EU discussions on spatial development

Countries neighboring the European Union are at widely differing stages of economic and social development. Well-directed spatial policies will influence both the future pace of development and how well that development will contribute to the welfare of the inhabitants. To the Committee on Spatial Development it is a major challenge to encourage well functioning spatial policies among Partners in Spatial Development.

1. INTRODUCTION

The Commission has proposed that the Committee on Spatial Development (CSD) should take on the task of increasing co-operation with "neighboring countries" on issues concerning spatial development. This proposal was accepted at a meeting of the CSD 20th February. The future CSD will have this co-operation as one of its main tasks, the other being Research and Development in the framework of the ESPON. Most other questions concerning spatial development will be dealt with in a special Sub-committee to the CDCR.

This development is in line with the general ambitions voiced in the Tampere Action Programme (1999), where it is mentioned that, with regard to the ESDP and the work of the CEMAT, an agenda for a strengthened political and technical co-operation with accession countries, as well as neighboring non-Member states, shall be developed. The countries concerned should be invited to participate in preparation of the agenda for such activities.

To find direction to these activities the Swedish Presidency of the CSD has decided to arrange a Conference (20-21 June), to which the Member Countries and a broadly defined group of "Neighboring Countries" are invited. The main purpose of the conference is to discuss with member and non-member countries possible avenues to further co-operation on spatial development in this wide group of countries. On the basis of these discussions CSD will propose the proper ways to organize its work on this subject.

Invited countries - Partners in Spatial Development (PSD)

The invited countries includes the following five groups:

- the present Member-States
- the Application Countries
- the EFTA countries,
- countries participating in INTERREG co-operation, not included above,
- countries participating in the Mediterranean co-operation, not included above.

In all, this wide definition represents 50 countries. A list of invited countries is attached.

The Swedish Presidency has, in a number of meetings with a specially established Task Force, representing the CSD, the Commission and neighboring countries, explored what kind of work which jointly could be undertaken and how that can be organized. The present paper reflects a discussion at an informal meeting of the CSD, 17 May 2001.

The possible long-term aims of such a co-operation might be to prepare for, and strengthen, an already ongoing factual integration of the area concerned, through improved spatial policies. A first step would be to identify common opportunities and problems. Possible means to that end might be that CSD encourages:

- exchange of information, between EU 15 and neighboring countries, and between neighboring countries themselves,
- the development of principles of spatial development, better adapted to the widely differing conditions of neighboring countries,
- practical co-operation on spatial issues between participating countries for the entire area or for special sub-divisions of the area.

In parallel to work based on this wide definition of neighboring countries, the CSD also has the ambition to further co-operation with the candidate countries in order to facilitate the accession process.

The process now started has to be open ended in many respects, as the countries invited represent widely differing circumstances and ambitions, and the initiative is new to most countries. The present paper therefore can only indicate a number of possible avenues for future work. On the basis of results from the present conference the CSD will have to further develop practical ways to proceed.

2. ONGOING ACTIVITIES

A number of initiatives and activities form a background to the present initiative. They range from the comprehensive work done on European Spatial Development Perspective (ESDP) to a large number of more partial activities. The following list is not in any way complete.

(1) European Spatial Development Perspective (ESDP)

The report "The European Spatial Development Perspective" was adopted by responsible ministers and the responsible commissioner in Potsdam in May 1999 as a reference document for Member States and the Commission on regional planning and regional development issues.

In the final conclusions of the German Presidency it was stated that: "The aim of spatial development policies is to work towards a balanced and sustainable development of the territory of the European Union. In the Ministers´ view, what is important is to ensure that the three fundamental goals of the European policy are achieved equally in all regions of the EU:

- economic and social cohesion;
- conservation and management of natural resources and the cultural heritage;
- a more balanced competitiveness of the European territory."

The basis for the work leading to the adoption of the European Spatial Development Perspectives was set out early in the process (1994) in the following guidelines:

- development of a balanced and polycentric urban system and a new urban-rural relationship; securing parity of access to infrastructure and knowledge; and sustainable development, prudent management and protection of nature and cultural heritage.

In the ESDP report (1999) these guidelines are followed by a large number of policy aims and options for the EU territory where it is emphasized that it is necessary to widen the horizon, beyond purely sectoral policy measures, to focus on the overall situation of the European territory and also take into account the development opportunities which arise for individual regions. New forms of co-operation should, in future, contribute towards a co-operative setting up of sectoral policies - which up to now have been implemented independently - when they affect the same territory.

(2) The Tampere Action Programme

During the Informal Ministerial Meeting in Tampere in October 1999 ministers agreed on an Action Program with 12 actions that would help make concrete use of the principles, policy aims and options identified in the ESDP-report. The importance of a closer co-operation on spatial development with accession countries, as well as with neighboring countries, was underlined.

The Action Programme consists of activities in three strands of action, promoting a balanced territorial development:

- Promoting a spatial dimension in Community and national policies.
- Improving knowledge, research and information on territorial development.
- Preparing for an enlarged territory of the European Union.

For each of these strands a number of concrete actions are envisaged.

The urban questions were recognized as especially important. In order to be able to reflect properly on these questions the Urban Development Group was established. The first result of that group - a programme with nine items - was submitted and agreed on at a conference in Lille in November 2000. A series of recommendations, as to further work, were after that formulated at a conference in Norrköping, Sweden, May 2001.

(3) CEMAT - Guiding Principles of Spatial Development

CEMAT (European Conference of Ministers responsible for Regional Planning), is the responsible committee on questions concerning spatial and regional development within the Council of Europe. The Council has as its members all the countries of the European continent. At a conference in Hanover 2000 CEMAT adopted some Guiding Principles for Spatial Development. Those principles are strongly related to the aims and policy options elaborated in the European Spatial Development Perspectives.

The CEMAT-principles form a coherent strategy for the integrated and regionally balanced development of the continent, based on the principles of subsidiarity and reciprocity. They should strengthen competitiveness, co-operation and solidarity among local and regional authorities across borders, thereby contributing to stability in Europe. The principles will also reinforce the process of European integration through trans-frontier, inter-regional and trans-national co-operation.

In a resolution at the Hanover conference (nr. 1 "A 10-point Programme for Greater Cohesion among the Regions of Europe") the Ministers of the states of the Council of Europe agreed to co-operate in concrete spatial development projects in the Interreg III B co-operation areas and called for all member states of the Council, regardless of wither they wish to acceede to the European Union or not, to be included in the spatial co-operation among EU Member States.

(4) INTERREG III B

The Interreg Community Initiative was established by the European Commission in order to enhance cross-border co-operation, trans-national co-operation and trans-regional co-operation. Especially Interreg II C during the last programming period and Interreg III B of the present programming period (2000-2006) aims for trans-national co-operation which takes its principles from the European Spatial Development Perspective. Obviously Interreg III B is an important instrument in any coming co-operation.

Interreg co-operation is open for countries neighboring the European Union. However, as the European Regional Development Fund can be used only within the European Union, other sources for financial support must be sought for partners outside the Union, e.g. funding from the Meda, Phare or Tacis programmes.

Interreg III B co-operation areas, of relevance to the present initiative, are:

- North sea region
- North-Western Europe
- South-Western Europe
- Central European, Adriatic, Danubian and South Eastern European Space (CADSES)
- Baltic Sea Region (BSR)
- Western Mediterranean and Latin Alps
- Atlantic Area
- Northern Periphery
- Mediterranean Gateway
- Alpine Space
- Central and Eastern Mediterranean Space

During the present programming period (2000-2006) all these co-operation areas are eligible under Interreg III B.

(5) The Euromed Partnership Process (The Barcelona Process)

The Euromed Partnership Process was agreed on in Barcelona 1995 by the 15 foreign ministers of the European Union and the 12 foreign ministers of non-member Mediterranean countries. The three aspects of the Euromed Partnership Process are: a strengthened political dialogue on a regular basis, the development of economic and financial co-operation and greater emphasis on the social, cultural and human dimension.

During the French Presidency of the European Union, the Euromed Ministers of Foreign Affairs at a meeting in Marseille concluded that the regional and spatial development dimension should be taken into account in the Euro-Mediterranean process (Barcelone IV). At the same occasion the Committee on Spatial Development, enlarged with non-member representatives from the Mediterranean area, decided that ministers responsible for spatial development, in the whole Mediterranean area, should meet in order to discuss spatial development issues.

A first step was to set up an EuroMed Expert Group, who had its first meeting 16 May, 2001.

(6) European Spatial Planning Observation Network - ESPON

In the conclusions of the informal meeting of the Ministers responsible for Spatial Planning and Urban/Regional policy at Tampere (October 1999), the Ministers and the Commission emphasized the need "to take concrete steps in applying the European Spatial Development (ESDP)" and, in particular, "to improve knowledge, research and information on territorial development, as well as to prepare for enlarged territory of the European Union". To concretize this ambition a special Programme is about to be started - the European Spatial Development Observatory Network Programme 2006 (ESPON).

The task of drafting and implement a programme for the ESPON has been designated to Luxemburg. In the proposed ESPON 2006 Programme it is stated that the ESPON ought to contribute to policy making by the provision of relevant data, revealing spatial trends through the definition and measurement of relevant indicators. Work on thematic studies will be other parts of the programme, which will help the understanding of spatial trends and give hints for the adjustments of policies at all governmental levels, through, for instance, a better sectoral co-ordination. In the proposed programme it is also stated that the "comprehensive assessment of the future of the European Territory cannot be achieved without considering a larger territory, including European third countries (such as Switzerland, Iceland, Norway and the Balkans) and also Southern and Eastern countries".

Already in 1998 a Study Programme on European Spatial Planning (SPESP) was launched by the Commission, with the aim of further exploring certain ESDP concepts and to test the criteria, discussed by ESDP.

Summing up

To the CSD the challenge, to better include Neighboring Countries in Spatial Development, is obviously to construct systems of interaction which fully draws on present results and activities. At the same time added value should be provided through the introduction of new aspects and the inclusion of new countries to the process.

3. OBJECTIVES OF A FUTURE DIALOGUE

There are huge variations between the countries invited to the present Conference, in degree of interaction economically and socially. There are, at least, three levels of integration,

- the level of the present Members of the EU and co-operating EFTA-countries,
- the application countries and
- a large group of countries with, at present, weak links to the EU.

However, there will - through time - be substantial changes in this division, all - hopefully - going in the direction of increased levels of interaction. This constitutes a major challenge to all countries involved, also in the area of spatial development, which, in a substantial way, will influence, and be influenced by, that integration.

Against this background the overall objective of CSD's work together with Neighboring Countries is to prepare for, and strengthen, an increased factual integration of the area concerned, through improved co-operation on national spatial policies, encouraging sustainable development.

This objective can be reached through, for instance:

- improved, mutual understanding of the spatial situation in the various countries,
- the identification of, and work on, issues common to the whole area, or to certain sub-regions.

4. POSSIBLE APPROACHES TO IMPROVED CO-OPERATION

To reach the objective there is a need for exchange of information and the creation of fora where a common understanding can develop on issues of importance to the spatial development of individual countries and to the whole area covered by the participating countries. As resources are limited, concrete work has to concentrate on a limited number of issues and make use of existing co-operation in the field of Spatial Planning/Development.

Below three approaches are presented. They differ as to their complexity and level of ambition. Co-operation might well develop through time, gradually including more complex modes of co-operation. The three approaches, presently proposed for discussion, are:

I. An annual or bi-annual (occasional) conference among concerned countries.

II. Efforts to increase the contact area of CSD to already existing co-operation in sub-areas - provisionally called "Interreg Co-operation Areas" (IC-areas).

III. Efforts to run "Horizontal Studies" on spatial development with an increased participation from Neighboring Countries.

The three approaches should be seen as additional to the ambition to integrate the candidate countries more closely in CSD's work on spatial development.

I. An annual or bi-annual Conference among concerned countries

It seems reasonable that CSD yearly, or every second year, as part of its task to organize links with Neighboring Countries, organizes a Conference where Member Countries and Neighboring Countries are given an opportunity for discussions on issues of common interest. The CSD should be responsible for the issues brought up for discussion and for the dissemination of results among both Member States and Neighboring Countries. The work done by CEMAT in this respect, which covers a large part of the geographical area now discussed, must be taken into consideration, in order to avoid duplication of activities.

II. Interreg Co-operation Areas (IC-areas)

The geographic area covered by Partners in Spatial Development (PSD) is gigantic and conditions vary widely between the different parts. There are also clear limits as to how well a country by country exchange of opinions might work, in a body with potentially 50 participants. Already from a logistic point of view a need has been demonstrated for certain sub-divisions of the European territory, mainly based on geographic proximity. Such area wise work is at present run within e.g. the Interreg III B areas, VASAB and through the Euromed Partnership Process. It would obviously be advantageous if in such areas, fora could be developed where a dialogue could be run between the constituent countries on questions concerning spatial planning and development.

A second, complementing, approach to CSD's work on Neighboring Countries might therefore be what could be called Interreg Co-operation Areas (IC-areas) in which the technical work of Interreg could be complemented with a political dialogue between countries.

This latter approach could, from an organizational point of view, imply that the meetings of the Conference, described above, (partly) could be structured in a way by which representatives of these regions can compare notes on their respective activities. An alternative (or maybe parallel) activity might be that CSD has specialized meetings with one Co-operation Area at a time (a parallel to CSD's recent meeting in Marseille with Mediterranean countries).

III. A Horizontal approach

On the basis of the Tampere resolutions Member States presently run a large number of activities. This might be development work on various Planning Instruments or the way Spatial Policies actually are implemented in the Member States. A new crop of activities/studies, will probably grow from the recent work of the Urban Group.

Such studies do at present not include non-member countries. (ESPON is an exception as Application Countries are included in the programme ESPON 2006). To considerably increase the substance, available for discussion between member and non-member countries, a third approach might be systematic efforts to include representatives of neighboring countries in the many horizontal activities already run within the general area of spatial development. Reports from these activities could represent central parts in the series of Conferences outlined above and to further work in the Interreg Co-operation Areas (IC-areas).

To exemplify, a short list of horizontal activities are given below:

Issue 1: Spatial Impacts of EU Policies

The Programme for the Trans European Network (TEN) and the Unions more general ambitions for the transport sector, are obviously something which will influence (and be influenced by) spatial development in all parts covered by the proposed co-operation. In the same way development in Research and Development lays the ground for economic development of regions and countries. Policies in this area (for instance the fifth Framework Programme) are increasingly looked upon from a spatial perspective.

Issue 2: Work on Planning Instruments

One example might be the work presently done on Territorial Impact Assessment (TIA) with the United Kingdom as lead partner. Another example might be the Natura 2000 processes.

Issue 3: Implementing Spatial Policies

Belgium has, as lead country, started a process where the implementation of spatial policies in the EU-15 countries are measured. The principles utilized and the result of this exercise could form the base for an activity including also Non-Member States.

5. ORGANISATION

The activities outlined above are assumed to last for at least the present programming period (i.e. until 2006). There are then a number of "institutions", apart from the IC-areas, which have to be created or utilized. It is proposed that:

1. The committee on Spatial Development (CSD) will have the overall responsibility for the various activities. This should be a "CSD-Plus", where the candidate countries participate.

2. An enlarged CSD, is established which - tentatively - is supposed to meet occasionally. This assembly would comprise all the 50 countries mentioned above. The CSD will be responsible for preparing the meetings.

3. A Liaison Group (LG) is instituted to give all categories of neighboring countries opportunities for a more continuous influence on the process. This group should in a fair way represent the Interreg Co-operation Areas, CEMAT and, in addition, the Troika and the Commission. Its main task should be to advice the CSD on issues concerning neighboring countries.

The details of this organization have to be further developed during future presidencies.

The European Commission should, with respect to the importance of the suggested co-operation, investigate (provide) necessary funding.

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• Spatial Development (29/6/2001)