Metropolitan Areas in Italy

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1 Metropolitan Areas in Italy Territorial Integration without Institutional Integration Antonio G. Calafati UPM-Faculty of Economics Ancona, Italy European Commission DG Regional Policy Cities of Tomorrow 3 rd Workshop Bruxelles December 2010

2 Summary Antonio G. Calafati 1. Introduction 2. The Italian territorial revolution 3. Three erspectives on territorial integration in Italy 4. From territorial integration to institutional integration 5. Forms of institutional integration 6. A lock-in in the institutional evolution 7. Identification, boundaries, functions of Italian Metropolitan Areas 8. A way out 9. Different spatial aggregates: the case of Milan and Naples 10.a The largest Italian metropolitan areas: some data 10.b The largest Italian metropolitan areas: some data 11. Final remarks

3 1. Introduction Antonio G. Calafati How the new territorial organisation of society should be conceptualised has been a question debated in the Italian social science community since the 1970s. The implications of territorial integration for the suitability of the rules shaping local policy-making processes have also been extensively addressed. Yet the positive and normative analyses conducted to date have not cross-bred. And after five decades of profound territorial transformation, and three decades of extensive discussion, Italy still lacks: a) a shared conceptualisation of its territory; b) a government/governance system coherent with the new territorial organisation. In particular, the metropolitan question is still an unsettled question in Italy. The question of metropolitan areas is unsettled in Italy. There is not a single case of metropolitan area established and working. Moreover, this question is not being addressed either by the scientific community or by policy-makers. It is yet being discussed as a relevant question in the strategic planning in progress in some Italian large cities.

4 2. The Italian territorial revolution Antonio G. Calafati Towards a new conceptualisation of the Italian territory [1970 onwards] Industrial take-off ( ) Economic development ( ) Profound change in the spatial organisation of the economic and social process Territorial integration /terriorial coalescence Towards a new local government/governance system [1990 onwards] A territorial revolution The Italian industrial take-off in the decades between 1950 and 1980, and the ensuing large redistribution and concentration of population and employment, brought about an extraordinary change in the spatial organisation of the economic and social process so profound as to be unparalleled in Europe. What amounted to an outright territorial revolution started to attract scientific attention in the 1970s but the first formal recognition of the issue it to be found in a law issued in 1990, which seemed to pave the way to various forms of institutional integration. Since the Seventies there have been various attempts by the scientific community to identify and define the boundaries of Italian metropolitan areas and also to put forward a map of Italy in terms of functional territorial units. Since 1990 a number of laws have passed to establish the legal framework through a bottom-up process for metropolitan areas

5 3. Three perspectives on territorial integration in Italy Antonio G. Calafati 1. Identification of local systems Towards a new conceptualisation of the Italian territory A. Functional urban areas (FUAs) Territorial integration /terriorial coalescence 2. Identification of metropolitan areas Towards a new local governance system B. Identification of territorial networks Three perspectives Firstly, particularly in relation to the industrial districts question, there came about a shift of focus from regions to local systems in industrial and regional economics. Secondly, repeated identification exercises were performed on Italian 'metropolitan areas'. A third line of inquiry, also quite influential and developed mostly by economic geographers and urban planners, focused on identification of territorial networks. Local labour systems /travel-to-works-areas [Italian Central Statistical Office] Identification exercises conducted in the scientific community ( ) Identification exercises conducted in the scientific community, in particular urban planners and geographers From one side, the map of local labour systems came to dominate the scientific debate on the functional organisation of the Italian territory, on the other, the category of territorial networks /networks of cities deeply influenced the regional and national planning process (in particular, with regard to transport infrastructure). Metropolitan areas received scarce empirical attention apart from a few studies on the governance issue.

6 4. From territorial integration to institutional integration Antonio G. Calafati Towards a new conceptualisation of the Italian territory Territorial integration /territorial coalescence Towards a new local governance system Legal framework for promoting institutional integration among contiguous communes ( ) Law no. 142/1990; law no. 112/1998, law no. 265/1999, law no. 267/2000 and law no. 42/2009 Institutional integration Formally and in retrospect with not much effect the question of institutional integration as a response to territorial integration received significant political recognition in Italy with law no. 142/1990 which promised to be a turning point in the country s political-administrative history; it was followed by other laws issued during the 1990s and the 2000s. With regard to the spatial organisation of the policymaking process, these laws were intended to pave the way to a number of metainstitutional changes of critical importance. The general question of the institutional integration of contiguous communes that were showing a high degree of territorial integration surfaced suddenly when the parliament passed a revolutionary law in 1990 (L. 142). This law established the legal framework for the formation of metropolitan areas as governance mechanism, for mergers of communes, for any form of strategic cooperation among contiguous territorial units.

7 5. Forms of institutional integration Antonio G. Calafati The possibility through a bottom-up process to form thematic intermunicipal cooperations Towards a new local government / governance system Legal framework ( ) The possibility through a bottom-up process that a pivot commune incorporates contiguous communes (incorporation or fusion) Identification of 15 Metropolitan Areas (as sets of contiguous communes) Forms of institutional integration The law n.142/1990 identified nine potential metropolitan areas (Turin, Milan, Venice, Genoa, Bologna, Florence, Rome, Bari, Naples) although it made no reference to their possible boundaries. With other pieces of national/regional legislation 6 more metropolitan areas were introduced in the subsequent years (Palermo, Catania, Messina, Cagliari, Trieste and Reggio Calabria). A number of legal instruments were introduced into the Italian legislation that could be used to grant political power to new territorial units and to temporary territorial coalitions. These new politicaladministrative agents were supposed to take the form of binding agreements on strategic issues or of complete institutional integrations (mergers) among contiguous municipalities. The new legal framework allow through a bottom-up process the formation of metropolitan areas as governance mechanisms, the mergers of contiguous communes, forms of strategic/or administrative cooperation activities among contiguous territorial units.

8 6. A lock-in in the institutional evolution Antonio G. Calafati Legal framework ( ) Institutional lock-in The possibility through a bottom-up process to form thematic intermunicipal cooperations The possibility through a bottom-up process that a pivot commune incorporates contiguous communes (incorporation or fusion) Identification of 15 Metropolitan Areas (as sets of contiguous communes) The establishment of metropolitan areas and of other forms of strategic cooperation at territorial level remain a unclear objective in Italy. Notwithstanding the introduction of a legal framework that would in principle enables the establishment of metropolitan areas there are no metropolitan areas in Italy. Formation of a number of very small thematic associations of communes [very limited phenomenon] Until now no practical effect whatsoever After the identification some proposals about the boundaries of some of metropolitan areas. No step further! Institutional lock-in As paradoxical as it may appear after 20 years the practical effects of these legislation amounts to nothing. In particular, no metropolitan areas were established, endowed with functions and resources no metropolitan areas running

9 7. Identification, boundaries and functions of Italian Metropolitan Areas Antonio G. Calafati Italian Metropolitan Areas Identification Spatial boundaries Political-administrative functions The normative framework for metropolitan areas is confused and selfcontradictory, very difficult to implement (and has not been implemented at all yet). The identification of the 15 metropolitan areas was not based on a clear concept of metropolitan area. Ten of them have been identified by a national law. Five of them by regional laws. Four of the 15 pivot cities are relatively small (smaller than many other medium-sized Italian cities) and their areas of influence do not seem to have the status of metropolitan areas. In the case in which the boundaries have been identified (in most cases by a regional laws) they are not rooted in a functional interpretation of the territory. The current territorial boundaries are to be regarded as preliminary hypotheses. In the most recent piece of legislation there are very peculiar constraints on how to establish the boundaries of the 9 metropolitan areas (plus Rome, the capital which was earmarked a special status). 1. Which political-administrative function the metropolitan areas should be given is unclear. Neither in the legislation which is very confused, nor in the scientific and policy debate one finds there is a sufficiently clear answer to this key question. The current focus of the political debate is on fiscal federalism and on the new role of the Regions (the Metropolitan Areas question has been pushed in the background). As a consequence of the prevailing of the territorial paradigm the scientific debate on metropolitan areas is currently very feeble (in Italy). With regard to the three fundamental questions a) identification; b) spatial boundaries; c) political-administrative function the Italian legislation is so confused and self-contradictory to be an obstacle towards a solution of this fundamental question. Moreover, recently the metropolitan areas question mixed up with the question of fiscal federalism, a rather complex and politically controversial question.

10 8. A way out Antonio G. Calafati Steps towards the establishment of effective metropolitan areas in Italy To distinguish city de jure from city de facto from metropolitan areas To develop a clear cut concept of metropolitan areas as functional urban areas To design a governance mechanism for Italian metropolitan areas City de jure Metropolitan area City de facto The boundaries of each metropolitan area should be defined, however loosely, relying on variables capturing the functional territorial integration Metropolitan areas should be given specific and exclusive planning functions (they should not remain simply coordination mechanisms). In Italy it is necessary to re-start the scientific and policy debate on metropolitan areas along three lines: a) To acknowledge the existence of cities de facto (clusters of contiguous communes that should merge) and distinguish them from metropolitan areas. b) Address again the question of the boundaries of Italian metropolitan areas, by using methods and procedures coherent with the best practices one finds in Europe ; c) Develop a clear concept of the functions and governance structure of metropolitan areas.

11 11. Final remarks Antonio G. Calafati How the European Commission should approach the issue of urban policies in the case of countries like Italy that: a) Have not yet developed a coherent and shared functional interpretation of their territory? b) And/or have not yet introduced local government / governance mechanisms coherent with the current functional organisation of the territory? 1. The European Commission should become more aware and, moreover, should increase the awareness among member states - of the importance of a proper interpretation of the European territory at sub-regional level. This is a precondition to develop effective urban policies, in particular to set up an ex-ante and ex-post effective projects evaluation process. Appropriate steps to put the conceptualisation of the European territory at centre stage in the European policy discourse should be made. 2. EU member states and also EU regions (NUTs 2) should be asked to outline the urban dimension of their territory in a semi-official although flexible (and open) way. The European Commission should not impose a given approach to interpret the territory, but simply establish some general guidelines. 3. An appropriate conceptualisation of the relationship between cities de jure (and city de facto) and the corresponding metropolitan areas should be treated as an important element of conditionality. Only if this relationship is fully articulated in their project / program proposals a city can, directly or indirectly, be entitled to receive any kind of support from the European commission.

12 Annex A - Different spatial aggregates in the case of Milan and Naples Antonio G. Calafati Milan Naples

13 Annex B.1 - The largest Italian metropolitan areas: some data (I) Antonio G. Calafati Main municipality (a) + 1 st ring municip. (b) + 2 nd ring munic. LLS NUTS3 FUR (a) (b) n.* (c) n. (d) n. (e) n. (f) n. Population Turin 865, ,684, ,165, ,000, Milan 1,256,211 1,852, ,416, ,975, ,707, ,249, Genoa 610, , , , , , Bologna 371, , , , , , Florence 356, , , , , ,197, Rome 2,546,804 3,113, ,294, ,374, ,700, ,338, Naples 1,004,500 1,556, ,009, ,235, ,059, ,512, Palermo 686, , , , ,235, ,062, Employment Turin 412, , , , , , Milan 808,642 1,093, ,318, ,541, ,790, ,390, Genoa 241, , , , , , Bologna 206, , , , , , Florence 199, , , , , , Rome 1,098,172 1,255, ,286, ,300, ,369, ,538, Naples 328, , , , , , Palermo 174, , , , , ,744 43

14 Annex B.2 - The largest Italian metropolitan areas: some data (II) Antonio G. Calafati Table 1b Main municipality (a) + 1 st ring municip. (b) + 2 nd ring munic. LLS NUTS3 FUR (a) (b) n.* (c) n. (d) n. (e) n. (f) n. Area (square kilometres) Turin , , , Milan , , , Genoa , , Bologna , , , , Florence , , , , Rome 1, , , , , , Naples , , Palermo , , , , Density (population per square kilometre) Turin 6, , , Milan 6, , , , , , Genoa 2, , Bologna 2, Florence 3, , Rome 1, , , Naples 8, , , , , , Palermo 4, * Columns with 'n.' indicate the number of municipalities that are included in each specific territorial aggregate

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