3_Lecture_The territorial governance of Southern Europe

Lecture 1 - Introduction: economic geography and its recent paradigms
Regional
Geography
of Southern
Europe
WS 2021-2022
Lecture 3
17-11-2021

Examination: I & II
I: 23 February 2022 (?)
II: (?) – Yes, I will organize a second exam
Note: take-home mini essay to be delivered on the day
of the exam I or II

Structure of
the course
1) Introduction to regional geography and the focal study region
2) Regional geography of Southern Europe: differences and uniqueness
3) The territorial governance of Southern Europe
4) Planning and Planning systems of Southern Europe
5) The economic geography of Southern Europe
6) EU, EU integration and funding mechanisms for development
7) Southern Europe, low-income EU regions and EU Cohesion Policy
8) Research and development in Southern Europe: where and what for
9) The social dimension of cross-border relations across SE
10) Southern Europe and sustainability transition efforts
11) Conclusion: Regional futures across Southern Europe
Lectures

Positioning territorial governance
within spatial-multilevel governance
(link OLAT)

Two domains relevant in the context of
regional geography OLAT Lecture 3

Territorial governance – Europeanisation
• The EU has exercised a significant impact on
territorial governance and spatial planning
systems between 2000-2016, most significantly
through sectoral legislation.
• EU territorial cooperation (Interreg) has been less
influential in domestic planning.
• Environment and energy legislation have had most
impact (e.g., sustainability transition; green deal).
• EU Cohesion Policy has been important for
domestic planning where there is significant
funding. The Territorial Agenda has had limited
impact compared with the ESDP European Spatial
Development Perspective and other general
strategies such as Europe 2020. Relatively new
member states are more receptive to EU concepts
and ideas in the general discourse on spatial
planning and territorial governance.
Source

Defining territorial governance
sustainable spatial development
Innovation and the destabilization of established systems
(link OLAT)

Going beyond government-based decision-making
MARIANA MAZZUCATO
Territorial
governance

Why territorial governance matters in the context
of Regional Geography
Brings together
the terms ‘territory’, ‘space’ and ‘place’ (Elden 2010; Giddens 1981), The so-called ‘Barca
Report’ did not specifically refer to the term territorial governance but promoted a
place-based approach to development policies that is tailored to places.
Devotes attention to
How knowledge of territorial specificities and the territorial impacts of various
courses of action are used in decision-making
Stead and Kovács, 2016; Lisa Van Well and Peter Schmitt, 2016
This includes ways in which the need for territorial knowledge (for instance,
technical knowledge) is identified, understood and integrated into governance.
Involves place-based decisions
Supports active responses to
common societal challenges such as sustainable development, climate
change, social exclusion, territorial cohesion and competiveness

Baltic Sea Region
Danube Mega-Region
Multiple scales, territories (i.e., identities; political), cultures, interests,
ambitions, realities, various economic geographies evolving,

Governance
in
planning?
Edinburgh
Dublin Copenhagen
Vienna
Oslo-Akershus Hamburg
Stockholm
Lyon

Barcelona
Barcelona
Cardiff Stuttgart
Helsinki-Uusimaa
Stuttgart
Hannover
Milan

Governance in spatial planning
The involvement of actors Processes and tools
• Negotiation
✓ Facilitates the allocation of financial,
human and natural resources; helps to
overcome conflicts;
• Consensus building
✓ Making it certain that the content of the
plan will satisfy the overall interests;
• Consolidated planning practice
✓ The experience in dealing with strategic
spatial planning at the urban region
level;
• Coordinating role of the leadership
✓ A public institution which has the role of
facilitating decision-making, driving
change, showing direction;
• Multilevel government coordination
✓ Coordination between city and regional
councils;
• Interest groups involvement
✓ Chambers of commerce, retail or
industry; environmental NGOs; think
tanks; transport associations, port
authorities and national railway
companies; and cultural associations;
• Integration of expert knowledge
✓ Knowledge produced by universities,
research centres and other scientific
organizations;
• Citizen participation
✓ Individually through traditional means,
such as workshops and public
meetings, or by using online platforms,
including geographic information
systems; GIS crowdsourced platforms;
grassroots.

Since the early 1990s, the concept of
‘governance’ has been commonly used as
a framework for describing the various
types of interplay between the state,
market actors and civil society.
The concept has been employed
particularly to explain the ongoing shifts in
public policy- and decision making
characterised, among other things, by the
increased involvement of non-state actors
and the formation of new interaction
pathways in formerly established policy
processes.

Governance changes all the time, and it
acquires unique forms in each community.
Governance evolves. It is not tied to
democracies, and it does not bring forth a
perfect democracy. Good governance cannot
be a recipe deduced from theory or a set of
best practices empirically observed.
Governance observes problems and creates
problems. It borrows tools, produces tools, and
it contributes to the undermining of these
tools. It finds solutions and defines what would
count as their success. It absorbs stories of a
better future, and it assembles new visions.
This theoretical framework shows how
understanding governance as entirely and
continuously restructuring, allows for new
understandings of broader changes in society,
and new understandings of the spaces for
intervention.

The 20
components
of territorial
governance
(Schmitt and Lisa Van Well, 2016, p. 222)

Territorial governance – Southern Europe
3 092 Parishes
308
Municipalities/Counties
18 Districts
2 Autonomous regions
Azores
Madeira

Source
- 17 Autonomous
Communities
- 2 Autonomous Cities
- 50 Provinces
- 8,116 Municipalities.

The regions of Italy are the first-level
constituent entities of the Italian
Republic, constituting its second NUTS
administrative level.
There are 20 regions, of which five
have greater autonomy than the other
fifteen. Under the Italian Constitution,
each region is an autonomous entity
with defined powers. With the
exception of the Aosta Valley, each
region is divided into a number of
provinces.
Macroregions

Source
Since 1 January 2011,
when the Kallikratis
Program entered
officially into force,
the Hellenic Republic
has comprised
• 7 Decentralised
Administrations
• 13 Regions, and
• 325 Municipalities.

Territorial governance –
Portugal

Territorial governance – Portugal
Administratively, Portugal is a unitary and decentra
lized State.
Itis highly centralized system with administrative di
visions organized into three tiers:
• National
• Districts
• Municipalities and civil parishes
The State is organized under the principles of subsi
diarity, local government autonomy, and democrati
c decentralization of the public service.
Although mainland Portugal has yet to implement
regional level tier, the autonomous regions of Mad
eira and the Azores have their own regional politic
al and administrative statutes and self-
governing institutions.
Based on the 1976 Constitution , adopted after the 1975 Carnation Revolution

Metropolitan area
Autonomous regions (regional
government)
Intermunicipal Community

Administrative regions – Portugal
• A plan to divide mainland Portugal in eight
regions was defeated in a referendum in 1998.
• The metropolitan areas of Lisbon and Porto were
created in 1991.
• A law passed in 2003 supported the creation of more
metropolitan areas, urban communities and other
associations of municipalities, but a law passed in
2008 abolished these, converting them
into intermunicipal communities.
• Finally Law 75/2013 of September 2013 the current
two types of administrative regions were defined
Metropolitan area
•The Metropolitan Area of Lisbon
•The Metropolitan Area of Porto
A voluntary association of communities not a
ttached to geographic size, but grouped to ta
ke advantage of economies of scale

Administrative regions – Portugal
Intermunicipal
communities
or entities
replaced
districts
More for
economic
purposes then
due regional
identity

• Intermunicipal planning of the school transport network;
• Planning of the educational offer at the supra-municipal level;
• Definition of the network of primary health care units and intercity
continuous care units;
• Definition of the network of volunteer fire stations;
• Definition of the network of justices;
• Participation in actions or projects for the social reintegration of
young people and adults, domestic violence, network of justices of
the peace and support to victims of crimes;
Regional geography – Portugal
Duties – responsibilities (Lei n.º 50/2018 de 16 de Agosto)
• Development of sub-regional domestic tourism
promotion;
• Management of regional ports;
• Designate representatives of the municipalities in the
hydrographic region;
• Manage projects financed with European funds;
• Manage investment capture programs – regional branding.

Ave
National Production Support Program (place
based approach)
Internationalization of Territorial Based
Products and Services

Source
The promotion of territorial base products and
services has a relevant role in the cohesion and
maintenance of territorial identity structure,
allowing for the diversification of income
sources and providing a multifunctionality to
the rural areas.
In this context, entrepreneurs frequently face a
dual challenge, since they must recover
territorial legacy and re-establish local
traditions, and at the same time introduce
innovation factors appropriate to current
market demands
INternacional.AVE is integrated within three RIS3 NORTE
2020 Specialisation Domains:
• “Culture, Creation and Fashion”,
• “Agro-Environmental and Food Systems” and
• “Symbolic Capital, Technologies and Tourism Services”.
Tradition
Innovation
Economic
dynamics

Tradition New trends
Sectors
Segment

Renewal process of
traditional sectors
Traditional know-how on textile > technical textile
Supply
Market/
respond to
demand
Examples – partly resulting from multi-level
governance

Innovate industry
Path creation >
regional
advantage
governance

Path creation >
regional
advantage
Supply
industry
governance

https://www.ertgrupo.com/en/
Tradition
Innovation
governance

https://www.lavoroeurope.com/safetyshoes/home
governance

governance
https://www.nomadtech.pt/

Regional geography – Spain
17 Autonomous Communities

50 Provinces

Has exclusive authority in matters of:
• Nationality
• Migration
• International relations
• Legislation
• Taxes
• Military and Internal affairs/administration
The Central State
• Education
• Health
• Housing (social housing)
• Employment
• Is in charge of elaborating the general laws that regulate these matters:
• Organic Law 2/2006, May 3, on education
• Organic Law 6/2001, December 21, on universities
• Law 14/1986, April 25, on general health
• Organic Law 4/2000, on the rights and freedom of foreigners in Spain
and their integration in society.
• Employment Legislation
Shares authority with the Autonomous Regions

• The role of the Autonomous Regions is
double: legislating and implementing.
• When it comes to immigration, the
Autonomous Regions are in charge of
serving immigrants in matters such as
heath, education and social assistance.
• They are in charge of implementing
those matters that are exclusively a
competence of the Central State, like
immigration, and also those which they
share the authority on, like employment.
• The municipalities are only in charge of
managing their area, but they minor
authority over matters such as
immigration, education, heath or
employment.
Autonomous Regions
A higher degree of independence and
autonomy when compared to the
administrative regions of Portugal

Regional geography – Spain – Galicia
Autonomous Region Galicia (capital: Santiago de Compostela) northwest of Spain.
Galicia has partial self-governance, in
the form of a devolved government,
established on 16 March 1978 and
reinforced by the Galician Statute of
Autonomy, ratified on 28 April 1981.
Three branches of government:
• The executive branch, the Xunta de
Galicia, consisting of the President
and elected councillors;
• The legislative branch consisting of
the Galician Parliament; and
• The judicial branch consisting of the
High Court of Galicia and lower
courts.
Regional Government of Galicia

✓ Role in regional
development
✓ Socioeconomic
support at local

• In terms of gross value added (GVA) in 2018 the
tertiary sector was responsible for 69.1% of
the total, followed by secondary sector that
accounted for 25.6% and the primary sector that
represented the remaining 5.3% (Eurostat,
2020).
• Tourism is experiencing a rapid growth, with
numbers increasing steadily over the last years,
especially due to the popularity of the “Camiño
de Santiago” (Saint James’s Way).
• R&D is also gaining importance and dynamism
while fashion is becoming one of the flagships of
the region with a worldwide recognition.
• The naval sector is slowly recovering from a
deep crisis thanks to the diversification to other
areas such as leisure and deep-sea fishing
activities.
Source

Regional geography – Galicia – Portugal
The smart specialisation paradigm is based on the
principle that innovation and competitiveness
promotion strategies should be based on the
characteristics and assets of the respective regions.
Therefore, it is up to the regions and their institutions
and governance models to define an R&D and
Innovation strategies that concentrate their
resources on a limited number of priorities, on
which it is possible to achieve an overall competitive
critical mass.
Research and Innovation
Strategy for
Smart Specialisation

Analytical framework for the definition of priority
domains for smart specialisation
Governance of smart
specialisation
• Sea related resources
valorisation;
• Aquaculture;
• Biomass and marine
energies;
• Primary sectors
modernisation;
• ICT-Tourism;
• Diversification of driving
sectors;
• Competitiveness in the
industrial sector;
• Knowledge economy: ICT
• Active ageing;
• Food and nutrition.

Analytical framework in the domain of Culture,
Creativity and Fashion
Governance of Culture, Creativity and Fashion
Governance has come
to signify a different mode of
coordinating social interactions in
contemporary society, away
from the subordination and
regulation of society by the State.
Governance addresses both the
interaction of public and private
actors in policy-making and the
definition of commonly
agreed problems and objectives
(Haus and Heinelt, 2005)

Governance model
Co-creation
Co-governance
Co-production
Intermunicipal Communities

• Greater effectiveness of the administrative system, better quality of the
administrative personnel and public officials, transparency and better
access to information;
• Empowerment of the regional level;
• Devolution of powers to local and regional government and the creation of
a legal and political context enabling municipal cooperation;
• Rehabilitation of trust between the state and public administration on the
one hand and the citizens on the other;
• Support of environmental policies through the creation of environmental
agencies.
• Supporting specialization of the economic landscape + R & D
Common points – reshaping territorial governance

Territorial governance – Greece
Greece is a parliamentary republic under the 1975 Constitution. The Parliament (Vouli ton Ellinon) is
unicameral and consists of 300 members. The Head of State is the President of the Republic and the
Government is led by a Prime Minister.
Since 1 January 2011, when the Kallikratis Program entered officially into force, the
Hellenic Republic has comprised seven Decentralised Administrations (apokentromeni
dioikisi), thirteen Regions (perifereies) and 325 Municipalities (dimoi).

Territorial governance – Greece
• It used to be much more centralised but over the last decades it has been
undergoing reforms which ended up with the adoption of an extensive
administrative reform in 2010 called “Kallikratis”.
• The decentralisation process started in 1986 with the creation of 13 Regions.
• Decentralisation was strengthened in 1994 with elected prefectural bodies and
the extension of the municipalities’ competences.
• The 2010 Kallikratis Program reorganised the territorial division by uniting
existing municipalities, modified the vertical division of competences in favour
of municipalities and abolished decentralised public administrations.
• Finally, the Hellenic Republic has recently adopted the Law 4071/2012
“Provisions for local development, local government and decentralised
administration – Transposition of Directive 2009/50/EC”2, which focuses mainly
on special issues of local authorities.
• The Municipalities and Regions constitute the first and second-level of
local self-government

Regional geography – Greece
Source
Regions shape, plan and implement policies at regional level as part of their responsibilities
under the principles of sustainable development and social cohesion of the country, taking into
account of national and European policies.
Municipalities manage and regulate all local matters in accordance with the principles of
subsidiarity and proximity with the aim of protection, development and continuous
improvement of the interests and the quality of life of local society.

Regional level Municipal level
Nacional level
Source

Regional level Municipal level
Source
Regions design,
plan and
implement
regional policies
within the context
of their
competencies,
according to the
principles of
transparency,
effectiveness and
efficiency.

First and second level local authorities (regional and municipalities) are elected by direct universal
suffrage in a secret ballot every five years. These elections are held concurrently at the same polling
stations with those of the European Parliament.
Source

• Progress of the country towards more open government, the protection of
citizens’ rights – through for instance the institution of the Ombudsman
(investigates complaints about maladministration by EU institutions), the
protection of personal data and the opportunities for partnership formation,
especially at the local level.
• On the other hand, the actual implementation of the administrative reforms that
have been undertaken remains slow and often subject to reversals. An indicative
example is the reform regarding decentralization and empowerment of the sub-
regional levels (local/municipal) over the last decade.
• This is sadly a process which has become entangled in negative rulings of the
Council of State, the supreme administrative court. However, international and
especially European influence is a strong positive factor towards a less rigid
administrative structure which is more receptive to governance rationale.
• The implementation of European Initiatives such as URBAN (Urban Agenda for
the EU) have been a path to familiarization of administrative, political and social
bodies and agencies with the culture of governance.
Sapountzaki Kalliopi, 2007

Territorial governance – Italy
An external observer might add that in the case of Italy, besides the EU’s
push, an internal imperative and inherent trend of the political and
institutional system towards regionalization facilitated its rapid
adjustment to the governance rationale.
• In Italy, the basic institutional reforms targeted (since the 1990’s) the
empowerment of regional and sub-regional level with special
emphasis on territorial planning.
• These reforms are as follows (Cotella et al, 2005):
• A new version of chapter 5 of the Italian Constitution (2001)
giving legislative powers to regions;
• Organization of local autonomies (new territorial planning roles
for provinces

Territorial governance – Italy
• These reforms are (Cotella et al, 2005):
• Creation of “metropolitan cities” with
the status of provinces;
• Direct election of the mayor, of the
province president, the municipal and
provincial council;
• Government delegation of functions and
competencies to the regions and local
bodies aiming among others at
administrative simplification;
• Urgent measures for the streamlining of
administrative activities as well as
decision-making and control procedures;
• “Single Text on the organization of local
authorities” according to the principles
dictated by the Constitution.

Territorial governance – Italy Administrative divisions
CIA’s World Factbook
• 15 regions with ordinary statute
• Regions: Abruzzo, Basilicata, Calabria,
Campania, Emilia-Romagna, Lazio
(Latium), Liguria, Lombardia, Marche,
Molise, Piemonte (Piedmont), Puglia
(Apulia), Toscana (Tuscany), Umbria,
Veneto;
• 5 autonomous regions
• Autonomous regions: Friuli Venezia
Giulia, Sardegna (Sardinia), Sicilia (Sicily),
Trentino-Alto Adige (Trentino-South
Tyrol) or Trentino-Suedtirol (German),
Valle d'Aosta (Aosta Valley) or Vallee
d'Aoste (French)
• Metropolitan cities
• Are administrative divisions of Italy,
operative since 2015; Metropolitan
councillors are elected at-large for five-
year terms;

• 15 Regions with ordinary statute
• These regions, whose statutes are approved by their regional councils, were
created in 1970, even though the Italian Constitution dates back to 1948.
Since the constitutional reform of 2001 they have had residual legislative
powers. The regions have exclusive legislative power with respect to any
matters not expressly reserved to state law (Article 117);
• Yet their financial autonomy is quite modest;
• 5 Autonomous regions with special statute
• Article 116 of the Italian Constitution grants home rule to five regions,
allowing them some legislative, administrative and financial power to a
varying extent, depending on their specific statute.
• These regions became autonomous in order to take into account cultural
differences and protect linguistic minorities. Moreover, the government
wanted to prevent their secession from Italy after the Second World War.

Territorial governance – metropolitan cities
The metropolitan city, as defined by
law, includes a large core city and the
smaller surrounding towns that are
closely related to it with regard to
economic activities and essential
public services, as well as to cultural
relations and to territorial features.
(De Luca and Moccia 2017)
• Local planning and zoning;
• Provision of local police services;
• Transport and city services coordination.

Macroregions are the first-level NUTS (The Classification of Territorial Units for
Statistics) of the European Union
Every region has a statute that serves as a regional constitution, determining the form of
government and the fundamental principles of the organization and the functioning of the
region, as prescribed by the Constitution of Italy (Article 123).

Conditions favourable to governance – other than the EU’s push are:
• Economic interests of participants (i.e. to gain access to funding and other resources)
• Strong traditions of informal backstage procedures which may however lead to distorted
governance (e.g. Portugal, Greece)
• Rising importance of local and regional societies, scarcity of resources, environmental
problems transgressing administrative boundaries, globalization and competition
pressures, democratic deficit and crisis of democracy (e.g. Greece, Portugal)
• Strong impetus to Europeanization and modernization of the society and economy
(Portugal, Greece), limited powers and competences (e.g. Greece, Italy) and increasing
needs for a strategic view of territorial policies.

Unfavourable conditions:
• Relationships of mistrust and mutual suspicion between the state and the citizens (which
may also act in favour of governance) (e.g. Greece, Portugal)
• Unclear political polarization (e.g. Portugal), reluctance to share power, problems of
legitimacy of partnerships, communication problems and antagonisms between central and
local / regional authorities or between public and private agencies
• Political patronage of administrative authorities, geopolitical divisions, complexity and
tardiness of governance procedures, hostility to spatial planning (e.g. Greece)
• A culture of competitiveness and concentration on own interests (e.g. Portugal) diffused
among authorities, political parties, private agencies, NGOs even the individual citizens, a
diffused culture of law disobeying and the education of planners
• Professionals and officials lagging behind in terms of the new
skills needed for governance.
• The danger of partisan governance is always lurking especially
in the countries of the European South.

Multi-level
territorial
governance
Forms of cooperation Countries

Some are established formally by government, particularly for metropolitan
areas.
• Municipalities are increasingly collaborating voluntarily for the provision
of services and in some cases planning, with such arrangements being
extensive.
• But the largest category, and one for which it is notoriously difficult to get
accurate data are ‘soft territorial cooperation areas’. In these regions, the
starting point is cross-border cooperation but there is also a measure of
inter-sectoral cooperation as a wide range of organisations get involved.
There is much reporting of a rescaling of planning competences in ‘functional
planning regions’ to address the reality of environmental, commuting,
economic and other flows across borders.
Source ESPON 2018

• In Italy, while the empowerment of the regional / metropolitan level is
welcomed as a precondition for territorial decisions promoting sustainability
the needed guidance at the national level remains poor or absolutely missing.
Besides the transferred competencies to the regional level are of sectoral
orientation and the mechanisms of competitiveness of contractual-type
partnerships (pursuing access to funding) exclude horizontal cooperation
among territories.
• In Portugal, the balance of political power is featured by the gradual shift of
powers to the local level (municipal//inter-municipal). However, local
authorities and their political leadership reproduce the past model of the
authoritarian central government and administration. Populist attitudes on
the part of local politicians and introversion make cooperation between
territories at the local level a hard task. This condition combined with the
weakness of the regional level actually incapacitates territorial governance at
regional level.

Lecture 1 - Introduction: economic geography and its recent paradigms

3_Lecture_The territorial governance of Southern Europe

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