Handbook December 2017 - PROFECY - Processes, Features and Cycles of Inner Peripheries in Europe - ESPON
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PROFECY – Processes, Features and Cycles
of Inner Peripheries in Europe
(Inner Peripheries: National territories facing challenges
of access to basic services of general interest)
Applied Research
Handbook
December 2017
This applied research activity is conducted within the framework of the ESPON 2020 Cooperation Programme, partly financed by the European Regional Development Fund. The ESPON EGTC is the Single Beneficiary of the ESPON 2020 Cooperation Programme. The Single Operation within the programme is implemented by the ESPON EGTC and co- financed by the European Regional Deve- lopment Fund, the EU Member States and the Partner States, Iceland, Liechtenstein, Norway and Switzerland. This delivery does not necessarily reflect the opinion of the members of the ESPON 2020 Monitoring Committee. Information on ESPON and its projects can be found on www.espon.eu The web site provides the possibility to download and examine the most recent do- cuments produced by finalised and ongoing ESPON projects. This delivery exists only in an electronic ver- sion. © ESPON, 2017 Printing, reproduction or quotation is autho- rised provided the source is acknowledged and a copy is forwarded to the ESPON EGTC in Luxembourg. Contact: info@espon.eu
Table of content
Foreword 5
Objectives of the handbook 5
How to use it? 5
Structure of the handbook 5
WHERE ARE INNER PERIPHERIES LOCATED?
What’s an Inner Periphery? 6
Delineation of Inner Peripheries 7
Combination of the four delineation ap-
proaches 8
Identification of Inner Peripheries 9
WHY IS THIS PHENOMENON OCURRING?
‘Status’ of Inner Peripheries identified in
Europe 10
Identification of areas at risk of becoming
Inner Periphery 11
Processes and drivers of Peripheralization 12
HOW TO DEAL WITH IT?
Strategies for Inner Peripheries 14
Exploring and utilising the territorial 14
potentials for building IP strategies
What are the steps to design a strate- 15
gy for IPs?
What policies can be used to support 16
strategies for IPs?
What is the role of the national level 17
and regional governance?
Recommendations to policy stakehol- 18
ders
3
The ESPON PROFECY - Inner Peripheries Project Group consists of eight partners from seven
European countries:
Universitat de València CREA - Consiglio per la Ricer-
(Lead Partner) ca in Agricoltura e l’Analisi
Joan Noguera Tur dell’Economia Agraria
Mar Ortega-Reig Franco Mantino
Hèctor del Alcàzar Indarte Barbara Forcina
Nordregio TCP International GmbH
Andrew Copus Carsten Schürmann
Anna Berlina
BABF - Bundesanstalt fuer University of Lodz
Bergbauernfragen Marcin Wójcik
Thomas Dax Paulina Tobiasz-Lis
Ingrid Machold Karolina Dmochowska-Dudek
ILS - Research Institute for Re- MTA KRTK - Hungarian Aca-
gional and Urban Development demy of Sciences, Centre for
Sabine Weck Economic and Regional Studies.
Sabine Beißwenger Katalin Kovács
Nils Hans Gergely Tagay
Bálint Koós
Annamária Uzzoli
Responsible party: More information on:
Universitat de València ESPON Inner Peripheries
Instituto de Desarrollo Local https://www.espon.eu/programme/pro-
Joan Noguera jects/espon-2020/applied-research/inner-
joan.noguera@uv.es peripheries-national-territories-facing
4
Foreword
Objectives of the handbook: Structure of the handbook:
The purpose of the handbook is to provide The handbook is structured in three sec-
a short synthesis of the main insights from tions:
the PROFECY applied research project. - Where are inner peripheries located?
Pages 6 to 9 present what an Inner Pe-
It is addressed to regional and national ac- riphery is and what theoretical concepts
tors dealing with “Inner Peripheries” (IPs) are behind it. Subsequently, four delinea-
and aims at enhancing the understanding of tions to characterize it are defined, rela-
their features and underlying dynamics. The ted with the theoretical concepts and
handbook also wants to provide meaningful mapped for Europe. Lastly, an integrated
examples and ideas on how to cope with the map is presented to summarize the main
challenges they present. drivers emerging from the four delinea-
tions.
How to use it? - Why is this phenomenon ocurring?
Pages 10 to 13 include relevant facts
An understanding of the processes, features about Inner Peripheries in Europe. It also
and cycles leading to the development and presents the location of areas at risk of
persistence of Inner Peripheries allows us to becoming Inner Peripheries and, lastly,
recognise what transforms a territory into why these processes ocurr and how the
an IP, and consequently, which solutions can drivers that are the “engines” of inner
be implemented in order to prevent further peripherisation are related.
decline and to enhance territorial cohesion.
- How to deal with it?
The handbook takes into account different Pages 14 to 23 explain the intervention
concepts and delineations of Inner Periphe- logics and the steps needed to design a
ries. It also presents maps illustrating the lo- strategy for IPs. After that, policies that
cation of IPs across Europe, a description of can be used to support a strategy for IPs
the process of peripheralization and a selec- are presented and the need to take ac-
tion of strategies to overcome such negative tion at different scales in order to have
processes. success in reverting the phenomenon.
At the end, recommendations to policy
It is hoped that these strategies can inform stakeholders are provided at different
and inspire regional/national discussions to levels (european, national, regional and
foster appropriate action when dealing with local).
Inner Peripheries in their region or country.
Further ESPON PROFECY reading:
Final Report.
5
What is an Inner Periphery?
Inner Periphery (IP): Three theoretical concepts:
Inner Peripherality represents a multiface- Three theoretical concepts of IP are identi-
ted and multidimensional phenomenon. Its fied, although they are often mixed in real
distinctive feature is the degree of “discon- world.
nection” with neighbouring territories and
networks and not (or not only) their geo- 1. Areas with low levels of economic po-
graphical position distant to centres. Un- tential which are “enclaves” between core
like purely geographical peripheries, those areas with higher economic potential.
associated with distance to population and
economic activity centers, Inner Peripheries 2. Areas characterised by poor access to
(IPs) also suffer the effects of socio-econo- Services of General Interest (SGIs).
mic processes that cause disconnection
with neighbouring territories and networks. 3. Areas that exhibit low levels of socio-eco-
nomic performance which can be attribu-
Inner Peripheries have in common the fact ted to an absence of “organised proximity”
that their general performance, levels of de- (of whatever kind), which are in some way
velopment, access to SGI, or quality of life excluded from “the mainstream” of econo-
of the population are relatively worse when mic activity, or which can be said to be ex-
compared with their neighbouring territo- periencing a process of “peripheralization”.
ries.
Some common characteristics found
in Inner Peripheries Case Studies:
1. Large distance to regional centres
2. Large distance to some Services of
General Interest
3. Out-migration of the young and
highly-skilled people
4. Decrease of population
5. High old-age dependency ratio
6. A lack of skilled workforce
7. An economic sector often based
on traditional activities
6
Delineation of Inner Peripheries
Four delineations to characterize Inner Peripheries at European level:
Delineation 1 (D1): Higher travel time to Delineation 4 (D4): Depleting areas
regional centres This delineation identifies areas suffering
Regional centres are considered a proxy depletion which are related with the absen-
for administrative, economic and generally ce of “organized proximity” (increase unem-
most important centres for SGI provision ployment, population loss and GDP per ca-
and for all social and economic activities. pita decrease). At some point in time, even
Areas experiencing a lack of access to such when regions have good access to regional
centres can thus be interpreted as Inner Pe- centres or to SGIs, they may enter into a ne-
ripheries. This delineation shows areas with gative downward spiral, often triggered by
higher travel time to regional centres than external shocks and trends.
their neighboring NUTS3 regions, accoun-
ting for the geographical distribution of re-
gional centres, and for the existing transport
networks connecting these centres with the
surrounding territories.
Delineation 2 (D2): Economic potential ins-
terstitial areas
This delineation identifies “interstitial”
areas of increased peripherality, which are
not on the physical edge of Europe, and are
These four delineations are overlapped to
surrounded by areas of greater centrality.
further understand the interaction of diffe-
This delineation selects areas of lower po-
rent Inner Peripheries in the map of next
tential accessibility to population and GDP
page.
than neighboring areas, relative to the re-
gion or country average.
How are the four delineations linked to the
Delineation 3 (D3): Areas of poor access to
three theoretical concepts?
SGIs
The relationship is illustrated in the fo-
An adequate provision and access to the
llowing table:
main SGIs constitute an indicator of the
degree of connectedness of territories. A D1 D2 D3 D4
better connectedness to SGI ensures higher Concept 1
quality of life and increases the attractive-
Concept 2
ness of the area which may contribute to re-
duce population loss. This delineation iden- Concept 3
tifies areas that suffer from relative poorer
indicates the main operacionalization of the concept.
access conditions to SGIs than the average
indicates the delineation can be used as a proxy.
in the surrounding areas and/or in the re-
gion.
7
Combination of the four delineation approaches
Interactions between the four delineations at European level
The map presents the areas that have been more. Furthermore, 35.3% of Inner Periphe-
identified as Inner Peripheries at grid level, ries are identified in only one delineation,
approximately 45% of the entire ESPON te- meanwhile 64.7% of them appear in two
rritory. The areas are classified according delineations or more.
to the number of times an area is identified
as an inner periphery by one delineation or
8
Identification of Inner Peripheries
What are the main drivers provoking peripheralisation?
This map shows the combination of deli- and/or to regional centres. At last, 9% of the
neation results grouping them in three ca- areas show (3) a combination (aggravation)
tegories. Areas where the main driver is (1) of both factors.
a poor economic or demographic situation,
represent 46% of all IPs. In addition, 45% Further ESPON PROFECY reading:
of the areas have (2) poor acess to services Annex 6 and Annex 7.
9
“Status” of Inner Peripheries identified in Europe
Relevant facts about Inner Peripheries in Europe
The “status” of Inner Peripheries can be The socio-economic trends of inner peri-
only really understood and interpreted by pheral areas regularly reveal clear and well-
comparing its features to indicators of other known regional patterns:
types of regions in Europe. - the shrinkage of population in East
Central Europe and in certain coun-
Results indicate significant geographical tries from the Mediterranean area;
overlap between different groups of Inner - the accelerated ageing in Eastern
Peripheries and other regional typologies Germany;
(Table). In general, regarding EU regional - the path switches caused by the
typologies, inner peripheral regions tend shock of the economic crisis in the
to frequently overlap with intermediate, Mediterranean countries;
rural, mountain and lagging areas. Besides, - the advancements of East Central
other region types might show more nota- European Inner Peripheries to Euro-
ble overlap with one or another IP delinea- pean level averages;
tion types, such as the case of depleting In- - the position loss of Italian regions
ner Peripheries and urban or metropolitan compared to their former positions
areas, which imply that processes of mar- regarding economic performance.
ginalisation could significantly affect these
territories too.
Regional Urban Intermediate Rural Mountain Island Metropolitan L a g g i n g L a g g i n g
Typologies regions regions regions regions regions regions (Identification of areas at risk of becoming Inner Peripheries
Areas at risk: areas that would became IPs if one/two SGIs are closed down
Areas at risk of becoming Inner Peripheries that have poor access to three or four SGIs.
in the future represent territories that today If the area would have poor access to five
are not identified as Inner Peripheries, but or more SGIs it will be identified as an inner
which already lack access to some services. periphery regarding access to services.
However, there is a great risk that they will
become Inner Peripheries in the near futu-
re, if service provision deteriorates further.
The map identifies as areas at risk the areas
11Processes and drivers of Peripheralization
Descriptive Models
The Descriptive Models are theoretical abs- Their value lies in helping to understand the
tractions. They represent, through simple logic of the various interacting processes
diagrams derived from the three theoretical which account for the negative socio-econo-
concepts, the processes and drivers that are mic characteristics of IPs. All of these are dri-
the “engines” of inner peripherisation. They ven by inadequate connectedness of some
are intended as the basis for intervention lo- form. This is what distinguishes an IP from
gics for strategies and policies (see page 14). other kinds of marginal region.
Descriptive Model for “Enclaves of low economic potential” (IP Concept 1)
Descriptive Model for “Areas with poor access to or provision of SGIs” (IP Concept 2)
12Processes and drivers of Peripheralization
Descriptive Model for “Areas experiencing aspatial Peripheralization Processes” (IP Concept 3)
Concept 1: Its initial “trigger” is poor access Concept 3: Areas with a lack of “organized
or a long travel time to centres of econo- proximity” show features of geographic
mic activity. There are multiple “feedback” distance, but also include an acknowledge-
loops which make difficult to reverse the ment of weak “interrelations” and interac-
trend once the cycle has been triggered. tion of regional actors. The main “trigger” is
The drivers and outcomes are defined in a weakness of interaction/a lack of connec-
terms of economic activity and economic tedness of IP stakeholders and institutions
disadvantages, whilst human and social ca- related to wider networks. This is associa-
pital effects have a background role. ted with a lack of influence on the centres
of power and in governance arrangements.
Concept 2: It is primarily driven by geogra-
phic distance and aspects of available infras-
tructure. Access to SGI has a direct impact
upon the human and social capital cycle,
and thence an indirect effect upon the pro-
ductivity of economic activity, which feeds
back into regional tax-raising capacity.
13Strategies for Inner Peripheries
Exploring and utilising the territorial potentials for building IP strategies
A strategy to address the needs of an IP For example, in the case of the first kind of
should, first of all, be based upon a careful peripheralization process the root cause is
investigation of the process which has cau- likely to be inadequate transport infrastruc-
sed and sustained the cycle of decline. ture – and so it makes sense to incorporate
transport network improvements into the
It seems likely that this will be driven by one strategy. Where the primary process is dri-
or more of three “primary peripheraliza- ven by poor access to services the strategy
tion” processes which are bundled together should respond (for example) by exploring
with a range of “secondary marginalization” the benefits of new technology, or promo-
effects. The three “Descriptive Models” can ting social innovation solutions. The third
form the basis for appropriate intervention kind of peripheralization process is the most
logics (Figure). challenging in terms of strategy design, re-
quiring wide ranging efforts to improve the
Each of them may be developed at a variety capacity for interaction, across a variety of
of spatial scales, although the first will usua- actors, from individual entrepreneurs to es-
lly be delivered through a national level of tablished businesses, institutions and local
governance, the second by regional autho- governance.
rities, and the third by local community ini-
tiatives.
14Strategies for Inner Peripheries
What are the steps to design a strategy for IPs?
The elaboration of place-specific strategies In general, no single factor is responsible
is a process which each region has to under- for IP processes (alone) and challenges ex-
take separately. Nevertheless, learning les- tend to a number of interrelated aspects of
sons from how this process should be orga- socio-economic and cultural development.
nized and which steps it should include can This includes the following aspects in regio-
be used from previous relevant action. nal activities: internal differentiation; focus
on main reason for IPs, but also reflect the
From considerations on regional develop- complex dynamics; make use of local op-
ment planning it appears that well-being portunities and interaction as prime levers;
and sustainable development goals have develop “intangible factors” (community
been placed high on the priority list. Policy relations, social norms and local capacity);
programmes should take an “integration” adapt the institutional setting; and renew
perspective embracing a series of inter-rela- perspectives on regional potential.
ted policies and schemes to tackle (jointly)
Steps for regional policy integration
IP challenges. The sequence of activities
presented in feedback loops suggests that
there is a continuous need for reflecting
and returning in regional strategy work to
the previous stages/elements of policy ela-
boration (steps 1-5).
It is crucial that this integrative perspective
at the local/regional level not just focuses
on the main drivers of peripheralization but
extends to all relevant policy areas in order
to address the inter-related effects of regio-
nal development. Moreover, action at local/
regional level has to be seconded by larger
administrative levels to become effective
(step 6).
One of the major obstacles in de-
signing strategies for integrated ap-
proaches is to find drivers that can
make a change at an early stage, that
turn around “spiraling-down” proces-
ses of Inner Peripheries.
To overcome fragmentation in action, “inte-
grated” strategies need to address the va-
rious components that lead to IP processes.
15Strategies for Inner Peripheries
What policies can be used to support strategies for IPs?
There is a range of different policies ad- rent Funds involved. Most of initiatives are
dressed to territorial needs. These policies funded by only one financial instrument.
have been experimented in the last decade, Moreover, public support tends to focus on
encompassing two programming periods already economic developed areas rather
2007-2013 and 2014-2020. The whole ran- than trying to rebalance social and econo-
ge of EU policies are implemented at regio- mic disparities between sub-regional terri-
nal and local level, from the CAP (Common tories.
Agricultural Policies) to Cohesion program-
mes, from national to regional and local Local strategies can take policy support in
schemes. There is a strong variety of policy the context of Inner Peripheries by four
instruments used and their mix varies from kinds of policy instruments: a) Integrated
an area to another. territorial investments (ITI); b) Communi-
ty-Led Local Development (CLLD); c) other
At the figure it is shown a first type of policies forms of integrated approaches funded by
that is delivered though the main-stream EU pogrammes (e.g. some territorial pacts
programmes: Operational Programmes or integrated value chain scheme); d) some
funded by ERDF and ESF, on one side, and national/regional approaches (see figure).
Rural Development Programmes funded These different forms of place-based ap-
by EAFRD, on the other. In addition to EU proach are usually perceived (by people in-
policy schemes, in some countries specific terviewed at local level) as more fitted than
schemes can be implemented by national/ the territorially-blind mainstream program-
regional funds. mes to the local development and social
needs.
Local development strategies allow several
advantages for IPs: earmarking of financial
resources in a relatively small territorial sca-
le and in a programming period, interlinked
projects instead of independent and isola-
ted projects, design and implementation at
the relevant scale and possible adaptation
to changes of the local situation, opportu-
nity to design a strategy encompassing eco-
nomic development and access to services,
etc.
These programmes can frequently be te-
rritorially-blind, not targeted to IP areas,
lack a coherent vision of specific territorial
needs and a coordinated action of the diffe-
16Strategies for Inner Peripheries
What is the role of the national level and regional governance?
Effective policy interventions for overcoming Regional level
or reversing peripheralization processes are An agency, platform or coordination unit
based upon a multi-level policy approach. at a higer administrative level may have an
Path changes in the development trajectory important role as an intermediary actor. It
of regions defined as Inner Peripheries are could ensure creating dynamics from coor-
rare - which is why concerted political action dinated efforts from below, and at the same
is required in order to break a continuing time, bundling and channeling relevant re-
downward cycle. sources from upper levels into the area. This
supra-local level is important as, in some
National level cases, Inner Peripheries are rather small in
Increased political attention needs to be scale or they are of a very dispersed nature,
paid to the challenges, and at the same time, so that it is difficult for local stakeholders to
the specific potentials and assets of Inner raise sufficient resources for an effective in-
Peripheries. National governments have a tervention strategy.
significant role in enabling or supporting lo-
cal stakeholders in Inner Peripheries in their Cross-local cooperation and strategic plans
policies. The prosperity of Inner Peripheries seem to be promising specifically regarding
depends on utilizing their territorial poten- the following challenges:
tial in a way that benefits the particular loca-
tion. The pathway to change rests upon an * Generating visibility for the spe-
endogenous development process and, at cific needs in Inner Peripheries
the same time, the capacity to connect with - be it physical connectivity, SGI
exogenous resources and agencies. National access or supporting organised
or regional state governments can support proximity
Inner Peripheries in this process. * Locality branding and increase of
positive visibility of the affected
This does not necessarily imply the call for regions
new funding programmes. It is, however,
first important to screen, in how far existing
* Retaining or attracting skilled
workforce
national funding and support programmes
(for rural development, or for supporting * Fostering innovation through
R&D and SME development
structural change) can be possibly adapted
to better accommodate the needs of Inner * Strengthening of regional coope-
ration and mutual support
Peripheries. Second, more political atten-
tion needs to be given to monitor the exis- * Increasing the local/regional
tence and development of Inner Peripheries stakeholders’ influence on hig-
in the national context. her-policy decision-making levels
* Monitoring and evaluation
17Strategies for Inner Peripheries
Recommendations to policy stakeholders
In dealing with the phenomenon of Inner socially innovative forms. It is,
Peripherality, the following recommenda- however, importat to consider
tions might be helpful for policy stakehol- this for specifically sparsely po-
ders at particular levels. pulated rural regions. This pro-
cess may be initiated or exa-
cerbated by restructuring of
1. At local level administrative areas, in search
a. Clarity on causes and effects. It is of scale economies. Obviously,
important to base strategy building there is no easy solution, but in-
upon a careful investigation of the tegrated policy action is needed
process which caused and sustain-
ed the cycle of decline. Attention · Lack of relational proximity:
needs to be paid to the different Identifying “interrelations” as
primary drivers, which are accor- primary driver would suggest
ding to the three IP models: a range of interventions desig-
ned to strengthen and broaden
· Deficiency of connectivity, the interaction space of the full
leading to low “economic po- range of actors within the local
tential”: In this case, a rational economy and society. Exam-
response would be to consider ples would be, network broke-
how the locality might be better rage to support the expansion
connected to European trans- of the business networks of lo-
port networks, through con- cal SMEs, or establishing links
ventional infrastructure impro- to higher-policy levels in order
vements, logistics systems, or to draw attention towards the
travel cost reductions. Changes specific challenges of Inner Peri-
in infrastructure and travel cost pheries and need of support for
reductions obviously cannot be dealing with these in the speci-
dealt with at the local level only fic region
and call for a concerted effort
across different policy scales.
Interventions will profit from an
b. Articulating a pathway to change.
integrated policy approach in
It is relevant to have a clear un-
order to limit “pump effects”
derstanding of the specific place-
based assets and limitations and
· Lagging intra-regional service the way forward in terms of the
delivery: In this case, a policy
appropriate intervention logic. The
response would aim to improve
six steps can be followed to deve-
the access to and the efficiency
lop a pathway to change:
of services, perhaps incorpora-
ting novel IT-based solutions, or
18Strategies for Inner Peripheries
1. Identifying long-term goals hance cooperation. They were
reported to be particularly suc-
2. Backwards mapping and con- cessful when bundling a local
necting the preconditions ne- economy-oriented project and
cessary to achieve that goal and linking this to a wider supra-
explaining why they are neces- regional market, be it through a
sary and sufficient specialised product or through
the creation of a positive regio-
3. Identifying basic assumptions nal image
about the context
2. Establishing new horizontal
4. Identifying the interventions cooperation: Local stakeholders
that the initiative will perform are asked to think across esta-
to create the desired change blished boundaries and paths.
Some of them are successful in
5. Developing indicators to mea- establishing new SGI catchment
sure the outcomes to assess the areas to provide improved and
performance of the initiative more efficient service deliveries
and accessibility
6. Writing a narrative to explain
the logic of the initiative 3. Establishing new or focu-
sing on vertical cooperation:
Although long-term established
c. Development of strategic institu- local-to-local cooperation can
tional capacity. It is an influential be a good basis, effective coo-
and decisive factor for breaking peration can also be built up on
downward cycles, changing routi- the basis of current common
nes and reversing trends. It is cru- challenges and involve different
cial to adopt an integrative pers- governance levels, e.g. for tac-
pective to tackle IP challenges. kling questions of lagging mobi-
Local connectedness and interac- lity and digital infrastructures
tion can successfully be pursued in
different organisational forms and
for different monofunctional or d. Improvement of the service provi-
multifunctional purposes: sion. It is important to involve new
ways and constellations incorpora-
1. Making use of established ting socially innovative models of
national and EU programs. For service delivery and novel IT-based
example, LEADER/CLLD pro- solutions. Improvements of the
grams can be applied by local service provision can be organised
stakeholders as a vehicle to en- on the local level through:
19Strategies for Inner Peripheries
1. Social innovation processes region, or joint initiatives for quali-
and spatial restructuring, so fying local labour force
that services can be accessed in
places formerly inaccessible or Territorial capital can take diver-
services are brought to places se forms. Local stakeholders shall
where they were unavailable consider the following fields for
before or threatened to become detecting specific strengths of
unavailable their IP area:
2. Activating the civil society and 1. Skills, specialized products or
letting it take over activities and industries inherent in the local
tasks formerly provided by pu- labour market and economic
blic or economic stakeholders institutions and related to the
and through this compensating labour market
for otherwise economically un-
sustainable markets 2. Social features such as power-
ful, constructive cooperation or
3. Responsibly allowing market- abilities for network and resour-
driven solutions to take over ce brokerage to support the at-
and by transferring responsibili- traction of external labour force
ty to private households to the region, or joint initiatives
for qualifying local labour force.
4. This can be supported or In response to deficits in service
complemented by making use provision, it might involve new
of adapted solutions digitalisa- ways and constellations incor-
tion can provide, going beyond porating novel IT-based solu-
the already established fields of tions.
digital shopping and administra-
tion infrastructures 3. Cultural legacies that might
allow for strengthening feelings
of belonging and create visibili-
e. Connectedness of territorial ca- ty beyond the IP
pital. Local policy makers could
adopt an explicit focus on connec- 4. Specific natural assets or in-
tedness and interaction capacity frastructures that might provide
when reflecting the localities’ te- the essential basis for develop-
rritorial capital. Examples related ment and competitiveness if
to the labour market are: network further acknowledged and de-
brokerage to support the attrac- veloped
tion of external labour force to the
20Strategies for Inner Peripheries
2. At regional level 1. Generating visibility for the
f. The role of intermediary regional challenges in IP localities and
agencies. It is convenient to streng- creating attention for their spe-
then a regional agency or platform cific needs - be it physical con-
for the following purposes: nectivity, SGI access or suppor-
ting organised proximity
1. Coordinating efforts from be-
low and providing a platform to 2. Locality branding and increa-
develop a common understan- se of positive visibility of the
ding on important topics, goals affected regions
and understandings of the peri-
pheralisation situation and be- 3. Developing strategies for ur-
yond gent problems, e.g. retaining or
attracting skilled workforce by
2. Providing a conceptual fra- connecting companies, voicing
mework that links development interest in training facilities or
plans of the local, the regional providing a clear and positive
and the supra-regional level image of the current and future
local working and living condi-
3. Negotiating peripheralisa- tions
tion issues, such as resources
and infrastructure provision, or 4. Fostering innovation through
representation and network in- R&D and SME development
tegration with upper decision- through elaborating clear goals
making levels and giving the IPs and ambitions, and the defini-
a voice in decision making tion of supportive structures
4. Providing a permanent and 5. Strengthening of regional
balanced platform for monito- cooperation and mutual sup-
ring and evaluation port
g. A comprehensive institutionalized
vision on synergies and comple-
mentarities. Regional cooperation
and strategic plans are core requi-
rements and seem beneficial and
promising elements to tackle the
following challenges:
21Strategies for Inner Peripheries
3. At national level National/regional state govern-
h. Paying political attention to Inner ments or agents can support Inner
Peripheries. There is a common Peripheries in this process. This
perception among political stake- is not necessarily a call for new
holders of “being forgotten” in the funding programmes. However, it
national political agenda in a two- does imply political attention to
fold sense the presence of Inner Peripheries
in the national context, how these
On one side, it is difficult to get might be better targeted in existing
sufficient attention and support programmes and a monitoring of
from higher political levels for dea- their development
ling with the specific challenges of
their region The national level shall reconsi-
der existing programs regarding
On the other side, there is a feeling their adaptability to IPs special
of being little connected to the needs, such as out-migration, de-
decision-making policy arenas at mographic change, lack of skilled
higher policy levels, and thus not workforce, insufficient SGI provi-
being able to influence the agenda sion or unsuitable connectivity
setting processes for the future
In a further step it can consider po-
Therefore, the national discussions sitive discrimination of IP areas to
on spatial justice and comparabi- break through a downwards spira-
lity of standards regarding infras- ling development, e.g. for issues of
tructure, SGI and financial support digitalisation
within the national framework
shall be strengthened
The national level shall open or
create communication channels
to decision making levels for IP re-
gions
i. Monitoring and supporting access
to funding. The pathway to change
rests upon an endogeneous deve-
lopment process and, at the same
time, the capacity to connect with
exogenous resources and agencies
22Strategies for Inner Peripheries
4. At European level of interventions and to their im-
j. Integration of programmes and pact with regards to overcoming or
policies. It is important to realise reversing peripheralization proces-
a greater territorialisation of both ses
Cohesion and Rural development
policies in order to strengthen
interventions which can evolve
around the specific challenges of
inner peripheral areas
k. Access and transparency. It is re-
commended to promote local
stakeholders accessing supra-local
funds on the basis of locally defi-
ned priorities and a place-based
approach. Consider IP specific in-
dicators such as out-migration,
demographic change or a lack of
skilled workforce as new criteria
for allocation of funding. Increase
acceptance for stabilising rather
than growth-oriented goals in fun-
ding schemes
l. Decentralisation of decision ma-
king. Consider the sub-delegation
of competencies and resources to
the lowest possible regional/local
level in order to allow cooperative
governance and strategy building
which is sensitive to local specifi-
cities
m. Implementation. It is necessary to
ensure that control of compliance
to rules and legality does not over-
shadow the attention to the quality
23www.espon.eu Interested in ESPON? The ESPON 2020 Programme is part-financed by and larger territories. In doing so, it shall facilitate the European Regional Development Fund, the the mobilisation of territorial capital and develo- EU Member States and the Partner States Iceland, pment opportunities, contributing to improving Liechtenstein, Norway and Switzerland. It shall European competitiveness, to the widening and support policy development in relation to the aim deepening of European territorial cooperation of territorial cohesion and a harmonious develop- and to a sustainable and balanced development. ment of the European territory. The Managing Authority responsible for the ES- ESPON shall support Cohesion Policy development PON 2020 Programme is the Ministry of Sustaina- with European-wide comparable information, ble Development and Infrastructures of Luxem- evidence, analyses and scenarios on framework bourg. conditions for the development of regions, cities
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