1. The role of VASAB

VASAB seeks to promote action oriented spatial planning which contributes to sustainable development of the BSR and which strengthens transnationality.

Sustainable development is characterised by the balancing of different interests: across generations, across development goals (social, economical, cultural, environmental and others), across sectors (transport, agriculture, industry, culture etc.), across levels of government, and across actor groups (private, public, governmental and non-governmental).

The balancing task makes a participative planning and implementation process important to ensure that best solutions are identified.

A functioning market economy helps to achieve economic development goals. But balancing is frequently required to give social and environmental goals proper weight.

This is particularly relevant for spatial planning. Spatial planning provides a framework for the spatial distribution of activities which corresponds in the best possible way to different goals and to the demands of different generations and actors.

Strategic environmental and spatial impact assessment allow an early and holistic evaluation of contemplated development measures.

Spatial planning is not synonymous to planning for sustainable development: not always does sustainability have a spatial dimension. But sustainability is its guiding principle. Through its long-term orientation, spatial planning has always adopted an intergenerational viewpoint. A participative process is characteristic for spatial planning.

Contemporary spatial planning is more than to provide a framework for development measures. It promotes development, based on co-operation with a variety of actors. Planning is linked to implementation.

Several factors have contributed to a growing need for a transnational view: the globalisation of trade, knowledge, information and culture; the pulling down of border barriers in a widened EU and beyond; the growing interdependency of the natural environment; the declining transportation cost barrier; the improvement of accessibility.

The transnational dimension is becoming an intrinsic part of spatial planning.

In this framework, VASAB seeks to:

• Articulate spatial implications of economical, social and political processes in the BSR;

• Make European spatial policies and strategies like ESDP or CEMAT guiding principles of sustainable spatial development operational under BSR conditions;

• Bridge "east" and "west", with all BSR countries participating on equal terms.

  The latter is important in the light of prospective EU enlargement (with some BSR countries remaining non-EU partners), and of the ongoing transition process.

  Particular attention is paid to the bridging role towards Russia and Belarus.

• Express Baltic interests in European-level discussions on future spatial and regional policies.

VASAB gives preference to joint action. It acts through a Committee on Spatial Development (CSD-BSR). CSD-BSR is supported by a Secretariat with permanent staff. The Secretariat provides organisational and professional services and promotes VASAB concepts vis-a-vis other organisations. It was initially located at Karlskrona, Sweden, and moved to Gdansk/ Poland after the Tallinn conference.

During first years, the initiative relied on contributions from partner countries. After 1994, additional funds were mobilised from the EU (Phare Poland for VASAB Secretariat; InterregIIC, Phare and Tacis for individual projects) and from the Nordic Council (training courses). Partner countries bear their respective staff and travel costs.

2. Review of action since 1994

The initial phase of VASAB culminated in a Ministerial Conference at Tallinn (Dec. 1994), with the adoption of the “VASAB­2010” report. Apart from describing common principles for spatial development, this report contains an action plan, with focus on pilot projects.

In order to promote joint action, the report has been disseminated and discussed with a variety of other transnational initiatives, national and regional bodies in the BSR. Steps were taken to implement some of the proposed projects.

The Fourth Conference of Ministers for Spatial Planning and Development (Stockholm/ Salt­sjö­baden, October 1996) en­dorsed a document proposed by VASAB “From Vision to Action”. Specifically, the CSD-BSR was asked to support the upcoming EU Community Programme INTERREG II C (in combination with Tacis and Phare for non-EU countries) and to contribute to an Agenda 21 for the BSR (“Baltic 21”). VASAB was also asked to continue with its projects, to extend co-operation with other trans­national bodies, and to contribute to cross-Baltic training and information.

The VASAB initiative looks back at some good achievements, in spite of difficult conditions. This is summarised below.

Bridging between EU and non-EU Europe

Co-operation in the framework of VASAB helped to identify areas of joint interest, and to initiate corresponding action. It maintains a dialogue on development perspectives for the whole region, with a focus on reducing disparities, and removing barriers to transnational development.

VASAB has become instrumental to bind EU territories together with non-EU BSR countries. Action in transition countries complementary to co-operation projects within the EU has been facilitated. Efforts have been made towards further harmonisation of different EU support programmes. Non-EU countries of the BSR were invited to the decision making structures on almost equal basis.

Inspiring ESDP and other transnational vision projects

The VASAB initiative has inspired the “Baltic Sea Region Initiative” of the European Commission. Having been the first transnational document of that kind, the VASAB2010 report (1994) has influenced other transnational spatial planning documents. This applies in particular to the “European Spatial Development Perspective” (ESDP 1999), and to the “Guiding Principles for Sustainable Spatial Development of the European Continent” (2000) prepared in the framework of CEMAT.

Transnational spatial development perspectives and programmes developed for other European regions under INTERREG II C could draw on VASAB examples.

Through the implementation process starting after the Tallinn conference, the co-operation has helped to make development principles operational laid down in these various documents.

Forum for discussion of spatial policy issues

Discussions while preparing the VASAB2010 report and afterwards contributed to a common understanding of spatial planning principles.

This was not only helpful when designing policy options for transnational action in spatial development. It also inspired those responsible for spatial planning and development within the participating countries and regions.

Improving basic knowledge on spatial development processes and challenges

In the framework of a pilot project for a spatial monitoring system in the BSR, an analysis of spatial structures and trends was presented.. (For further information see VASAB home page: www.vasab.org.pl. Background documents to this report are also available there).

This helped to better understand the spatial processes in the BSR, particularly with regard to the impacts from the transition process. On this basis, more focused action can be achieved. But there is still a need for systematic observation of spatial processes.

Contributing to a sustainable development strategy

CSD-BSR members cooperate with transnational initiatives and bodies which concentrate on sustainable development. Most important in this regard are Baltic21 and HELCOM. VASAB’s contribution is twofold: opening the view to a cross-sector approach which includes aspects of regional social, cultural and economic development; and facilitating the involvement of relevant actors, particularly at local and regional levels.

Spatial planning has shown to be useful as a cross-sector integrating tool. This endeavour is still at its beginning, but may develop into a valid example for other regions.

Strengthening spatial planning at national and regional levels

The joint transnational concepts prepared in the framework of VASAB and endorsed by Ministerial Conferences served as a reference for national spatial plans in the BSR.

In addition, planning courses and the secondment of planners from transition countries to sister institutions in western countries have been supported.

Initiation of transnational co-operation projects under direct guidance by VASAB members

This has been a major activity to demonstrate, through concrete projects, the benefits from transnational co-operation in spatial development.

By launching and guiding these projects, ways have been identified how to implement the spatial development concept, involving actors from local, regional, and national levels.

In a first phase, using mainly bilateral funding, projects focussed on a few issues of particular importance to the BSR:

• Transnational development of regions benefiting from improvements of Trans-European transport corridors.

• Boat tourism development based on networking and integration of economic development with urban planning and nature protection.

• Recommendations for Spatial Planning of the Coastal Zone in the BSR.

• Cross-border co-operation for regional development.

In a second phase (starting 1996), successful projects were continued, new ones were added:

• Corridor zone projects with enhanced participation at local and regional levels.

• Extension of the boat tourism development project to all countries around the Baltic Sea.

• Development of the maritime transportation system from a spatial development perspective.

• Urban systems and urban networking in the BSR.

• Pilot project for a BSR spatial monitoring system.

• Compendium of spatial planning systems and legislation in BSR countries.

Contribution to the Inter­regIIC Operational Programme for the BSR

The VASAB2010 report was an important input to the Interreg II C Operational Programme. VASAB contributed to the formulation of that programme. VASAB helped to promote Interreg II C among local and regional authorities, raising a considerable number of project proposals. Applicants were also supported to find project partners, and advised how to prepare applications. VASAB contributed to the evaluation and approval of proposed projects, as well as to their further monitoring.

This strong involvement of VASAB improved the variety of project applications. It was crucial for the participation of partners from transition countries. Though, this participation did not reach the desirable and feasible extent, due to incompatibilities among Interreg, Phare and Tacis with regard to:

• Deadlines for Phare, Tacis / Interreg applications submission (lack of synchronisation);

• Duration of projects;

• Eligibility criteria and areas;

• Thematic priorities,

• and missing link between assessment procedures under Phare, Tacis and Interreg II C.

VASAB has, again, contributed to the Community Initiative Programme (CIP) for Interreg IIIB. Results of discussions on VASAB2010Plus, as well as of its background analysis, were incorporated into this Programme.

3. Conclusions

Main achievements were the provision of common visions and principles for spatial development in the BSR, the generation of transnational co-operation projects and the support to partnerships between EU and non-EU countries.

Weaknesses relate to project steering, and to contributions to other transnational co-operations (due to insufficient personnel resources), and to the implementation of VASAB recommendations in the individual countries.

VASAB’s projects gave rise to a number of Interreg project applications with similar focus and approach. This shows that VASAB has taken up issues important for local and regional authorities. It has helped to strengthen the link between VASAB – representing national level - and Interreg target groups – municipalities and regions.

Insufficient manpower and/ or funds have limited the capacity of VASAB to steer its own projects. This has in some cases led projects to divert from the originally intended purpose.

VASAB has reached close co-operation with Baltic21 when developing proposals for sustainable development of the BSR.

This co-operation is still at its beginning. Principal tasks to balance proposed measures in the light of environmental, cultural, social and economical goals will gain importance as the required concretisation of these measures is ongoing.

This requires a heavier involvement of VASAB which needs resources presently not available.

The existence of a common Secretariat was essential for the results achieved.