Borders of Inclusion and Exclusion1 The European Union and Borders of Inclusion and Exclusion James W. Scott Leibniz-Institute for Regional Development and Structural Planning, Erkner, Germany International conference Warsaw, September, 2007 Regional Development in Central and Eastern Europe

Borders of Inclusion and Exclusion2 Research Focus How do tensions between “Europeanisation” and local contexts manifest themselves in border regions ? What opportunities does the EU (e.g. ENP) offer for local/regional CBC? How do EU policies and CBC affect the perception of borders and neighbours?

Borders of Inclusion and Exclusion3 EUDIMENSIONS EUDIMENSIONS (CIT ) is supported by the EU’s Sixth Framework Programme under PRIORITY 7, Area “New Borders, New Visions of Neighbourhood”.

Borders of Inclusion and Exclusion4 EXLINEA Lines of Exclusion as Arenas of Co-operation: Reconfiguring the External Boundaries of Europe Policies, Practices, Perceptions EU 5th Framework Programme, HPSE-CT Key Action: “Improving the Socio-economic Knowledge Base” Citizenship, governance and the dynamics of European integration and enlargement

Borders of Inclusion and Exclusion5 How to Judge EU Role in Developing the “New” Borderlands? With regard to political opportunities for communities and civil society to participate in economic and social development Promoting “mental cohesion” between the EU and neighbouring (non-EU) regions

Borders of Inclusion and Exclusion6 Example: Geopolitics of Europeanisation Neighbourhood Policy (ENP): quasi- integration without membership Community of shared (EU) values Development of a transcontinental market Securitisation, extension of EU border perimeter Promoting EU exceptionalism (a force for good in the world)

Borders of Inclusion and Exclusion7 CBC and Neighbourhood Policies Develop contexts and capacities for “region- building” along EU external borders Reduce negative locational factors associated with national borders (peripherality trap) Transcend historical legacies of division

Borders of Inclusion and Exclusion8 Problems Related to CBC Contexts INTERREG logics of CBC (institutions, structured cooperation, strategic approach) informed by enlargement – difficult to transfer to Neighbourhood contexts Processes of exclusion in tension with more inclusionary aspects of EU policies

INTERREG = Internal Consolidation

Borders of Inclusion and Exclusion10 Inclusionary Discourses of Neighbourhood “Positive” political and economic interdependence forms basis for regional partnerships and political community Free trade as long term goal Co-operation in areas of culture, social development Human rights a means to enhance non- exploitational and “equitable” geopolitics

Borders of Inclusion and Exclusion11 Inclusion Through More efficient and targeted cooperation resources (single instrument) Greater interaction with neighbours in policy development (Partnership Agreements and Action Plans)

Borders of Inclusion and Exclusion12 However, “Exclusion” Takes Several Forms: In Eastern and Southern contexts, partnerships subject to cultural contradictions and protectionism This is exacerbated by increasing (post 9/11 Madrid, London) securitisation of EU external borders Discrimination against many sectors of regional population (visas, border checks)

Borders of Inclusion and Exclusion13 Exclusion promoted by A sense of “zonation” of EU, New EU, “Wider”-European and non-European neighbours based on particularisms, neo- liberalism and prejudices (John Agnew 2002). Conditionality: convergence towards EU models, serving EU interests prerequisites for partnership Unilateral projections of “European values” onto “non-EU” and beyond

Borders of Inclusion and Exclusion14 Given This, How is CBC Developing at the External Borders? Borders are generally seen as an opportunity by CBC stakeholders and local people Hindered by perceived differences between what EU promises and delivers

Borders of Inclusion and Exclusion15 Local Cooperation Patterns Role of Civil Society and NGOs is vital: bridges institutional gaps, builds local capacities International CS networks as well as EU are important motivators of cooperation and border region development Areas: health, poverty, culture, religion; in some cases economic development and ethnic minorities are main vectors

Borders of Inclusion and Exclusion16 Evolving Cooperation Contexts Little institutional support for CBC ENP lacks focus on Civil Society and its CBC role Civilisational discourses damage perceptions of Europe New Schengen borders embody and symbolise exclusion

Borders of Inclusion and Exclusion17 Emerging European Borderlands

Borders of Inclusion and Exclusion18 Civil Society Networks in Transcarpathia

Borders of Inclusion and Exclusion19 New, “Efficient” Borders

Borders of Inclusion and Exclusion20 Borderlands as European Peripheries

Borders of Inclusion and Exclusion21 Potentials….

Borders of Inclusion and Exclusion22 Renaissance of Local Communities

Borders of Inclusion and Exclusion23 EU and the Neighbourhood: Conclusions EU’s role as moderniser and catalyst for development is indisputable EU promotion of regional neighbourhoods most successful in pragmatic terms However is EU is engaged in geopolitical “bordering” manifested by identity politics (“we”/”them”) and conditionality (who is more like the EU)

Borders of Inclusion and Exclusion24 What Might This Indicate? A much stronger, nuanced and contextually sensitive engagement of CS is needed Limits to the EU’s Europeanisation strategy: selective appeal to specific groups Avoid civilisational divides by addressing more clearly the geopolitical concerns of the Neighbours Universality of CBC models an illusion: pragmatic and ethical balance is the challenge

Borders of Inclusion and Exclusion25 Thank You for Your Kind Attention!