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Textbook Ebook Economic Growth and Cohesion Policy Implementation in Italy and Spain Institutions Strategic Choices Administrative Change 1St Ed Edition Mattia Casula All Chapter PDF
Textbook Ebook Economic Growth and Cohesion Policy Implementation in Italy and Spain Institutions Strategic Choices Administrative Change 1St Ed Edition Mattia Casula All Chapter PDF
Economic Growth
and Cohesion Policy
Implementation in
Italy and Spain
Institutions, Strategic
Choices, Administrative
Change
Mattia Casula
International Series on Public Policy
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Department of Political Science
University of Pittsburgh
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Philippe Zittoun
Research Professor of Political Science
LET-ENTPE, University of Lyon
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Economic Growth
and Cohesion Policy
Implementation in
Italy and Spain
Institutions, Strategic Choices,
Administrative Change
Mattia Casula
Ca’ Foscari University
Venice, Italy
© The Editor(s) (if applicable) and The Author(s), under exclusive licence to Springer Nature
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Contents
v
vi Contents
References255
Index277
Abbreviations
ix
x ABBREVIATIONS
xi
List of Tables
xiii
Introduction
1
This book results from a multi-year empirical research in the field of Cohesion Policy.
This publication had been anticipated by some essays published, in English and in Italian,
during these years (see Casula 2017, 2018, 2019, 2020).
xv
xvi Introduction
After the 1988 reform of structural funds, five multi-annual programs have
been launched by the EU. During these decades, for each of the three chal-
lenges I mentioned, several changes have been made to this policy in terms of
priorities, beneficiary states, and the rules of the game. At the same time,
domestic actors have faced these challenges in different ways. Consequently,
the impact of EU Cohesion Policy on different European countries has var-
ied. In fact, from 1988, not every country has been able to utilize EU funds
efficiently, failing to bring about the additional effects that a community-wide
policy should have realized, that is, GDP and employment growth, infrastruc-
tural reinforcement, attracting foreign investment, and so on.
Among the states that have had the possibility to take advantage of
structural funds from the first programming period, both Italy and Spain
exhibited a substantial number of underdeveloped regions. Nevertheless,
the impact of EU regional policy in Spanish and Italian regions has not
been the same in terms of economic growth and cohesion over the last
three decades (with a greater performance in Spain). The aim of this book
is to explain, through the use of a policy analysis perspective, the reasons
for the different outcomes in the use of structural funds, taking into
account the implementation of EU Cohesion Policy in these two regional-
ized states as case study.
Political scientists showed lasting interest for the study of Cohesion
Policy for a full three decades (Piattoni and Polverari 2016). They mainly
investigated the emergence of MLG in the context of structural funds, by
questioning the implications of the mobilization of domestic actors on
sub-national governance. Extensive theoretical work and empirical studies
reinforced the argument that EU regional policy not only is dominated by
national governments but also includes regional and supra-national actors
(Hooghe 1996; Marks 1996; Piattoni 2015). In this context, issues of
discussion were above all: the dynamics of negotiations concerning the
regulation of structural funds (e.g., Brunazzo and Piattoni 2004; Marks
1996), the Europeanization of national institutions (e.g., Bull and
Baudner 2004; Graziano 2012), the sub-national mobilization in the EU
(e.g., Hooghe 1996; Kölling 2015), the mobilization of sub-national
actors in territorial politics (e.g., Da ̨browski 2014; John 2000), and the
role of administrative capacity for policy implementation (e.g., Milio
2007; Terraciano and Graziano 2016). Yet, the study of Cohesion Policy as
a case of development policy and the role of domestic institutions in eco-
nomic growth and cohesion since the 1990s have sparked little attention.
While the Cohesion Policy approach “to promote the forces of conver-
gence against those pushing toward divergence […] has been consistently
Introduction xvii
reconfirmed from 1989 to the present in all of the treaties that have deep-
ened the EU from a policy and political point of view” (Leonardi and
Holguin 2016, p. 432), and during the last decades the European
Commission itself stresses the importance of functioning domestic institu-
tions for economic development, political scientists’ interest in these issues
persisted only during the first decade of implementation (Leonardi 1993;
Nanetti 1996; Paraskevopoulos 2001).
On the wave of the American tradition of development studies (Evans
and Stalling 2016), this book suggests that public policy analysis can be
fruitful for understanding economic growth and cohesion, if it were to
reconstruct domestic public interventions for development and the institu-
tional characteristics of the subjects responsible for pursuing development
goals. In fact, despite domestic authorities having been forced to imple-
ment Cohesion Policy in accordance with the well-established European
institutional framework, regulations allowed the Member States (MSs)
elbow room in the implementation phase. As a consequence, the study of
this policy helps to understand whether persistent problems of underdevel-
opment can be explained by looking at different domestic management
approaches to implementing the policy, since the way in which structural
funds are managed by domestic actors may significantly differ.
To do so, this book derived its theoretical foundations from the tradi-
tional debate on the role of state actors in promoting economic develop-
ment and on the institutional characteristics that the public authorities
involved in the process of economic development should display. Even if
the level at which responsibilities in formulating and implementing devel-
opment policies are assigned continues to divide commentators, most
have highlighted the institutional characteristics of the subjects responsi-
ble for pursuing development goals as early as the 1950s, arguing that
public institutions sensitive to pressures inhibit development, while insti-
tutions that are autonomous from this type of pressure tend to facilitate it.
More in detail, this book suggests that this emphasis on institutional char-
acteristics of subjects responsible for development and their degree of
autonomy is in line with the lessons of one of the classic economic devel-
opment authors, Albert Hirschman (1958, 1963, 1967), whose teachings
may continue to be useful for understanding circumstances of underdevel-
opment. Hirschman argues for an entity that is autonomous from demands
of particular consensus and that is able to take general responsibility for all
aspects related to the implementation of complex development programs,
such as the institutional solutions for planning development, economic
policy choices, and the administrative change regarding actors involved.
xviii Introduction
More precisely, the starting assumption of this book is that the transition
from a position of underdevelopment is determined by institutional, strate-
gic, and administrative factors that characterize the circumstances within
which national decision makers operate, rather than by a simple optimization
process of allocating funds and/or the characteristics of human capital
involved in the implementation phase. By using a working hypothesis meth-
odology (Kaplan 1964; Shields 1998; Shields and Rangarjan 2013), I assume
in this book that the potential success or failure of a development policy in
terms of economic performance is related to a plurality of supporting inter-
connected factors which state actors are expected to promote, by involving
(1) the institutional solutions for planning development, (2) the economic
policy choices for improving growth, and (3) the administrative change of
the actors involved in the implementation phase. It is claimed that a develop-
ment policy should possess each of these three characteristics in order to
maximize its potential for a positive impact on economic growth and should
closely match those characteristics as they are defined by Albert Hirschman
in his works. In other words, it is assumed that economic growth (i.e., the
dependent variable) materializes when the policy maker decides to find a
solution to a persistent scenario of underdevelopment by formulating and
implementing a specific development policy that, in terms of the adopted
institutional solutions, strategic choices, and administrative change of the
actors involved in its implementation, is aligned with Hirschmanian princi-
ples (i.e., the independent variable).
In short, as compared with previous analysis on the implementation of
EU structural funds done by political scientists, this book analyzes EU
Cohesion Policy as a case of development policy and it proposes an origi-
nal contribution aimed at (1) building an analytical and theoretical frame-
work for comparing its implementation from the 1988 reform in different
countries and understanding its results in terms of economic growth and
cohesion; (2) and applying this framework to the study of Cohesion Policy
implementation in Italy and Spain from the first to fourth programming
periods (the first, 1989–1993; the second, 1994–1999; the third,
2000–2006; the fourth, 2007–2013). The latter programming period for-
mally ended in March 2017. It does so by adopting the frame proposed by
Hirschman, by analyzing the domestic institutions involved in the man-
agement of structural funds, and by taking advantage of a qualitative
research based on documentary analysis, secondary literature, and more
than 100 interviews conducted in Bruxelles, Rome, Madrid, and in the
Italian and Spanish regions from the end of 2015 to the months prior to
Introduction xix
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Introduction xxi