Article citation information:
Glinka, K. Integrated territorial investment as instrument for managing
transport security in lower Silesia’s largest cities. Scientific Journal of Silesian University of Technology. Series
Transport. 2017, 94, 37-46. ISSN: 0209-3324. DOI: https://doi.org/10.20858/sjsutst.2017.94.4.
Kamil GLINKA[1]
INTEGRATED
TERRITORIAL INVESTMENT AS INSTRUMENT FOR MANAGING TRANSPORT SECURITY IN LOWER
SILESIA’S LARGEST CITIES
Summary. The main aim of this article is to analyse the role
and importance of Integrated Territorial Investment (ITI) as the instrument for
the management of transport security in the four largest cities of Lower
Silesia: Wrocław, Wałbrzych, Legnica and Jelenia Góra. The doubt concerning the
potential connected with using ITI is reasonable in the sense that it creates a
completely new, previously unknown, mechanism for the implementation of EU
cohesion policy. The conducted analysis, covering the level of strategic
management, does not allow for a full confirmation of the formulated
hypotheses, for two reasons. Firstly, only three out of the four cities in
question (Wrocław, Wałbrzych and Jelenia Góra) use ITI in the management of
transport security. Secondly, although the use of ITI complements the
assumptions of Poland’s National Urban Policy (NUP), which highlights the
importance of strategic programming and a multimodal approach in the management
of transport security, the scale of this usage is the same as in the case of
those cities with integrated, detailed transport strategies, as well as cities
without such strategies.
Keywords: Integrated Territorial Investment,
security, transport, management, large city, functional area, Lower Silesia
1. INTRODUCTION
The constant need for movement and,
in turn, the continuous increase in the number of vehicles on Polish roads mean
that local authorities are confronted with the task of long-term programming of
activities in the field of public transport. The problem especially arises in
the cities as the centres of growth [2], which, given their development
potential and the impact on the functioning of the whole region, must ensure
the safe movement of not only residents, but also visitors. Since setting out
the priorities of EU cohesion policy for 2014-2020, ITI is one of the
instruments for managing transport policy.
The main aim of this article is to
analyse the role and importance of ITI as the instrument for the managing
transport security in the four largest cities in Lower Silesia: Wrocław,
Wałbrzych, Legnica and Jelenia Góra (based on the number of residents). The
doubt concerning the potential connected with using ITI is reasonable in the
sense that it creates a completely new, previously unknown, mechanism for the
implementation of EU cohesion policy. For the purpose of this article, which
addresses the level of strategic management, two hypotheses are formulated.
Hypothesis 1 (H1):
The use of ITI by the authorities of
all four examined cities complements the foundations of the NUP, which
highlights the importance of strategic programming and a multimodal approach in
the management of transport security.
Hypothesis 2 (H2):
The range of ITI usage relates to
the extent to which an integrated, detailed transport strategy has been
developed, such that, in the situation where a city has such a strategy, the
range of ITI usage increases.
2. INTEGRATED TERRITORIAL INVESTMENT
AND NATIONAL URBAN POLICY
ITI is a tool for the implementation
of EU cohesion policy for 2014-2020. It represents an expression of a new
approach to the management of urban development processes. According to the ITI
concept, local authorities, which intend to implement the project beyond the
administrative borders of the city in order to include its functional area, are
required to initiate partnerships (e.g., associations, intercommunity
relations) with other local authorities. Subsequently, they must prepare a
long-term strategy and conclude an agreement with the board of the respective
voivodeship, which determines the rules for its implementation. After
appointing a so-called intermediary institution, ITI creates a mechanism for
the selection of projects, which are included in the strategy assumptions and
qualified for financing. Public or private entities, including entrepreneurs,
local government units and their organizational units, cultural and educational
institutions, NGOs and so on can be the beneficiaries of funds from the
European Regional Development Fund and the European Social Fund [5, 23].
According to the ERDF’s regional
operational programmes (ROPs), and their corresponding priority axes,
transportation is an area that can benefit from financial support in the period
2014-2020. ROPs also refer to ITI as a new integrated tool for the
implementation of projects, including transport projects that support the
sustainable development of cities.
Poland’s NUP, which was developed
and adopted by the government, sets a new desirable direction for the
development of cities and their functional areas, which is to be facilitated by
smaller units of local government. As the basis of a system of state-led
strategic development [3], the NUP sets out the areas of urban policy that
should dominate the activity of local authorities. One of the 10 major areas
(known as “thematic threads” in the NUP) is “transport and urban mobility”.
The NUP focuses on several key
aspects of urban transport policy, while its authors rightly note that “it is a
challenge for a significant number of Polish cities to produce a fully
effective solution for problems appearing in this area”
[6]. The aim of local authorities, in line with the NUP, should be “the
achievement of sustainable mobility”. To meet the expectations of citizens, the
NUP stresses the importance of ITI, regarding it as a means of cooperation by
which public expectations in terms of transport can be met [6].
The NUP also emphasizes the
importance of taking a multimodal approach to the management of transport
policy. In order to achieve “sustainable mobility”, local authorities should
undertake simultaneous actions in respect of certain types of transport.
Furthermore, the NUP points to the need for the integration of road transport,
railway transport and alternative forms of movement in the cities [6].
3. SECURITY IN URBAN TRANSPORT
POLICY
Security is one of the dimensions of
urban transport policy. A considerable amount of the relevant literature
presents a wide range of approaches to security, which vary in terms of
research orientation. The number of analyses and publications resulting from
the research conducted by representatives of various scientific disciplines
further exacerbate the terminological dilemmas.
Regarding transport as an “activity
consisting of the carriage of people and goods” [16, 26], city authorities face
the task of creating such conditions in which the activity can be conducted
securely. Making the assumption that ensuring peace, certainty and the lack of
danger is the essence of security [22] allows transport security to be
perceived as a kind of a state in which all the three elements - peace,
certainty and the lack of danger to the carriage of people and goods - can be
guaranteed.
Irrespective of the type of
destination (place of work, abode or leisure), the accessibility and stability
(permanency, recurrence) of the conditions of travelling are especially
important for creating a sense of security, apart from the mitigation of the
risk related to endangering the life or health of travellers. A crucial role in
ensuring such stability is performed first by the state of transport infrastructure
and, second, by the quality of transport services. Therefore, in this sense and
in line with this article’s scope, transport security is characterized by the
accessibility and stability of the carriage of people and goods determined by
the state of the infrastructure and service quality.
Striving for the satisfaction of
citizens’ collective needs, such as transport security, local authorities,
including city authorities, programme their actions accordingly [15, 24]. As
such, they formulate, adopt and implement strategies, which precisely focus on
the aims, dimensions and priorities of transport policy.
When taking a long-term perspective,
the possibilities for ensuring effective transport security are greater than in
the case of short-term activities conducted on an ad hoc basis. This is
especially true when taking the following two elements into account. This first
involves cooperation in terms of realizing transport enterprises
(infrastructure or services), which, by engaging a number of public and private
entities, requires negotiations and agreements stretched out over a long period
time. The second element involves financing common enterprises, which entails
the use of appropriate, formal and legal mechanisms. ITI is an instrument
that links these two elements and, hence, allows one to manage transport
security effectively and efficiently.
4. TRANSPORT POLICY IN LOWER
SILESIA’S LARGEST CITIES
Transport policy for cities,
including the four largest cities of Lower Silesia, is reflected in official
strategic documents of various types:
1.
Development strategies - these only signal the need to
conduct activities in the area of transport
2.
Partial strategies - these refer only to chosen
aspects of transport policy, such as cycle traffic, emissions economy
3.
Detailed strategies - these specify, in a comprehensive
manner, the aims, dimensions and mechanisms of activities in the area of
transport policy
As the results in Table 1 show, the
next two types of strategic documents are related to the use of ITI:
4.
Integrated development strategies of
urban functional areas - these set out an overall framework for activities related to
transport
5.
Integrated detailed strategies - these specify, in a comprehensive
manner, the aims and dimensions in the area of transport policy for urban
functional areas.
Table 1. Transport references in the strategic documents of
Lower Silesia’s four largest cities
|
City |
Strategic
document |
Type |
|
Wrocław |
- “Wrocław in
Perspective: 2020 Plus” Strategy - Wrocław
Mobility Policy - Bicycle Policy
of Wrocław - Strategy of
Integrated Territorial Investments of the Wrocław
Functional Area |
1 3 2 4 |
|
Wałbrzych |
- Balanced
Development Strategy of Wałbrzych to 2020 - Development Strategy of the Wałbrzych
Agglomeration - Low Emission
Economy Plan for 2014-2020 with a Outlook to 2030 for 15 Communes in the
Wałbrzych Agglomeration - Strategy of
Integrated Territorial Investment of the Wałbrzych
Agglomeration - Public
Transport Integrated Programme for 2014-2025 for 22 Communes of the Wałbrzych
Agglomeration - Stage I, Stage II |
1 1 2 4 5 |
|
Legnica |
- Development
Strategy for Legnica 2015-2020 Plus - Low Emission
Economy Plan with Elements of the Urban Mobility - Low Emission Limitation Programme for Legnica |
1 2, 3 2 |
|
Jelenia Góra |
- Development
Strategy for Jelenia Góra 2014-2015 - Integrated Plan
for Public Transport Development - Low Emission
Economy Plan for Jelenia Góra - Strategy for
Integrated Territorial Investments of the Jelenia
Góra Agglomeration for 2014-2023 |
1 3 2 4 |
Source:
author’s own study based on [18, 19, 20, 21]
Three out of the four cities in
question (Wrocław, Wałbrzych, Jelenia Góra) have “type 4” documents at their
disposal. However, taking into account the functional (rather than
administrative) dimension of managing transport policy, it can be stated that
Wałbrzych seems to be an active leader in this respect, due to the fact that
the authorities of the second largest city of Lower Silesia were the only ones
who decided upon formulating a detailed strategy (i.e., a “type 5” document),
namely, the Public Transport Integrated Programme for 2014-2025 for 22 Communes
of the Wałbrzych Agglomeration.
As shown in Table 1, the development
of Legnica and the local government units located in its surrounding areas does
not assume the use of ITI; rather, it is based on the province contract [1].
Additionally, the partnership with Głogów, a second equal leader of the
functional area, is an element that distinguishes Legnica from Wrocław,
Wałbrzych and Jelenia Góra.
Although Table 2 presents the
demographic and functional potential of the four cities in question, the case
of Legnica does not constitute a subject for the analysis presented later on in
this article because it withdrew from using ITI.
Table 2.
Demographic and functional potential of the largest cities of Lower Silesia
|
City |
Potential |
|||
|
Demographic |
Functional |
|||
|
Population of: |
Type of an urban functional area |
Number of local government units
creating an urban functional area |
||
|
City |
Urban functional area |
|||
|
Wrocław |
634,000 |
893,000 |
OF |
18 |
|
Wałbrzych |
117,000 |
427,000 |
A |
22 |
|
Legnica/Głogów |
101,000/69,000 |
588,000 |
OF |
42 |
|
Jelenia Góra |
81,400 |
210,000 |
A |
18 |
Source:
author’s own study based on [4, 7, 9, 11, 13]
Table 2 shows that the cities in
question are characterized by a completely different demographic potential
(Wrocław versus Wałbrzych and Jelenia Góra). Taking into account the number of
units cooperating with them, one can state that their functional potential is
at a similar level (22 local government units in the case of Wałbrzych and 18
in the case of Wrocław and Jelenia Góra), irrespective of the type of urban
cooperation area (A - agglomeration, OF - functional area) involved.
5. MANAGING TRANSPORT
SECURITY WITHIN THE TRANSPORT POLICY OF WROCŁAW, WAŁBRZYCH AND JELENIA GÓRA
The use of ITI in the management of
transport security for Wrocław, Wałbrzych and Jelenia Góra finds its
substantiation not only in the NUP, but also in official regional strategic
documents. As stated in Table 3, the activities of local authorities are
primarily determined by the assumptions of Lower Silesia’s ROP.
Table
3. The management of transport security according to the NUP and the ROP of
Lower Silesia 2014-2020 (ROP LS) and the priority axes of the ROP LS (PA ROP
LS)
|
NUP |
ROP LS |
PA ROP LS |
|
-
Thematic thread (4): transport and urban mobility |
-
Thematic objective: Promoting sustainable transport and removing capacity deficiencies in the functioning of key
network infrastructures -
Investment priority: 5.2.
Railway transport system |
-
Priority axis (5): transport |
Source:
author’s own study based on [6, 17]
The essence of management at the
local level is “the creation and implementation of coherent, interconnected and
coordinated action plans, in order to achieve the highest level of the
provision of municipal services and shaping processes of local and regional
development” [15]. The “type 4” documents (integrated strategies for the
development of urban functional areas) and “type 5” documents (integrated
detailed strategies), developed and implemented by the authorities of Wrocław,
Wałbrzych and Jelenia Góra, programme activities aimed at increasing the
security of transport. Table 4 shows the expected range of the use of ITI by
types of transport.
Table
4. Use of ITI in the management of transport security of Wrocław,
Wałbrzych
and Jelenia Góra by the types of transport
|
City |
Transport |
||
|
Road |
Railway |
Alternative |
|
|
Wrocław |
Yes |
Yes |
Yes |
|
Wałbrzych |
Yes |
Yes |
Yes |
|
Jelenia Góra |
Yes |
Yes |
Yes |
Source:
author’s own study based on [10, 12, 14]
The analysis of the contents in
Table 4 allows us to state that the integrated strategies of all three cities
facilitate the implementation of projects that improve the level of transport
security, in terms of not only road and rail transport, but also alternative
transport.
The consideration of the third type
of transport, which, for the needs of this article, is defined as forms of
transport including cycling and pedestrian movement [8, 25], indicates a much
wider focus than the strictly technical context of transport policy management.
Although the strategy assumptions
have a general nature (except for the integrated detailed strategy of
Wałbrzych), the analysis of their content allows, in some synthetic way, to
catalogue the programmed projects. The criterion with which to distinguish the
projects, alongside the types of transport, is their nature (see Table 5).
The first case (marked with the
letter “N”) refers to the development of the network (road, rail, bicycle, pedestrian
etc.), while the second (marked with the letter “I”) refers to what is adjacent
to the network technical infrastructure, which is necessary for its
functioning. The third and final case (marked with the letter “S”) refers
to the programmable services offered to residents and visitors, which are
expected to increase transport security.
Table 5. Use of ITI in the management of the transport security of
Wrocław, Wałbrzych and Jelenia Góra by the type of transport and the types of
projects
|
City |
Transport |
||||||||
|
Road |
Railway |
Alternative |
|||||||
|
N |
I |
S |
N |
I |
S |
N |
I |
S |
|
|
Wrocław |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
|
Wałbrzych |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
|
Jelenia Góra |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Yes |
Source:
author’s own study based on [10, 12, 14]
As seen in the above settlement,
within the same scope, all three cities programme the projects, firstly, for
the development of the transport network, secondly, for the construction of the
necessary infrastructure and, thirdly, related to the implementation of
specific transport services.
The above situation happens
regardless of whether the city has an integrated development strategy for urban
functional areas (“type 4”) or an integrated detailed strategy (“type 5”).
The analysis of the content of the
four strategies primarily shows that the programmed projects are as follows:
1. In the area of network (N):
• construction and reconstruction of national,
provincial and local roads, bypasses, byways, nodes
• construction, reconstruction, modernization and revitalization
of rail networks
• construction and reconstruction of bicycle paths
• construction and reconstruction of pedestrian paths
2. In the area of infrastructure (I):
•
purchase or
modernization of the bus, rail, bicycle fleet construction, reconstruction, modernization
and revitalization of the linear or point infrastructure: railway stations, bus
stops, lighting systems, traffic management systems, including intelligent
steering systems, energy management systems, system of stationary ticket
machines, integrated, multimodal change centres, car parks (i.e.,
park-and-ride, bike-and-ride)
3. In the area of services (S):
•
creating new lines of communication
•
ticket
integration (introduction of the so-called joint ticket)
• construction and modernization of Internet systems to
purchase tickets [10, 12, 14]
Projects integrating three types of
transport (road, rail and alternative), which execute the assumptions of the
NUP, call for special actions, such as the setting up of the above-mentioned
multimodal change centres [10, 12, 14].
6. CONCLUSION
The conducted analysis, including of
the level of strategic management, shows that ITI is an instrument for the
management of transport security within the administrative borders of the
largest cities in Lower Silesia and their functional areas. However, it does
not allow for a full, positive verification of the two formulated hypotheses.
Hypothesis 1 (H1):
The use of ITI complements the
foundation of the NUP, which highlights the importance of strategic programming
and a multimodal approach in the management of transport security. This is
evidenced by the development of integrated strategic documents (“type 4” or
“type 5” documents), which assume the simultaneous implementation of projects
in relation to three types of transport: road, railway, alternative. It is
important to note, however, that only
three out of the four cities in question have such a strategic document. By
basing its development on a territorial contract, and not on ITI, Legnica has
not developed the right strategy in contrast to other cities.
Hypothesis 2 (H2):
All three cities use ITI, firstly,
in the area of road, railway and alternative transport, and, secondly, to
expand the network, and its accompanying infrastructure and services. This
situation is regardless of whether the city has an integrated development
strategy for urban functional areas (“type 4”) or an integrated detailed
strategy (“type 5”). The range of ITI usage is therefore the same for
Wałbrzych, which has two strategies, as well as for Wrocław and Jelenia Góra,
which have one strategy.
Taking into consideration the
current stage of project implementation (the beginning of the EU financial
outlook for 2014-2020), it seems that the potential offered by using ITI in the
management of transport security for Wrocław, Wałbrzych and Jelenia Góra will
only increase.
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Received 17.10.2016;
accepted in revised form 19.01.2017
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