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The Local Border Traffic Zone Experiment As an Instrument of Cross-Border Integration: the Case of Polish-Russian Borderland

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The Local Border Traffic Zone Experiment As an Instrument of Cross-Border Integration: the Case of Polish-Russian Borderland Geographia Polonica 2018, Volume 91, Issue 1, pp. 95-112 https://doi.org/10.7163/GPol.0102 INSTITUTE OF GEOGRAPHY AND SPATIAL ORGANIZATION POLISH ACADEMY OF SCIENCES www.igipz.pan.pl www.geographiapolonica.pl THE LOCAL BORDER TRAFFIC ZONE EXPERIMENT AS AN INSTRUMENT OF CROSS-BORDER INTEGRATION: THE CASE OF POLISH-RUSSIAN BORDERLAND Iwona Sagan1 •Vladimir Kolosov2 • Dominika Studzińska1 • Maria Zotova2 • Alexander Sebentsov2 • Klaudia Nowicka1 1 Department of Economic Geography, Faculty of Oceanography and Geography University of Gdańsk Bażyńskiego 4, 80-309 Gdańsk: Poland e-mails: [email protected] • [email protected] • [email protected] 2 Institute of Geography Russian Academy of Sciences Staromonetny pereulok 29, 119017 Moscow: Russia e-mails: [email protected] • [email protected] • [email protected] Abstract The main objective of this article is to offer an answer to the question whether introducing local border traf- fic (LBT) on the external frontiers of the EU is an effective tool for cross-border integration and development of marginalised border areas. The analysis was carried out in an area of particular strategic importance for the European Community and Russia, which is the Polish-Russian borderland. The study includes the analysis of political discourse supplied with the findings from the original survey revealing mutual perception of Polish and Russian partners. The authors drew special attention to the significance of delimitation of areas included in the visa-free traffic. The success of the four-year period of LBT zone’s functioning on the Polish-Kaliningrad border came as a result of modification of the regulations concerning the scope of the zone and the inclusion of economic regions otherwise heavily affected by the split in the functional dimension. The analysed region had the chance to become a model of national and local policies’ cooperation in border areas. The decision to shut down the LBT has proved yet again that socio-economic initiatives in border regions are deterministi- cally dependent on the decisions of central governments. Key words local border traffic • cross-border integration • Polish-Russian border • external border of the European Union 96 I. Sagan • V. Kolosov • D. Studzińska • M. Zotova • A. Sebentsov • K. Nowicka Introduction from the border – contradicts the idea of the policy, in which the LBT zone is a tool for cross- Historical variability of Polish-Russian cross- regional integration. border cooperation provoked subsequent The policy of cross-border integration has phases of emergence and disappearance moved on from the premise of a LBT zone of alienated or co-existing borderland. The cre- as an instrument for compensating social ation of local border traffic (LBT) zone in 2012, contacts of homogeneous groups that were which connected the Kaliningrad Oblast and divided by state borders, yet only in such as- two Polish regions – Pomeranian and Warmi- pect could the very limited range of the zone an-Mazurian – by means of visa-free traffic, of visa-free traffic find justification. Integration initiated, for the first time, a third-degree in- has become the prime objective of the good tegration process, i.e. formation of an interde- neighbourhood policy, rather than simple so- pendent borderland. The dynamic and highly cial reintegration of border regions. Never- successful experiment of integration of the theless, the new interpretation of the function regions on both sides of the boundary was of the LBT zones was not followed up with any interrupted in 2016 with the decision of Polish modifications in the laws that shape the legal government to shut down the zone. framework for their creation. Expanding sub- Intense cross-border traffic in the LBT stantially the range of the LBT zone around the zone initiated the process of creating a cross- Polish-Kaliningrad Oblast border constituted border soft space (Allmendinger et al. 2015), an exceptional departure from the regulations i.e. a space integrated by grass-root activity governing the establishment of such zones. of its residents and economic entities, which The Polish–Kaliningrad region of Russia is simultaneously regulated by different, statu- border is the border of rather peripheral lo- tory planning, economic and social policies. calization to the main communication cor- This type of spaces emerges as a result of di- ridors and the border being mainly crossed rect physical proximity of areas that belong by local inhabitants. However, it is of global to different administrations or governances, significance. Glocality of the local border be it local, regional, or national. As such, traffic zone is reflected in the utilization of its they are socially produced specific spaces, international and global meaning for achiev- independent from political and territorial divi- ing the local interests. An attempt to interpret sions. Soft spaces are functional regions that the highly complicated, dynamic and fragile do not necessarily correspond to the existing cross-border interactions as well as regional functional links. Their development is con- policy between Poland and Kaliningrad Oblast ditioned by different administrative systems is taken in this paper. existing within them. The formation of soft The authors pay attention to the impact spaces anticipates establishing of functional of asymmetric and asynchronic developments links resulting from new directions of devel- on the formation of cross-border functional re- opment that are expected to emerge from gion between Kaliningrad and the Polish ag- the new situation and/or initiated changes. glomeration of Three Cities – Gdansk, Gdynia The abolition of the visa regime, along with and Sopot. The introduction of the local border some new opportunities for activity it had in- traffic (LBT) regime changed the lifestyle in the troduced in the LBT zones, doubtlessly gives borderland. For Kaliningrad citizens it opened a strong impulse for formation of such areas. a much easier access to Europe. The loosed However to set off the mechanism that forms border regime reduced functional distance be- a soft area it is necessary to delimit a LBT zone tween Poland and Kaliningrad and in a broad- so that it covers the potential of social and er sense, between the European Union and economic links that exist on both sides of the Kaliningrad. Although in many cases the cross- frontier. Strict adherence to the arbitrarily border cooperation programmes are realized defined range of the zone – 30 km or 50 km independently on each side of the border Geographia Polonica 2018, 91, 1, pp. 95-112 The local border traffic zone experiment as an instrument of cross-border integration: The case… 97 which turns them rather into the near then the in the local border traffic agreement, which cross border activity. The problem of the asym- allowed to evaluate the effects of introduc- metry in the programmes realisation is well ing visa-free traffic in the studied borderland. analyzed in scientific literature (Melnik 2006; Interviewees included representatives of lo- Tanaka 2006; Sebentsov & Zotova 2013). cal authorities, NGOs, and entrepreneurs. Among the main explanations of the situation In 2013 a survey was carried out among the are: the institutional inequality between part- residents of Polish border zone and 250 ques- ners, insufficient level of civil society develop- tionnaires were collected. Also, a survey was ment, the lack of specialists able to compile conducted among citizens of Kaliningrad and to manage international projects. Oblast who visited Tri-City. Its purpose was On the base of the analysis it can be stat- to gather opinions of Russians on tourist attrac- ed that the border started to be perceived tiveness of Tri-City agglomeration. The survey as a resource in local economy after the LBT took place in November and December 2013 introduction. A number of border localities on a border crossing point connecting Tri-City gained a chance for development. Gdansk, with Kaliningrad, obtaining a n = 462 sam- which had been included into the LBT zone, be- ple. Additionally, a survey was carried out came a new border town. Benefits of an early among the residents of Tri-City (n = 402). This stage of the border regime loosening were allowed to evaluate local border traffic from obvious for both regions. Nevertheless, the the perspectives of all the citizens impacted cross border interactions cannot be fully justi- by the LBT agreement, both from major urban fied, at the stage they reached, as integration centres and those from smaller border towns. of two neighbouring sides into, the unavoid- The information was complemented with the ably specific, but actually one border region. data from Russian and Polish Central Statisti- The abrupt end of the cooperation has proved cal Offices, Russian Regional Customs, Border the fragility of elaborated agreements. Guard, and Customs Chamber. The objective and the Local border traffic on the external methodology of the research borders of the European Union The main objective of this article is to offer Visa-free agreements, having a long historical an answer to the question whether introducing tradition, are bilateral agreements increas- local border traffic on the external frontiers ing permeability of borders and making lives of the EU is an effective tool for cross-border of borderland inhabitants much easier. Such integration and development of marginalised agreements that were concluded soon after border areas. The article presents how the the First World War concerned subsequent Polish-Russian borderland was functioning af- boundaries and solved the problem of com- ter the local border traffic agreement had en- muters – mainly people who owned arable tered into force. The conducted analysis indi- land on the other side of a border (for in- cates that local border traffic is a tool that the stance, such agreements were concluded be- European Union and/or state authorities fail tween Hungary and Yugoslavia, Poland and to take advantage of, and which introduction Czechoslovakia, Norway and Finland).
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