumordnungsplan der IfL 2017 Woiwodschaft Westpommern 2012 Kartographie: T. Balcke ing a center or even metropolis for the en tire German-Polish region. Even though, Map 2: Woj. zachodniopomorskie (Westpommern): functional and spatial structure since 2004 parts of the development in the areas of economics and labor have been positive and the opening of the border has increased the possibilities of cross-border 14 Bericht: Establishing functional interrelations and political governance − On the way to a cross-border metropolitan region of Szczecin

- cooperation, the important milestones on In this regard, demands about the intra- Georg-Eckers-Instituts; Bd. 119). Han the path to a completely merged cross- regional development (nature, urban nover, S. 98-108. - border region have failed to appear in framework, upgrading of the transport Hamann, C.-S. (2010): Stadt- und the investigation period” (Maack 2010. infrastructure, local traffic, technical in Großraum Sczcecin. Auf dem Weg zu - - pp. 52-53, translation by author). frastructure, development of commercial einer Europäischen Metropolregion. Making regional arrangements and in zones, fostering of clusters, tourism) are Diplomarbeit am Geographischen Semi tensifying cooperation is a long lasting formulated. Predominantly the focus is nar der Universität Tübingen. - process, proceeding slowly step by step. put on upgrading the infrastructure and Lundén, T. u. a. (2009): Szczecin. A Cross- - - The year 2005 can be seen as a starting modernizing the economic framework in Border Center of Conflict and Coopera - point of an arrangement of the Metropoli the region, as well as connecting function tion. In: Janczak, J. (Hrsg.): Conflict and - tan Region of Szczecin by founding the ally and physically with other metropoli cooperation in divided cities − Konflikt “Local Government Association for Re tan regions (Berlin, The Baltic). und Kooperation in geteilten Städten. - gional Cooperation”, which had the goal to In this process of institutionalization, Berlin, S. 110-121. put Szczecin into the national metropoli the sparsely populated and economically Maack, K. u. a. (2005): Wachstumspol tan discussion (Hamann 2010, p. 79). In weak German part of the metropolitan und Auswirkungen auf die Ent­ - 2009 it was renamed to the “Association region has not played a significant role, wicklung der deutsch polnischen Grenz­ of the Metropolitan Region of Szczecin” yet. That does not mean, that the German region. (= edition der Hans-Böckler-Stif (Stowarzyszenie Szczecińskiego Obszaru part is being ignored, but currently it is tung 132). Düsseldorf. - Metropolitalnego SSOM). only connected informally. For a couple of Maack, K. (2010): Wachstumspol Stettin: 28 April 2010 marked the next im years the city of Szczecin has initiated a Entwicklung der deutsch-polnischen - - portant step with an agreement on the cross-border conference in which actors Grenzregion. Aktualisierung der Studie “Launch of a joint investigation about inte from both sides of the border take part. „Wachstumspol Stettin und Auswirkun - gration in the cross-border metropolitan The concepts for the spatial structures gen auf die Entwicklung der deutsch- - region of Szczecin – Polish side” (“Poro in the metropolitan region are developed polnischen Grenzregion“. (= Studie im zumienie”). In this document, the West by the regional planning office at the ex Auftrag der Hans-Böckler-Stiftung). - Voivodeship, the association ecutive of the regional assembly of the Hamburg. - - of the metropolitan region of Szczecin, the Voivodship (Urząd Marszałkowski). The Regionaler Planungsverband Meck city of Świnoujście and Association of the focus is put among others on strengthen lenburg-Vorpommern (2010): Re Polish municipalities of the Euroregion ing the urban hinterland, on upgrading the gionales Raumentwicklungsprogramm Pomerania agreed on the formation of a traffic infrastructure, and on cooperation Vorpommern. - metropolitan region. This agreement only between Szczecin and Świnoujście. Schmitt, P. (2012): Grenzüberschreitende - comprises actors on the polish side of the Much points to the fact that in the pro Partnerschaft in der Metropolregion metropolitan region, whereas the German cess of institutionalizing the metropolitan Stettin. In: BMVBS (Hrsg.): Raumord - - side is not involved. It puts the focus on region of Szczecin, it will take more time nerische Zusammenarbeit im deutsch- five priorities (Wojewodschaft Zachod for the participants to find their roles. Rep polnischen Grenzraum. (= Broschüre des niopomorskie and partners 2011, p. 2): resentatives of the different authorities in Bundesministeriums für Verkehr, Bauen - / • For Poland in general Szczecin takes on the multi-level system argue from their und Stadtentwicklung). Berlin, S. 20-21. a leading position in cross-border co specific points of interest and positions Wojewodschaft Zachodniopomorskie - /S operation with Northern Germany and concerning the future of the cross-border Verein des Metropolraumes Szcze­ - - . metropolitan region of Szczecin. This clear cin tadt Świnoujście/Verein der • Intensification of cooperation between ly illustrates that further discussions with Polnischen Gemeinden der Eurore the metropolitan regions of Szczecin in the region are necessary, which is quite gion Pomerania (2011): Entwicklungs­ - - - and Berlin. normal for complex governance-processes. prioritäten der Grenzüberschreitenden - • Formation of requirements for the de The formation of a cross-border metropoli Metropolregion Szczecin. Zusammenstel velopment of the role of a metropolitan tan region of Szczecin has passed the first lung auf der Grundlage des Abschluss - - region through active cooperation and stages, but it is still a long way to go. berichts zum Konzept der Entwicklung References partnership with cities and municipali der Grenzüberschreitenden Metropol - ties in Scandinavia, especially with the region Szczecin – polnischer Teil. - metropolitan region of the Øresund. Dutkowski, M. (2006): Szczecin – „Metro • Set-up of an institute of Nordic affairs politanes europäisches Wachstumsge Prof. Dr. Jürgen Aring - - in Szczecin. biet“ oder „Dorf mit Straßenbahn“? In: Klosterstraße 84 • Development of a network of coopera Stöber, G. (Hrsg.): Deutschland und Po 53340 Meckenheim tion among the cities of the Baltic Sea. len als Ostseeanrainer. (= Schriften des [email protected] 15 Europa Regional 23, 2015 (2017) I 3

Peзюме Résumé

Формирование функциональных взаимосвязей и Établissement d’interrelations fonctionnelles et политическоеЮрген Аринг управление − на пути к трансгра- d’uneJürgen gouvernance Aring politique: exemple de la région ничному метрополитенскому региону Щецин métropolitaine transfrontalière de Szczecin Szczecin - - Формирование региона Щецин ( ) началось с 1990 г., Si la création de la région métropolitaine transfrontalière de Szc - однако по сравнению с трансграничными районами на за zecin est en marche depuis les années 1990, l’interdépendance - падной границе Германии его связи и интеграция находят et l’intégration n’en sont qu’à leurs débuts en comparaison ся ещё на начальной стадии. Причиной осторожного, по avec les régions métropolitaines transfrontalières à l’ouest de степенного развития является после 1945 г. «исторический l’Allemagne. L’une des causes de ce développement graduel et груз прошлого». В результате радикальных изменений в prudent reste le «poids de l’Histoire» depuis 1945. Avec les Европе в 1989-90 гг., приведших к вступлению Польши в changements radicaux survenus en Europe dans les années ЕС в 2004 г. и спустя несколько лет к открытию рынков 1989 et 1990, qui ont abouti à l’entrée de la Pologne dans труда, значительно улучшились шансы трансграничной l’UE en 2004 et à l’ouverture des marchés du travail quelques региональной интеграции. Примерно с 2004 г. отмечается années plus tard, les opportunités d’intégration régionale - растущая функциональная трансграничная интеграция transfrontalière se sont nettement accrues. Depuis 2004 маятниковых трудовых миграций, на рынке жилья, в при environ, on observe une interdépendance transfrontalière - граничной торговле и услугах, а также в области прямых fonctionnelle croissante à diverses échelles: employés faisant - инвестиций. Подобным же образом происходит развитие la navette entre leur domicile et leur lieu de travail, marché im институциональных механизмов, в особенности при ре mobilier, déplacements liés aux achats, investissements directs - - ализации региональных проектов. Крупномасштабное et secteur des services et de l’artisanat. De la même manière, - - управление реализуется сложнее, поскольку с точки зре le développement des réglementations institutionnelles pro - ния национальных государств на переднем плане находят gresse, en particulier en ce qui concerne la réalisation de pro - ся другие интересы. В 2010 г. был сделан важный шаг в раз jets régionaux. La gouvernance à grande échelle s’impose en витии институционально оформленного трансграничного revanche plus difficilement, car du point de vue des États na - метрополитенского региона, когда различные местные и tionaux, d’autres intérêts priment. L’année 2010 marque une региональные акторы с польской стороны присоедини étape importante dans le développement institutionnel d’une лись к соответствующей трансграничной инициативе. région métropolitaine transfrontalière; les différents acteurs - locaux et régionaux côté polonais se rallient alors à une telle Трансграничное развитие; (трансграничный) метрополи initiative. - тенский регион; функциональные связи; региональное управление; Европейская интеграция. Développement transfrontalier; région métropolitaine (trans frontalière); relations fonctionnelles; gouvernance régionale; intégration européenne

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