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Abstract
Dąbrowski M. Engineering multilevel governance? Joint European Support for Sustainable Investment in City Areas (JESSICA) and the involvement of private and financial actors in urban development policy, Regional Studies. Joint European Support for Sustainable Investment in City Areas (JESSICA), one of the financial engineering instruments (FEI) within European Union cohesion policy framework in the 2007–13 period, created scope for developing cooperation between sub-national authorities and financial institutions and private investors. Anchored in the literature on multilevel governance, this paper examines how the implementation of this instrument has affected the patterns of sub-national governance in Poland and Spain. Despite stimulating learning processes and the emergence of unprecedented cross-sectoral partnerships, the implementation was hampered by numerous obstacles, underlining the limitations of multilevel governance and of FEI as tools for promoting urban development.
Dąbrowski M. 打造多层级治理？欧洲联合支持可持续投资城市区域基金 (JESSICA)，以及私人与金融行动者参与至城市发展政策，区域研究。欧洲联合支持可持续投资城市区域基金 (JESSICA)，是欧盟凝聚政策框架在 2007 年至 2013 年期间的金融工程工具（FEI）之一，创造了发展次国家政府与金融机构和私人投资者之间的合作领域。本文植基于多层级治理之文献，检视此一工具的执行如何影响波兰与西班牙的次国家治理模式。该工具的执行，儘管促进了学习过程，以及前所未有的跨部门伙伴关係的浮现，但却被诸多困难所阻碍，凸显出多层级治理和金融工程工具作为促进城市发展之工具的局限性。
Dąbrowski M. Susciter la gouvernance à plusieurs niveaux? Joint European Support for Sustainable Investment in City Areas (JESSICA) et la participation des acteurs privés et financiers à la politique en faveur du développement urbain, Regional Studies. Joint European Support for Sustainable Investment in City Areas (l'initiative JESSICA), l'un des instruments d'ingénierie financière au sein du cadre de la politique de cohésion de l'Union européenne de 2007 à 2013, a rendu possible le développement de la coopération entre l'administration sous-nationale, les institutions financières et les investisseurs privés. Cet article, qui repose sur la documentation au sujet de la gouvernance à plusieurs niveaux, examine comment la mise en oeuvre de cet instrument a influencé les modèles de gouvernance en Pologne et en Espagne. En dépit de stimuler les processus d'apprentissage et la naissance des partenariats intersectoriels sans précédent, sa mise en oeuvre était entravée par de nombreux obstacles, ce qui souligne les limites de la gouvernance à plusieurs niveaux et des instruments d'ingénierie financière comme outils pour promouvoir le développement urbain.
Dąbrowski M. Instrumente zur Regierungsführung auf mehreren Ebenen? Gemeinsame europäische Unterstützung für nachhaltige Investitionen in städtische Gebiete (JESSICA) und die Beteiligung von privaten und finanziellen Akteuren an der Politik zur Stadtentwicklung, Regional Studies. Die gemeinsame europäische Unterstützung für nachhaltige Investitionen in städtische Gebiete (Joint European Support for Sustainable Investment in City Areas bzw. JESSICA), eines der Finanzierungsinstrumente im Rahmen der Kohäsionspolitik der Europäischen Union im Zeitraum von 2007 bis 2013, ermöglichte einen Ausbau der Zusammenarbeit zwischen subnationalen Behörden, Finanzinstituten und privaten Investoren. Ausgehend von der Literatur über Regierungsführung auf mehreren Ebenen wird in diesem Beitrag untersucht, wie sich die Umsetzung dieses Instruments auf die Abläufe bei der subnationalen Regierungsführung in Polen und Spanien ausgewirkt hat. Trotz anregender Lernprozesse und der Herausbildung von bisher unbekannten sektorenübergreifenden Partnerschaften wurde die Umsetzung durch zahlreiche Hindernisse erschwert, was die Grenzen der Regierungsführung auf mehreren Ebenen und der Finanzierungsinstrumente als Mittel zur Förderung der Stadtentwicklung verdeutlicht.
Dąbrowski M. ¿Instrumentos para la gobernanza de varios niveles? Ayuda europea conjunta en apoyo de inversiones sostenibles en zonas urbanas (JESSICA) y la participación de actores privados y financieros en la política de desarrollo urbano, Regional Studies. La ayuda europea conjunta en apoyo de inversiones sostenibles en zonas urbanas (JESSICA), uno de los instrumentos de ingeniería financiera en el marco de la política de cohesión de la Unión Europea para el periodo entre 2007 y 2013, facilitó la cooperación entre autoridades subnacionales, instituciones financieras e inversores privados. A partir de la bibliografía sobre la gobernanza de varios niveles, en este artículo se analiza cómo ha afectado la aplicación de estos instrumentos en los patrones de la gobernanza subnacional en Polonia y España. Pese a estimulantes procesos de aprendizaje y el surgimiento de colaboraciones intersectoriales sin precedentes, esta aplicación se ha visto frenada por numerosos obstáculos, poniendo de relieve las limitaciones de la gobernanza de varios niveles y los instrumentos de ingeniería financiera como herramientas para fomentar el desarrollo urbano.
Funding
This research was supported by a grant as part of the Regional Studies Association Early Career Grant Scheme, awarded on 27 January 2012.
Notes
1 Interview with a Member of the European Parliament (MEP), 24 April 2012.
2 The other one, JEREMIE, being dedicated to supporting small and medium-sized enterprises (SMEs).
3 See http://ec.europa.eu/regional_policy/sources/docgener/informat/2014/financial_instruments_en.pdf (accessed on 25 December 2013).
4 Council Regulation (EC) 1083/2006, Regulation EC 1080/2006 and Commission Regulation 1828/2006, and their successive amendments.
5 See http://northwestevergreenfund.co.uk (accessed on 23 December 2013).
6 See http://www.london.gov.uk/priorities/business-economy/championing-london/london-and-european-structural-funds/european-regional-development-fund/jessica-london-green-fund (accessed on 19 December 2013).
7 For a profile of Wielkopolskie, see Dąbrowski and Allain-Dupré (Citation2012); and for one of Andalusia, see Marchese and Potter (Citation2011, ch. 1).
8 Source: Eurostat.
9 Interview with Bank Gospodarstwa Krajowego (BGK), Warsaw, 4 July 2012.
10 Interview with the Marshal Office, Wielkopolskie, 2 July 2012.
11 Interview with an expert, Andalusia, 15 April 2013; interviews with the Junta of Andalusia, 15 April 2013.
12 Interview with an MEP, 24 April 2012.
13 Interview with the Marshal Office, Wielkopolskie, 2 July 2012; interview with BGK, Warsaw, 4 July 2012; interview with an expert, Andalusia, 15 April 2012.
14 Interview with an MEP, 24 April 2012.
15 For a useful overview of PPPs, see, for example, Osborne (Citation2002) and Binkerhoff and Binkerhoff (Citation2011). For a discussion on the use of this practice specifically in urban development policy, see, for example, Koppenjan and Enserink (Citation2009).
16 Source: http://bazappp.gov.pl/ (accessed on 19 December 2013).
17 Interview with the Marshal Office, Wielkopolskie, 2 July 2012.
18 Interview with an expert, Andalusia, 10 April 2012; interview with an expert, Andalusia, 15 April 2013.
19 Interview with an expert, Andalusia, 10 April 2012; interview with the Junta of Andalusia, 15 April 2013.
20 Interview with a beneficiary, Andalusia, 11 April 2013.
21 Interview with a beneficiary, Andalusia, 11 April 2013.
22 Interview with an expert, Warsaw, 4 July 2012; interview with the Instituto para la Diversificación y Ahorro de la Energía (IDAE), Madrid, 18 April 2013; interview with a beneficiary, Andalusia, 12 April 2013.
23 Interview with BGK, Warsaw, 4 July 2012.
24 In Wielkopolskie the basic interest rate for JESSICA loans was set at 4.75%, but it could be lowered to 2.75% if the project scored highly on its social component.
25 Written communication with the Ahorro Corporación Financiera (ACF), Madrid, 30 July 2013.
26 Interview with an expert, Andalusia, 10 April 2012.
27 Interview with an expert, Andalusia, 15 April 2013.
28 Interview with BGK, Warsaw, 4 July 2012. Similar comment: interview with an MEP, 24 April 2012.
29 Interview with the Ministry of Regional Development (MRD), Warsaw, 4 July 2012.
30 Interview with MRD, Warsaw, 4 July 2012.
31 Interview with a beneficiary, Wielkopolskie, 3 July 2012; interview with an expert, Warsaw, 4 July 2012.
32 Interview with DG REGIO, 23 April 2012.
33 Interview with a beneficiary, Andalusia, 12 April 2013.
34 Interview with an expert, Andalusia, 15 April 2013.
35 Interview with DG REGIO, 23 April 2012.
36 Interview with an MEP, 24 April 2012; interview with an expert, Warsaw, 4 July 2012; interview with BGK, Warsaw, 4 July 2012; interviews with the Junta de Andalusia, Andalusia, 15 April 2013; interview with an expert, Andalusia, 15 April 2013; interview with ACF, Madrid, 18 April 2013; interview with IDAE, Madrid, 18 April 2013.
37 Interview with ACF, Madrid, 18 April 2013.
38 Interview with an MEP, 24 April 2012.
39 Interview with IDAE, Madrid, 18 April 2013.
40 Interview with an expert, Warsaw, 4 July 2012.
41 Interview with the Marshal Office, Wielkopolskie, 2 July 2012. The problem was also highlighted at the JESSICA Networking Platform 7th Meeting in Brussels, 27 June 2012 (see http://ec.europa.eu/regional_policy/thefunds/instruments/jessica_network_en.cfm#1) (accessed on 10 July 2013).
42 Interview with ACF, Madrid, 18 April 2013.
43 Interview with BGK, Warsaw, 4 July 2012; interview with a beneficiary, Andalusia, 11 April 2012; interview with an MEP, 24 April 2012.
44 Interview with BGK, Warsaw, 4 July 2012; interview with a beneficiary, Andalusia, 12 April 2013.
45 Interviews with the Junta of Andalusia, 15 April 2013. Similar comments: interview with IDAE, Madrid, 18 April 2013.
46 Interview with a beneficiary, Andalusia, 11 April 2012; interview with BGK, Warsaw, 4 July 2012; interview with MRD, Warsaw, 4 July 2012.
47 Interview with DG REGIO, 23 April 2012.
48 Interview with ACF, Madrid, 18 April 2013.
49 Interview with an expert, Warsaw, 4 July 2012; interview with an expert, Andalusia, 15 April 2013; interview with a beneficiary, Wielkopolskie, 3 July 2012.
50 Interview with a beneficiary, Andalusia, 11 April 2013; interviews with the Junta of Andalusia, 15 April 2013; interview with an expert, Andalusia, 15 April 2013. These findings corroborate the expectations from early evaluation reports; see Webb et al. (Citation2011).
51 Interview with an expert, Andalusia, 15 April 2013; interview with ACF, Madrid, 18 April 2013.
52 Interview with IDAE, Madrid, 18 April 2013; interview with the Ministry of Economy, Madrid, 19 April 2013; interview with an expert, Warsaw, 4 July 2012.
53 Interview with an expert, Warsaw, 4 July 2012.
54 Interview with an expert, Warsaw, 4 July 2012; interview with a beneficiary, Wielkopolskie, 5 July 2012; interview with a beneficiary, Andalusia, 11 April 2012.
55 Interview with a beneficiary, Wielkopolskie, 5 July 2012.
56 Interview with an expert, Warsaw, 4 July 2012.
57 The weak public–private cooperation was also stressed as a challenge by the JESSICA Lessons Learned Working Group (see http://ec.europa.eu/regional_policy/thefunds/instruments/jessica_network_en.cfm#1) (accessed on 10 July 2013).
58 Interview with an expert, Warsaw, 4 July 2012.
59 Interview with a beneficiary, Andalusia, 12 April 2012; interview with the Ministry of Economy, Madrid, 19 April 2013; interview with IDAE, Madrid, 18 April 2013.
60 Interview with ACF, Madrid 18 April 2013.
61 Interview with BGK, Warsaw, 4 July 2012.
62 Interview with DG REGIO, 23 April 2012; interview with an MEP, 24 April 2012; interview with the Ministry of Economy, Madrid, 19 April 2013.
63 Interview with an MEP, 24 April 2012.
64 Interview with an MEP, 24 April 2012.
65 Interview with an expert, Warsaw, 4 July 2012. Similar comments in interviews: with an MEP, 24 April 2012; with a beneficiary, Wielkopolskie, 3 July 2012; with BGK, Warsaw, 4 July 2012; with the Ministry of Economy, Madrid, 19 April 2013; and with beneficiaries, Andalusia, 11–12 April 2012.
66 Interview with ACF, 18 April 2013.
67 Interview with the Ministry of the Economy, Madrid, 19 April 2013; interview with ACF, 18 April 2013; interview with an MEP, 24 April 2012; interview with the Junta of Andalusia, 15 April 2013.
68 See Regulation (EU) No. 1303/2013 of the European Parliament and the Council of 17 December 2013 (see http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2013:347:0320:0469:EN:PDF) (accessed on 25 December 2013).