INTRODUCTION
One of the most important policy fields in the EU is regional policy whose effective implementation depends on the compatibility of local and regional governance systems of member states with EU practice and regulatory norms. In line with the European Regional Policy, the potential member states pass through a transformation process where EU accession enacts as catalyst to the policy enhancement in terms of European Regional Policy standards. However, this period of policy transformation in candidate countries are not free of challenges. In that respect, Turkey constitutes a special case study in terms of its still ongoing adaptation process with EU regional policy regulations and norms. Turkey is a country with huge interregional disparities which has passed through a fast structural and policy changes in an unstable macroeconomic environment over a long period of time. Throughout this transformation period Turkey made remarkable attempts to develop a regional policy. Firstly, the transformation from a plan-driven import-substitution to an open export-based economy was realized in 1980 and further steps were taken to develop a fully market economy. The eventual admission of Turkey’s candidate status in the Helsinki European Council (1999) accelerated Turkey’s efforts in the way of harmonizing its policies with the acquis. From that time onwards, the policy transformation period posed some challenges to Turkey as other candidate countries.
In order to make a detailed examination of those challenges and Turkey’s actions as against to those challenges, it would be useful to make a comparative analysis of this transformation between a recently acceded country to the EU namely, ‘Poland’ and Turkey who had experienced similar challenges while adopting their regional policies to EU standards. Similarity in territorial length, average population and share of rural population in the total, sharp east-west division in terms of socio-economic development, levels of unemployment rates may be given as reasons laying behind our choice to study on Poland.
Moreover Polish experience of post-communist transition in early 1990s and Turkey’s transformation from a centrally planned economy to a more liberal in 1980s; the fact that both countries are characterized with huge disparities between West-East and Rural-Urban regions; centralization being an important hurdle in the way of implementing its regional policy in the pre-accession policy in both countries; and the dominant position of sectoral policies over regional policies for long years again both in Turkey and Poland, constitutes another dimension which makes Poland and Turkey as suitable units for a comparative analysis.
PROBLEMS IN THE POLICY TRANSFORMATION IN TURKEY& POLAND: A COMPARATIVE ANALYSIS
1. Regional Unevenness
It is usually argued that Turkey is characterized with huge internal disparities which means that Turkey’s accession to the EU would increase the already existing regional disparities within the EU. The western/eastern divide of Turkey in economical terms constitutes a significant hurdle on the way of Turkey’s policy transformation in line with EU conditionality. Despite Turkish economy’s long-term growth, the even development across the country could not be observed. Besides regional disparities, provincial disparities in the country are also unbearable. The disparities between the East and the West of Turkey can be related to the characteristics of the local politics executed in those regions besides the economic and social factors. The local politicians in the West are approaching local problems and demands from a national-level perspective in that sense they put a great importance to their relations with Ankara in the way of achieving local political objectives. On the other hand, in the eastern part of the country due to the low-income and agriculture-based economy, the voters are highly involved in local politics and reflect their regional identity by this way.[i]
For Polish case, we can say that Poland faces serious problems of uneven regional development which constituted a hurdle in its progress to EU as well. Due to its historical heritage, Poland is still suffering from a division between the better developed western part and the lower developed eastern part division.[ii] Similar to Turkey, the eastern part of the country was portrayed as peripheral region by the regional planners in Poland and the post-communist systemic transformation of the national economy pointed out the weakness of the regional structure in the country which was shaped under central planning.[iii] The changes in industrial and agricultural production, the process of privatization and the spatial adaptation have not been uniformly intensive throughout the country on the basis of which lies the regional diversity, levels of wealth, dependence on production conditions and the level of social development.[iv] As a result, this transformation led to a polarized regional development with two groups of winner and looser regions between 1990-94 period.[v] The 1999 reform of country’s territorial organization has not greatly affected this spatial polarization of the country and this polarization continued to be a hurdle on the way of Poland’s regional policy harmonization with EU as it was the case in Turkey. The urban-rural tension continues to have an impact on the regional policy development of Poland. This division affected the direction of investments as well. Since the rural regions were in trouble surrounded with a weak infrastructure, poor privatization and fragmented agriculture were not attractive for the investors; they were directed towards the urban areas associated with well-developed infrastructure, strong privatization prospects and cheap labor.[vi] This regional unevenness in Polish case is quite similar to Turkish case in the sense that in both countries rural areas are highly differentiated in terms of their preparedness for EU accession, with the regions in the western part of the country in a much better position to overcome the EU membership than those in the East.
The regional disparities in both countries together with the general shift in the EU regional policy away from “equalization and solidarity” to “efficiency and competitiveness” led to concerns on the ability of the eastern regions to meet the challenges in formulating and implementing the regional policy especially their scarce resources are taken into account which will deepen the regional disparities.
2. From Centralization to Decentralization: A Difficult Progress
In order to understand the complexity and uniqueness of the regionalization process in Turkey, it’s necessary to examine the regional structure in Turkey. The unitary state in Turkey does not have a legal definition of “region”.[vii] Within the framework of the provincial system the main relations are centered on two actors, namely center and province. This is a quite centralized system in the sense that the center determines the performance of the provisions through financial and political measures. What’ more the reforms realized in the way of accessing to EU did not change the top-to-bottom approach in regional policy implementation. The regionalization attempts by State Planning Organization and State Institute of Statistics were realized without collaborating with the regions and without giving them sufficient decision-making power and economic resources. This centralized nature of the governance led to a belief that “the centre knows the best”[viii] and this kind of an approach prevails the political culture of Ministries and SPO as well. This understanding in Turkey can be related to the absence of both capitalistic class and industrial heritage from the very beginning of the Republic which led to a state-led economy even after 1980s when the shift to economic liberalization was the case and this state-dependency diminished the importance of regional and local politics has to a great extent in Turkey.[ix]
As mentioned before this centralization is an Ottoman legacy consolidated by the nationalist government of the new Republic of Turkey. Recent years witnessed a transformation of this method of governance due to some external and internal pressures like the motivation to harmonize with EU for accession. In line with this transformation the constitution was amended several times with the aim of reexamining the administrative structures in the country. However, at the end of the day the public administration remained still highly-centralized since the laws don’t emphasize on local democracy and decentralization of power. What’ more the bureaucrats did not perceive the regional planning as a necessary function and since 1960, sectoral logic dominated the regional one and the national plannings were prepared in line. Although some proposals were made by the SPO to establish regional representations, the desire to implement those proposals was quite limited. One of the factors at the basis of the regionalization failures is problematic nature of the institutional structure at the central level. The horizontal coordination between the sectoral Ministries and SPO in regional planning could not be realized due to status questions of SPO vis-à-vis the Ministries.
Turkey’s centralized governance system constitutes a big challenge in Turkey’s harmonization of its regional policy with EU norms and regulations since it’s nor compatible with the multi-level governance at EU level. The absence of an intermediary institutional structure between the center and local made it difficult for Turkey to bring its regional policy to EU standards in the pre-accession periods.[x]
For Poland the centralization has been an important hurdle in the way of implementing its regional policy in the pre-accession policy although not as severe as in Turkey. As already mentioned before, the biggest weakness of Polish regional policy stemmed from centralization which was a legacy of Communist era. Within this system regions run from Warsaw and had no institutional capacity for self-managed development.[xi] After long years of a centralized system the 1999 reform delivered a decentralizing promise of equipping the country with administrative structure that would facilitate the EU entry. However, even after this transformation the Poland’s EU pre-accession programmes were largely managed within one central organizational framework which resulted in a big coordination problem. During the pre-accession period the funds were not coordinated as support instruments for regional development, meaning that they operated separately without any multiplier effect.[xii]
3. Priority of Sectoral Policy over Regional Policy
Despite the steps taken to establish new structures at regional level, the absence of a real agency or ministry for regional policy at national level led to SPO assuming the full competence on this area in Turkey and for nearly 40 years or more the SPO has been preparing five-year development plans on sectoral basis So in addition to the centrality we must add the sectoral understanding to define traditional planning method in Turkey. Within this approach, the plans were made to promote the development of certain sectors without considering the regional dimensions. Thus the incentives were directed to the businesses that will enable sectoral growth rather than development of needy regions. As an example to this understanding we can give the national development plans focusing largely economic measures and city plans at the local level without tackling the regional disparities.[xiii]
The same problem reveals itself while examining the Polish case. The National Development Programmes in Poland were composed of a complex set of priorities and initiatives. The so-called coordination problem in the implementation of those programmes led to implementation of regional initiatives and this predominance of the sectoral policy over regional policy led to the imbalanced regional development. This problem is related with one of the important principle governing the EU regional policy, the so-called ‘concentration’ principle. In line with this principle the candidate countries should concentrate the funds on most needy regions instead of directing it to sectors with a growth potential. However, in Turkey the resources most of the time were oriented to national industrialization rather than to the reduction of regional disparities. Even giving 35 provinces the status of Priority Development Areas in 1993 did not the direction of resources from industrialized provinces to underdeveloped ones. While these provinces received 15.7 percent of public investment in 1991, 12.4 percent in 1992 and 17.8 percent in 1993, provinces in Marmara and Aegean regions attracted more than 50 percent of the public investment.[xiv] The same concentration problem is relevant for Poland in its pre-accession period during which the workforce and finance were concentrated mainly in the largest Polish cities as it was the case in Turkey.
CONCLUSION
The comparative analysis above addresses the problematic dimensions of regional policy implementation in Turkey and led us to make concrete conclusions on the way recording a successful score for Turkey’s harmonization with acquis. First of all, in the pre-planning stage, regional analysis shall be realized from a broader perspective including the sharing of responsibilities among relevant ministries, regional agents and civil society organizations, meaning a shift from a centralized approach to a decentralized one. Moreover, the problems within the bureaucracy have to be solved for efficient regional governance as well. Although the EU conditionality has been a strong driving force for Turkey’s alteration of its regional governance, there are still counter forces within the bureaucracy acting against change.[xv]
Turkey has to take lessons from the experiences of existing EU countries to revise its regional policies and in order to increase the pace of its adaptation process with the acquis. In line with this revision the first step shall be to share and reorganize this responsibility. Also the regions shall firstly rely on their internal power instead of state dependency. The establishment of regional self-governments to implement regional policy is another lesson to be taken for Turkey in this pre-accession period. These regional self-governments are crucial in the sense that they will be able to make independent investment decisions to support economic activity and to establish cooperation between different institutions.[xvi] Most importantly, an accelerated and healthy period of policy transformation needs a qualitative change instead of quantitative financial transfers which means a radical change in the values, institutional structures and communication.
Diğdem Tümtürk
[i] Murat Ali Dulupçu, “Regionalization for Turkey: An Illusion or A Cure?”, European Urban and Regional Studies, Vol. 12, No. 2 , (2005) p. 104.
[ii]Poznan (Wielkopolskie), Wroclaw (Dolnoslaskie), Gdansk (Pomorskie) and Krakow (Malopolskie) and Warszawa (Mazowickie)[ii] are those limited number of prosperous regions which are located in the western and southern parts and backed by strong economic, cultural, scientific and academic centres and attracting high levels of investment hence creating lots of job opportunities, and boosting their economies. Please see Annex for detail information.
[iii] Miroslawa Czerny, Andrzej Czerny, “The Challenge of Spatial Reorganization in A Peripheral Polish Region”, European Urban and Regional Studies, Vol. 9, No. 1, (2002) p.60.
[iv] Justyna Weltrowska, “Economic Change and Social Polarization in Poland”, European Urban and Regional Studies, Vol. 9, No. 1, (2002) p. 49.
[v] The winning regions with a developed services and technical infrastructure, skilled kabor forces, a scientific and technological base before 1999 consists of Warsaw, Poznan, Cracow, Wroclaw, Gdansk, Szczecin, Bydgoszcz and Bielsko- Biala. The loosers are the old industrial regions (Lodz, Katowice, Walbrzych, Jelenia Gora, Legnica, Konin and Tarnobrzeg); recession regions (Koszalin, Slupsk, Olsztyn, Suwalki, Tırun, Wloclawek, Plock and Ciechanow); poorly developed regions ( Ostroleka, Lomza, Bialystok, Biala Podlaska, Siedlce, Chelm, and Zamosc)
[vi] Blazyca, Heffner and Huhes, op.cit., p.265.
[vii] There are different examples for different conceptualizations of the term ‘region’ in Turkey. First of all, the country is divided into seven regions considering the climatic and topography conditions. Moreover the regional development projects initiated by the SPO like Eastern Black Sea Regional Development Plan (DOKAP), Zonguldak-Bartin-Karabuk Regional Development Project used the term ‘region’ on a project basis.The South-eastern Anatolia Project (GAP) has a distinctive regional development administration regulated by a specific legislation. Another conceptualization of ‘region’ is about the Emergency State Region (OHAL) which was established in the South-eastern Anatolia to fight against terrorism.
[viii] Ebru Loewendahl-Ertugal, “Europeanization of Regional Policy and Regional Governance: The Case of Turkey”, European Political Economy Review, Vol. 3, No. 1, (Spring 2005) p.34.
[ix] Dulupçu, op.cit., pp. 105,106.
[x] Only exception to this is the South-eastern Anatolian Development Project (GAP) administration.
[xi] Miroslawa Czerny, “Uneven Urban and Regional Development in Poland”, European Urban and Regional Studies Vol.9, No. 1, (2002) p. 37.
[xii] Tomasz Grzegorz Grosse, “An Evaluation of the Regional Policy System in Poland: Challenges and Threats Emerging From Participation in the EU’s Cohesion Policy, European Urban and Regional Studies, Vol. 13, No. 2, (2006) p. 153.
[xiii] Loewendahl-Ertugal, op.cit., p.29.
[xiv] Ibid., pp.27,28.
[xv] Loewendahl-Ertugal, op.cit., p. 45.
[xvi] Grosse, op.cit., p.152.