Study of the concepts of sustainability and

polycentrism as fundamental aspects in

local and regional planning in the Baltic
Tangent area, Final version
Laila Kule, Vidzeme Development Agency &
Rivo Noorkõiv (Geomedia/Valga Town)
Contents of the study
 INTRODUCTION AND BACKGROUND
1. SUSTAINABLE TRANSPORT
2. POLYCENTRISM
3. CASE STUDIES
3.1. Case study: General position of polycentricity
and sustainability in Latvia and Vidzeme Region
3.2. Case study: Sustainable transport development
in Valga-Valka
 REFERENCES
The study is based on:
 Global governance level - UN policy documents,
European - the Council of Europe and the
European Union policy documents
 Baltic Sea region – VASAB studies and policy
documents, reports of other Interreg projects
 Research papers – European Spatial Policy
Observation Network studies
 Scientific articles and monographs, OECD
research studies
 For case studies: national and regional policy
documents, research reports in national
languages
 Polycentricity and sustainability
 EU Interim Territorial Cohesion Report (2004) - polycentric urban
systems are more sustainable and more equitable than either mono-
centric urban systems or dispersed small settlements.
 There is no clear conflict between sustainability and polycentrism revealed in
the European spatial policy documents. In opposite, there is an emphasis
that both concepts compliment each other.
 There can be a certain conflict between both concepts as polycentricity or
„decentralised concentration” requires better links and more intensive
communication (including transport) between urban centres involved.
Towns and cities - keystones of polycentric development, rural areas as
part of city-region.
 In thus the polycentricity approach has to be promoted only by coupling it
with the development of sustainable transport networks. Integrated
transport and land-use policy and planning, taking into account the effects
on the society-at-large, can reduce the ill consequences of current transport
systems (UN-HABITAT, 2005) OECD Guiding Principles for Strategies
towards Sustainable Transport (1997) – access, equity, individual and
community responsibility, health and safety, education and public
participation, integrated planning, land and resource use and pollution
prevention.
Polycentrism is both an analytical
concept and a policy option
 The normative definition of polycentricity is a policy option to
promote balanced and multi-spatial types of urban networks
that are most beneficial from a social and economic point of
view, both for the core areas and for the peripheries.
 Polycentrism is a belief that there are benefits to be gained
from polycentric development such as
 increased competitiveness, cohesion and regional balance, parity of
access to infrastructure and knowledge, and sustainable
development
 The definition of the analytical polycentricity concept is
based on a spatial organisation of cities characterised by a
functional division of labour, economic and institutional
integration and political cooperation.
The Concept of Polycentricity
 Polycentricity is measured by three dimensions
(ESPON, 2005):
 the size or importance of cities (population and
population change; central place functions (location of
political/administrative centres and company
headquarters), economic activity, industry, economic
drivers and investments)
 their distribution in space or location, and
 the spatial interactions or connections between cities
and towns (including accessibility that determines the
relative locational advantage). (Indicators are the
transport network, infrastructure and technologies, port
capacities, overall accessibility, goods transport flows,
inter-regional migration, barriers to trade and migration)
Measures to reach polycentric
development
 Specialisation
 the sharing of tasks and economic specialization,
based on potential, distinctive features, qualities
and opportunities in a region, linked with
regional identity and the branding of urban
and regional identities. Indicators: natural and
cultural assets, know how, attractiveness,
universities, tourism development.
 Complementarity
Polycentricity at three spatial
levels (Gløersen, 2005)

National / transnational/ Local / regional /

European /global
cross-border/ urban agglomeration /
interregional intra-urban
 Complementarity

 Morphological, hierarchy of urban areas

(nodes and centres), administrative status

 Relational, based on the networks and the

orientation of flows and cooperation between
urban areas at different scales

 Institutional or political polycentricity, based

on voluntary cooperation (complementary with
regard to urban functions). Town and city
twinning activities or projects

 Structural polycentricity, related to the

organisation of a territory i.e. to its spatial
patterns, through urban networking: from
migrations (students, active population,
commuters) transport, financial and information
flows.
 Spatial concepts: polycentric
development and corridors
 The polycentric development can replace the concept of the
development corridors interconnecting the spaces in more
comprehensive way by linking various urban networks at different
scales (Premius, 2001)
 Corridor concept nowadays is seen as accumulation of flows and
infrastructures that are dynamic entities linked with economic,
infrastructural and technological processes (Rodrigue, 2004).
 The transport corridor’s distribution paradigm is based on the
assumption that a major articulation point (mega-urban region)
serves as the main interface between global, national and regional
systems of goods accumulation and distribution. Intermodal
transportation systems reinforce articulation points as major locations
of convergence and transhipment (Rodrigue, 2004; Rimmer, 1999).
 Due to the continuous decline of the transport costs distances are
becoming less significant (Glaeser&Kohlhase, 2004) but transaction
costs, being related with quality and level of service as well with
distance, have increased in importance (Rietveld&Vickerman, 2004).
The multilayered network of a
transport corridor (Rimmer, 1999)
Paradigms in the representation of
transport corridors (Rodrigue, 2004)
Baltic Tangent area and
Polycentrism
 Polycentric development approach - useful to explore as an option how
to link different distant spaces within in the Baltic Tangent (BT) project
area in order to gain competitive potentialities over a stand-alone
development of individual cities or city-regions. These potentialities of
the polycentric development are the pooling of resources,
complementarities and integration, better competitiveness, regional
branding and economic growth.
 BT area consists from many national, regional, cross-border,
interregional and local spatial levels and respective urban and transport
networks to be analysed. BT can be best figured on European, Baltic
Sea region and its central part spatial levels, as well as combination of
national and regional levels involved
 On European scale BT area has to be analysed as one “territory” in
comparison with the “Pentagon”, including BT area accessibility and
links with “Pentagon” area and other major metropolitan areas in Europe
and in the BSR.
 European, national and regional spatial, transport and economic policy
documents and particular geographical and historical factors and
patterns have to be taken account.
 Baltic Tangent area and
Polycentrism: learning from others
 Regions with certain size, specialisation and the interlinkages among them need
to be identified not only on the map, but also within the institutional aspect. If
regional organizing capacity is able through a more or less institutionalized
framework of co-operation, debate, negotiation and decision-making to shape a
polycentric urban region’s competitive advantages
 Interlinked polycentric urban networks at various scales are used as an
alternative option to the economies of scale and agglomeration. These are
economically successful due to better information, closer relationships, and
concentrations of specialised knowledge, supporting institutions, rival firms,
related enterprises, sophisticated customers and the incentives to innovate.
 Major constraints in the previously examined regions that were trying to build
an polycentric structures included institutional fragmentation, an internal
orientation of key persons and the lack of identification with the region at large.
 Polycentric urban networks based on cooperation and networking
(institutional polycentricity) can be created if leaders are committed, information
and knowledge exchange, business and institutional cooperation are facilitated
and city regions branding and identities are strengthen in thus hoping that in
longer time-run complementarity would be developed based on structural
polycentric networks that are based not only the information flows but also on
transport and flows of people, freight and finances.
Sustainable Transport in the EU
 European Transport Policy 2010: Time to Decide (2001) states that the
transport system has to be optimised to meet the demands of
sustainable development, being sustainable from economic, social as
well as environmental perspective. Shifting the balance between modes
of transport is needed.
 The sustainable transport system as adopted in April 2001 by the EU
Transport Council has following definition:
 allows the basic access and development needs of individuals, companies
and societies to be met safely and in a manner consistent with human and
ecosystem health, and promotes equity within and between successive
generations;
 is affordable, operates fairly and efficiently, offers choice of transport mode,
and supports a competitive economy, as well as balanced regional
development;
 limits emissions and waste within the planet's ability to absorb them, uses
renewable resources at or below their rates of generation, and, uses non-
renewable resources at or below the rates of development of renewable
substitutes while minimising the impact on the use of land and the
generation of noise.
ESPON study on European
Transport networks, 2004
Sustainable Transport in the EU
The following measures have been identified as the main strategies for
transport development in the European Union till 2010 (2001):
 Revitalising railways;
 Improving quality in the road transport sector;
 Promoting transport by sea and inland waterway;
 Striking a balance between growth in air transport and the environment;
 Turning intermodality into reality;
 Building the trans-European transport network;
 Improving road safety;
 Adopting a policy on effective charging for transport;
 Recognising the rights and obligations of users;
 Developing high-quality urban transport;
 Putting research and technology at the service of clean and efficient
transport;
 Managing the effects of globalization;
 Developing medium and long-term environmental objectives for a
sustainable transport system.
Principles for sustainable transport
development planning in Europe
 Underlying principles for sustainable transport
development planning (CEMAT, Council of Europe,
2000):
 Intercontinental relationships as strategic
elements for European spatial development
policy;
 The multiplicity of cultures;
 Large European regions as a basis for mutual
support and co-operation;
 Integration of the old and the new member
states.
Communiqué of the 12th Ministerial
Session of the Council of Baltic Sea
States (VASAB 2010, 2003)
 Missing links between TEN-T, Transport Infrastructure Needs
Assessment (TINA) and Helsinki corridors have to be carefully
identified in the Commission's revision of the Guidelines for the TEN-
T;
 When evaluating, planning and implementing Pan-Baltic intermodal
transport systems, spatial development issues, such as balanced
regional structure, should be taken into account in the TEN-T revision;
 The effects of infrastructure improvement on regional development
should be taken effectively into account. This concerns particularly the
rail network in the eastern part of the Baltic Sea Region;
 Because of their effects on spatial development, intermodal transport
chains increase the need for a better integration of transport planning
and spatial planning. This can be achieved e.g. by better integration of
sectoral actors to the strategic spatial planning process, informal
negotiations with business sector, using methods of extended
strategic environmental assessments or/and spatial impact
assessments;
 The Baltic Sea would become a pilot region in implementing the
Motorways of the Sea concept.
Case study: National Transport
Development Program for 2000- 2006
 Based on a need that Latvian transport system requires to be
gradually integrated in European transport system and with the
transport systems of neighbouring counties.
 Based on a sustainability principle, sustainable transport system
means integration with land use planning - transport and land use
planning have to occur synchrony.
 Sustainable transport is seen as able to meet the needs of the
increase of the quality of life and the equal access.
 The program underlines only the specific needs of rural
inhabitants in remote areas, with no particular focus on how to
support urban networking and accessibility of urban centres.
 However there is an objective to connect transport networks and
different modes of transport.
 Transport Development Program includes a commitment to
cooperate in with municipalities in the field of regional and spatial
development, in thus to ensure a balanced and harmonised
interests of the state, municipalities, entrepreneurs and
individuals.
Case study: National Transport
Development Program for 2000- 2006
Viborga
SOMIJA St. Pçterburga

Helsinki

Tallina
IX
IX KRIEVIJA
I IX
IX
IGAUNIJA
I Dno
Valga Pleskava Maskava

IX
Ventspils Rîga
LATVIJA IX

Krustpils Rçzekne Novosokoïniki

II II
Sebeþa
Jelgava Daugavpils
Liepâja Vitebska IX
I I
Smoïenska
I LIETUVA
IX Dzelzceïð
Klaipeda IX Kauòa BALTKRIEVIJA Autoceïi
Viïòa Maì istrâlie naftas un naftas produktu cauruïvadi
II II IX
IX IX Transporta koridora numurs
IX I IX Latvijas transporta koridoru sasaiste
I Minska ar Eiropas transporta koridoriem
Kaïiòingrada
Ventspils, Rîga, Liepâja - jûras ostas
Case study: Vidzeme Planning Region
Spatial Structure Plan (draft, 2004)
 The draft plan has emphasis on a settlement structure, infrastructure
and open areas.
 Settlements are to be develop balanced and in polycentric urban
structure and to create sustainable and well functioning urban structures
that are based on cooperation and complemetarity principles. To reach a
the following tasks are listed:
 to assess the potential of towns and other settlements in Vidzeme region, to
define their role and place in urban hierarchy,
 to develop urban-rural cooperation and to strengthen the supporting role of
towns for surrounding rural areas and
 To use as efficient as possible the potential of each town and settlement.
 to create and strengthen cooperation among towns by complementing
their functions and by jointly providing services and
 to establish links both vertical and horizontal among towns within and
outside the region and
 to integrate peripheral areas in to the networks of towns and other
settlements by providing good accessibility and the availability of
communications.
 Case study: Vidzeme Planning Region
Spatial Structure Plan (draft, 2004)
Deficiencies and inconsistencies of the draft plan:
 The consistent coordination between transport development and urban and
economical development aims is lacking.
 Vidzeme region’s strengths that it has already a polycentric settlement
structure and a good accessibility measured by a road network and proximity
between urban centres, contrast to such region’s weaknesses as a lack of
working places and low entrepreneurial activity. Policy to strengthen the role
of towns and the urban networking is included.
 The hierarchy of urban centres are not consistent – the question arises how
proposed complementarity of national centres Valmiera and Cesis can be
reached – concerning institutional policentricity options.
 The settlement structure and the transport network are not analysed by three
spatial levels taking account that each of them have different aims and policy
options how to achieve more balanced development or polycentric
development.
 The draft plan has scarce recommendations on economical specialization
and regional identity that are important prerequisites for such polycentric
development. The proposed regional distinctiveness and identity are based
on diverse nature and culture heritage and urban structure, the economical
aspects are lacking.
Case study: Sustainable transport
development in Valga-Valka
 Historically Valga and Valka emerged as a single town. Since
1920, the town is separated between Estonia and Latvia.
 At present, there are more than 21,100 inhabitants in the twin
town - 14,700 in Valga and 7,1 thousand in Valka.
 Within the radius of 100 kilometres there are approximately
half a million people, which holds notable a market potential
as well as the potential for international cooperation.
 Potential for the application of transit trade and international
passenger transport that enables achieving faster regional
development.
 In the interests of the development of Valga-Valka, and of
South-Eastern Estonia and Northern Latvia on wider scale, it
is important to capitalise on the region’s considerable
strengths and opportunities related to transit, logistics and
industry. The application of contemporary information and
communication technologies also is needed.
Case study: Sustainable transport
development in Valga-Valka
The strategic interests of Valga-Valka:
 renovating railways and roads, their revitalisation to
become state priority;
 application of modern information communication
technology;
 conceptualising the legal status and tax policy of the free
zone;
 customising the principles of sustainable development in
land usage;
 working out the investment policy and support system for
business development;
 modernising the curricula of education.
Thank you!

Laila Kūle, consultant for

Vidzeme Development Agency

Tel/fax. +371 7627439

Mob. Tel: +371 9107115
E-mail: laila.kule@lu.lv