PRELIMINARY DRAFT REPORT Engendering Innovative Urban Strategies in a New Regionalism Era: The Metropolitan Governance Process in Greater Baltimore Eric Champagne INRS- Urbanisation Montreal International Urban Fellow Report Institute for Policy Studies Johns Hopkins University Baltimore November 10,1999 Eric Champagne PhD. Candidate Institut National de la Recherche Scientifique (INRS-urbanisat ion) Universitk du Quebec 3465, rue Durocher Montrkal (Qukbec) Canada H2X 2C6 Telephone: (5 14) 499-4078 Fax: (5 14) 499-4065 E-Mail: eric-champagne@inr s-urb .uquebec.ca .. 11 Table of Contents Introduction............................................................................................................................................................................. 1 1. A Portrait of Industrial City Regions: Problems and Concepts ................................................................................ 6 1.1 The Urban Restructuring Process (structuralfactors) ............................................................................................... 7 1.1.1 Economic restructuring ..................................................................................................................................... 7 1.1.2 Globalization process ...................................................................................................................................... 10 1.1.3 Spatial transformation of city regions ............................................................................................................. 14 1.2 The New Configuration of Political Power (institutionalfactors) ............................................................................ 20 1.2.1 Fragmentation of local politico-institutional power ........................................................................................ 20 1.2.2 Transformation of the role of central governments ......................................................................................... 23 1.2.3 Continuous rise of social capital in urban affairs ............................................................................................ 25 2 . A Contemporary Theoretical Framework for Metropolitan Governance.............................................................. 28 2.1 The New Regionalism School .................................................................................................................................... 28 2.1.1 The metropolitan interdependence hypothesis ................................................................................................ 28 2.1.2 The global market argument: toward more competitive regions ..................................................................... 30 2.1.3 The sustainable development argument: a new vision for growth ................................................................... 31 2.1.4 The new regionalism: a socially constructed process ...................................................................................... 33 2.2 The Metropolitan Governance Process .................................................................................................................... 37 2.2.1 The current use of the term governance .......................................................................................................... 37 2.2.2 The metropolitan governance concept ............................................................................................................. 38 2.2.3 The conceptual framework of metropolitan governance ................................................................................. 39 3. Political and Statistical Picture of Greater Baltimore .............................................................................................. 42 3.1 Greater Baltimore Local Government Structure ...................................................................................................... 42 3.2 A statistical picture of Greater Baltimoreis jurisdictions ......................................................................................... 44 ... 111 4. Earlier Stage of Regionalism in Greater Baltimore .................................................................................................. 50 4 . I The Regional Planning Council .RPC (1963-1987) ................................................................................................ 50 4.2 The Baltimore Regional Council of Governments . BRCOG (I 987-1991) .............................................................. 56 4.3 The Baltimore Metropolitan Council .BMC (Since 1992) ....................................................................................... 58 4.4 Earlier Stage of Regionalism in Greater Baltimore: An Appraisal .......................................................................... 60 5 . Regional Impulses for Metropolitan Governance in Greater Baltimore ................................................................ 64 5 .I The Part of Urban Restructuring .............................................................................................................................. 65 5.2 The Initial Reports on Metropolitan Issues ............................................................................................................... 68 5.2.1 Baltimore 2000 ................................................................................................................................................ 70 5.2.2 Baltimore and Beyond - Breaking the Boundaries .......................................................................................... 72 5.2.3 Baltimore Unbound ......................................................................................................................................... 75 5.2.4 Baltimore Metropolitics .................................................................................................................................. 80 5.3 The Regional Planning Agency as a Metropolitan Incubator ................................................................................... 84 6. Development of a Regional Vision in Greater Baltimore ......................................................................................... 86 6.1 Nonprofit Organizations‘ Regional Programs .......................................................................................................... 86 6.1.1 Greater Baltimore Committee (GBC) .............................................................................................................. 87 6.1.1.1 GBC’s initial focus ..................................................................................................................................... 87 6.1.1.2 GBC’s regional agenda ............................................................................................................................... 90 6.1.2 Citizens Planning and Housing Association (CPHA) ...................................................................................... 94 6.1.2.1 CPHA’s initial focus ................................................................................................................................... 95 6.1.2.2 CPHA’s regional agenda ............................................................................................................................ 96 6.1.3 Baltimore Archdiocese .................................................................................................................................. 102 6.1.3.1 Baltimore Archdiocese’s regional agenda ................................................................................................ 103 6.2 Other Commitments towards Regionalism .............................................................................................................. 104 6.2.1 The media’s implication in the debate over regionalism ............................................................................... 105 6.2.2 The Maryland Smart Growth Initiative ......................................................................................................... 108 6.2.3 Strategic planning process in Baltimore City and Howard County ............................................................... 113 6.2.3.1 PlanBaltimore ........................................................................................................................................... 113 6.2.3.2 Howard County Strategic Planning .......................................................................................................... 116 iv 7. Design and Implementation of Metropolitan Governance: Regional Economic Development Strategies in Greater Baltimore ........................................................................... 122 7. I The Economic Interdependence within Metropolitan Areas ................................................................................... i22 7.2 Foregoing Regional Economic Development Initiatives ......................................................................................... i26 7.2.1 The Regional Planning Council and the General Development Plans ........................................................... 126 7.2.2 Business Organizations for a Unified Economic Development Program ...................................................... 128 7.3 Contemporary Regional Economic Development Strategies .................................................................................. 133 7.3.1 Greater Baltimore Technology Council: An example of an industry group