Learning from the past: can we unveil a winning formula for networked governance under European

Union regional policy?

Patrícia SilvaFilipe Teles

Artur da Rosa Pires

1. Territorial governance1. Theoretical framework

2. Drivers of territorial governance

3. The (renewed) role of HEI in the promotion of local and regional development

4. The (current) research agenda

2. Methodological framework3. Learning from the past: effects of the NSRF

1. Incentives for involving HEI: an unnecessary hassle or a useful practise?

2. Perceived obstacles and strategies to overcome them

3. From reluctance to enduring cooperation: spill-over effects

4. A different collaborative approach with different preferences for the allocation of funds?

5. The dark side of implementation

4. Concluding remarks

A winning formula for networked governance?

Summary

• Interdependence with diverse stakeholders to solve governance problems through cooperation and not through centra lized command and control (McCarthy, 1998; Stoker, 2011; Rhodes, 1997)

• The promotion of greater policy coordination and co operation between actors from a shared territorial vision - te rritorial governance (Feio e Chorincas, 2009)

• Mutual adjustment between practices and objectives of different actors (Olsson, 2003)

• Sharing knowledge and resources (Mullins & van Bortel, 2010)

• Complexity of the interactions and processes of neg otiation (Olsson, 2003)

i. Theoretical framework

1. Territorial governance

• Europeanisation of decision -making processes• European context as the engine of territorial

governance, by encouraging inter-institutional partnerships (Zerbinati, 2012; Evans, 1999; Piattoni, 2009; Dotti, 2012)

• NSRF 2007-2013: stimulus to the transfer of centralized decision-making processes to open and horizontal(Bachtler & McMaster, 2008; Bruszt, 2008; Dąbrowski, 2011; Zerbinati, 2012), with the development of partnerships between local governments and institutions of knowledge (Winters, 2009).

ii. Drivers of territorial governance

1. Territorial governance

• Widespread recognition of HEI’ role in the promotio n of local and regional development (vide inter alia Clark, 1998; Etzkowitz & Leydesdorff, 1999; Gunasekara, 2004; OECD, 2007);

• HEI’s relevance during economic downturns (Rodrigues & Melo, 2012; Winters, 2009; Haveri & Airaksinen, 2007)

• HEI’s relevance when local or regional authorities show a lack of pro-active attitudes and when local entrepr eneurs have a deficit of associative behaviour (Pires & Castro, 1997)

• HEI are urged to participate in regional developmen t strategies as they are best positioned to build and strengthen skills, to promote academic entrepreneur ship and innovation knowledge transfer (Winters, 2009)

iii. The renewed role of HEI in the promotion of local a nd regional development

1. Territorial governance

• However, • Lack of empirical studies on inter-institutional partnership, activities

and critical elements of success (Provan and Milward 2001, p. 414; McGuire & Agranoff, 2011, p. 272)

• Literature analyzes the existence of mechanisms for cooperation, without analyzing their effects (Bardach, 1998, p. 23)

• The limitations of territorial governance are rarely recognized (McGuire & Agranoff, 2011, p. 280).

• This approach is particularly relevant in the conte xt of the 2020 Strategy: • reinforcement of mutual learning;

• enhancement of stakeholder’s participation (Zeitlin, 2010)

iv. The (current) research agenda

1. Governação territorial

• The Baixo-Vouga as a paradigmatic case (Yin, 2003): • Entails a peculiarity in that this collaborative relationship represents

a significant departure from a confined perspective of academic-industry relationship based on consultation only and was focused on the wider scope for technology and knowledge transfer (Pires et al. ,2012 )

• Innovative partnership: joint ownership of the Territorial Development Plan (UA and CIRA)

• University becomes a partner in the design of regional development policy

i. The Baixo Vouga case study

2. Methodological framework

Use of mixed methods:

• Direct observation: • Active participation of one of the authors in the preparation of the

Territorial Development Plan; in formal and informal meetings involving local and regional stakeholders

• Documentary analysis: • Analysis of the contracts to understand the allocative choices of

inter-municipal communities

• In-depth semi-structured interviews: • Interviews with key informants: mayors; senior officials and

researchers with substantial experience in dealing with the TDP

ii. Sources and data collection

2. Methodological framework

• University with a relatively long tradition of cont ributing to regional development

• Routines of interaction were framed under “policy programmes” (Borrás & Radaelli, 2011, p. 469):

• revolved around precise goals within one single policy area and dealt with the management of local or regional resources (Pires & Castro, 1997; Pires et al.,2012; Conde, 2007, p. 48)

• based on uncoordinated, spontaneous actions depending on what were mainly isolated and voluntary initiatives of both lecturers and firms (Pires & Castro, 1997)

• Financial incentives

• European financial framework for 2007-2013: substan tially different from former Community Support Framework

• Local governments’ weaknesses in understanding the “new language” and requirements of the (new) european regional policy approach (Lisbon and Gothenburg Agendas)

• TDP was meant to target strategic, holistic and cross-cutting problems

3. Learning from the past: effects of the NSRF

i. Incentives for involving HEI: an unnecessary hassle or a useful practise?

• Perceived Obstacles:• local governments’ difficulty in sharing the leadership of this

process

• (assumed) unawareness regarding the work developed by the University of Aveiro

• difficulties related to the co-definition of the agenda

• Overcome through: • formal (public) protocols: acceptance of the partnership principle, as

an integral part of the local approach to regional development policy

• several meetings and conferences gathering regional stakeholders: unique opportunities to discuss the new European Union agenda and the way the projects to be included in the TDP could benefit from being oriented towards the new agenda

ii. Perceived Obstacles and strategies to overcome t hem

3. Learning from the past: effects of the NSRF

• Academics’ perceptions: • enhancement of the multidisciplinary approach in the production of

scientific knowledge

• new stimulus towards the seeking of strategic partnerships with the regional business community and local authorities

• willingness of academics to produce useful knowledge for regional development

• Local governments’ perceptions:• acknowledge the new way of thinking in terms of cohesion policy

and the Lisbon strategy

• greater tendency of creating new synergies and new institutional processes of territorial cooperation - increasing tendency of using scientific knowledge in a set of public policy initiatives

iii. From reluctance to enduring cooperation: spill-over effects

3. Learning from the past: effects of the NSRF

• A multiplicity of projects combining science, localresources and entrepreneurial dimension (Pires, 2012)• Tiles (ovar) (Civil Engineering, Material Dep.)• Bread with sweet eggs (Ovar) (Chemestry Dep.)• Eels and “Local” fish Gastronomy (Murtosa) (Bio, Tourism, L&C

Dep.)• CicloRia (Murtosa, Estarreja e Ovar) (Dep. Social Politic. Terr.

Sciences)• Lighting Living Lab (Águeda) (Dep. Electronics and Telecom.)• Water Effenciency (Association of Municipalities) ( Civil Eng. Dep.)• “Cultural” Regeneration of Historical Urban Center (Ílhavo) (Dep.

Art and Communication plus Dep. Languages and Culture)

iii. From reluctance to enduring cooperation: spill-over effects

3. Learning from the past: effects of the NSRF

65,4

59,9

33,1

48,2

59,1

62,5

66,5

62,1

75

68,2

4,3

22,7

32,4

27,4

11,3

27,4

18,8

12,8

10,1

14,1

30,4

17,4

34,5

24,4

29,7

10,1

14,7

25,1

14,9

17,7

0 10 20 30 40 50 60 70 80

Beira interior sul

Baixo Mondego

Baixo Vouga

Beira Interior Norte e Cova da Beira

Dão-Lafões

Médio Tejo e Pinhal Interior Sul

Oeste

Pinhal Interior Norte

Pinhal Litoral

Serra da Estrela

Other investments

Lisbon agenda (immaterial investments)

Traditional agenda

iv. Different preferences for the allocation of funds – alignment with the Lisbon Strategy

3. Learning from the past: effects of the NSRF

v. The dark side of implementation

32,4 33,1 34,5

17,2

68,9

10,3

0

10

20

30

40

50

60

70

80

Lisbon agenda (immaterial

investments)

Traditional agenda Other investments

Designed Implemented

3. Learning from the past: effects of the NSRF

In places lacking cooperative culture, partnerships can d evelop in na incremental manner, built uppon the experience and tru st among the actors (Dabrowski, 2011)

5. Concluding remarks

i. Gradual internalization of the partnership approach

Thin learning Thick learning

MotivationsPartnership stemmed from the

desire to acquire funds and was initially seen as an obligation

Perception of usefulness and appropriateness

of the partnership approach

• Efforts were developed so that partnership would be perceived as useful and with objectives that did not conflict with (the majority) of local governments priorities and interests

• Meetings and conferences gathering regional stakeholders, which fostered informal links and networks

• Local governments’ desire to improve policy practices and it’s outcomes thought the inclusion of academic knowledge

Spillover effects• Voluntary use of partnership within and

beyond the structural funds programmes.

• Prospective outlook

• Overcome the dependency on individual actors• Enhance the use of monitoring devices• Increase the use of hard mechanisms

i. Implications of the study for territorial governance

5. Concluding remarks

Projeto Alianças Territoriais para o Desenvolviment o

Patrícia SilvaFilipe Teles

Artur da Rosa Pires