PLANNING FOR A SUSTAINABLE EUROPE? - TU Berlin

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221 longstanding, ongoing and mutually inspiring, yet often contradictory discourses related to the objectives of transport and land-use development in Europe. Over the course of the last few years, Tim Richardson and Ole. B. Jensen have published several articles applying a discourse theoretical approach to European Union policy in the areas of transport and spatial development (Richardson 1996; Richardson and Jensen 2000; Jensen and Richardson 2001). They employ Foucauldian discourse analysis and declare their intellectual affinity with Bent Flyvbjerg’s work on rationality (or rather: Realrationalität) and power in planning. This present chapter is in many ways complementary to their ongoing research, although it is overall somewhat less explicitly Foucauldian than their work. The other obvious influence is Maarten Hajer’s work on environmental discourse and storylines (also see below). The central proposition of this chapter is what I term the “Conflicting-Storylines” proposition. It assumes that 1) EU decision-making for Pan-European transport investments lacks consistence and sustainability due to the existence of several, partially complementary, but also partially competing EU development objectives, and 2) these objectives are in turn expressed through several, partially conflicting Leitbilder and spatial storylines. 1 So this chapter focuses on identifying the specific discursive practices by means of which the European Union advances its underlying eco-modernist transport investment rationales. Note that this chapter is deliberately limited in scope in the sense that there is an explicit focus on infrastructure investments, thus excluding discourses that are more 1 A Leitbild (guiding vision) can be very broadly understood as an overarching storyline. For more precise definitions, see below.
222 focused on regulatory or managerial aspects of European transport policy. 2 Interestingly, the identified storylines do not only exemplify eco-modernist rationales, but sometimes also evoke various other discursive frameworks. The rest of the chapter is organized as follows: In the section following this introduction, I introduce the German concept Leitbild in order to differentiate the EU’s overarching (history-making) “guiding visions” of enlargement, integration and sustainability, from second-order (policy-setting and –shaping) concepts (i.e. storylines) such as “polycentricity” or “bottlenecks”. 3 I briefly discuss the three above-named Leitbilder for EU decision-making before moving on to the core concept of “spatial storylines.” I subsequently analyze what I identify as four main spatial storylines for EU infrastructure decision-making: “cohesion,” “polycentricity,” “missing links,” and “bottlenecks.” I also discuss their relationship to the EU’s eco-modernist understanding of sustainable development. A concluding section summarizes the theoretical findings and their implications for decision-making. 6.2 Three Overarching Leitbilder for EU Decision-Making 6.2.1 Defining Leitbilder (Guiding Visions) There is no direct translation for the German term Leitbild (pronounced lite-bild). As a compound noun, its most literal English translation is “guiding image.” I use the general term Leitbild here in the same sense that Meinolf Dierkes and his colleagues at 2 It would be quite possible, for example, to do detailed discourse-theoretical analyses of eco-modernist storylines such as “Intelligent Transport”, “Interoperability” or “Fair Payment for Infrastructure Use” or “Safety”. These are beyond the scope of my project, but certainly present worthwhile areas for further research. 3 This now commonly referred to three-level typology of EU decision-making (i.e. history-making / policysetting / policy-shaping) was introduced by Peterson and Bomberg (1999, see especially Chapter 1, p. 12). They do not, however, develop a typology of pertaining discursive concepts the way I do here.
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PLANNING FOR A SUSTAINABLE EUROPE?
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ABSTRACT OF THE DISSERTATION Planni
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ACKNOWLEDGEMENTS My thanks are due
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TABLE OF CONTENTS Abstract Acknowle
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7.7 Conclusions and Consequences 30
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LIST OF FIGURES Figures Page 1.1 Ke
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2 1.1 In Search of a Sustainable Tr
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4 well as ideological ones. Serious
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6 1.3 Situating the Study within th
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8 makes it much more difficult to d
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10 national institution whose legit
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12 Table 1.1: The Three Levels of E
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14 Case studies are often accused o
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16 In adapting this concept of “m
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18 1.6 Personal Motivations for Cho
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20 qualifying as “unbiased” is
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22 Union transport decision-making,
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24 consistent with the needs assess
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26 I structured the resulting inqui
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28 decision-makers. But when focusi
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30 influence of the EU in the candi
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32 on multi-location politicking an
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34 and related propositions form th
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36 information, and evasion of publ
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38 maintenance and construction cos
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40 Printed on October 31, 2002 Last
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42 relationship between transport,
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44 elements are knowledge control,
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46 2.2.2 Macroeconomic aspects of t
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48 existing businesses is reduced.
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50 the qualitative aspects of the i
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52 European researchers warned that
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54 In examining the difficult quest
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56 activity from one place to anoth
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58 The earliest meaning of sustain
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60 The underdevelopment debates of
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62 Kousis et al. 1997) makes the im
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64 to other social scientists. For
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66 Figure 2.2 The Three Dimensions
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68 A recent definition provided by
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70 The Vancouver principles are als
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72 2.5 Two Ill-Defined Concepts? We
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74 “We are all Greens now” unat
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76 a frequently quoted definition,
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78 concept aims to integrate aspect
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80 influence is reflected in severa
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83 and policy-making. For these Hab
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85 Pointing to the ultimate conting
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87 Allmendinger (2002b:77), in a re
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89 everything but one-sided interpr
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91 green consciousness” as the re
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93 course, also scholars propagatin
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95 practitioners and a majority of
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97 strongly agree with these author
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99 Instead, Baker et al. subsumes t
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101 policy analysts to built scient
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103 beliefs, notions of validity an
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105 Printed Thursday, October 31, 2
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107 and capture the most important
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109 4.2 Ecological Modernization: T
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111 modernization as “the discour
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113 metabolism, implies major or ba
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115 defining it as one of two theor
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117 modernization is about “what
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119 and World Bank-funded Global En
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121 The automobile lobby, of course
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123 external environmental and soci
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125 The Australian planning theoris
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127 responsible for rising levels o
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129 principle) for the development
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131 automobility as part and parcel
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133 company Deutsche Bahn is now of
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135 In related studies, car acciden
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137 (2001:2) recently summarized:
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139 excellent, discourse- and rheto
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141 investments in Central Europe.
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143 the “communicative rationalit
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145 by government regulation and fu
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147 industry (certain segments), bi
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149 Table 4.3 “Brown” Agenda ve
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151 or the European Investment Bank
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153 sustainable transport. Quoting
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155 “on the move” while the wea
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157 higher levels of education and
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159 In sum, political economy argum
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161 Table 4.4 The Eight Points of D
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163 International, for example, dem
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165 regions in the world and the ge
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167 Man on a bicycle can go three o
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169 Policy arguments in favor for l
Page 182 and 183: 171 infrastructures with regard to
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Page 188 and 189: 177 on EU Research Framework Progra
Page 190 and 191: 179 development (March 1995) stress
Page 192 and 193: 181 5.2.3 From the Maastricht Treat
Page 194 and 195: 183 The 1997 Treaty of Amsterdam (T
Page 196 and 197: 185 The 1998 Decision is particular
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Page 202 and 203: 191 directly focus on transport iss
Page 204 and 205: 193 foods and subsidized intensive
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Page 212 and 213: 201 improving quality,” and “im
Page 214 and 215: 203 infrastructure charging systems
Page 216 and 217: 205 For example, the new White Pape
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Page 222 and 223: 211 transport-related policies, the
Page 224 and 225: 213 5.5 The EU’s Research Framewo
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Page 228 and 229: 217 perhaps should not, be united i
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Page 236 and 237: 225 contradictions of EU decision-m
Page 238 and 239: 227 6.2.3 Enlargement (Widening) Th
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Page 242 and 243: 231 four poorest member states (Gre
Page 244 and 245: 233 creator of an idea or storyline
Page 246 and 247: 235 The 1990s saw the start of the
Page 248 and 249: 237 the poorer member states to agr
Page 250 and 251: 239 A Cohesion Fund set up by the C
Page 252 and 253: 241 importance of economies of scal
Page 254 and 255: 243 more precise, less optimistic a
Page 256 and 257: 245 based European Federation for T
Page 258 and 259: 247 look at the situation in the Ea
Page 260 and 261: 249 Figure 6.3 The Blue Banana I: A
Page 262 and 263: 251 at the Informal Council of Mini
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Page 266 and 267: 255 In particular, ERT’s 1984 rep
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Page 270 and 271: 259 Regardless of these different m
Page 272 and 273: 261 Once the “Missing Links” st
Page 274 and 275: 263 most simple form, it is an unqu
Page 276 and 277: 265 For roads, it might be a bypass
Page 278 and 279: 267 agglomerations in the core, the
Page 280 and 281: 269 dissenters of the view that reg
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271 Printed Sunday, November 17, 20
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273 between member states, and pros
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275 having been an intergovernmenta
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277 links are investigated in any f
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279 selection, there was no actual
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281 European ministerial meeting pr
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283 25,310 km for the rail sector a
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285 7.4 The Transport Infrastructur
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287 of the politically defined corr
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289 Figure 7.5 TINA Rail Network So
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291 Figure 7.7 TINA Network Hungary
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293 It is our opinion that the TINA
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295 In Poland, internationally reno
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297 example, the range was in fact
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299 The question of priorities is s
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301 actual choice considering futur
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303 projects and the overall develo
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305 jeopardizing international fund
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307 Figure 7.9 Proposed Hungarian T
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309 In the case of the TINA exercis
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311 With regard to the TINA exercis
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313 Printed on Sunday, November 17,
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315 evaluation. 2 What is possible,
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317 hundreds of EU regulations, dir
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319 First, as far as funding for th
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321 8.2.2 EU Transport Sector Grant
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323 countries will increase substan
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325 is also an explicit goal. The g
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327 1. The Community assistance fin
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329 During the High-Level Meeting i
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331 MTME 1995) was elaborated in 19
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333 In fact, the World Bank agreed
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335 However, due to renewed shifts
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337 describes Polish transport sect
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339 that had previously received mo
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341 Committee, i.e. well over half
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343 moderate increase in private ve
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345 As far as mode specific details
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347 Hungarian National ISPA Strateg
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349 Table 8.4 The Széchenyi Plan
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351 construction contracts, and non
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353 There are thirteen [road sector
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355 Table 8.5 Overview of ISPA Tran
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357 most of the more problematic ch
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359 more up to the CEEC to make sur
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361 new infrastructures, regardless
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363 9.1 Introduction: The Significa
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365 reinvigorated calls to build th
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367 9.2.2 The Northern Section: A h
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369 the environment and living cond
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371 are then listed within the four
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373 more progressive variant of the
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375 9.4 Local and International Pro
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377 The permission plan and the EIA
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379 since only citizens or legal pe
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381 environmental matter. Moreover,
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383 9.5.5 Reexamining the impact of
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385 Orbital motorways do not necess
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387 At this point, a suitable defin
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389 Besides retail and industrial p
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391 Figure 9.2 New construction of
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393 city still shows a strong upwar
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395 Figure 9.8 Budapest’s “Stra
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397 upgrades in and around the Hung
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399 infrastructures, including the
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401 Printed on November 17, 2002 La
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403 challenging and re-evaluating p
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405 10.2 Summary of Previous Chapte
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407 contradictory and ultimately as
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409 storylines are closely aligned
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411 internationally-linked priority
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413 In Chapter 9, I looked at the M
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415 guideposts for interpreting rea
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417 explanations of why “in the e
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419 How far this leverage is then p
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421 decision-making, and instead re
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423 or “congestion.” This is wh
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425 concentration of economic activ
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427 10.4.1 Taking Action on Strateg
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429 brought forward not only by man
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431 Table 10.1 A Two-Dimensional
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433 space. Transport loans are usua
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435 APPENDICES, GLOSSARY, BIBLIOGRA
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437 Table A.2 EIB Transport Loans t
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439 Table A.4 EBRD and IBRD Transpo
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441 Annex II: List of Key Contacts
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443 CEC Tom Robbert SCR, EU lending
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445 NGO Hana Rihkovsky Comm. of Eur
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447 ”Poverty Alleviation through
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449 Annotated Glossary of Terms, Ac
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451 competitiveness and growth of E
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453 Pan-European Corridors See “H
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455 Bibliography Aglietta, M. (1979
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457 the Infrastructure Studies Grou
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459 Centre For European Policy Stud
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461 —— (2001a). A Sustainable E
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463 Dierkes, M., U. Hoffmann, et al
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465 European Parliament. European R
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467 Münster, Lit Verlag. Giunta, A
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469 Henderson, K., Ed. (1999). Back
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471 Kesselring, S. (2001). Mobile P
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473 Race and Class Barriers to Mobi
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475 Europe: a cross-national compar
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477 Studies 36(11): 1849-1858. Prug
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479 Transport Reviews 20(3): 369-38
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481 Future. New York, United Nation
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483 DEIKE PETERS EDUCATION: CURRICU
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