Does the idea of Integrated Rural Development

still have any place in Scotland?

Does the idea of Integrated Rural Development

still have any place in Scotland?

Professor Mark Shucksmithm.shucksmith@ncl.ac.uk

32nd T.B. Macaulay Lecture

A Starting PointA Starting Point

The OECD’s recent Review of Rural Policy in Scotland called for a more integrated approach across SG.

Is Integrated Rural Development still possible in 21st Century?

OutlineOutline

• Integrated Rural Development – a brief history. • Rural Development in a ‘nobody-in-charge’

world.• ‘Place-shaping’: reconceiving spatial planning.• Towards ‘neo-endogenous rural development’

the potential of LEADER

• Illustration: a framework for Crofting.Illustration: a framework for Crofting.• ConclusionConclusion

Integrated Rural Development : a potted

history.• European Union’s IRD programme in 1980s.

• Towards territorial not sectoral programmes• Led to the LEADER action programme, 1991-

• Integrated Rural Development as a means of bringing together sectoral policies at a local level through municipal coordination.

• But what meaning does IRD have in the context of the 21st Century, and in terms of the ‘new rural governance’?

The New Rural GovernanceThe New Rural Governance

• The concept of “Governance”: Partnership with private and voluntary sectors New role for the state as enabler rather than provider Tangled hierarchies, flexible alliances and networks Government ‘at a distance’; governing through community ‘Power to’ (generative) not ‘Power over’ (authoritative)

• Effectiveness of these new styles of governance? Partnerships, complexity, accountability, inclusion, scale?

• Participation & empowerment, or abdication?

Reconceiving Spatial Planning

Reconceiving Spatial Planning

• Healey (2004): the concept of spatial planning has been reinvented in this changed context. Understands ‘place’ as a social construct, continually co-

produced and contested Views connections between territories in terms of ‘relational

reach’ rather than simply distance and proximity Sees development as multiple, non-linear, continually emergent

trajectories (Amin & Thrift 2002) Context of network society & multi-scalar governance Institutional relations: generative not authoritative. Role of planners in facilitating deliberative ‘place-shaping’

Key Issues in ‘Place-Shaping’

Key Issues in ‘Place-Shaping’

• Two key issues if planning reconceived:Two key issues if planning reconceived:1.1. How to mobilise actors to develop strategic agendas How to mobilise actors to develop strategic agendas

collaboratively and inclusively in ‘diffused power’ contexts?collaboratively and inclusively in ‘diffused power’ contexts?2.2. How to employ concepts of place and space?How to employ concepts of place and space?

• Political mobilisation, not planning techniques.Political mobilisation, not planning techniques.• Tensions between the state’s role as Tensions between the state’s role as enablingenabling and and

entrepreneurialentrepreneurial and its regulatory role. and its regulatory role.• ‘‘Neo-endogenous’ rural development – not IRD.Neo-endogenous’ rural development – not IRD.• A core element both of the collaborative planning A core element both of the collaborative planning

project and of neo-endogenous rural development project and of neo-endogenous rural development (eg.LEADER) is ‘capacity-building’…(eg.LEADER) is ‘capacity-building’…

Capacity-Building and LEADER

Capacity-Building and LEADER

• Place-shaping relies on capacity-building (Healey et al) Place-shaping relies on capacity-building (Healey et al) which consists of building communities’…which consists of building communities’… Knowledge resourcesKnowledge resources Relational resources (social capital)Relational resources (social capital) Mobilisation capabilities (capacity to act collectively)Mobilisation capabilities (capacity to act collectively)

• LEADER initially an experiment in supposedly LEADER initially an experiment in supposedly endogenous development (ie. “bottom-up”), built on endogenous development (ie. “bottom-up”), built on local knowledge, local actors and local capacity to act.local knowledge, local actors and local capacity to act. Does mobilise actors to develop strategic agendas…Does mobilise actors to develop strategic agendas… Does employ concepts of ‘place-shaping’…Does employ concepts of ‘place-shaping’… But unresolved issues of vertical relations – not truly But unresolved issues of vertical relations – not truly

“bottom-up”…“bottom-up”…

LEADER’s potential..?LEADER’s potential..?

• There may be an opportunity to move beyond the original There may be an opportunity to move beyond the original LEADER experiment to address the issues raised in this paper. LEADER experiment to address the issues raised in this paper.

• Discourse of LEADER could be recast in terms of a new Discourse of LEADER could be recast in terms of a new experiment - in finding ways of doing ‘disintegrated rural experiment - in finding ways of doing ‘disintegrated rural development’, addressing the challenges of:development’, addressing the challenges of: Neo-endogenous rural development (how top-down meets bottom-up)Neo-endogenous rural development (how top-down meets bottom-up) Multi-scalar governance (how can vertical integration be promoted)Multi-scalar governance (how can vertical integration be promoted) Supportive state (how to adopt an enabling/fostering role which Supportive state (how to adopt an enabling/fostering role which

welcomes unexpected emergences/innovations)welcomes unexpected emergences/innovations) Generative state (how to be a catalyst for local action, mobilising less Generative state (how to be a catalyst for local action, mobilising less

powerful actors, and becoming an agent for change)powerful actors, and becoming an agent for change) Mainstreaming… for example in Finland.Mainstreaming… for example in Finland.

Crofting and Rural DevelopmentCrofting and Rural Development

• The recent report of the Crofting Inquiry has The recent report of the Crofting Inquiry has sought to address many of these issues.sought to address many of these issues.

• Empowering communities at various levels:Empowering communities at various levels: Federation of Local Crofting Boards (regulation)Federation of Local Crofting Boards (regulation) Township Crofting Development Committees preparing Township Crofting Development Committees preparing

their own strategies for the future (development)their own strategies for the future (development)with support from SG, HIE and others (generative power) with support from SG, HIE and others (generative power)

while also protecting the broader public interestwhile also protecting the broader public interest

• Capacity-building and place shaping as core ideas.Capacity-building and place shaping as core ideas.

… … best illustrated with a diagram…best illustrated with a diagram…

Summary of Proposed Structure

Federation of Local Crofting Boards (elected)

• Regulation and enforcement

• Develop local crofting policies

• Statutory consultee on legislative proposals

• Annual “State of Crofting” report

Crofting development plans inform local policy

Township Development Committees (elected)

• Based on Grazings Committees • Develop community strategies for the future of crofting

Crofting and Community Development body supports them • Responsible for crofting development and strengthening communities• Ideally part of HIE

Land CourtAppeals

Scottish Government • Sets national policy and legislative framework

Regulation Development

ConclusionsConclusions

• How can SG pursue a more integrated approach? Not through How can SG pursue a more integrated approach? Not through old-style IRD coordinating state programmes.old-style IRD coordinating state programmes.

• Instead, hold out hope of Instead, hold out hope of Dis-integrated Rural DevelopmentDis-integrated Rural Development by by which the state exercises generative power to stimulate action, which the state exercises generative power to stimulate action, innovation, struggle and resistance and to release potentialities. innovation, struggle and resistance and to release potentialities. Mobilisation of people to develop strategies is crucial challenge.Mobilisation of people to develop strategies is crucial challenge.

• LEADER offers potential to pilot ways of addressing these LEADER offers potential to pilot ways of addressing these issues in practice, building capacity to act, experimenting with issues in practice, building capacity to act, experimenting with models for vertical integration and multi-scalar governance.models for vertical integration and multi-scalar governance.

• The Crofting Inquiry’s report also illustrates this approach.The Crofting Inquiry’s report also illustrates this approach.• Such an approach must be Such an approach must be integrativeintegrative, both vertically and , both vertically and

horizontally, while nevertheless being horizontally, while nevertheless being dis-integrateddis-integrated in the in the sense that power is given up to local actors and the unexpected sense that power is given up to local actors and the unexpected is embraced – far from earlier ideas of IRD.is embraced – far from earlier ideas of IRD.