Is there a rise of the territorial dimension in the EU Cohesion Policy?

IS THERE A RISE OF THE TERRITORIAL DIMENSION IN THE EU COHESION POLICY? edua do Medei os1 ABSTRACT – his pape examines he ole and impo ance o he e i o ial dimension o eU Cohesion Policy, du ing i s i e p og amming phases (1989 ‑2020), by ela ing his implemen a ion p ocess wi h se e al e i o ial elemen s, and by assessing hei cons an changes, namely in h ee main componen s and ela ed elemen s: (i) he ‘policy s a egy’ designed o include an in eg a ed e i o ial pe spec i e; (ii) he ‘policy impac s’ in e i o ial de elopmen and e i o ial cohesion, oge he wi h he use o e i o ial impac assessmen p ocedu es; and (iii) he ocus on one o se e al ‘ e i‑ o ial scales’, speci ically h ough he suppo o mul ile el ‑go e nance, e i o ial coope a ion, and place ‑based s a egies. Pa adoxically, despi e he con inuous a emp s o de ach eU Cohesion Policy om i s ini ial goals o p omo ing a mo e cohesi e eu ope in o a mo e neolibe alis pa adigm ype o ‘in es men Policy’, ou analysis showed ha he e i o ial dimension is s ill e y much ancho ed wi h his Policy, and e en gaining impo ance in se e al e i o ial ela ed elemen s, such as he suppo o e i o ial coope a ion and go e nance p ocesses, and he use o e i o ial impac assessmen p ocedu es. Keywo ds: e i o ial dimension; eU cohesion policy; e i o ial de elopmen ; e i‑ o ial coope a ion; e i o ial impac assessmen ; e i o ial cohesion. RESUMO – se á que se e i ica um inc emen o da dimensão e i o ial na Polí ica de Coesão da Ue? es e a igo analisa o papel e a impo ância da dimensão e i o ial da Polí ica de Coesão da Ue, ao longo das suas cinco ases de p og amação (1989 ‑2020), ao elaciona es e p ocesso de implemen ação com á ios elemen os e i o‑ iais, e ao a alia as suas cons an es mudanças, nomeadamen e em ês componen es p incipais: (i) a ‘es a égia polí ica’ desenhada de modo a inclui uma pe spec i a e i o‑ ial in eg ada; (ii) os ‘impac os da polí ica’ no desen ol imen o e i o ial e na coesão e i o ial, conjun amen e com a u ilização de me odologias de a aliação de impac os ecebido: Janei o 2016. acei e: Ou ub o 2016. 1 Uni e sidade de Lisboa, ins i u o de Geog a ia e O denamen o do e i ó io (iGO ), Cen o de es udos Geog á icos (CeG), edi ício iGO – ua B anca edmée Ma ques, 1600 ‑276, Lisboa, Po ugal. e ‑mail: emedei [email protected] Finis e a, LI, 103, 2016, pp. 89 ‑112 doi: 10.18055/ inis7940 a igo 90 Edua do Medei os e i o iais; e (iii) o oco numa ou á ias ‘escalas e i o iais’ especi icamen e a a és do apoio a p ocessos de go e nança mul iní el, coope ação e i o ial, e es a égias de ac ua‑ ção localizada. Pa adoxalmen e, e apesa das sucessi as en a i as de dissocia a Polí ica de Coesão da Ue dos seus objec i os iniciais de p omoção de uma eu opa mais coesa, no sen ido de implemen ação de um pa adigma neolibe al de uma ‘polí ica de in es imen o’, a nossa análise concluiu que a dimensão e i o ial es á ainda mui o anco ada a es a Polí ica, es ando mesmo a ganha uma impo ância c escen e em á ios elemen os ma cadamen e e i o iais, ais como o apoio a p ocessos de coope ação e go e nança e i o ial, e o uso de p ocedimen os de a aliação de impac os e i o iais. Pala as ‑Cha e: Dimensão e i o ial; polí ica de coesão da Ue; desen ol imen o e i o ial; coope ação e i o ial; a aliação de impac os e i o iais; coesão e i o ial. RÉSUMÉ – La dimension e i o iale es ‑elle c oissan e dans la Poli ique isan à plus de Cohésion eu opéenne. Ce a icle examine le ôle e l’impo ance de la dimension e i o iale de la poli ique de cohésion de l’Union eu opéenne au cou s de ses cinq phases de p og amma ion (1989 ‑2020). On appo e ce p ocessus de mise en œu e à plusieu s élémen s e i o iaux, e on é alue leu s changemen s cons an s, dans ses ois p incipaux composan s: (i) la «s a égie poli ique» isan à inclu e une pe spec i e e i o iale in ég ée; (ii) les «impac s des poli iques» su le dé eloppemen e i o ial e la cohésion e i o iale, ainsi que l’u ilisa ion des p océdu es d’é alua ion de l’impac e i‑ o ial; e (iii) l’accen mis su une ou plusieu s «échelles e i o iales», no ammen pa le sou ien à plusieu s ni eaux de gou e nance, pa la coopé a ion e i o iale, e pa des s a égies localisées. Pa adoxalemen , malg é les en a i es épé ées de dé ache la poli ique de cohésion de l’Ue de ses objec i s ini iaux de p omo ion d’ une eu ope plus cohé en e, dans un ype de pa adigme plus néolibé al de «Poli ique d’in es issemen », no e analyse mon e que la dimension e i o iale es enco e ès anc ée dans ce e poli ique, e gagne même en impo ance dans plusieu s élémen s e con ex es e i o iaux, els que le sou ien à la coopé a ion e i o iale e de gou e nance, e à l’u ilisa ion de p océdu es d’é alua ion de l’impac e i o ial. Mo s clés: Dimension e i o iale; la poli ique de cohésion de l’Ue; le dé eloppemen e i o ial; la coopé a ion e i o iale; é alua ion de l’impac e i o ial; la cohésion e i‑ o iale. i. in ODUC iOn The e is a la ge body o li e a u e which discusses and illus a es he ope a ionaliza‑ ion and e ec s o eU Cohesion Policy (eCP) as a mains eam eU Policy (Molle, 2007), as i has become an inc easingly impo an inancial ool o ‘mainly’ help eU lagging egions. as i s name indica es, his Policy was gi en bi h (1988) wi h he main goal o p omo ing a mo e cohesi e eU e i o y om a socioeconomic pe spec i e, ollowing he in en ions exp essed in he single eu opean ac . indeed, while i s ‘ e i o ial dimension’ was always p esen in se e al elemen s, like he de ini ion o speci ic objec i es de o ed 91is he e a ise o he e i o ial dimension in he eU Cohesion Policy? o he eU lagging egions, i was only a e signing he Lisbon ea y (2009) ha i s scope was o mally b oadened by he inclusion o he e i o ial dimension o cohesion, along‑ side he social and economic dimensions. This ecogni ion o a need o go beyond he social and economic dimensions in designing, implemen ing, and e alua ing eCP inanced p og ammes, by ollowing a mo e e i o ial, in eg a ed, and holis ic pe spec i e, was o en ollowed by a misleading no ion o wha is, in ac , his ‘new’ e i o ial dimension, bo h by he scien i ic, he ins i‑ u ional, and poli ical communi ies. o he mos pa , he e is a endency o add he ‘en i onmen al dimension’ o he ‘social’ and he ‘economic’ dimensions o de elopmen when ‘ hese communi ies’ men ion and analyse his e i o ial dimension, while neglec‑ ing c ucial ‘ e i o ial’ dimensions such as ‘spa ial planning’ and ‘ e i o ial go e nance’. in sum his a icle con ibu es o his concep ual discussion on he e i o ial dimension o policies and i s main esea ch ques ions a e he ollowing: – Wha componen s should be aken in o conside a ion when analysing he e i o‑ ial dimension o policies? – Wha has been he ole and e olu ion o he e i o ial dimension in eCP om i s beginnings o he p esen ime, in i s main componen s? The analy ical amewo k guiding he in es iga ion is i s se ou in he second sec‑ ion o he pape , which iden i ies he main e i o ial componen s and ela ed elemen s associa ed wi h eCP. The ollowing sec ion b ings o he discussion he i s analysed componen : he Policy s a egy. He e, a concise o e iew o he in luence o he eU spa‑ ial planning mains eam documen s on eCP is p o ided, alongside he cons an changes o hese main s a egic Policy goals, inspi ed by successi e eU agendas and ea ies. The ollowing sec ion seeks o in es iga e a second e i o ial eCP componen : Policy impac s. in essence, his opic explo es he deg ee o eCP impac s on e i o ial de elopmen and e i o ial cohesion in he eU Membe ‑s a es, as well as i s ole in suppo ing he use o e i o ial impac assessmen ( ia) e alua ion p ocedu es. The nex sec ion is dedica ed o examine he las main componen o ou p oposed me hodology o assessing he e i o ial dimensions o policies: e i o ial scales. Mo e p ecisely, his opic p o ides e idence on he impo ance o eCP in p omo ing e i o ial coope a ion and go e nance p ocesses, be ween all e i o ial le els. inally, he las sec ion applies he p oposed me hodology o assessing he e i o ializa ion deg ee o eCP, mos ly based in he p e ious sec ion discussion. Me hodologically, he esea ch was ca ied ou employing a con en analysis app oach o se e al eU documen s, such as he Cohesion epo s, epo s ocusing on eU e i o ial ends (esDP, e i o ial agendas, and esPOn a las), o he ela ed docu‑ men s which e alua e he implemen a ion o eCP, and a wide pool o a ailable li e a u e on his policy. in he end, a ypology is p oposed o measu e he e i o ialisa ion deg ee o eCP. 92 ii. UnCOVe inG He MeaDinG O He ‘ e i O iaL DiMensiOn’ O POLiCies The e is some awa eness ha he wo d ‘ e i o ial’ is gaining unp eceden ed usage and ecogni ion wi hin he eU ins i u ions’, poli ical agenda and discou se. Howe e , i s meaning is o en a om being s aigh o wa d. o one, his e m is associa ed wi h a my iad o exp essions associa ed wi h eU policy in e en ions, such as: (i) e i o ial de elopmen ; (ii) e i o ial cohesion; (iii) e i o ial capi al; (i ) e i o ial impac asses‑ smen ; ( ) e i o ial coope a ion; and ( i) he e i o ial dimension o policies. secondly, his no ion closely mi o s he ‘mo e anglo ‑saxon e m’: spa ial. inally, he likelihood o con using ‘ e i o ial’ wi h ‘ egional’ e m is o he cha s. in his con ex , we s a his analysis by p esen ing a necessa ily simpli ied o e iew o he meaning o he e m ‘ e i o ial’. He e, he enca a dic iona y is qui e clea in ela‑ ing i o ‘land o wa e owned o claimed by an en i y, especially a go e nmen ’ (enca a, 2009). This goes along wi h he idea exp essed by Pe e Hagge (2001, p.16) ha , “ om he geog aphe ’s iewpoin he mos e iden e i o ial uni on he wo ld’s landscape is he mode n na ion ‑s a e”. also, i is e iden ha his no ion ( e i o ial) de i es om he wo d ‘ e i o y’, which comes om he La in e m ‘ e i ō ium’. This, in u n, uses he no ions o ‘ e i’ (ea h) and ‘ o ium’ (belonging o) (Mo eno, 2002). in his ein, and as Delaney (2009, p. 196) pu s i , e i o y is, gene ically, “a bounded, meaning ul social space he ‘meanings’ o which implica e he ope a ion o social ela io‑ nal powe ”. ne e heless, he same au ho ecognizes ha he e a e “innume able o he gene ic o ms and exp essions o e i o y”, many o which implica e go e nance p oces‑ ses, in se e al e i o ial scales. Likewise, he ela ed e m ‘ e i o iali y’ “is used in a numbe o senses”, whils i di e s om he no ion o ‘ e i o y’, as his “ e e s o beha‑ iou s ela ed o he es ablishmen and de ence o e i o ies” (Delaney, 2009, p. 196), o signi ies an “a emp o a ec , in luence, o con ol ac ions, in e ac ions, o access by asse ing and a emp ing o en o ce con ol o e a speci ic geog aphic a ea” (sack, 1983). ano he signi icance ound o his e m is, o example, he sense o belonging o a gi en e i o y ( igal, 2015, p. 586), amongs many o he s (Luukkonen & Moilanen, 2012; Ma in, hys, & Michael, 2004). ega ding he in e connec ion be ween he no ions o ‘ e i o y’ and ‘space’, igal (2015) ad ances a possible dis inc ion whe e he o me emb aces a dimension wi h spe‑ ci ic conno a ions, ela ed wi h he sense o belonging and ans o ma ion (in a way in which socie ies a e capable o o ganizing hemsel es), while he la e no ion can be asso‑ cia ed wi h p o iding an in e p e i e cohesion o he in eg a ed knowledge o he ele‑ men s in which socie ies a e o ganized. in u n, based on se e al eadings, Luukkonen & Moilanen (2012, p. 485), sus ain ha he e m ‘space’ has a mo e gene al meaning, and is mos ly in e wined wi h ‘ e i o ies’. Bu , mo e impo an ly, hey a gue ha e i o y “di e s om a egion in ha i s bounda ies and he esou ces he ein a e unde he con‑ ol o people”. a mo e elabo a ed iew on he no ions o ‘ egion’ and ‘space’ can be ound in Goodwin (2013), which launches a discussion on he no ion o ‘ ela ional egion’. Edua do Medei os 93 aken oge he , and al hough hey migh ha e di e en concep ual in e p e a ions, all he abo e discussed no ions ( e i o ial, e i o y, space, and egion) sha e a common ai , in he sense ha hey a e s ongly associa ed wi h ‘geog aphical analysis’. in ou unde s anding hough, he bulk o scien i ic li e a u e does no always make a dis inc i e di e en ia ion om he concep s o ‘space’ and ‘place’, and ‘ e i o y’. o ins ance, he no ion o ‘spa ial planning’ is used in e y much he same way as he no ion o ‘ e i o ial planning’. again, he no ion o ‘spa ial impac s’ is used wi h simila meaning as he no ion o ‘ e i o ial impac s’. The di e ence he e is he ac ha he anglo ‑saxon p e e ence o he e m ‘spa ial’ has led o a consis en use o his e m in mos o he exis ing ‘ e i o ial ela ed analysis’, un il some eu opean Commission (eC) epo s s a ed o make use o he e m ‘ e i o ial’ in a mo e equen manne . This is iewed by obe o Camagnii, as a conques o he sou h o eu ope in he adop ion o he e m e i o y by he eU ins i u‑ ions. alongside, and in ou unde s anding, he only signi ican di e ence be ween he e ms ‘ e i o y‘ and ‘ egion’ is he ac ha a egional pe spec i e is, as he no ion implies, speci ically dedica ed o he analysis o a ce ain o se e al egions. in o he wo ds, e i‑ o y is a mo e gene al geog aphic e m, which can co e se e al scales o analysis, such as he u ban, he local, he egional, he na ional, and he eu opean le els. Unde his iew, we could claim ha he e i o ial dimension o a gi en policy is associa ed wi h i s s a‑ egic guidance and ope a ional capaci y o p oduce de elopmen /cohesion impac s in ce ain e i o y in all dimensions o e i o ial de elopmen , be ha land o /and wa e , managed by one o se e al en i ies o /and adminis a ion le els. as p e iously s a ed, he e m ‘ e i o iali y’ which, acco ding o Ke in Cox, “has come o see as he e y co e concep o poli ical geog aphy – e sus he appa en ly g owing impo ance o ne wo k connec ions” ( an de Wus en, 2009, p. 326), can ha e di e en meanings, depending on he esea ch hema ic ocus ( able i). Mo e p ecisely, as Wa wick (2009, p. 32) pu s i , “ e i o iali y has an ex emely b oad in e p e a ion, om he concep o place a achmen o social commi men o loca ion, (…). simila ly, e i‑ o iali y can be applied a a ange o scales, ela ing o speci ic si es o wide neigh‑ bo hoods”. Mo eo e , Paasi (1999, p. 73) eminds us ha “i is po en ous o no e ha he meanings o so e eign y and e i o iali y a e also pe pe ually changing, implying ha e i o iali y is no jus a s a ic, unchanging o m o beha iou o a s a e”. in i s u n, e i o ialisa ion e e s o a p ocess o p oducing e i o iali ies, while i s opposi e (De e i o ialisa ion) signi ies “undoing and/o emaking o pa icula e i o‑ iali ies” (Coleman, 2009, p. 255). ega ding his concep , iguei edo (2010, p. 11) ela es i o he “design and implemen a ion o p og ammes and p ojec s wi h signi ican e i‑ o ial impac , and whose p io i ies o in e en ion a e de ined acco ding o s a egic amewo ks ha ha e been o mula ed o he a ge e i o y, wi h he o mal o in o ‑ mal pa icipa ion o ins i u ions and playe s iden i ied o ha e i o y”. u he , he same au ho adds ha “i is no enough o conside ha he in es men s o ac ions which embody i ha e a signi ican e i o ial impac . is he e a ise o he e i o ial dimension in he eU Cohesion Policy? 94 able i – examples o he meaning o e i o iali y and e i o ialisa ion. Quad o I – Exemplos do signi icado de e i o ialidade e e i o ialização. Te i o iali y Meaning Field o esea ch Sou ce I e e s o any o m o beha iou displayed by indi iduals and g oups seeking o es ablish, main ain, o de end speci ic bounded po ions o space Beha iou al Geog aphy (Gold, 2009) I desc ibes a socially cons uc ed di ision o space ha is con olled by some o m o au ho i y. A pe son, g oup, local economy, o s a e can occupy e i o ies Bo de s udies (Was l ‑Wal e , 2009) A Geog aphic dispe sion o p oduc ion and ma ke ing ne wo ks a he na ional, egional, and global le els, comp ised o di e en sizes and ypes Commodi y Chains (Hassle , 2009) The eeling o owne ship o a space by i s occupan s, wi h an associa ed sense ha s ange s a e unwelcome. The concep o de ensible space iden i ies e i o iali y as he abili y o he physical en i onmen o c ea e iden i iable zones o in luence De ensible space (Wa wick, 2009) In e ms o e i o iali y and globaliza ion his means ha an in e p e a ion o he impac o globaliza ion as c ea ing a space economy ha ex ends beyond he egula o y capaci y o a single s a e is only hal he s o y; he o he hal is ha hese cen al unc ions a e disp opo iona ely concen a ed in he na ional e i o ies o he highly de eloped coun ies Globaliza ion (sassen, 2000) Te i o iali y and bounda ies may be p esen in social and cul u al p ac ices in which powe is i ually in isible. This is ob ious in cases such as legisla ion, geog aphy and his o y ex books in educa ion a lases, songs, hymns o pledges, alues, no ms and i uals o na u alised images o ex e nal h ea s and in he meanings o hese o he espec i e iden i ies Bounda ies (Paasi, 1999) Ideas abou human e i o iali y ha e long been linked wi h he idea o possession o land Land (Howi , 1999) The a emp o in luence o con ol people, nonhumans, phenomena, and ela ionships by delimi ing and asse ing con ol o e a geog aphic a ea called a e i o y na ion (Pen ose, 2009) Te i o iali y A s a egy used by indi iduals, g oups, o o ganiza ions o exe cise powe o e space Policing ( y e, 2009) Te i o y e e s o a bounded geog aphic space wi h e i o iali y e e ing o he a emp s o con ol ha space Poli ical Geog aphy (s o ey, 2009) Mobili y and e i o iali y also in e sec in he complex spa iali y o powe ela ions in ol ed in egional de elopmen egional De elopmen (Bæ enhold , 2009) S a egy o classi ying, communica ing, and en o cing con ol o e space used by indi iduals, g oups, and o ganiza ions so e eign y (Coleman, 2009) Te i o ializa ion Meaning Field o esea ch Sou ce A e m ha unde sco es he poli ical cu ency o e i o y. I e e s o he ways in which e i o y is bo h in es ed wi h poli ical signi icance and mobilized (de ended, dema ca ed, s aked ou , e c.) wi hin powe s uggles sense o Belonging ( aylo , 2009) The de elopmen o a hie a chy o u al e i o ial uni s usually e lec ing landholding his o ies, o adminis a i e e iciency in he mode n e a u al a eas (Du y, 2009) Edua do Medei os 95 a speci ic s a egy mus be in place ha is designed acco ding o he e i o y o wi h i s pa icipa ion. a he e y leas i should be p epa ed on he basis o a (g ea e o lesse ) pa icipa o y o ecas o ha e i o y”. Pu simple, his au ho ela es he e i o ialisa‑ ion o policies wi h i s capaci y o design ailo ‑made s a egies o speci ic needs o a gi en e i o y while equi ing he pa icipa ion o his e i o ial en i y. in ou iew, howe e , alongside he policy goals and ela ed s a egic execu ion, he e i o ialisa ion o a gi en policy depends on i s e ec s in p omo ing e i o ial de elo‑ pmen and/o e i o ial cohesion. inally, his policy has o a ge a speci ic e i o ial scale ( om u ban o eu opean). in mo e de ail, we de ine he e i o ialisa ion o a gi en policy as i s ‘capaci y o: (i) encompass he main dimensions o e i o ial de elopmen ( ig. 1); (ii) e ec i ely p omo e e i o ial de elopmen o cohesion (Medei os, 2016a), and; (iii) a ge a speci ic e i o ial scale in i s s a egic in e en ion’. in simple e ms, and ollowing om his a ionale, we p opose h ee di e en le els o policy e i o ialisa ion; om high e i o ialisa ion capaci y o a low e i o ialisa ion capaci y ( ig. 1). Le el o Te i o ial Dimension in a gi en Policy 1 – High Te i o ialisa ion: – Clea ly ex ends i s ac ion in o he h ee pilla s o e i o ial de elopmen – Clea ly encompasses he i e dimensions o e i o ial de elopmen – Clea ly co e s one o mo e e i o ial scales 2 – A e age Te i o ialisa ion: – I has a mode a e associa ion wi h he h ee pilla s o e i o ial de elopmen – I mode a ely encompasses he i e dimensions o e i o ial de elopmen – I co e s one o mo e e i o ial scales 3 – Low Te i o ialisa ion: – I shows a low con ibu ion o he h ee pilla s o e i o ial de elopmen – I has a low con ibu ion o he i e dimensions o e i o ial de elopmen – I co e s one o mo e e i o ial scales ig. 1 – The analy ical model o he e i o ial dimension o policies. Fig. 1 – O modelo analí ico da dimensão e i o ial das polí icas. is he e a ise o he e i o ial dimension in he eU Cohesion Policy? 96 iii. He e i O iaL DiMensiOn in eU COHesiOn POLiCY s a eGies 1. The in luence o EU spa ial planning mains eam documen s i we classi y he ‘mode n’ phase o eCP wi h he beginning o he mul iannual p o‑ g amming pe iods, om 1989 onwa ds (eC, 2008), i is cu ious, a minimum, ha i ook mo e han wo decades o include he e i o ial dimension o cohesion in he eU ea y, by exp essing he goal o “p omo e economic, social and e i o ial cohesion, and solida‑ i y among Membe s a es” (eC, 2010b, p. 17). in mo e de ail, he a icle 174 exp esses he desi e o p omo e an ha monious de elopmen o he eU, by s eng hening i s econo‑ mic, social, and e i o ial cohesion, and by educing dispa i ies be ween he le els o de elopmen o he a ious egions and he backwa dness o he leas a ou ed egions ( u al a eas, a eas a ec ed by indus ial ansi ion, and egions which su e om se e e and pe manen na u al o demog aphic handicaps such as he no he nmos egions wi h e y low popula ion densi y and island, c oss ‑bo de and moun ain egions). This long in e egnum migh sugges ha he ‘ e i o ial dimension’ was la gely neglec ed by he eU poli ical agenda, o a long ime. Bu ha was no necessa ily he case. a leas , his dimension was no ully se ‑aside. indeed, i we ela e he conce n o his e i o ial dimension wi h he se e al eU a emp s o implemen ‘spa ial planning’ s a egies, hen we can conclude ha his dimension has been in he eU poli ical agenda since 1983, wi h he elease o he eu opean egional/spa ial Planning Cha e (eC, 1983), a he 6 h session o he CeMa , in o emolinos. in he ollowing, and un il he elease o he esDP (eC, 1999), he e i o ial dimension was included as an impo an coo dina ing ac o o he eU sec o ial policies du ing he Jacques Delo s P esidency (1985 ‑1995) ( e ão, 2010). since hen, many o he epo s ocusing on he eU e i o ial analyses we e eleased ( able ii), while he Commi ee o spa ial De elopmen (1991) and he Commi ee o he egions (1992) we e es ablished (Medei os, 2014a). alongside, and a e being in he making o a ound six yea s, he esDP was eleased ( aludi, 2006). inally, he wo e ‑ i o ial agendas ( a, 2007; a, 2011) and he G een Pape on e i o ial Cohesion (eC, 2008b), main ained he deba e a ound he need o p omo e a mo e balanced and ha mo‑ nious de elopmen o he eU e i o y. in he mean ime, he esPOn (eu opean spa ial Planning Obse a ion ne wo k) P og amme, es ablished in 2002, ga e a majo boos o he e i o ial analysis o se e al eU policies. amongs i s main achie emen s a e he p oduc ion o me hods, ools, and echniques wi h he goal o assess e i o ial impac s and e ec s o eU inanced policies (Medei os 2013a; 2014b; 2014c). ollowing om he abo e, he esPOn a Las, eleased in 2013, p oduced an o e iew o he e i o ial Dimensions o he eu ope 2020 s a egy (eC, 2010c), and concluded ha i is “essen ial ha policy ‑make s ake in o accoun he speci ici ies o hei place, hei egion o ci y in he implemen a ion o policies con ibu ing o he eu ope 2020 s a egy. no only by looking a he gene al sco ing o anking o indi‑ idual egions ela ed o he issues emb aced by eu ope 2020, bu also by unde s anding he combina ion o all o hese and possible mu ual suppo ” (esPOn a Las, 2013, p. 65). Edua do Medei os 97 able ii – Ch onological lis o mains eam epo s on eU e i o y. Quad o II – Lis a c onológica da publicação de ela ó ios sob e o e i ó io da UE. Repo /S udy Yea Re e ence eu opean egional/spa ial Planning Cha e 1983 (eC, 1983) eu ope 2000 1991 (eC, 1991) eu ope 2000+ 1994 (eC, 1994) esDP 1991 (eC, 1999) e i o ial agenda 2007 ( a, 2007) G een Pape on e i o ial Cohesion 2008 (eC, 2008a) e i o ial agenda 2020 2011 ( a, 2011) esPOn a Las 2007, 2013, 2014 (esPOn, a Las, 2007, 2013, 2014) in sho , he eading o he men ioned eU epo s, which ocus on e i o ial plan‑ ning and e i o ial cohesion, leads us o conclude ha all o hem make a clea di e‑ en ia ion be ween u ban and u al a eas ( able iii), and ha he e is an inc easing ocus on ce ain ‘ e i o ial analysis ela ed elemen s’ in he mo e ecen ones, such as: (i) e i o ial cohesion; (ii) e i o ial polycen ici y; and (iii) e i o ial go e nance. also, in all o hem he e is always a clea e e ence o he need o p omo e a mo e balanced and ha monious e i o y, ollowing om he idea exp essed in he ea y es ablishing he eu opean economic Communi y ( ome – 1957). again, he esPOn P og amme s eng hened he knowledge o many o hese ‘ e i‑ o ial analy ic componen s’, such as he: (i) e i o ial polycen ici y; (ii) e i o ial impac assessmen ; (iii) u ban ‑ u al ela ionship; (i ) demog aphic ends; ( ) anspo ne wo ks; ( i) na u al haza ds and isks; ( ii) na u al and cul u al he i age; ( iii) u ban sys em; (ix) e i o ial go e nance; (x) en i onmen al ends; (xi) socioeconomic ends; (xii) u al a eas; (xiii) ma i ime a eas; (xi ) u u e e i o ial scena ios; (x ) land use pa e n; (x i) knowledge and inno a ion, and many o he s. 2. EU Cohesion Policy in e en ion s a egies owa ds a mo e e i o ial and in eg a ed app oach? Unde s andably, policies a e no p oduced in a poli ical acuum. indeed, eCP suc‑ cessi e in e en ion s a egies we e la gely in luenced by he ‘époque p e ailing poli ical and economic con ex ’. in sho , he 1980s was ma ked by a se ies o e en s ( he single eu opean ac , he eU accession o G eece, spain and Po ugal, and he adop ion o he single Ma ke p og amme) which igge ed a policy change owa ds a he goal o socio‑ economic cohesion. in eali y, o he mos pa , he educ ion o egional dispa i ies in de elopmen has been he guiding p inciple o eCP since he onse , and his is a clea e i o ial ela ed objec i e. Howe e , he “ini ial ocus on unemploymen , indus ial econ e sion and he mode nisa ion o ag icul u e has b oadened o include dispa i ies in inno a ion, educa ion le els, en i onmen al quali y and po e y, as e lec ed in he di ision o unding be ween policy a eas. The p ocess o ein e p e ing de elopmen is he e a ise o he e i o ial dimension in he eU Cohesion Policy? 104 ces’ is a di ec esul o he eCP suppo o he esPOn P og amme. as a consequence, eU bodies and he espec i e policy e alua ion uni s a e mo e and mo e closely aligned wi h he need o use mo e holis ic me hods o Policy impac e alua ion, as hey ecognize he limi a ions posed by he use o mac o ‑econome ic e alua ion ools. in sum, hese ends p esen an addi ional con ibu ion o eCP o b ing o he o e a e i o ial dimen‑ sion in he ield o Policy impac e alua ion. V. He e i O iaL DiMensiOn in eU COHesiOn POLiCY in enCOMPassinG aLL e i O iaL LeVeLs 1. EU Cohesion Policy impac s on Te i o ial Coope a ion One c ucial way o assess he deg ee o Policy e i o ialisa ion is he po en ial capa‑ ci y o a gi en policy o engage in all ( om u ban o con inen al), o in a speci ic e i o‑ ial scale. in his ega d, he implemen a ion o eCP ollows he eU p inciple o subsidia‑ i y, which aims a de e mining he e i o ial le el o in e en ion which is mos ele an in he a eas o compe ences sha ed be ween he eU and he eU Membe ‑s a es. u he ‑ mo e, he suppo gi en by eCP o egional Ope a ional P og ammes is illus a i e o i s e i o ial dimensional cha ac e . in addi ion, eCP has been he main d i e in p omo ing he implemen a ion o ‘ e i o ial Coope a ion’ p ocesses in he eu opean e i o y. These e i o ial expe i‑ men s, which can be de ined as p ocesses “o collabo a ion be ween di e en e i o ies o spa ial loca ions” (Medei os, 2016d, p. 10), a e p obably he mos ele an e i o ial ela ed elemen s associa ed wi h he implemen a ion o eCP. This impo ance can ake se e al pe spec i es. o one, e i o ial coope a ion in ol es he ull scope o he eU e i o y, h ough he ansna ional coope a ion p ocess ( o me in e eG s and B). Bu he c oss ‑bo de coope a ion (in e eG s and a) is, by a , he mos signi ican e i o ial coope a ion p ocess wi hin he eU, as he eU bo de egions co e 60% o he eU e i o y (nU s 3), and mo e ha 40% he o al inhabi an s (Medei os, 2010). in addi ion, and mo e ecen ly, his e i o ial coope a ion p ocess has been aken in o ano he le el ollowing he implemen a ion o mac o ‑ egional s a‑ egies (Bal ic ‑sea egion, Danube, ad ia ic and ionian, and he alpine ‑Mac o egions) (eC, 2013a). as men ioned in he p e ious sec ion, eCP had a c ucial ole in suppo ing egional de elopmen p ocesses in he eU, namely by inancing eU egional Ope a ional P og ammes. i also goes wi hou saying ha a la ge pa o he inancial aid gi en o he objec i e o e i o ial coope a ion ( o me in e eG), in he h ee s ands (c oss ‑bo de , ansna ional and in e egional coope a ion), had no only a key ole in educing he ba ie s posed by he p esence o bo de s (Medei os, 2011), bu has also p o ided a s able a ena o he eme gence o eu o ‑ egional and mac o ‑ egional en i ies all o e eu ope Edua do Medei os 105 (Medei os 2013b; Pe kmann, 2003; Pe in, 2010), and mo e ecen ly, p o ided a s able g ound o he es ablishmen o eu opean G oupings o e i o ial Coope a ion (eG C) (De sousa, 2013; C , 2014). 2. EU Cohesion Policy and he place ‑based app oach ano he c i ical e i o ial elemen o eCP is i s po en ial con ibu ion o ins il a place ‑base na a i e, in i s implemen a ion, ollowing he sugges ions p esen ed in he ‘Ba ca epo ’ (Ba ca, 2009). in simple e ms, his place ‑based ision e o mula es he key objec i e o eCP in o apping he unde ‑u ilized po en ial o all eU places (Mendez, 2013). Unde s andably, his na a i e has a clea e i o ial pe spec i e, and ecognizes ha econome ic s udies do no o e any conclusi e gene al answe s on policy impac . a he same ime, his app oach in ends o make use o eCP po en ial o ein o ce he mul i ‑le el go e nance p ocesses, o explo e eU ‑wide ne wo ks o coope a ion, and o dissemina e ope a ional expe iences (Ba ca, 2009). Mo e gene ally, when i comes o he eu opean e i o ial in eg a ion p ocess, a ailable li e a u e holds ha he e is a ce ain ambigui y in i s e ec on he egional powe , since some imes i has posi i ely a ec ed empowe men p ocesses in ce ain eU egions, while in o he cases i has suppo ed disempowe men p ocesses (Bou ne, 2003). in his line o easoning, and acco ding o Bache and Jones (2000), aking he UK and spanish case, eCP in luence on egional empowe men depends on h ee main hings. in he i s place, is he Policy implemen a ion amewo k. He e, he in oduc ion o he pa ne ship p inciple changed he oppo uni y o s uc‑ u e he egional pa icipa ion wi hin eCP. in second place is he egional capaci y o ake ad an age o a ailable suppo om Policies. Unde s andably, his capaci y a ies om egion o egion ( od íguez ‑Pose & Ga cilazo, 2015). inally, in hi d place is he ype o e i o ial s uc u e o he s a e, and in pa icula he ela ion be ween he cen al s a e and he di e en pe iphe ies. again he e, he eU e i o y encompasses a my iad o comple ely di e en si ua ion cases (a ibas 2012; esPOn 2.3.2, 2006). in he eyes o some, howe e , he a chi ec u e o eCP, which a ou s he implemen‑ a ion o a mul ile el ype o go e nance, leads o a gaining in luence o sub ‑na ional s akeholde s ( aludi, 2010, p. 173). Likewise, he di ec and indi ec e ec s o his Policy in s eng hening he e i o ial coope a ion p ocess, and in p omo ing sound e i o ial go e nance p ocesses (Luukkonen & Moilanen, 2012), can ac as a ool o p omo e local and egional empowe men , despi e he ac ha he eU is a “highly he e ogeneous space in e ms o ins i u ional and go e nance issues, and in e ms o bo h he di e en na io‑ nal and egional modes”. Con e sely, Zaucha e al. (2014, p. 249) a gue ha “almos 20 yea s o in e go e nmen al coope a ion on e i o ial de elopmen among eU Membe s a es has ba ely ein o ced mul iannual p og amming in ela ion o eU de elopmen (cohesion) policy”. is he e a ise o he e i o ial dimension in he eU Cohesion Policy? 106 Vi. is eU COHesiOn POLiCY an inC easinG e i O iaLiseD POLiCY? Based on he p e ious analysis, he e a e se e al e idences which poin o he con‑ clusion ha , despi e ecen a emp s o change he ini ial cohesion pa adigm in o an in es men /g ow h epi ome, he e i o ial dimension o eCP has been gaining g ound h oughou he las couple o decades (1989 ‑2020). such a conclusion is suppo ed by a ple ho a o a gumen s. amongs hem, is he c ucial ole o eCP in suppo ing all dimen‑ sions and componen s o e i o ial de elopmen , al hough wi h di e en in ensi y le els. in o he wo ds, eCP has been, and con inues o be much mo e han a simple in es men ool o economic g ow h, and while i s in luence di e s om coun y o coun y, he con inuous inc ease o i s inancial package adds o i s g owing e i o ialisa ion in luence. in a simila way, eCP has backed he ise o ia p ocedu es in policy impac e alua ion and also he e i o ial e idence analysis h ough he inancing o he esPOn P og amme. u he mo e, eCP implemen a ion s a egies ocus on p omo ing in eg a ed e i‑ o ial/placed ‑based app oaches, and e i o ial coope a ion p ocesses, ha e inc eased o e ime. all o hese can be seen in each Membe ‑s a es’ Common s a egic ame‑ wo ks, whe e in es men s om he es , e D , o Cohesion und, inance mo e han one p io i y axis o one o mo e Ope a ional P og ammes. simply pu , a p esen , ac ions inanced by eCP may be ca ied ou by means o an in eg a ed e i o ial in es men (an ‘i i’), o os e a simila policy goal, o ins ance. again, eCP has a ma ked e i o ial dimension i iewed as a ehicle which p omo es one o all e i o ial le els, ia he: (i) applica ion o he subsidia i y p inciple; (ii) suppo o c oss ‑bo de coope a ion p ocesses; (iii) suppo o place ‑based de elopmen s a egies; and (i ) suppo o mul i ‑le el go e nance p ocesses. also, in he p esen p og amming pe iod, he e is a speci ic ins umen which p omo es communi y ‑led local de elopmen p ojec s, and ano he o inancing in eg a ed ac ions o sus ainable u ban de elopmen , bo h o which wi h a clea e i o ial scale in mind. in his con ex , and i we apply he p oposed me hodology o assess he gene al le el o e i o ialisa ion o eCP (1989 ‑2020), we can assume ha i has had, along i s li e cycle, a high deg ee e i o ialisa ion, based on he ollowing gene ic conclusions: – i is clea ha he in e en ions inanced by means o his Policy ouched all pilla s o e i o ial de elopmen , as i no only p o ided solid g ound o weal h gene a‑ ion (mode niza ion and building o new accessibili ies, socioeconomic, and en i‑ onmen al ela ed in as uc u es, and suppo o he human capi al alo isa ion), bu was also pi o al in e aining and dis ibu ing weal h by suppo ing job c ea‑ ion. One can, ob iously, ques ion he deg ee o he long ‑ e m in luence on he las pilla , as many o he jobs c ea ed we e empo a y and ha dly well ‑paid; – i is mo e han clea ha his Policy inanced p ojec s which can be associa ed wi h all he dimensions o e i o ial de elopmen , despi e he ac ha hey we e mo e concen a ed in p o iding suppo o business de elopmen , human capi al, in as‑ uc u e, esea ch and inno a ion, and en i onmen p o ec ion. e en so, e i o ial Edua do Medei os 107 coope a ion and e i o ial go e nance p ocesses we e also imp o ed wi h a sha e o eCP in es men s, as well as spa ial planning ela ed componen s, such as he imp o emen o e i o ial connec i i y and a icula ion. as aludi (2010, p. 183) pu s i , sound spa ial planning is i al o his Policy o ake in o accoun he mos adequa e loca ions o i s in e en ions and he ela ed oppo uni ies and cons‑ ain s. – The posi i e ole o eCP is also e iden and ele an in co e ing and impac ing se e al e i o ial scales, om he u ban o he eu opean le els. in his pa icula analy ic componen , he a en ion gi en by his policy o he egional le el was pa icula ly s ong, mainly h ough he egional Ope a ional P og ammes. Bu he e, he local le el was also widely suppo ed by speci ic ini ia i es as he Leade Communi y ini ia i e, o ins ance. Mo eo e , se e al la ge scale in as uc u al p og ammes had a clea na ional pe spec i e, and some imes e en a eu opean dimension ( ansna ional anspo , ene gy, and coope a ion ne wo ks). Vii. COnCLUsiOns The simple ac ha eCP aims a achie ing a mo e cohesi e eU e i o y connec s i wi h a clea ‘ e i o ial dimension’. o s a e o he wise is, in ou iew, o hinge on a sim‑ plis ic and ung ounded pe spec i e, which igno es he impo an ole o his Policy in ein o cing he pilla s and main dimensions o e i o ial de elopmen , in all he admi‑ nis a i e le els o he eU. alongside, his Policy has had, h oughou i s almos 30 yea s o implemen a ion, a c ucial ole in p o iding inancial suppo o sec o al policies wi h a s ong e i o ial dimension ( anspo s, en i onmen , u ban eno a ion, esea ch and inno a ion, and social policies), and in suppo ing e i o ial coope a ion and mul i ‑le el go e nance p ocesses. u he mo e, he elabo a ion o na ional and egional in e en‑ ion s a egies, which a e necessa y o ha e access o he a ailable eU unds, oge he wi h he obliga ion o es ablish moni o ing and e alua ion p ac ices wi h a e i o ial pe spec i e, has led o a ise o he awa eness o he need o make use o ia echniques o assess eU policies main impac s. Mo eo e , he mul iplie e ec s o eCP in ‘ ouching’ se e al elemen s o he e i o‑ ial dimension a e ex ensi e o he academic communi y, and o he my iad o s akehol‑ de s in ol ed in he ope a ionaliza ion o eCP (esPOn CaDeC, 2014). Mo e p ecisely, he academic communi y has been in ol ed in p o iding sound e i o ial knowledge on he e ec s and impac s o he in es men s associa ed wi h his policy, namely wi h he elabo a ion o epo s and s udies unde he auspices o he esPOn P og amme, and he p og amme’s e alua ion epo s. u he mo e, he elease o he men ioned e i o ial agendas, he G een Pape on e i o ial Cohesion, he esDP, and he scena ios o in e‑ g a ed e i o ial in es men s (eC, 2015), a e p oo o he awa eness o he need o p o‑ ide a mo e holis ic, comple e, in eg a ed and e i o ial pe spec i e, when implemen ing eCP ela ed p og ammes. is he e a ise o he e i o ial dimension in he eU Cohesion Policy? 108 all in all, and by making use o a me hodology which akes in o accoun he p esence o se e al e i o ial ela ed elemen s in a gi en Policy, and mo e p ecisely hei close ela ion wi h he Policy s a egic e i o ial in e en ion, po en ial e i o ial impac s, and he e i o ial ocus on one o mo e e i o ial scales, we can conclude ha he e is a s ong case o a gue ha eCP has a high le el o e i o ializa ion. no less undamen al o his analysis is he c i ical ole ha his Policy has had in suppo ing he de elopmen o sub ‑na ional adminis a i e scales, and in pa icula he egional le el, a leas in less de elopmen eU coun ies. in his ega d, he claims which equi e he need o a mo e place ‑based app oach o his Policy also un eil i s subs an ial e i o ial dimension. addi‑ ionally, he inc easing impo ance o he suppo p o ided h ough he inancial suppo gi en o he e i o ial coope a ion goal o his Policy un olds a key e i o ial dimension, as he main s and o his goal (c oss ‑bo de coope a ion) inancially speaking co e s mo e han 60% o he eU e i o y. also, he ise o he mac o ‑ egional s a egies ( ou in la e 2015), alongside wi h he cons an es ablishmen o he eu opean G oupings o e ‑ i o ial Coope a ion (55 in la e 2015), p o ides u he impe us o he ein o cemen o e i o ial coope a ion ne wo ks wi hin he eU. inally, ou own de ailed analysis on he main e i o ial impac s o eCP in se e al eU Membe ‑s a es and egions, has e ealed he pi o al ole o his Policy in suppo ing se e al pilla s o he e i o ial cohesion concep , and mainly in imp o ing social, econo‑ mic, and en i onmen al ela ed componen s in he in e en ion e i o ies, wi h pa icu‑ la emphasis on imp o ing he in a ‑s uc u al and he human capi al domains. Howe‑ e , and despi e he mul iple posi i e di ec and indi ec impac s p o oked by he p og ammes inanced unde he auspices o his Policy, he goal o achie ing a mo e cohesi e and balanced e i o y a he na ional le el, has no been a ained. On he con‑ a y, despi e a wide canaliza ion o inancial suppo o he less de eloped egions, he la ge eU me opoli an a eas con inue o gain in hei o e all ela i e posi ion, in e ms o hei socioeconomic and demog aphic a ac i eness. o conclude, and ollowing om he abo e, we could see ha , despi e he cons an e o ms and eshapes, which ha e been a emp ing o push eCP u he away om i s ini ial goals as a cohesi e policy, in o a an in es men policy, i s e i o ial dimension is widesp ead and subs an ial in all he analysed componen s. agains his backg ound, we can a gue ha , in o de o ein o ce his e i o ial dimension, his Policy needs u he ac ion om bo h he academic communi y and he in ol ed poli ical ac o s. The o me a e esponsible o he con inua ion o e o s o highligh he need o be e unde s an‑ ding he e i o ial impac s o his Policy, and o design be e spa ial de elopmen s a‑ egies, wi h an in eg a ed e i o ial app oach, and which launch conc e e measu es o achie e a mo e balanced, ha monious, and polycen ic u ban sys em wi hin he eU e ‑ i o y. On hei pa , he la e (policy ‑make s) should be p o ided wi h be e e i o ial analyses, and e alua ion epo s o he main e i o ial impac s o he eU Cohesion Policy, in o de o make mo e a ional and in elligen decisions on he necessa y hema ic concen a ion o he a ailable in es men s. also, he eU policy make s should be awa e Edua do Medei os 109 ha ele an e i o ial impac assessmen p ocedu es equi e mo e han a simple p ess‑ ‑o ‑a ‑bu on ges u e, and ha he analysed e i o ial dimensions o policies ex end he economy ‑socie y ‑en i onmen iangle. Consequen ly, he in es men in imp o ing a ailable s a is ical da a collec ion is o c ucial impo ance o be e unde s and he policy causali ies in all dimensions o e i o ial de elopmen . in he end, he analysis p esen ed in ends o p o oke an accele a ed deba e on he u u e ends o he eCP, and o highligh he need o ake in o accoun and ein o ce i s e i o ial dimension, and he consequen need o implemen he p oposals exp essed in he e i o ial agenda, as a means o complemen he ‘ e i o ialess eU 2020 s a egy’. Mo eo e , we expec ha he academic and poli ical discussion on he ‘ e i o ial dimen‑ sion’ o he eU Cohesion Policy leads o a wide awa eness on he impo ance o he geog aphical analysis o polices, in o de o be e unde s and hei e i o ial impac s in all he dimensions o e i o ial de elopmen . aCKOWnLeDGeMen s The au ho wishes o hank G aça ønning o he english e ision o he ex , and wo anonymous e iewe s o he ex emely use ul commen s leading o a be e o ganiza ion o he a icle. e e enCes is he e a ise o he e i o ial dimension in he eU Cohesion Policy? a ibas, G.V. (Coo d.) (2012). Di ision o Powe s be ween he Eu opean Union, he Membe S a es, and he Regional and Local Au ho i ies. B ussels: eu opean ins i u e o Public adminis a ion (eiPa), Commi ee o he egions. Bache, i., & Jones, . (2000). Has eU egional policy empowe ed he egions? a s udy o spain and he Uni ed Kingdom, Regional & Fede al S udies, 10(3), 1 ‑20. Ba ca, . (2009). 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