engleski

EU Cross-Border Cooperation in Croatia: A Critical Review of Developmental and Institutional Effects

In this paper we present a critical review from an academic perspective of developmental and institutional effects of cross-border cooperation (CBC) in Croatia in the period 2004-2010. During this period, Croatian regions and localities had the opportunity to experience for the first time creation and implementation of EU funded cross- border cooperation projects. At the same time, institutional structures had to be built on national level in order to organise and implement the CBC programmes and projects. During that period programming frameworks have changed for Croatia, from the initial CARDS and PHARE programmes to the current IPA programme. This very demanding process of institution building contributes to the necessary preparations of Croatia for EU accession and the ability to fully participate and use funds that will be available through the ERDF in the near future. Croatia has finally adopted, after a long negotiation process among governmental levels, its National Regional Development Strategy and Act on Regional Development (2010) within which cross- border cooperation has to be considered in regional development plans. Croatia had Neighbourhood Programmes (trilateral programme with Slovenia and Hungary) and current cross- border cooperation programmes with Slovenia, Hungary, Italy, Bosnia and Herzegovina, Serbia and Montenegro, as well as the Adriatic Cross-border Cooperation including Albania. In addition, Croatia participates in interregional and transnational programmes (CADSES, SEES and MED) . Interestingly, the EU accession process and programming experiences on local and regional level have significantly contributed to the development of the national regional development policy framework. It can even be stated that significant know-how and institutional capacity has been built from the bottom-up. However, without a clear national policy framework, neither scarce EU grants provided through first CBC programmes nor local and regional needs presented in “early” regional development plans and programmes could be seriously addressed in a sustainable way. The implementation of EU cross-border cooperation programmes has positive influence on the evolution of Croatia’s regional development policy and practice. First project proposals being prepared in accordance with the project cycle management approach have significantly contributed to improvements in strategic thinking in local development actions. This learning process has been reserved for the time being for a number of interested local experts and consultants’ dealing with EU projects, as general awareness is rising only slowly due to the demanding approaches requiring new ways of thinking and working. Our aim is to identify and stress the benefits for Croatia in initial cross-border cooperation experiences as well as obstacles in this process. A significant positive issue in this context represents the transfer of institutional know-how through cooperation in sustainable economic, social and environmental development. It can be stated that the EU accession process represents an opportunity for building as well as rebuilding territorial cohesion in the territories of the Western Balkan, Central and South-East Europe. This process is being enabled through territorial cooperation based on new and strict rules set by the EC, the responsible managing authorities in member states as well as candidate and potential candidate countries for EU accession. Of high importance are transparent procedures based on which better governance practices can evolve through cooperation in new institutional settings and territories. Also interesting and important factors in areas mostly affected by the recent war are the new CBC programmes with Croatia’s neighbouring countries, which used to belong to former Yugoslavia. The process of creating and implementing joint projects can be also seen as an opportunity to re-establish social and economic links between inhabitants on local level in the border regions that were severely affected by the recent war. In this way joint environmental issues can also be tackled easier than before. Based on our research as well as practical experience in local and regional development including cross-border cooperation, participatory approaches and sustainable development, we will structure this research paper as follows: Firstly, we will give some insights on the current institution building process with regard to CBC in Croatia, whereby an emphasis will be put on the premise that new institutions are characterised by old institutional habits, which has certain consequences for Croatia’s accession process. Some background information will be given on current state and future of EU accession process in Croatian and the neighbouring countries of the Western Balkans, i.e. Central and South-East Europe. The main question addressed here refers to what extent can CBC be seen as a good opportunity for capacity building for the future of the countries in the wider region. Secondly, some theoretical insights behind CBC will be presented within the regional development framework including spill over effects, institutional capacity, absorption capacity, etc. Further, as cross-border cooperation programmes are being implemented through projects on regional and local level, this level will be the main perspective for evaluating the impacts of CBC policy on the one hand. Impacts on territorial cohesion among bordering countries as well as impacts on EU level need to be viewed from a wider perspective, wherefore we will consult available research literature, as well as monitoring and evaluation reports. In this regard, the Croatian experiences on national, regional and local level will serve as concrete examples in presenting deeper insights on how EU policy works in candidate countries as well as in relation to the neighbouring potential candidate countries for EU accession. We will conclude with thoughts on future prospects of cross-border cooperation programmes and projects in Croatia and EU Territorial cohesion in general.

Cross-border cooperation; regional development policy; sustainable development; governance; European Union

nije evidentirano