Administration, val. 61, no. 3 (2013), pp. 75-99

Regional governance and bottom-up regional development in the Border Region and County Cavan

Laura Shannon & Chris van Egeraat Department of Geography and National Institute for Regional and Spatial Analysis, NUl Maynooth

Abstract

This paper investigates the link between regional governance and bottom-up regional development in Ireland. Ireland's approach to regional development has attempted to mirror international best practice, but with little success. Extant literature suggests that the inadequate statutory regional governance provisions and the fragmentation of regional structures of government, semi­ state agencies and other institutions will frustrate horizontal, vertical and diagonal coordination between actors and, as a result, impede effective bottom-up regional development. The case study of the Border Region and County Cavan provides an in-depth analysis of the levels of horizontal, vertical and diagonal coordination between local, regional and national stakeholders in the preparation and implementation of specific development plans and strategies. The analysis shows that the statutory provisions have strengthened considerably over the years, having a general positive effect on coordination. However, horizontal and diagonal coordination remain weak, impeding the prospects of bottom-up regional development.

Keywords: Regional development, governance, coordination, Border Region

Introduction This paper investigates regional governance and bottom-up regional development in Ireland. Recent international trends have seen a shift from 'top-down' to 'bottom-up' approaches alongside a move from government to governance and devolution of powers to the sub­ national level (Pike et al., 2006). The international trends and theoretical approaches are, to some extent, mirrored in regional development thinking and policy in

75 76 LAURA SHANNOC\ AND CHRIS VAN EGERAAT Regional development in the Border Region

Ireland. The bottom-up approach received a major impulse with the The underlying project was gui launch of The National Spatial Strategy for Ireland 2002-2020 (NSS). In involving the Border Region an< aiming for each region to reach its full potential, the NSS made assessment of the nature of Irela allowances for the different circumstances of different regions and and the impact on bottom-up n promoted the use of regional resources. Local and regional actors scales of government facilitates were accorded a greater role in the development and implementation actors influence the regional and of regional strategies and initiatives. It was acknowledged that the new To give the project a clear f approach required a supporting system of local and regional preparation and implementatio1 governance, and a set of provisions were included. plans/strategies from within the The potential of the NSS was never realised, however, and its These plans and strategies cover < failure has been widely discussed by academics and others to give the research even great< (Breathnach, 2013). The lack of regional governance has been concerned with the economic a suggested as one of the main reasons for this failure. Observers have investigated the preparation commented that the implementation of the NSS and other related elements of the following thre< plans and policies has not resulted in a truly meaningful level of Authority's (BRA) Regional Pfa, regional governance which can facilitate bottom-up regional Regional Authority, 2010); the development (Meredith & van Egeraat, 2013; O'Riordain, 2012a). 2008-2014, Variation No. 2 (CCI Although much has been written on the problems with regional Department, 2010); and the Ca· governance in Ireland, there are few detailed empirical analyses of the Strategy for the Economic, Social actual level of, and problems with, horizontal, vertical and diagonal Cavan 2002-2012 (CCDBS; 20l coordination at the local, regional and national level. examine the coordination of pla In this context, the aim of this paper is to increase our structure in order to gain a broa• understanding of the link between regional governance and bottom-up The main research tools wer regional development by providing a detailed case study of regional The research involved intervie\ governance in the Border Region of Ireland. It identifies the statutory governance and in a range of in and non-statutory provisions for bottom-up regional development, state and private sectors. In all, and how these emerge in practice through the preparation and Four interviews were conduct< implementation of a set of local and regional development plans and Ireland, FAS, Failte Ireland strategies. The case study investigates actual practices of local, conducted with both elected an regional and national government and governance in the Border and five interviews were cond1 Region and County Cavan. It focuses on the vertical, horizontal and (two planners, a staff member diagonal coordination between (and within) the various levels of Section, a former staff membe government, as well as other relevant actors in local and regional Section and a staff member of 1 development such as government departments, state and semi-state group for Economic Develo agencies and institutions, the voluntary sector and the private sector. interviewed a member of the The aims and objectives of the underlying research project have Forum. The semi-structured i1 obtained additional relevance in the context of the recently launched hour. All interviews were recorc Putting People First: Action Programme for Effective Local Govemment (Department of the Environment, Community and Local Government, 2012) and the review of the current NSS (O'Brien, 1 References to functions of interviewee: 2013). to secure confidentiality. URA SHANNON AND CHRlS VAN EGERAAT Regional development in the Border Region and County Cavan 77 eceived a major impulse with the The underlying project was guided by a multilevel case study design gy for Ireland 2002-2020 (NSS). In involving the Border Region and County Cavan. This facilitated an ts full potential, the NSS made assessment of the nature of Ireland's system of multilevel governance 1stances of different regions and and the impact on bottom-up regional development. Studying both urces. Local and regional actors scales of government facilitates an understanding of how local-level development and implementation actors influence the regional and national plans, and vice versa. It was acknowledged that the new To give the project a clear focus, research concentrated on the system of local and regional preparation and implementation of a specific set of development were included. plans/strategies from within the Border Region and County Cavan. never realised, however, and its These plans and strategies cover a broad spectrum of areas so, in order sed by academics and others to give the research even greater focus, the research was primarily regional governance has been concerned with the economic aspects of these plans. The research ns for this failure. Observers have investigated the preparation and implementation of economic )n of the NSS and other related elements of the following three documents: The Border Regional d in a truly meaningful level of Authority's (BRA) Regional Planning Guidelines 2010-2022 (Border facilitate bottom-up regional Regional Authority, 2010); the Cavan County Development Plan •eraat 2013· O'Riordain, 2012a). 2008-2014, Variation No. 2 (CCDP; Cavan County Council Planning ' on ;he pr~blems with regional Department, 2010); and the Cavan County Development Board's A r detailed empirical analyses of the Strategy for the Economic, Social and Cultural Development of County horizontal, vertical and diagonal Cavan 2002-2012 (CCDBS; 2002). It was considered important to md national level. examine the coordination of plans and actors outside of the planning this paper is to increase our structure in order to gain a broader perspective. ~gional governance and bottom-up The main research tools were document analysis and interviews. a detailed case study of regional The research involved interviews with actors at different levels of f Ireland. It identifies the statutory governance and in a range of institutions, including the public, semi­ )Ottom-up regional development, state and private sectors. In all, thirteen interviews were conducted. ce through the preparation and Four interviews were conducted with national-scale actors (IDA d regional development plans and Ireland, FAS, Failte Ireland and Ibec), three interviews were igates actual practices of local, conducted with both elected and non-elected members of the BRA, t and governance in the Border and five interviews were conducted with county-level stakeholders ses on the vertical, horizontal and (two planners, a staff member of the Community and Enterprise md within) the various levels of Section, a former staff member of the Community and Enterprise vant actors in local and regional Section and a staff member of the County Development Board Sub­ departments, state and semi-state group for Economic Development).l The research team also tary sector and the private sector. interviewed a member of the Cavan Community and Voluntary underlying research project have Forum. The semi-structured interviews typically lasted about one e context of the recently launched hour. All interviews were recorded and fully transcribed. ~me for Effective Local Government nent, Community and Local :w of the current NSS (O'Brien, l References to functions of in tervicwees in this text are kept deliberately vague in order to secure confidentiality. 78 LAURA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Rer,

This paper begins with a conceptualisation of bottom-up regional Table 1: Top-down and b development and governance. This is followed by an analysis of the dt: provisions for bottom-up regional development, including the level of 1i·aditional top-down development concordance between the boundaries of the various regional policies institutions. The paper then proceeds with an analysis of the actual level of vertical, horizontal and diagonal coordination involved in the 1. Top-down approach in which preparation and implementation of the planning and strategy decisions about the areas whcr documents in the case-study region. The paper concludes with a intervention is needed are mac discussion of the key findings, against the background of recent policy centrally decisions. 2. Managed by the central administration Bottom-up regional development and governance This section introduces the shift from top-down to bottom-up approaches to regional development, the concomitant shift from government to governance, and the related issue of vertical, horizontal 3. Sectoral approach to and diagonal coordination. development Early approaches to regional development were characterised by 4. Development of large industri. the central state delivering development to Jagging regions through projects, that will foster other injection of resources from the outside on standardised, one-size-fits­ economic activity all lines. Regions were often assumed to be devoid of entrepreneurial or other resources and had little input in the formation or implementation of the policies (Keating, 1997). These top-down approaches to regional development were considered unsustainable 5. Financial support, incentives a during the oil crisis and recessions of the 1970s and 1980s as subsidies as the main factor of governments had to cut spending and unemployment hit even the attraction of economic activity most prosperous of regions (Keating et al., 2003). Alongside an ever­ increasing, globalised, neo-liberal agenda, bottom-up approaches to Source: Adapted from Pike et al. local and regional development were increasingly favoured, with the idea that regions compete in a global capitalist market. These functions, previously carried endogenous approaches make allowances for the different been transferred vertically to circumstances of individual regions by promoting local enterprise and occurred at different rates (l the use of regional advantages and resources. Ideas and initiatives are forms in different countries, formulated and driven by regional actors. Table 1 summarises the main power and legislation to a n differences between the two approaches. financial duties (Rodriguez-P Successful bottom-up regional development approaches are power is being devolved. So believed to require a concomitant shift from central government to regional and local levels, whil regional and local governance. There are two elements to this shift: to monetary management, hm devolution and a shift from government to governance. Devolution giving rise to complex system5 involves the decentralisation of powers and responsibilities from the While some have seen dev< national to the sub-national scale (Pike et al., 2006). Many services and policy that is tailored to the JRA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 79 tualisation of bottom-up regional Table 1: Top-down and bottom-up approaches to regional is followed by an analysis of the development ~velopment, including the level of Traditional top-down development Local and regional (or bottom-up) !aries of the various regional policies development policies ds with an analysis of the actual onal coordination involved in the 1. Top-down approach in which 1. Promotion of development in all of the planning and strategy decisions about the areas where territories with the initiative often m. The paper concludes with a intervention is needed are made coming from below ;t the background of recent policy centrally 2. Managed by the central 2. Decentralised, vertical administration cooperation between different tiers of government and : and governance horizontal cooperation between from top-down to bottom-up public, private and voluntary :nt, the concomitant shift from bodies ·elated issue of vertical, horizontal 3. Sectoral approach to 3. Territorial approach to development development (locality, milieu) velopment were characterised by 4. Development of large industrial 4. Use of the development potential 1ment to lagging regions through projects, that will foster other of each area, in order to ide on standardised, one-size-fits­ economic activity stimulate a progressive :d to be devoid of entrepreneurial adjustment of the local economic :le input in the formation or system to the changing economic (eating, 1997). These top-down environment 1t were considered unsustainable 5. Financial support, incentives and 5. Provision of key conditions for ms of the 1970s and 1980s as subsidies as the main factor of development of economic activity and unemployment hit even the attraction of economic activity 5 et al., 2003). Alongside an ever­ geuda, bottom-up approaches to Source: Adapted from Pike eta!. (2006). ~e increasingly favoured, with the global capitalist market. These functions, previously carried out directly by the central state, have allowances for the different been transferred vertically to the sub-national level. Devolution has by promoting local enterprise and occurred at different rates (Loughlin, 2001) and has taken different esources. Ideas and initiatives are forms in different countries, ranging from the decentralisation of tors. Table 1 summarises the main power and legislation to a mere delegation of responsibilities and ches. financial duties (Rodriguez-Pose & Gill, 2004). In addition, not all development approaches are power is being devolved. Some powers have moved down, to the shift from central government to regional and local levels, while other powers, including those related re are two elements to this shift: to monetary management, have moved up, to the supra-regional scale, tment to governance. Devolution giving rise to complex systems of multilevel government. vers and responsibilities from the While some have seen devolution as a potential for creating public ke et al., 2006). Many services and policy that is tailored to the particular needs of local and regional Regional development in the Border Reg, 80 LAURA SHANNON AND CHRIS VAl\1 EGERAAT circumstances, others have questioned the efficiency and effectiveness Rhodes states that 'governar of the process (Rodriguez-Pose & Gill, 2005). This is due to many p. 658). Given the increasing n factors, including mistrust of public institutions, additional cost and complex task. The complexity o bureaucracy associated with devolution, as well as the continued about the actual operation c questioning of the relevance of a regional level of government/ particularly in relation to acco governance (Pike & Tomaney, 2004). system it can prove very difficu Governance refers to development away from a system where the what, and therefore who can b( Issues arise from the divt government does everything to a system of institutional inter­ involved, and constructing eff dependence (Rhodes, 1996). The shift from government to govern­ can be problematic. Meijers ance intensified during the 1990s when, faced with a fiscal crisis, organising capacity' as a key J governments needed to find new forms of intervention and control, extent to which regional actc which materialised as the creation of a range of new agencies and common interest or identity. institutions (Goodwin, 2009). regional-level partnerships anc Governance involves an increasing emphasis on partnerships regional fragmentation of c between governmental, quasi-governmental and non-governmental organisational systems in the p (private and voluntary) organisations, with government seen as a Managing multilevel govern. steering agency (Pike et a!., 2006). In this system the provision of horizontal, vertical and diagono public services is no longer the sole responsibility of central and local (O'Riordan, 2012b ). Vertical c government but instead involves a wide range of actors drawn from the across different levels of gover public, private and voluntary sectors (Goodwin, 2009). This has between the Department of th' resulted in the blurring of boundaries between and within public and Government (DECLG), regio private sectors (Stoker, 1998). This can take a traditional h Rhodes stresses that governance is not a synonym for government, directional form. Horizontal but signifies a change in the meaning of government, 'referring to a coordination between differer new process of governing; or a changed condition of ordered rule; or governance. Here we can t the new method by which society is governed' (Rhodes, 1996, p. 652). government departments or, a His definition of governance as 'self-organizing, inter-organizational county council and other Joca networks' is particularly interesting in the study of local and regional group or the local chamber of c development, as it refers to a shift from local government to local coordination between a set of I governance involving 'complex sets of organizations drawn from the argued that successful regi' public and private sectors' (Rhodes, 1996, p. 658). This shift to coordination - coordination b governance, in combination with devolution, gives rise to complex different levels of governance. systems of institutional interdependence, wherein services are delivered by a range of independent actors at different scales. The Policy such as the NSS, for e latter is referred to as multilevel governance. to succeed if implement< The independent actors form a 'self-organizing network', which Department of the Envi implies a significant degree of autonomy from the state. Such Government along with tr networks are considered more suitable to tackle local and regional application across all layer problems as they can facilitate the creation of policies by multiple department. A local policy b stakeholders from the bottom up. with education provision, h Regional development in the Border Region and County Cavan 81 lA SHANNON AND CHRIS VAN EGERAAT l the efficiency and effectiveness Rhodes states that 'governance is about managing networks' (1996, rill, 2005). This is due to many p. 658). Given the increasing number of actors involved, this can be a complex task. The complexity of governance networks raises questions [nstitutions, additional cost and about the actual operation of the new structure of governance, :ion, as well as the continued particularly in relation to accountability (Goodwin, 2009). In such a regional level of government/ system it can prove very difficult to distinguish who is responsible for what, and therefore who can be held accountable. t away from a system where the Issues arise from the diversity of organisations and interests system of institutional inter­ involved, and constructing effective regional governance structures itt from government to govern­ can be problematic. Meijers & Romein (2003) identify 'regional rhen, faced with a fiscal crisis, organising capacity' as a key factor in this respect, referring to the ms of intervention and control, extent to which regional actors perceive themselves as sharing a ,f a range of new agencies and common interest or identity. The formation and functioning of regional-level partnerships and networks can be hampered by intra­ ing emphasis on partnerships regional fragmentation of civil jurisdictions and corresponding 1mental and non-governmental organisational systems in the private and voluntary sector. 1s, with government seen as a Managing multilevel governance networks requires strong levels of In this system the provision of horizontal, vertical and diagonal coordination across the various scales esponsibility of central and local (O'Riordan, 2012b ). Vertical coordination refers to the coordination e range of actors drawn from the across different levels of government; for example, the coordination >rs (Goodwin, 2009). This has between the Department of the Environment, Community and Local s between and within public and Government (DECLG), regional authorities and local government. This can take a traditional hierarchical, top-down form or a two­ ; not a synonym for government, directional form. Horizontal coordination generally refers to the g of government, 'referring to a coordination between different sectoral units at the same level of ed condition of ordered rule; or governance. Here we can think of the links between various overned' (Rhodes, 1996, p. 652). government departments or, at a lower scale, the links between the -organizing, inter-organizational county council and other local actors, such as a local development 1 the study of local and regional group or the local chamber of commerce. It is also used to refer to the from local government to local coordination between a set of local authorities. It is increasingly being )f organizations drawn from the argued that successful regional governance requires diagonal s, 1996, p. 658). This shift to coordination - coordination between different sectoral units across :volution, gives rise to complex different levels of governance. ndence, wherein services are t actors at different scales. The Policy such as the NSS, for example, cannot possibly be expected :rnance. to succeed if implementation is to be left solely to the 'self-organizing network', which Department of the Environment, Community and Local ttonomy from the state. Such Government along with the local authorities. The NSS has ble to tackle local and regional application across all layers of government and not just one creation of policies by multiple department. A local policy body such as a local authority, dealing with education provision, health care, housing and transporta- 82 LAURA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Re1

tion, has to structure its policy framework to allow for cross over. are essential for collecting d (O'Riordan, 2012b, p. 1) activities of different agew p. 26) Successful bottom-up regional development and effective regional governance and coordination require proper statutory and non­ The calls were repeated in the statutory provisions, foremost a regional tier of government. Ireland's have remained on the agenda < system of governance has traditionally been strongly centralised Regional Authority, 1995; Mic (Bannon, 1989; Breathnach, 2013). The first attempt at establishing a In summary, successful t regional dimension to sub-national government came in 1963 with the effective regional governance creation of nine planning regions under the Local Government Act, statutory and non-statutory pr 1963 (Laffan, 1996). In 1994, under pressure from the EU, Ireland of concordance in the bo established eight regional authorities, while two regional assemblies government departments, a were established in 1998. However, the authorities had initially a very provisions do not guarantee p limited remit and the regional structures had little effect on following sections provide a de meaningful bottom-up regional development (Boyle, 2000). in the Border Region and C01 Adshead & Quinn (1998) identified the emergence of what they provisions for regional goven referred to as 'state-sponsored bottom-up development' during the actual practices of vertical, ho 1990s. The Irish Government took responsibility for guiding and directing regional policy but left the initiative and detail to a wide range of regional development interests at local level. However, the Statutory and regulatory p problem was a lack of formal structures and functional/territorial development and regional : divisions between different network actors (Adshead, 2003). The regional authorities ha The bottom-up approach to regional governance received a major Government Act, 1991 (Regie impulse with the launch of the NSS in 2002. It was acknowledged that 1993. In the most general the proposed bottom-up approach required a supporting system of authorities is to promote C( local and regional governance, and the NSS included a set of services in their regions. Tr provisions for statutory and regulatory underpinnings for regional terms, through two key pit governance. The details and impact of these provisions will be Development Act, 2000 (sec discussed further in the next section of this paper. Development (Amendment). It has been argued that successful coordination also requires In 2000 regional authoritic concordance between the boundaries of local and regional units of of creating strategic planning government and governance. In Ireland the lack of a meaningful tier regions under the Planning < of regional government has resulted in an extremely fragmented was a step towards a more sut geography of regional structures of government and semi-state bodies. one of the problems was th< Several reports have called for the alignment of the geographical regard to' the regional plan structures of state and semi-state agencies to the boundaries of the new development plans for n regional authorities. In 1991 the Barrington report summarised the This issue was partly addr logic as follows: Planning and Development requires the RPGs to be set it is impossible to develop any sort of regional consciousness if aligned to its population the boundaries shift for different purposes. Common boundaries statutory link between the tw< RA SHANNON AND CI!RIS VAN EGERAAT Regional development in the Border Region and County Cavan 83

1ework to allow for cross over. are essential for collecting data; for planning and for relating the activities of different agencies. (Government of Ireland, 1991, p. 26) ~lopment and effective regional ire proper statutory and non­ The calls were repeated in the aftermath of the launch of the NSS and mal tier of government. Ireland's have remained on the agenda of regional authorities since (e.g. Dublin nally been strongly centralised Regional Authority, 1995; Mid-East Regional Authority, 1996). 'he first attempt at establishing a In summary, successful bottom-up regional development and overnment came in 1963 with the effective regional governance and coordination depend on proper 1der the Local Government Act, statutory and non-statutory provisions. In this we can include the level · pressure from the EU, Ireland of concordance in the boundaries of local/regional units of s, while two regional assemblies government departments, agencies and other actors. However, he authorities had initially a very provisions do not guarantee proper coordination between actors. The ;tructures had little effect on following sections provide a detailed case study of regional governance lopment (Boyle, 2000). in the Border Region and County Cavan. The case study analyses the 'ied the emergence of what they provisions for regional governance, the role of concordance and the :om-up development' during the actual practices of vertical, horizontal and diagonal coordination. ( responsibility for guiding and e initiative and detail to a wide rests at local level. However, the Statutory and regulatory provisions for bottom-up regional 1ctures and functional/territorial development and regional governance actors (Adshead, 2003). The regional authorities have a statutory basis under the Local mal governance received a major Government Act, 1991 (Regional Authorities) (Establishment) Order, [n 2002. It was acknowledged that 1993. In the most general sense, the main role of the regional required a supporting system of authorities is to promote coordination of the provision of public nd the NSS included a set of services in their regions. This role was strengthened, in statutory ttory underpinnings for regional terms, through two key pieces of legislation: the Planning and act of these provisions will be Development Act, 2000 (sections 21 to 27), and the Planning and of this paper. Development (Amendment) Act, 2010. ssful coordination also requires In 2000 regional authorities were given the statutory responsibility es of local and regional units of of creating strategic planning frameworks for the development of the land the lack of a meaningful tier regions under the Planning and Development Act, 2000. While this :ed in an extremely fragmented was a step towards a more substantial role for the regional authorities, rovernment and semi-state bodies. one of the problems was that local authorities merely had to 'have ~ alignment of the geographical regard to' the regional planning guidelines (RPGs) when adopting Lgencies to the boundaries of the new development plans for their areas. arrington report summarised the This issue was partly addressed in 2010 with the enactment of the Planning and Development (Amendment) Act, 2010. The 2010 Act requires the RPGs to be set in the policy framework of the NSS and )rt of regional consciousness if aligned to its population targets, thereby providing a stronger purposes. Common boundaries statutory link between the two documents. This was carried through to 84 LAURA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Re1 the county and city level through the introduction of the 'Core The RPG implementation con Strategy', which ensures that local authority development plans are the eight regional authorities consistent with the RPGs and the NSS. It also gave regional authorities' statutory powers a authorities 'explicit' roles in the drafting and preparation of the local authority development plans authority development plans, and provided a structure for reporting Strategy'. In terms of impleme any variations or inconsistencies that occurred (Department of the effect outside of the hierarchy Environment, Heritage and Local Government, 2010). Interviewed role is questionable, as there a staff from the BRA welcomed the introduction of the 2010 Act as it authorities who fail to comply· gave regional documents 'a bit more teeth', although they remained decides to vary a development concerned about the lack of sanctions imposed on local authorities for submission with observations ' non-compliance with the RPGs (see below). variation. The purpose of the The EU Strategic Environmental Assessment (SEA) Directive has achieved between the plan as a been another positive development for increasing compliance of local the regional authority are ther authority plans with RPGs. The SEA Directive requires that certain makes submissions with obsen plans and programmes, prepared by statutory bodies, which are likely tend to be strategic in nature to have a significant impact on the environment be subject to the SEA content of the regional au submission, but it is the respo1 process. The regional authorities are therefore required to ensure that submissions should be upheld. the RPGs are prepared in accordance with the Planning and Another major problem th: Development (Strategic Environmental Assessment) Regulations, submissions to the local author 2004 (Border Regional Authority, 2010). Likewise, local authorities board members of the regi must also prepare a SEA in conjunction with their development plans. foremost, members of the loca BRA staff viewed SEA as a 'powerful tool' in ensuring that the local projects and initiatives complied with the RPGs (Interview, BRA So we're basically asking me staff). they do. That is not in my op The statutory provisions for regional governance in Ireland have democracy but it is not. It · undoubtedly improved since the establishment of the regional like it or not, what we writ; authorities in 1994, but the extent to which this stipulates coordination we write in a way that we he between actors involved in the preparation and implementation of staff) local and regional development plans is questionable. A reoccurring issue that arose in the interviews was the lack of a statutory obligation The statutory framework for other state agencies to be involved in the process of preparing implementation of developm and implementing the RPGs. In relation to this, one BRA employee number of genuine improveme mentioned the following in relation to the RPG implementa­ of the improvements in the S) tion committees, which involve a range of state and semi-state and regulatory provisions agencies, including Enterprise Ireland, IDA Ireland, Teagasc and so government remain a key prob forth: and bottom-up regional develc

Yet again, they were under no obligation to turn up, statutory or Concordance in the bounda otherwise ... We are trying to make that point at the minute, that it can't be an option, that it has to be obligatory that they would The lack of an effective tier c attend the meetings and feed into it. (Interview, BRA staff) an extremely fragmented g Regional development in the Border Region and County Cavan 85 tA SHANNON AND CHRIS VAN EGERAAT the introduction of the 'Core The RPG implementation committees have had varied success across uthority development plans are the eight regional authorities, and it would seem that the regional ~ NSS. It also gave regional authorities' statutory powers are limited to the compliance of the local ing and preparation of the local authority development plans with the RPGs through the 'Core wided a structure for reporting Strategy'. In terms of implementation, therefore, the RPGs have little t occurred (Department of the effect outside of the hierarchy of planning documents. And even this rovernment, 2010). Interviewed role is questionable, as there are no specific sanctions set out for local traduction of the 2010 Act as it authorities who fail to comply with the RPGs. Where a local authority teeth', although they remained decides to vary a development plan, the regional authority prepares a submission with observations and recommendations on the proposed imposed on local authorities for variation. The purpose of the submission is to ensure consistency is >elow). achieved between the plan as amended and the RPGs. Submissions by \ssessment (SEA) Directive has the regional authority are therefore quite detailed. The DECLG also >r increasing compliance of local makes submissions with observations on development plans but these , Directive requires that certain tend to be strategic in nature. The DECLG may use the detail and .tatutory bodies, which are likely content of the regional authority submission to inform their vironment be subject to the SEA submission, but it is the responsibility of the minister to decide if the herefore required to ensure that submissions should be upheld. iance with the Planning and Another major problem that remains with this system is that the ntal Assessment) Regulations, submissions to the local authorities have to be approved by the elected HO). Likewise, local authorities board members of the regional authorities, who are, first and Jn with their development plans. foremost, members of the local authorities. l tool' in ensuring that the local th the RPGs (Interview, BRA So we're basically asking members to correct themselves in what they do. That is not in my opinion a good system. It may be called •nal governance in Ireland have democracy but it is not. It just doesn't work. And, whether we establishment of the regional like it or not, what we write in our submissions, subconsciously vhich this stipulates coordination we write in a way that we hope to get approval. (Interview, BRA >aration and implementation of staff) s is questionable. A reoccurring the lack of a statutory obligation The statutory framework governing the preparation and ted in the process of preparing implementation of development plans outlined above includes a tion to this, one BRA employee number of genuine improvements, but more needs to be done. In spite on to the RPG implementa­ of the improvements in the system, the deficiencies in the statutory range of state and semi-state and regulatory provisions underpinning the regional tier of d, IDA Ireland, Teagasc and so government remain a key problem for the implementation of the NSS and bottom-up regional development.

gation to turn up, statutory or Concordance in the boundaries of local and regional units • that point at the minute, that be obligatory that they would The lack of an effective tier of regional governance has resulted in it. (Interview, BRA staff) an extremely fragmented geography of regional structures of tl6 LAURA SHANNON AND CHRIS VAN EGERAAT Regional developmem in the Border Re[i,

government, state agencies and other bodies. During the period from While the extant literature the 1960s to the late 1980s, a number of separate regional that concordance of regional administrative structures and agencies were established, including Ireland, the analysis of interv regional tourism authorities, IDA regions, regional health boards and complex issue. the planning regions. The boundaries of the regions were not The misalignment was note consistent (Laffan, 1996). By way of illustration, Table 2 outlines the w~en compiling data for the p1 misalignment of the territorial boundaries of the regional authorities F AS regions do not align to th< and the two industrial promotions agencies, IDA Ireland and the regional authority boundm Enterprise Ireland. new education and training be and the vocational education Table 2: Territorial boundaries of regional authorities, IDA Ireland for the alignment of the new E and Enterprise Ireland to facilitate labour market 3 Household Survey data are pn Enterprise Ireland Regional IDA level). The misalignment wil Authority (8) (8) (6) labour market data, necessary !r,: Border Donegal, Sligo, North-West: Donegal, Donegal, Sligo, will not be available for the E1 Leitrim, Cavan, Sligo Leitrim Leitrim, Cavan, Monaghan, Louth North-East: Monaghan, Louth that the main issue here is o Cavan, Monaghan, policy coordination at the regi Louth No other national-level actc West Galway, Mayo, Galway, Mayo Galway, Mayo, of regional boundaries as an Roscommon Roscommon structures for managemen Midlands Laois, Offaly, Roscommon, Longford Laois, Offaly, organisational and operatio1 Longford, Westmeath, Longford, optimal regional configur< Westmeath Offaly, Laois Westmeath organisation. This can be il Mid-East Kildare, Meath, East: Dublin, Dublin, Kildare, regional configuration. The B< Wicklow Kildare, Meath, Meath, Wicklow Wicklow IDA regions, the North-East 3 Dublin Dublin City, Fingal, N/A N/A promotion perspective, thes( South Dublin, requirements, requiring diffe Dun Laoghaire/ North-East and the North-V Rathdown units ... they are two different Mid-West Clare, Limerick, Clare, Limerick, Clare, Kerry, Similarly, the regional con North Tipperary North Tipperary Limerick, North internal operational consider; Tipperary through no less than three difJ South-West Cork, Kerry Cork, Kerry N/A South-East Kilkenny, Carlow, Kilkenny, Carlow, N/A and Monaghan), North-West Wexford, Waterford Wexford, Waterford (Louth). When partnerships City/County, South City/County, and local and regional stakehc Tipperary South Tipperary specific basis, with little regar South N/A N/A Cork, Waterford, of Failte Ireland staff, misali! South Tipperary, 'How we are organised intern< Kilkenny, Carlow, business ... there is no issue ar Wexford Surprisingly, the misalignmen Sources: Institutional Internet sites. of the Border Region did no1 t.. SH~NNON AND CHRIS VAN EGE~T Regional development in the Border Region and County Cavan 87 bodies. During the period from While the extant literature and reports referred to above suggest umber of separate regional that concordance of regional boundaries should be a priority in es were established, including Ireland, the analysis of interview data indicates that this is a more ons, regional health boards and complex issue. ·ies of the regions were not The misalignment was noted as a particular issue by staff at F As llustration, Table 2 outlines the when compiling data for the purpose of skills and training needs. The iries of the regional authorities F As regions do not align to the regional authorities. The disregard for agencies, IDA Ireland and the regional authority boundaries was evident with the creation of the new education and training boards (ETBs ), which will integrate F As and the vocational education committees (VECs). FAS made a case :ional authorities, IDA Ireland for the alignment of the new ETBs with the regional authority regions to facilitate labour market analysis (the CSO Quarterly National ~Ireland Household Survey data are provided at the NUTS3 regional authority )A Enterprise Ireland level). The misalignment will mean that accurate and up-to-date 8) (6) labour market data, necessary for deciding on a portfolio of training, 'est: Donegal, Donegal, Sligo, will not be available for the ETB regions. However, it should be noted itrim Leitrim, Cavan, that the main issue here is one of data collection, and not directly Monaghan, Louth ast: policy coordination at the regional level. v1onaghan, No other national-level actors interviewed viewed the misalignment Mayo Galway, Mayo, of regional boundaries as an issue. They operate their own regional Roscommon structures for management and organisation. The internal mon, Longford Laois, Offaly, organisational and operational efficiency is paramount and the ath, Longford, optimal regional configuration differs from organisation to "aois Westmeath organisation. This can be illustrated with reference to the IDA 1blin, Dublin, Kildare, regional configuration. The Border Region is serviced by two separate Meath, Wicklow Meath, IDA regions, the North-East and the North-West. From an investment N/A promotion perspective, these are different regions with different requirements, requiring different strategies and interventions. 'The North-East and the North-West. .. they would be the operational units ... they are two different sells' (Interview, IDA Ireland staff). imerick, Clare, Kerry, Similarly, the regional configuration of Failte Ireland is driven by ipperary Limerick, North internal operational considerations. The Border Region is promoted Tipperary through no less than three different tourist regions: Lakelands (Cavan erry N/A and Monaghan), North-West (Donegal, Leitrim and Sligo) and East y, Carlow, N/A l, Waterford (Louth). When partnerships occur between these national agencies unty, and local and regional stakeholders, however, they operate on a place­ 'ipperary specific basis, with little regard to the regional structures. In the view Cork, Waterford, of Failte Ireland staff, misalignment does not appear to be an issue. South Tipperary, 'How we are organised internally to get the job done is kind of our own Kilkenny, Carlow, business ... there is no issue around it' (Interview, Failte Ireland staff). Wexford Surprisingly, the misalignment of boundaries and internal incoherence of the Border Region did not figure high on the agenda of the BRA 88 LAURA SHANNON AND CHRIS VAI'i EGERAAT Regional development in the Border Regie staff either. It is recognised that there are advantages to alignment: 'In Research concentrated on the an ideal world, if you could just align all regions and structures, it three development plans/strate would be much easier' (Interview, BRA staff). However, the and County Cavan: The Bl downsides of misalignment could be relatively easily overcome by 2010-2022, the CCDP and the trying to engage all actors operating in the region, regardless of their concerned with the economic a~ regional structures. The main issue BRA staff identified relates back This section will analyse the F to the non-statutory requirement for national or regional agencies to economic aspects of the Border attend and participate in the review of RPGs. The issue is not the opportunities are addressed in misalignment of boundaries, but the real value attributed to the Strategy' of the RPGs. This str regional tier of government. tiveness Agendas prepared by I (Forfas, 2010). Section 4.7 of 1 You were never going to get, in relation to IDA for example, two ment Plan Implications', whic actors [one from each IDA region]. There would be an should incorporate the strategy agreement, through IDA national structures, that one person The BRA is extremely limi1 would attend and more or less represent both IDA regions. I making its role of promoting C• don't believe that happens. I believe whoever is sitting at the services extremely difficult. ThE table will represent their own region ... I don't think you are by the RPG Implementation getting the full picture. (Interview, BRA staff) steering committee comprised < stakeholders such as county This research therefore suggests that the effectiveness of regional Ireland, Forfas, VECs and < governance should not be hung up on the lack of concordance comprised of the senior planne1 between regional boundaries. While the alignment of regional in the region, assists in the pref boundaries with the regional authorities would make data collection Bottom-up approaches to and policy coordination an easier task, it is not the key issue. potential for localities to be th Allmendinger & Haughton come to a similar conclusion on the basis using local resources and knm of their recent work on administrative boundaries in the UK: 'You occur, there needs to be a syst• need frameworks that reflect the reality of how complex associational policy and strategies at the reg networks do not work to set boundaries. [Such frameworks] can work two-way vertical coordination b with and through the boundaries of different institutional geographies' government in the preparation, (2009, p. 631). stakeholders in the initial stal The key issue is the continued absence of proper statutory and invested in the plan and m< regulatory provisions that would underpin a regional tier of implementation. BRA staff pe1 government. What this means for regional governance and bottom-up the most active people involvec regional development in Ireland will be discussed in the following section. Staff from the local authorit the guidelines. For exampl Coordination in the preparation and implementation Council provided key assi of the Border RPGs Development' chapter. (IntE

The focus now turns to the actual practices of vertical, horizontal and BRA staff were less positive diagonal coordination in the Border Region and County Cavan. development board (CDB) '\URA SHANNON Al'ID CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 89 re are advantages to alignment: 'In Research concentrated on the preparation and implementation of 1lign all regions and structures, it three development plans/strategies from within the Border Region ew, BRA staff). However, the and County Cavan: The BRA's Regional Planning Guidelines be relatively easily overcome by 2010-2022, the CCDP and the CCDBS. The research was primarily g in the region, regardless of their concerned with the economic aspects of these plans. : BRA staff identified relates back This section will analyse the preparation and implementation of the Jr national or regional agencies to economic aspects of the Border RPGs. The economic challenges and ~w of RPGs. The issue is not the opportunities are addressed in 'Chapter Four - Regional Economic the real value attributed to the Strategy' of the RPGs. This strategy draws on the Regional Competi­ tiveness Agendas prepared by Forfas to inform the update of RPGs (Forfas, 2010). Section 4.7 of the Border RPGs provides 'Develop­ elation to IDA for example, two ment Plan Implications', which outline how the local authorities region]. There would be an should incorporate the strategy into their development plans. 1al structures, that one person The BRA is extremely limited in terms of staffing and funding, represent both IDA regions. I making its role of promoting coordination in the provision of public elieve whoever is sitting at the services extremely difficult. The preparation of the RPGs is overseen region ... I don't think you are by the RPG Implementation Officer and involves input from a w, BRA staff) steering committee comprised of relevant local, regional and national stakeholders such as county managers, IDA Ireland, Enterprise that the effectiveness of regional Ireland, Forfas, VECs and others. A technical working group, up on the lack of concordance comprised of the senior planners from each of the six local authorities !hile the alignment of regional in the region, assists in the preparation of the Border RPGs. )rities would make data collection Bottom-up approaches to regional development advocate the :r task, it is not the key issue. potential for localities to be the agents of their own development by o a similar conclusion on the basis using local resources and knowledge to their advantage. For this to ative boundaries in the UK: 'You occur, there needs to be a system whereby local actors can influence :ality of how complex associational policy and strategies at the regional scale. There is some evidence of aries. [Such frameworks] can work two-way vertical coordination between the local and regional scales of different institutional geographies' government in the preparation of the Border RPGs. By including local stakeholders in the initial stages of preparing the RPGs, they are absence of proper statutory and invested in the plan and more likely to carry through with its d underpin a regional tier of implementation. BRA staff perceived the technical working group as :::gional governance and bottom-up the most active people involved in drafting the RPGs. Nill be discussed in the following Staff from the local authorities did participate in the drafting of the guidelines. For example, an officer from Cavan County 1 and implementation Council provided key assistance in drafting the 'Economic Development' chapter. (Interview, BRA staff)

>ractices of vertical, horizontal and BRA staff were less positive about the involvement of the county rder Region and County Cavan. development board (COB) in the preparation of the RPGs. 90 LAURA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Reg,

'I personally think that those actors and stakeholders involved in the infrastructure within their c CDBs, which represented all local interests, should have been more taking a regional perspectivt active, and actively engaged in RPG development' (Interview, BRA staff). In relation to horizontal coordi One of the main issues hindering a greater level of coordination RPG implementation committ between the two scales was the lack of resources, staff and time when level organisations and regie preparing development plans and strategies. This was a reoccurring agencies, including Forfas, In issue in all interviews with BRA and Cavan County Council research suggests that the hori employees. One of the county council planners indicated that their agencies is far from optimal: : involvement in the review of RPGs was satisfactory, 'but there is room they were put centre stage and for improvement' (Interview, county council staff I). sat back, and were not centrall The fact that the elected members of the regional authorities are, staff). The lack of a statuto first and foremost, local councillors was identified as an issue for participate in the preparatior vertical coordination with local authorities.2 This presents a number of therefore identified as a key challenges for the BRA in trying to promote a regional perspective: private-sector representatives 'Local authorities are still very much inward-looking and self­ recent decision to centralise it: contained' (Interview, BRA staff). This situation was also identified as policy feeding from the regie an issue in vertical coordination with national-level agencies, as we've given up on that mod councillors can be mainly concerned with what has been done for their around' (Interview, Ibec staff) particular county by national-level agencies such as IDA Ireland or The research found some, Failte Ireland. with adjoining regional auth The difficulties of getting local- and national-level actors on board East). The cross-border coor during the preparation of the RPGs are mirrored in their developed, and cross-border implementation. The RPGs are primarily implemented through the element of the 'Regional Ecc local authority development plans. The economic aspect of this RPGs. This coordination tc implementation is not as strong, however, and the 'Economic connections than by a statu Development' chapter of the CCDP does not refer to the RPGs. The These relations are also fac RPGs, in general, currently do not appear to have sufficient status of Central Border Area Networ1 credence for agencies when considering the developments that should Diagonal coordination 1 take place in the region, as highlighted by a number of road projects, departments, other than the I advocated as strategically important in the Border RPGs, which have that participation with othe1 been suspended) This makes the implementation of the RPGs more been better, and identified th challenging: One BRA interviewee sugges spent engaging other sta What's the point of having them there if they are not going to be departments: 'There is only ~ used? But then again, a lot of it comes down to local level and and get nothing back, so you local authorities vying for their roads and their own pieces of your time in terms of engagi staff). The example of teleco 2 The making of development plans and RPGs is a 'reserved function', which means that the members arc the key decision-makers in the process. emphasise the lack of diagc 3 This may be partly due to financial constraints in the current economic crisis. authorities and government c RA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 91 and stakeholders involved in the infrastructure within their own administrative area rather than 1terests, should have been more taking a regional perspective. (Interview, BRA staff) r development' (Interview, BRA In relation to horizontal coordination, some of this takes place via the ~ a greater level of coordination RPG implementation committee, which includes a range of regional­ Jf resources, staff and time when level organisations and regional representatives of national-level rategies. This was a reoccurring agencies, including Forfas, IDA Ireland and Enterprise Ireland. The 1. and Cavan County Council research suggests that the horizontal coordination with the enterprise cil planners indicated that their agencies is far from optimal: 'Absolutely no disrespect to Forfas, but as satisfactory, 'but there is room they were put centre stage and IDA, Enterprise Ireland and others just council staff I). sat back, and were not centrally involved in any way' (Interview, BRA s of the regional authorities are, staff). The lack of a statutory requirement for these agencies to ; was identified as an issue for participate in the preparation and implementation of the RPGs is 'ritics.2 This presents a number of therefore identified as a key issue. The coordination with regional promote a regional perspective: private-sector representatives was significantly reduced by Ibec's nuch inward-looking and self­ recent decision to centralise its operations: 'So instead of the regional lis situation was also identified as policy feeding from the regions, from the grassroots to the centre, with national-level agencies, as we've given up on that model. We're now doing it the other way with what has been done for their around' (Interview, Ibec staff). tgencies such as IDA Ireland or The research found some, but limited, evidence of coordination with adjoining regional authorities (West, Midlands and the Mid­ nd national-level actors on board East). The cross-border coordination, on the other hand, is better RPGs are mirrored in their developed, and cross-border projects and activities are a central narily implemented through the element of the 'Regional Economic Strategy' chapter of the Border . The economic aspect of this RPGs. This coordination tends to be driven more by personal however, and the 'Economic connections than by a statutory system of cross-border relations. does not refer to the RPGs. The These relations are also facilitated by networks such as the Irish ppear to have sufficient status of Central Border Area Network. ing the developments that should Diagonal coordination between the BRA and government ed by a number of road projects, departments, other than the DECLG, is weak. BRA employees stated in the Border RPGs, which have that participation with other government departments could have tplementation of the RPGs more been better, and identified this as an issue in the RPG review process. One BRA interviewee suggested that time and effort would be better spent engaging other stakeholders rather than government here if they are not going to be departments: 'There is only so many times you will go to somebody ~ames down to local level and and get nothing back, so you've got to decide what's the best use of ·oads and their own pieces of your time in terms of engaging people in this area' (Interview, BRA staff). The example of telecommunications projects was used to ; is a 'reserved function', which means that he process. emphasise the lack of diagonal coordination between the regional 1ts in the current economic crisis. authorities and government departments, in this case the Department 92 LAURA SHAN;\ION AND CHRIS VAN EGERAAT Regional dn·elopment in the Border Reg of Communications, Energy and Natural Resources. According to leading factor for that. They p< BRA staff, the department could have had more input in the between the planners and th telecommunications section of the RPGs. contact and consultation. 'I wm Forfas had the responsibility of producing a set of documents for as disagreements, more as colle the regions outlining the comparative advantages of the regions and must comply with the RPGs, th; potential for future development. The BRA used this as a baseline for (Interview, county council staff the economic development aspects of the Border RPGs, and did not BRA staff, on the other hanc see the need to prepare their own stand-alone regional economic of sanctions, as discussed in 1 development report. There was some evidence of diagonal regional authority observes tha1 coordination in that Forfas made some efforts to engage with local the RPGs, the most it can do i~ actors during the process of drafting the documents. The BRA held legislation is not perfect at pres< two workshops engaging local actors, and there would have 'certainly (Interview, BRA staff). been weekly communication with Forfas during that period' Outside of this strict hieran (Interview, BRA staff). there is very little coordination The levels of coordination in relation to the RPGs are therefore Staff at the Community and Er strongest in the traditional vertical, hierarchical structures. This is (who have responsibility for th< primarily due to the statutory backing of the regional authorities in as relevant to [them] as it is to tl this regard and the implementation of the RPGs through local council staff III). Both staff authority development plans. The research identified room for Enterprise Section and the BRJ improvement within the BRA in attempting to engage other actors of coordination and communic< horizontally and diagonally, especially those outside of the traditional It must be noted here, however planning hierarchy. Staff at agencies such as IDA Ireland and Failte in 2002, before the introductim Ireland supported this by suggesting that the RPGs have little effect or of coordination between the 1 power outside of planning documents. CCDBS were minimal. The Cor that, if they were redrafting t Coordination in the preparation and implementation of important to take the RPGs intr development plans and strategies of County Cavan As regards horizontal coord local stakeholders to engage in This section will examine coordination in the preparation and each county. These stakeholde implementation of development plans and strategies in County Cavan: representatives, LEADER gn the CCDP and the CCDBS. The 'Economic Development' chapter of social partners and state ager the CCDP focuses strongly on the CCDBS and working in partnership therefore focuses on the partner with the Cavan CDB. and cooperation between agenci Interviews again point to vertical coordination along hierarchical strategy relied on 'lead partr lines in the preparation of the CCDP. There are clear differences of interviews did not reveal partir opinions between local authority staff and BRA staff as regards the coordination at this inter-institu effectiveness of this coordination. The interviewed County Cavan However, there appears to planners point out that the CCDP has to strictly comply with the preparation of the CCDP and Border RPGs, which in turn are written within the policy framework different documents. The CCI of the NSS. Both planners stated that they felt a very strong obligation guidelines for the physical and 1 to comply with the Border RPGs and referenced the 2010 Act as the in the context of restrictions. Tr IRA SHAl'iNON Al'iD CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 93

atural Resources. According to leading factor for that. They paint a picture of a positive relationship have had more input in the between the planners and the BRA employees, involving regular PGs. contact and consultation. 'I wouldn't view [the BRA staff's] comments roducing a set of documents for as disagreements, more as colleagues providing advice ... and since we 'e advantages of the regions and must comply with the RPGs, that advice will always be taken on board' e BRA used this as a baseline for (Interview, county council staff I). >f the Border RPGs, and did not BRA staff, on the other hand, are less positive and point to the lack stand-alone regional economic of sanctions, as discussed in the section on provisions above. If a some evidence of diagonal regional authority observes that a local authority is not consistent with Jme efforts to engage with local the RPGs, the most it can do is make a submission. 'The process and ~ the documents. The BRA held legislation is not perfect at present and procedures could be improved' , and there would have 'certainly (Interview, BRA staff). h Forfas during that period' Outside of this strict hierarchical structure of planning, however, there is very little coordination between the local level and the BRA. 1tion to the RPGs are therefore Staff at the Community and Enterprise Section of the county council , hierarchical structures. This is (who have responsibility for the CCDBS) argued that 'the BRA isn't ng of the regional authorities in as relevant to [them] as it is to the planning section' (Interview, county m of the RPGs through local council staff III). Both staff members of the Community and research identified room for Enterprise Section and the BRA employees themselves noted the lack tempting to engage other actors of coordination and communication between the CDB and the BRA. y those outside of the traditional It must be noted here, however, that the original CCDBS was written > such as IDA Ireland and Failte in 2002, before the introduction of the RPGs and, as such, the levels :hat the RPGs have little effect or of coordination between the BRA and the CDB in preparing the s. CCDBS were minimal. The Community and Enterprise Section noted that, if they were redrafting the CCDBS now, they would feel it and implementation of important to take the RPGs into account. As regards horizontal coordination, the CDB brings together key > of County Cavan local stakeholders to engage in a process of long-term planning for 1ation in the preparation and each county. These stakeholders include local government, elected s and strategies in County Cavan: representatives, LEADER groups, county/city enterprise boards, anomie Development' chapter of social partners and state agencies operating locally. The CCDBS :DBS and working in partnership therefore focuses on the partnership model, encouraging coordination and cooperation between agencies, organisations and individuals. This coordination along hierarchical strategy relied on 'lead partners' to drive implementation. The P. There are clear differences of interviews did not reveal particular issues in relation to horizontal rff and BRA staff as regards the coordination at this inter-institutional level. The interviewed County Cavan However, there appears to be a lack of coordination in the has to strictly comply with the preparation of the CCDP and the CCDBS. These are clearly two tten within the policy framework different documents. The CCDP is a statutory document. It sets . they felt a very strong obligation guidelines for the physical and economic development of the county, d referenced the 2010 Act as the in the context of restrictions. The CCDBS is more aspirational; it is a 94 LAURA SHANNON AND CHRIS VAN EGERAAT Ref!.ional development in the Border Regi visiOn. In theory, it would be best practice that the two would be and integration of the CCI produced in close cooperation and coordination. One of the opportunity for integrated stn interviewed planners noted that, ideally, the CCDBS should have little evidence of diagonal coon prepared an economic strategy for the county that could be other than the DECLG du implemented in the CCDP through policies and spatial zoning in statutory/regulatory provisions ; towns and villages. However, there was little coordination involved in the preparation Conclusions of the two documents. In fact, a review of the 2006 CCDBS, with a revised strategy for 2009 to 2012, was never published. The CCDBS The aim of the study was to ir was not renewed in 2012, possibly in reaction to the government's between regional governance ar announcement that CDBs are to be phased out as part of the program Ireland. Although more in-de of local government reform. findings are clear. . The difficulties of diagonal coordination highlighted in the context Successful bottom-up region of the preparation of the RPGs are repeated in the context of the governance and coordination c county-level plan/strategy, particularly in relation to diagonal statutory provisions. The statute coordination with government departments other than the DECLG. in Ireland have been considera The 2010 Act stipulates that certain government departments and the establishment of the regioJ other bodies must be notified prior to the preparation of a new county most significant factor in the s1 development plan. However, the local planners point out that time development plans was the and resource constraints are a huge impediment to the level of Development Act in 2010. The coordination that can be achieved at this scale. Currently, consultation strong coordination between with other government departments and national-level bodies, in preparation and implementatiOJ general, takes the form of written submissions. The interviewed the RPGs. The research show~ planners argue that this is not sufficient and that there is a need for 2010 amendment, but they cou closer coordination during the preparation of the plan in the form of work to be done in this area. 'meetings with all the relevant authorities, bodies, groups and so on' The levels of coordination i (Interview, county council staff II). Some of these problems in relation along the traditional vertic to diagonal coordination, notably the lack of weighting given to CBD government plays a significant views by government departments and the lack of resources and but issues in relation to implerr personnel, were also identified in the Indecon Review of County/City nature of county-level stakeholc Development Board Strategic Reviews (Indecon, 2008). at the regional level. The resea As in the context of preparation of RPGs, we find evidence of staff in attempting to engage otl vertical coordination along traditional hierarchical lines in the Very few national governmt>nt preparation and implementation of county-level plans/strategies, actively engaged with the rlRL although there are different views as to the effectiveness of this statutory provisions, it would coordination. There is some evidence of a two-way coordination Fitzpatrick Associates (1997) th between these two plans, with the traditional top-down influence of of power and status are still relc national and regional levels on the local level, as well as the local level Likewise, we find eviden< influencing the preparation of the regional-level plans. The horizontal traditional hierarchical lines in t coordination between actors involved in the preparation of the CCDP county-level plans/strategies, all and the CCDBS could be improved. The lack of effective coordination the effectiveness of this coord SHAl'INON AND CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 95

actice that the two would be and integration of the CCDP and the CCDBS was a missed I coordination. One of the opportunity for integrated strategic spatial planning. There is very tlly, the CCDBS should have little evidence of diagonal coordination with government departments · the county that could be other than the DECLG due to a combination of a lack of policies and spatial zoning in statutory/regulatory provisions and time/resource constraints.

on involved in the preparation Conclusions w of the 2006 CCDBS, with a never published. The CCDBS The aim of the study was to improve our understanding of the link reaction to the government's between regional governance and bottom-up regional development in ased out as part of the program Ireland. Although more in-depth assessment is merited, the main findings are clear. 1tio1. highlighted in the context Successful bottom-up regional development and effective regional :epeated in the context of the governance and coordination depend on proper statutory and non­ trly in relation to diagonal statutory provisions. The statutory provisions for regional government nents other than the DECLG. in Ireland have been considerably strengthened over the years since government departments and the establishment of the regional authorities. Without a doubt, the he preparation of a new county most significant factor in the strengthening of relationships between l planners point out that time development plans was the amendment of the Planning and ~ impediment to the level of Development Act in 2010. The 2010 Act stipulates that there must be is scale. Currently, consultation strong coordination between the regional and local level in the and national-level bodies, in preparation and implementation of the county development plans and submissions. The interviewed the RPGs. The research shows that things have improved post the nt and that there is a need for 2010 amendment, but they could be better and there remains more 1tion of the plan in the form of work to be done in this area. ities, bodies, groups and so on' The levels of coordination in relation to the RPGs are strongest ne of these problems in relation along the traditional vertical, hierarchical structures. Local lack of weighting given to CBD government plays a significant role in the preparation of the RPGs, nd the lack of resources and but issues in relation to implementation remain. The inward-looking Indecon Review of County/City nature of county-level stakeholders remains an issue for coordination [ndecon, 2008). at the regional level. The research revealed difficulties for the BRA of RPGs, we find evidence of staff in attempting to engage other actors horizontally and diagonally. mal hierarchical lines in the Very few national government departments and state agencies are ' county-level plans/strategies, actively engaged with the BRA. Despite the improvements in the as to the effectiveness of this statutory provisions, it would seem that the conclusions drawn by ce of a two-way coordination Fitzpatrick Associates (1997) that the regional authorities are devoid 1ditional top-down influence of of power and status are still relevant today. a! level, as well as the local level Likewise, we find evidence of vertical coordination along anal-level plans. The horizontal traditional hierarchical lines in the preparation and implementation of in the preparation of the CCDP county-level plans/strategies, although there are different views as to he lack of effective coordination the effectiveness of this coordination. The horizontal coordination

I 9o LAURA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Reg. between actors involved in the preparation of the CCDP and the CDB of the main reasons cited for strategy was poor. This finding may support the decision included in However, the programme fu the Action Programme for Effective Local Government to disband the devolution of functions to t} CDBs and give more responsibility directly to the local authorities in potentially enhanced, coordim the form of socio-economic committees (Department of the new assemblies. This in itself ' Environment, Community and Local Government, 2012). The current situation. But the effe research found very little evidence of diagonal coordination with depend on the detail of the s government departments due to a combination of a lack of notably whether they will secu statutory/regulatory provisions and time/resource constraints. the relevant government depar Extant literature suggests that effective coordination requires concordance in the boundaries of local and regional units of Acknowledgements government and governance, and there have been repeated calls for boundaries to be aligned with those of the regional authorities. We would like to thank Proim However, this research suggests that, although alignment would have their ideas during the early st some advantages, the effectiveness of regional governance should not thirteen interviewees for their , be hung up on the lack of concordance of regional boundaries. In line with Allmendinger & Haughton (2009), we suggest that any adopted References framework should be able to work with and through the boundaries of different institutional geographies. This finding would support the Adshead, M. (2003). Policy netw' change of direction adopted in the Action Programme for Effective Adshead & M. Millar (Eds), Local Government. This document no longer advocates regional Ireland: Theory and methods. Lc standardisation due to practical reasons as the appropriate territorial Adshead, M., & Quinn, B. (1998). · structure tends to vary for each organisation. Irish development's policy pa This research therefore suggests that the effectiveness of regional 209-25. Allmendinger, P., & Haughton, G. governance should not be overly preoccupied with the lack of metagovernance: The new sr concordance of regional boundaries as the evidence suggests that it is Environment and Planning A, 4, not as significant a hindrance in operational terms as it was previously Bannon, M. J. (1989, January 5). H thought to be. While the alignment of regional boundaries with the Irish Times. regional authorities would make data collection and policy Border Regional Authority. (2010 coordination an easier task, it is not the key issue. Allmendinger & Cavan: Border Regional Autho Haughton (2009) come to a similar conclusion on the basis of their Boyle, M. (2000). Euro-regionalis1 recent work on administrative boundaries in the UK. The politics of Ireland's regi Successive Irish Governments have repeatedly shown their lack of allocation 2000-2006. Political ( commitment to a regional tier of government and to bottom-up Breathnach, P. (2013). Creating regional development in general, most recently through the reform of dysfunctional polity: The case c Studies. Advance online publica local government, which will see the abolition of the regional Cavan County Council Planni1 authorities and the creation of three regional assemblies in their place development plan 2008-2014, (Department of the Environment, Community and Local Council. Government, 2012). The Action Programme for Effective Local Cavan County Development Boan Government thankfully recognises the key role of regional planning in and cultural development of ( providing consistency among the planning hierarchy, and this was one County Development Board. RA SHANNON AND CHRIS VAN EGERAAT Regional development in the Border Region and County Cavan 97

ation of the CCDP and the CDB of the main reasons cited for maintaining a regional tier in Ireland. support the decision included in However, the programme further reduces the level of genuine ocal Government to disband the devolution of functions to the regional level. What is left is a, irectly to the local authorities in potentially enhanced, coordination and oversight role for the three 1mittees (Department of the new assemblies. This in itself would be a huge improvement on the JCal Government, 2012). The current situation. But the effectiveness of the reform will strongly of diagonal coordination with depend on the detail of the statutory and non-statutory provisions, a combination of a lack of notably whether they will secure genuine diagonal coordination with me/resource constraints. the relevant government departments and state agencies. effective coordination requires f local and regional units of Acknowledgements ere have been repeated calls for 1se of the regional authorities. We would like to thank Proinnsias Breathnach and Niall Cussen for , although alignment would have their ideas during the early stages of this research project and the f regional governance should not thirteen interviewees for their willingness to participate. :.:e of regional boundaries. In line )9), we suggest that any adopted References th and through the boundaries of This 1 · nding would support the Adshead, M. (2003). Policy networks and sub-national government. In M. Action Programme for Effective Adshead & M. Millar (Eds), Public administration and public policy in no longer advocates regional Ireland: Theory and methods. London: Routledge. ons as the appropriate territorial Adshead, M., & Quinn, B. (1998). The move from government to governance: Irish development's policy paradigm shift. Policy and Politics, 26 (2), aisation. 209-25. that the effectiveness of regional Allmendinger, P., & Haughton, G. (2009). Soft spaces, fuzzy boundaries, and preoccupied with the lack of metagovernance: The new spatial planning in the Thames gateway. as the evidence suggests that it is Environment and Planning A, 41, 617-33. ·ational terms as it was previously Bannon, M. J. (1989, January 5). How regionalism could aid the economy. The of regional boundaries with the Irish Times. ~ data collection and policy Border Regional Authority. (2010). Regional planning guidelines 2010-2022. t the key issue. Allmendinger & Cavan: Border Regional Authority. conclusion on the basis of their Boyle, M. (2000). Euro-regionalism and struggles over scales of governance: !aries in the UK. The politics of Ireland's regionalisation approach to structural fund 1e repeatedly shown their lack of allocation 2000-2006. Political Geography, 19, 737-69. government and to bottom-up Breathnach, P. (20 13). Creating city-region governance structures in a dysfunctional polity: The case of Ireland's national spatial strategy. Urban 1st recently through the reform of Studies. Advance online publication. doi: 10.1177/0042098013493477 the abolition of the regional Cavan County Council Planning Department. (2010). Cavan county regional assemblies in their place development plan 2008-2014, variation no. 2. Cavan: Cavan County ent, Community and Local Council. Programme for Effective Local Cavan County Development Board. (2002). A strategy for the economic, social e key role of regional planning in and cultural development of County Cavan 2002-2012. Cavan: Cavan nning hierarchy, and this was one County Development Board. 98 LAURA SHANNON AND CHRIS VAl\ EGERAAT Regional development in the Border Region

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