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Analysis of the EUREGIO and Croatia-
Montenegro cross-border cooperation
and design the new Azerbaijan-
Georgia cross-border cooperation
Assignment paper in International Tourism Management
Master Program
for the course Network and Cooperation Management
held by
Mrs. Sonja Göttel (MA/MBA)
25746, Heide
Germany
3rd Semester, ITM
23 January, 2014
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TABLE OF CONTENTS
I. LIST OF ABBREVATIONS ............................................................... 2
II. LIST OF GRAPHS ........................................................................... 3
1. INTRODUCTION ................................................................................. 4
2. EUREGIO CROSS-BORDER COOPERATION ......................................... 7
2.1 Characteristics ........................................................................ 7
2.2 Organisational structure ........................................................ 8
2.3 Strategies ................................................................................ 9
2.4 Extracted idea for new cooperation .................................... 10
3. CROATIA-MONTENEGRO CROSS-BORDER PROGRAMME ...................... 12
3.1 Characteristics ...................................................................... 12
3.2 Organisational structure ...................................................... 13
3.3 Strategies .............................................................................. 15
3.4 Extracted idea for a new cooperation .................................. 16
4. AZERBAIJAN-GEORGIA CROSS-BORDER PROGRAMME ........................ 18
4.1 Characteristics ...................................................................... 18
4.2 Strategies .............................................................................. 20
4.3 Balakan-Matsimi-Lagodheki hiking tour route .................... 21
5. CONCLUSION ................................................................................. 22
III. LIST OF REFERENCES ............................................................... 24
IV. APPENDIX ................................................................................... 27
V. EIDESSTATTLICHE ERKLÄRUNG .............................................. 32
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I. LIST OF ABBREVATIONS
CBC Cross-border Cooperation
CEO Chief Executive Officer
CSTI The Centre for Sustainable Tourism Initiatives
DIOD The development of ICT for outdoor destination
DOT The Development of Outdoor Tourism
EC European Commission
ENPI European Neighbourhood and Partnership Instrument
EU European Union
GA General Assembly
GDP Gross Domestic Product
ICT Information and Communications Technology
IPA Instrument for Pre-Accession
JMC Joint Monitoring Committee
JTC Joint Technical Secretariat
MRDEUF The United Nations Environment Programme
PR Public Relations
SME Small and medium-sized enterprises
Sunce The Association for Nature, Environment and Sustainable
Development
UNDP The United Nations Development Programme
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II. LIST OF GRAPHS
Graph 1: Map of Qakh-Zaqatala-Balakan-Lagodekhi-Kvareli…………………19
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1. Introduction
Borders are barriers for integration of cultures and communities of different
countries within the European region. In order to improve regional development
border countries try to achieve cross-border cooperation. Minister for European
Affairs and Foreign Trade of Finland Alexander Stubb stresses out: ‘cross-border
cooperation has the potential to transform a border into a possibility for
development’ (Ministry for Foreign Affairs of Finland, 2011, p. 1). Inter-regional and
regional cooperation programmes lead European member states to lessen
regulations in border areas and to develop long-lasting cooperation.
The cross-border cooperation (CBC) is being a preeminent project of the European
Neighbourhood and Partnership Instrument (ENPI) aims to stimulate economic and
social development among the European Union (EU) member states and partner
countries in terms of border cooperation. The first European cross-border
cooperation was established in the Rhine basin around 1950’s years. The primary
members of this cooperation were France, Germany, Switzerland, Luxembourg,
Belgium and Netherlands. The cooperation consisted of different parties such as
municipalities, universities, consultative committees of central and local
government officials, and private business interests. (Ministry of Foreign Affairs of
Finland, 2011)
Approved budget of CBC programme for 2007-2013 years was €1.1 billion (EU
Neighbourhood Info Centre, n.d.) and new budget for 2014-2020 years is
estimated to be €997 million (Council of the European Union, 2013). The numbers
of programmes have been increased from 53 between 2007-2013 years to 57
between 2014-2020 years (Streitenberger, 2013). According to European
Commission (EC) the CBC has following four key objectives:
Promote economic and social development in border areas
Address common challenges
Ensure efficient and secure borders
Promote people-to-people cooperation
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One of the most important elements of CBC is to establish two types of
programmes:
Land border programmes between two or more countries sharing a common
border (or short sea crossing)
Multilateral programmes covering a sea basin
Europe typologically in terms of border areas and border regions breaks into three
main groups: the Western European, the Central European and the Eastern
European (Bufon and Markelj, 2010).
Geographically, countries from first group were the pioneers of the early cross-
border cooperation. The Western countries designed a new concept that called
Euroregions which enabled to asses common functional and planning problems as
well as to urge cross-border cooperation in a social-cultural level. (Bufon and
Markelj, 2010)
Historically and actual spatially not fitting administrative regions are situated in the
second typological group called Central European. Socio-cultural and socio-
economic links among border population led to develop a new cross-border
cooperation in this region. (Bufon and Markelj, 2010)
Thirdly and lastly established group is Eastern European which is one of the critical
and traditionally less developed regions of European continent. This region
highlighted as having a very limited possibilities to develop more intense forms of
cooperation and (re)integration. (Bufon and Markelj, 2010)
According to above mentioned typology the author has selected two different types
of cross-border cooperation: EUREGIO and Croatia-Montenegro. The former one
which is historically and environmentally fit to the region based on the old borders
between Germany and Netherlands. The latter one which is situated in the region
which sparsely populated and historically and environmentally do not fit to the
region based on the new borders between Croatia and Montenegro.
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There are several points which the author was considering during selection of the
cross-border regions. First of all, EUREGIO is situated in the Western Europe and
Croatia-Montenegro cross-border cooperation situated in the Eastern Europe, the
former one is pioneer in designing and regulating cooperation and the latter one is
stands for new traditions and new born cooperation. One of the cooperation was
set in the highly developed region (Western Europe), another one was rooted in
less developed region.
In order to deeply understand the structures and procedures of the both
cooperation, the interview questions, are developed by students with the help of
the lecturer, have been sent to both organisations. The responses those the author
were expecting to the questions, unfortunately, were not answered back by the
oldest cooperation EUREGIO employees. However, the answers to the questions
by Croatia-Montenegro cross-border cooperation member were relevant to the
questions and revealing lots of facts concerning to procedural matters.
After careful analysis of the both cooperation the author came to conclusion that
several important parts from first and second cooperation would perfectly fit to a
new network which the author is going to design in the Transcaucasia area. Two
countries which will be included into the cross-border cooperation are going to be
Azerbaijan and Georgia. The north-west part of Azerbaijan and north-east part of
Georgia is highly suitable to develop a new cooperation based on the analysis of
both former organisations.
The experience about hiking tours which EUREGIO stands for in Tourism and
Leisure programme and the new organisational and operational structure which
Croatia-Montenegro cross-border programme owns will be adopted and
implemented to a new designed cross-border cooperation Azerbaijan-Georgia.
In the following chapters the whole analyses of the both existing cooperation and
the new design and adoption of analysed data from the former cooperation will be
visible.
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2. EUREGIO cross-border cooperation
The EUREGIO is situated at the border between Germany and Netherlands in
Gronau/Enschede and it has more than 50 German and Dutch employees. Most
jobs have connections with projects or funded by other instances.
2.1 Characteristics
EUREGIO pioneered as the oldest institution in 1958 between Germany and
Netherlands. As the successful cross-border cooperation it is initiated in 1971 and
formed its own policy concerning border cooperation between border populations
(Schelberg, 2001). It covers an area of approximately 13,000 km ² and has almost
3.4 million inhabitants. Two-third of the area and population belong to Germany,
and one-third of them belong to Netherlands. From German side Lower Saxony
and North Rhine-Westphalia federal states and from Netherlands side Gelderland,
Overijssel, Drenthe provinces are connected to the EUREGIO cooperation. Totally,
129 cities, towns and districts are included into the EUREGIO area.
The borders of the EUREGIO evolves to the Grafschaft Bentheim district, the
Osnabrück city, the Osnabrück district, the Emsbüren municipality, Salzbergen and
Spelle (the Emsland district) in Lower Saxony federal state of Germany.
Within Netherlands the borderline of the EUREGIO spreads to the Achterhoek
region (Gelderland province), Twente region, the Hardenberg and Ommen
municipialities (Overjissel province), the Coevorden municipality (Drenthe
province).
As it is mentioned on the official website of EUREGIO, it has several very important
years which have played very critical role in the establishing very successful
cooperation what they call it Milestones:
1971: first cross-border commission with its own budget authority
(EUREGIO Mozer Commission).
1972: first cross-border regional action programme, unique in its kind in
Europe.
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1978: founding of the EUREGIO Council with the recommendation of Prince
Claus.
1985: establishment of a first joint office at the cross-border line between
Gronau-Enschede.
1987: first action programme, which includes action plans and financing
agreements and thus became a model for the INTERREG Programme of
the European Union.
2008: 50th anniversary of the EUREGIO.
Today the most of the cooperation take EUREGIO’s achievements, activities and
programmes as a model for their new cross-border cooperation.
2.2 Organisational structure
The EUREGIO has 104 German and 25 Holland members, total 129
representatives. All members are represented in the EUREGIO General Assembly
(GA), which takes place once in a year. EUREGIO has a special binational
structure which allows interests of members from both sides to be met GA consists
of 182 voting representatives. The constitutional issues, discharge of the CEO,
Executive board, Council and fixation of membership fees are discussed in GA.
There are three main bodies which directly dependent on EUREGIO CEO: the
EUREGIO Council, the EUREGIO Board and EUREGIO Working groups. The
main function of CEO is to prepare and execute the decisions of the Executive
Board, the Council, GA and INTERREG Streering Committee.
The EUREGIO Council includes 41 German and 41 Netherlands Council members
where they organise cross-border fractions by themselves. Majority votes are taken
into consideration. The Council is the policy making body of the EUREGIO. The
key members of the Council are mainly appointed by regional-political basis. The
parties represented in the Council are forming cross-border groups.
The Council is the most important body of the EUREGIO which has the functions of
as advisory and coordinating body of the regional cross-border cooperation. It
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adopts resolutions, decides on projects and initiate new activities. Overall, the main
goal is to promote regional cross-border cooperation. The members of the Council
should meet at least three times in a year and in different cities of the EUREGIO
area. A chairman and three deputies should be elected among members for four
years period.
EUREGIO Board mainly is responsible for implementing the decisions made by
GA. There are 12 voting members those included to the Board and the decisions of
the EUREGIO Council are prepared and executed under the responsibility of the
Board. A chairman and two deputies are sitting in the Board for four years period.
Following executives are the members of the Board: the president of the EUREGIO
Council, ten members elected by the Council members (five German, five Dutch
members, mainly Mayor or main administrative officer) and the director of the
EUREGIO. Three vice-presidents of the EUREGIO Council should attend the
meetings of the board.
The EUREGIO working groups consists of regional representatives, such as
authorities, social organisations and local communities. They advise, moderate and
ensure that the important developments within the EUREGIO border are in
progress. The organisations represented in the working groups are responsible for
in specific areas. Those specific areas are health care, public safety, sustainable
spatial development, general education system, tourism, economy, EUREGIO-
Mozer communication, labour market/vocational education. The working groups
specialised in discussing technical issues and exchanging ideas within the cross-
border platform. These groups also assess the cross-border project proposal under
the INTERREG programme. As a result, they form a basis for the bottom-up
principle which is the core principle of establishing the EUREGIO philosophy.
2.3 Strategies
The main goal of the EUREGIO is to achieve whole, strong, integrated sub-region
with better living and economic conditions. The main aim is to improve economic
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situation and living quality in the existing region and to push resources to the limits
to develop integration of the area.
The vision of the cooperation is the "one" provision area, follows the beliefs, that
the EUREGIO still is in its childhood in Europe. However, Europe becomes
noticeable and experienced with the existence of this network. As a pioneer
EUREGIO was an organisation which brought European policies and objectives
into action and satisfy people who were living in border areas within Europe. The
acclaimed motto ‘border regions make Europe’ highlights that the cross-border
cooperation is the major point in development of Europe. EUREGIO is being first in
establishing cross-border region and implementing the new born policies of
European Union has big impact on achieving socio-economic and political stability
in the region.
In order to achieve the ‘one’ provision area vision, EUREGIO commits to lessen
border-related barriers and support civil border line, businesses, organisations and
communities to use opportunities and develop within the region by cooperating with
the both sides of border. There are three main priority fields EUREGIO strides to
develop: 1) Sustainable spatial development; 2) Economic; 3) Social.
The EUREGIO functions actively in the following fields: 1) Social and cultural
integration; 2) Social-economic development; 3) Consulting for citizens; 4) Inter-
communal cooperation; and 5) Inter-regional cooperation.
2.4 Extracted idea for new cooperation
Tourism industry has a huge impact on the cultural and economic development of
the cross-border region and builds bridges between nations. Subsequently
implementation of the tourism projects lead improvement of tourism in region and
still gives promising development for future. For example, the overnight stays in the
German part of border reached to its pinnacle between 2002-2010 years to
970,284 by increasing 416%. In addition, 4.2 million day trips from the Germany to
the Dutch side from June to November in 2010 depicted and those people spend
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around €300 million. Tourism industry is being a priority field for development
under the EUREGIO working groups is divided into three areas: 1) Holiday in
neighbouring area; 2) Arts and culture; 3) Sports.
The existing routes and infrastructure between Germany and Netherlands are very
suitable for improving hiking and biking tours as well as to enhance museum and
castle experiences of people within the EUREGIO. For this reason, the project
called ‘Tourism marketing in the border region’ established sub-projects which
were designed to motivate communities who are living in the border area to
develop cultural connections and enterprises to invest money on tourism and
establish cooperation between each other in both sides of border. (EUREGIO,
2013)
The sub-project called ‘Geheim over de grens’ which translates from Dutch into
English as a ‘the mystery across the border’ is aimed to invite Dutch neighbours to
the Germany. The other sub-project ‘Das andere Holland’ (‘The other Holland’) with
similar structure opposite to the first one invites Germans to Netherlands. ‘Urlaub
für Kinder’ (‘Holiday for children’) by the identical web-sites is advertising activities
for children in both side of region. The following sub-project (‘Grenzlebnisse’ –
‘Border experiences’) is promoting border routes, excursions and experiences in
the vicinity areas. The last and most important sub-project which is going to be an
adopted idea for a new designed cooperation is ‘Handelsweg’ which translates
from German to English language like ‘Trade route’. It provides opportunity to
adventure a 229 km long hiking tour between Osnabrück (Germany) and Deventer
Hanseatic city (Netherlands). (EUREGIO, n.d.)
On the website of the latter sub-project (Handelsweg, n.d.) it is possible to find
different types of tours. In general, there are four kinds of packages which every of
them has special characteristics. Initially it would be better to describe the first and
shortest one which is called ‘Holland path – Arrangement’. The first day of tour
package starts from Rheine city in the German side, in the following day tourists
take tour to Bad Bentheim (Germany) and lastly they reach to Oldenzaal city in the
Netherlands side. The second tour is slightly different than the first one. This tour
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package designed in the following order Rheine (Germany) – Bad Bentheim
(Germany) – Losser (Netherlands) – Oldenzaal (Netherlands) and takes place
within four days. Different than two previous tour packages ‘Tödden-Arrangement’
designed tour routes detectably different. The tour is arranged within five days in
the succeeding plan Osnabrück (Germany) – Mettingen (Germany) – Recke
(Germany) – Hörstel (Germany) – Rheine (Germany). The last package is for six
days and it also takes place in the German side of the border. The tour starts in
Osnabrück, goes to Mettingen, continues with Recke, after Recke different than
previous tour tourists are heading to another German city called Hopsten, then fifth
day of tour participants are hiking to Hörstel and then Dreierwalde, the last day of
trip ends up in Rheine.
Due to the fact that two of the latter packages are taken place within the German
border of the EUREGIO, then it would be better to adopt two former packages as
the best practices for the new designed cross-border cooperation.
3. Croatia-Montenegro cross-border programme
This programme is a joint planning effort between two parties Croatia and
Montenegro which supported by EU Instrument for Pre-Accession (IPA). Croatia-
Montenegrin border area is the main target of the programme. In this section the
author is going to reveal the results of written interview (Appendix A) in
combination with description of the characteristics, organisational structure and
strategies of the Croatia-Montenegro cross-border programme.
3.1 Characteristics
The programme designed by IPA Implementing Regulation to involve two parts,
eligible and adjacent regions, of both countries. The eligible area from Croatia side
is Dubrovnik-Neretva County which has marine border with Montenegro. On the
Montenegrin land coastal municipalities such as Herceg Novi, Kotor, Tivat, Budva,
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Bar, Ulcinj and non-coastal municipality Cetinje are included into eligible region list.
Addition to eligible regions there are several adjacent areas which provides
intensely important services such as health, educational, transport services to the
eligible area. Adjacent areas have several similarities with eligible areas in terms of
demographic, economic and geographic characteristics. There are one adjacent
County (Split-Dalmatia) from Croatian side and three municipalities (Nikšić,
Podgorica, Danilovgrad) from Montenegrin side. (Cross-border programme
Croatia-Montenegro, 2012)
In an interview (Appendix A) to the question ‘In general, how important would you
consider the cooperation for your organization?‘ the interviewee responds as
follow:
‘Cooperation is one of the most important aspects of this programme. Solid
cooperation is the basic for this programme and its success. First of all,
cooperation was essential when two operating structures of the programme
(Ministry of regional development and EU funds of the Republic of Croatia
and Ministry of foreign affairs and European integration of Montenegro)
established this cross border programme. Furthermore, the institutions and
organizations from cross border region that implement joint projects have to
closely cooperate in order to implement all the activities and consequently
reach the goals and objectives of the projects.’ (Brbora, 2013)
Obviously, it is clear that this cooperation has a huge importance in successful
development of the both countries.
3.2 Organisational structure
Due to the fact that cross-border programme launched by EU, the management
structure of this programme mainly administered by the following bodies: National
IPA and/or CBC Co-ordinators, Heads of Operating Structures, Operating
Structures, Joint Monitoring Committee (JMC), Joint Technical Secretariat (JTS).
Beside to the management structure, beneficiary countries established operating
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structure which in Croatia operates under Ministry of Regional Development and
EU Fund (MRDEUF) – line ministry responsible for the management and
implementation of the Component II (cross-border cooperation) of IPA, Agency for
Regional Development – implementing agency and in Montenegro functions under
Ministry of Foreign Affairs and European Integration – institution responsible for
coordination of the IPA, EU Delegation – implementing agency. (Cross-border
programme Croatia-Montenegro, 2012)
Generally to say, the language is one of the barriers in development of all cross-
border cooperation. However, as per interviewee (Appendix A), Croatia-
Montenegro cooperation has opportunity in terms of language. Due to the fact that
both countries speak in the similar language with the dialects, the language barrier
for understanding minimizes.
It is obvious that when a new cooperation is established several problems related
to organisational and managerial, participants and different bodies occur. The
representative of Croatia-Montenegro also highlights these issues and mentions:
‘Main challenge/risk with the cooperation process actually relates to lack of
cooperation or insufficient cooperation. Currently we have one project where
two institutions (one from Croatia and the other one from Montenegro) do
not cooperate as they were supposed to. Lack of cooperation affects the
project itself in a way that the planned activities are delayed and not
coordinated which of course impacts the achievement of the project results.
The reason behind lack of cooperation is insufficient initiative and
inexperienced staff from one institution. We as Joint Technical Secretariat of
the programme are trying to mitigate this risks by providing all the technical
assistance and monitoring their activities as well as ensuring that they meet
all the criteria.’ (Brbora, 2013)
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3.3 Strategies
The main challenge and motivation to initiate this programme is to re-establish
social and cultural connections between two countries which were destroyed
during the war in 1990’s and to improve sustainable economic development.
(Cross-border programme Croatia-Montenegro, 2012)
The key successes of the cooperation, to be prosperous in the future, are to set
clear vision, mission and objectives. The interviewer was also very keen on those
issues and requested some important explanation from the interviewee. Here is the
full respond to the question ‘How would you describe the mission, vision and goals
of Croatia-Montenegro cooperation?’:
‘The vision of the programme has been defined as follows: Cross-border
area between Croatia and Montenegro is recognized as a region for high
quality of life and one of the most successful European tourist destinations
because of its unique and preserved natural resources, cultural and
historical heritage and high quality of services, as well as a region in which
socio-economic partners are empowered to achieve and manage the
optimal development potential of the area.
The overall objective of the Programme is: Improved quality of life in cross
border area between Croatia and Montenegro.
This objective will be achieved through the implementation of actions under
the following set of programme priorities and measures: Priority 1 (Creation
of favorable environmental and socio-economic conditions in the programme
area by improvement of the cooperation in the jointly selected sectors and
good neighborly relations in the eligible area, measures of the priority 1
(Measure 1.1: Joint actions for environment, nature and cultural heritage
protection, Measure 1.2: Joint tourism and cultural space, Measure 1.3:
Small cross-border community development projects), Priority 2 (Technical
Assistance) and measures of the priority 2 (Measure 2.1: Programme
Administration and Implementation, Measure 2.2: Programme Information,
Publicity and Evaluation). ‘ (Brbora, 2013)
Referring to Brbora (2013) it would be important to analyse objectives of
programme to get fully understanding about the cooperation. The main goal of the
Priority 1 is to establish cooperation between institutions in terms of environment,
natural and cultural heritage protection, to design tourist products on the resource
basis such as natural and cultural assets and advocate traditional and
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contemporary culture and to boost cooperation between institutions, citizens, civic
organisations in the following fields such as education, tourism and culture with the
help of the three measurement tools. On the other hand, Priority 2 mainly focuses
on the technical assistance. As per Brbora two measurement tools are striding to
achieve following objectives such as to make the capacity of national and joint
structures better to manage cross-border programmes, to assure the efficient
operation of programme-relevant structures, to arrange and spread the programme
related data to national authorities, the general public and programme
beneficiaries, to enhance the capacity of potential beneficiaries and at last to equip
technical expertise for external programme evaluations.
Those objectives of bilateral programme were planned to be met until 2016 years,
however in order to strengthen the cooperation between two countries the new
trilateral programme which will be funded by EU is going to prolong the cooperation
between two countries.
3.4 Extracted idea for a new cooperation
The idea which the author is going to use in the design of the new cooperation is
‘Joint tourism and cultural space’ measurement tool. Tourism and tourism related
services are the fundamental incentive for economic development and have
highest proportion in regional GDP within the area. The main impetus of this
measure is to broaden the diversification of services, extend tourist season, to
deliver high quality service based on the local tradition and culture and identical
products. This is why, there are several types of actions should be fulfilled by
measure. The author is going to highlight the most critical ones in development of
the region: tourist events in promotion of the attractiveness of the region; language
training, hospitality training, research packages for the SMEs and work force in
tourism; new tourism product development; cross-border cluster establishment in
tourism; joint marketing actions; monitoring of the local products and services; IT
services; cultural heritage PR in border regions and etc. (Cross-border programme
Croatia-Montenegro, 2012)
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Under the ‘Joint tourism and cultural space’ measure it has been established
‘Development of Outdoor Tourism’ (DOT) project which is aimed to achieve
business cooperation and improvement relevant skills in the tourism industry
between the cooperation. The main and partner bodies play an active role in
realisation of the project from the both sides of the border. For instance, the
Croatian Mountain Rescue Service as a main body and the Association for Nature,
Environment and Sustainable Development (Sunce) as a partner body actively
participate from Croatian side and the Centre for Sustainable Tourism Initiatives
(CSTI) as a main body and the United Nations Development Programme (UNDP)
as a partner body engage in Montenegrin part. The assigned grant for both sides
from EU was €125,683 for Croatia and €169,926 for Montenegro. (CrossBorder
Programme, 2014)
The results of interview (Appendix A) displayed very clear overview how successful
and relevant this project is to the new developed cooperation. The excerpt from
interview is placed below:
‘Concerning the project DOT from 1st Call for Proposals it can be
determined that joint planning and business cooperation in the sector of
tourism has been achieved, knowledge, infrastructure and technical
capacities have been improved and cross border area has been recognized.
The activities that were implemented and that contributed to the
achievement of the objectives are as follows: establishment of cross border
cluster, trainings related to cycling, sea kayaking and hiking, security
trainings conducted and the establishment of procedures and operational
guidelines in case of future rescue actions, marking the paths, development
of maps, brochures, etc. It is also important to stress out that the
beneficiaries from this project: Croatian mountain rescue service and Centre
for sustainable development of Montenegro have prolonged and continued
their cooperation through second mutual project – Development of ICT for
outdoor destination (DIOD) that is currently in 11th month of
implementation.’ (Brbora, 2013)
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According to Brbora (2013) the successful implementation of project has
accomplished long-lasting cooperation between business partners, solved
educational issues and established educational trainings, infrastructure and
technical issues in tourism sphere within the region. To take every single given
information into consideration it is likely to mention that the ‘Joint tourism and
cultural space’ measure and DOT project perfectly suits to the new designed
cooperation.
4. Azerbaijan-Georgia cross-border programme
The name of the new designed cross-border cooperation derives from two
different, but very close in relationship countries such as Azerbaijan and Georgia.
The main reason of establishing the new programme is to strengthen very close
ties such as political, economic and cultural cooperation between two countries in
border areas.
4.1 Characteristics
Three districts (rayon) from North-West Azerbaijan such as Qakh, Zaqatala and
Balakan and two municipalities Lagodekhi and Kvareli from North-East part of
Georgian land are included into the programme shown in Figure 1. The influence of
programme is thought to cover 5,650 km² area and 355,000 populations. The main
offices are going to be set in both sides of border in Balakan/Lagodheki cities, in
order to fully control and monitor the programme.
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Graph 1: Qakh-Zaqatala-Balakan-Lagodekhi-Kvareli
(Source: Google Maps, 2014)
The region is situated in the Caucasus Mountains and is full of cultural and natural
resources and very suitable for development of the cultural, culinary, biking, hiking
and Nordic walking routes. The both sides of border own natural reserves,
Zaqatala State Reserve (Azerbaijans, 2011) in Azerbaijan and Lagodheki Nature
Reserve (Geo Wonderland, n.d.) in Georgia which is going to be attractive places
for tour participants.
The presence of two airports (Zaqatala and Balakan), bus routes and railways to
the region make easy access to the region (Azerbiajans, 2011; OurAirports, n.d.).
In addition, people living in both sides of border mainly pursuit in agriculture. For
instance, Azerbaijan districts are well-known for chestnut, walnut, tea and tobacco
cultivation (Zaqatala, 2006) and Georgian municipalities are masters in wine
production (USAID/Georgia, 2012). The culture and cuisine have some similarities,
but mainly the both communities own specific way of preparing and eating. Wine
cellar in Kvareli is the biggest and longest in Georgia and as well as in the region
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which enhances the attractiveness of the region (Georgian Wine Association,
2011).
All in all, the cultural and natural assets are not enough to improve or develop the
cooperation between two countries. Moreover, the new projects such as renovation
of transport and tourism infrastructure within the cooperation are very essential.
4.2 Strategies
The mission, vision and goals of Azerbaijan-Georgia cross-border cooperation are
going to be relevant to Croatia-Montenegro cross-border strategy stated in chapter
3.3. The covert behind adoption of this strategy is its success story highlighted by
Brbora (2013).
In the author’s new designed cooperation objectives are divided into different
projects such as hiking, biking and Nordic walking, cultural and culinary touristic
routes. Every project is designed to target economic and cultural development of
region.
The hiking, biking and Nordic walking tours mainly will take place in Zaqatala State
Reserve and Lagodekhi Nature Reserve. In general, the existing hiking routes in
the latter protected area (Geo Wonderland, n.d.) would be initial procedure for the
development of the mentioned tours within the region. The cooperation between
two bodies would be intensely excellent experience to the former protected area.
The cultural and culinary tours are also is the main target of the new designed
programme. As the author mentioned above people living in both sides of border
afford their living costs from agriculture. For this reason, diverse custom, tradition
and rituals are making this region more valuable for tourists who are keen for
delicious cuisine and cultural tours. Already existed wine tours (Get Travel, n.d.) in
Georgian border also will be very good experience for successful establishment
and advancement of the programme.
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The activities highlighted in chapter 3.4 will be achieved if strong and long-lasting
cooperation between local communities, business bodies, institutions, mayors
would be established. This type of cooperation only can be achieved by training,
monitoring and creating supreme education system. This is why the duration of
programme should be decided for at least ten years.
To support all business activities, programme organisers is going to open direct
line and create web-site for easy access for local communities and foreign
investors. Facilitated policies and visa regulations will be discussed with both
governments. Special clubs will be established where member business owners or
local people can join and build cultural and business connections.
Overall, the ‘Joint tourism and culture space’ measure which the author analysed in
chapter 3.3 and 3.4 will be the core structure and strategy of the new designed
cooperation.
4.3 Balakan-Matsimi-Lagodheki hiking tour route
This route is going to be the easiest and practical one to be implemented to the
region in the first round. As it is mentioned in chapter 4.2 the cooperation between
two bodies will be benefit not only to enterprises, but also to the region as well as
local community. In case of successful implementation of programme, it will be
immensely favourable start for cooperation and development of region.
The tour will take place within three days and it will be similar structure to the
‘Holland path – Arrangement’ tour package mentioned in chapter 2.4. Identically,
the first day of tour will start from Azerbaijan district Balakan. The tourists will get
opportunities to explore Balakan city, Zagatala Natural Reserve which half part of
the protected area situated in Balakan district, natural monuments, mosques and
the most important architectures such as the early Alban temples.
The second day will start in Matsimi (Georgia) which is settled very close to
Azerbaijan border. The distance between Balakan and Matisimi is 18 km. This city
Page | 22
would be very interesting for tourists who are interested in natural monuments.
After taking the hiking tour and exploring local culture, tourists will head to last
address in tour to Lagodekhi.
The Lagodekhi city similar to Balakan city has lots of destinations to be explored.
The Lagodekhi Nature Reserve will be very interesting to hike and vicinity areas of
city will be very adorable zone for wine lovers. In general, as it is stated earlier this
region is very famous for wines and vinery. The Georgian cuisine would be another
activity which foreigners could explore.
To sum all, it would be essential to highlight that this programme has promising
future and it can create regional development, attract enough tourists and
contribute to the economy of both countries.
5. Conclusion
It is obvious that every programme has benefits and risks. The benefits and actual
advantages of cross-border cooperation have been clarified in above chapters. In
order to give clear picture it is better to show other side of coin as well. There are
several risks associated with CBC programmes (European Neighbourhood and
Partnership Instrument, n.d.) have been identified: the capacity of the partners to
enter into the cooperation; the willingness of the partners to manage the program
and share the responsibilities; the knowledge of the partners to implement project’s
proposal.
To the question ‘Have there been challenges within the cooperation/cooperation
process? What kind of? How did you solve them?’ the interviewee replied as
below:
‘Main challenge/risk with the cooperation process actually relates to lack of
cooperation or insufficient cooperation. Currently we have one project where
two institutions (one from Croatia and the other one from Montenegro) do
not cooperate as they were supposed to. Lack of cooperation affects the
Page | 23
project itself in a way that the planned activities are delayed and not
coordinated which of course impacts the achievement of the project results.
The reason behind lack of cooperation is insufficient initiative and
inexperienced staff from one institution. We as Joint Technical Secretariat of
the programme are trying to mitigate this risks by providing all the technical
assistance and monitoring their activities as well as ensuring that they meet
all the criteria.’ (Brbora, 2013)
During the analyses of the both cooperation there were some limitations appeared.
For example, the EUREGIO does not provide any information in English language
and request to the interview was not replied. The web-site of the programme does
not function fully in English.
In addition, it would be important to highlight that the new designed programme
needs for further research and deeply understanding local community and to
improve existing infrastructure.
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III. LIST OF REFERENCES
Internet
Azerbaijans, 2011. Zagatala State Nature Reserve. [online] Available at:
<http://azerbaijans.com/content_492_en.html> [Accessed 20 January 2014].
Azerbaijans, 2011. The transports to Balakan. [online] Available at:
<http://azerbaijans.com/content_1491_en.html> [Accessed 21 January 2014].
Balakan, 2012. Turizm. [online] Available at: <http://www.balakan.cls.az/turizm-.html> [Accessed
20 January 2014].
Bufon,M., Markelj, V., 2010. Regional policies and cross-border cooperation: New challenges and
new development models in Central Europe. Revista Română de Geografie Politică [pdf]. Available
at: < http://rrgp.uoradea.ro/art/2010-1/02_OK_Bufon+Markelj.pdf> [Accessed 20 January 2014].
Council of the European Union, 2013. Council adopts the multiannual financial framework 2014-
2020. [pdf]. Brussels. Available at: <
http://www.consilium.europa.eu/uedocs/cms_Data/docs/pressdata/en/ecofin/139831.pdf>
[Accessed 20 January 2014].
Croatia-Montenegro Cross-border Programme, 2005-2014. Development of Outdoor Tourism -
DOT [online] Available at: <http://www.cbccro-mne.org/en/business-cooperation-and-skills-
improvement-for-the-development-of-outdoor-tourism.html> [Accessed 20 January 2014].
EU Neighbourhood Info Centre, n.d. CBC - Cross-border cooperation. [online] Available at:
<http://www.enpi-info.eu/mainmed.php?id=171&id_type=10> [Accessed 20 January 2014].
EUREGIO, 2013. About EUREGIO. [online] Available at: <http://www.euregio.eu/de> [Accessed 20
January 2014].
EUREGIO, n.d. Unterschiede verbinden, Verschillen verbinden. [pdf] Gronau, Enschede. Available
at:
Page | 25
<http://www.euregio.eu/sites/default/files/downloads/EUR110404%20Imagebrosch%C3%BCre%20
web_0.pdf> [Accessed 20 January 2014].
European Neighbourhood and Partnership Instrument, n.d. Cross-Border Cooperation (CBC)
Multi-annual Indicative Programme 2011-2013. [pdf] Available at:
<http://eeas.europa.eu/enp/pdf/docs/2011-2013_crossborder_mip_en.pdf > [Accessed 20 January
2014].
Geo Wonderland, n.d. Lagodekhi Protected Area. [online] Available at: <http://geo-
wonderland.com/tours/tourebi/lagodekhi.html> [Accessed 20 January 2014].
Georgian Wine Association, n.d. About Kvareli Cellar. [online] Available at:
<http://www.gwa.ge/?7/296/> [Accessed 20 January 2014].
Get Travel, n.d. Wine tours. [online] Available at: <http://www.gettravel.wanex.net/wine.htm>
[Accessed 20 January 2014].
GoogleMaps, 2014. Qakh-Zaqatala-Balakan-Lagodekhi-Kvareli. [pdf] Available at:
<https://maps.google.com/> [Accessed 20 January 2014].
Handelsweg, n.d. About tour packages. [online] Available at:
<http://www.handelsweg.com/downloads/wegbeschreibung/> [Accessed 20 January 2014].
Handelsweg, n.d. Hollandgänger-Arrangement. [pdf] Available at:
<http://www.handelsweg.com/fileadmin/media/handelsweg/Hollandgaenger_dt.pdf> [Accessed 20
January 2014].
Instrument for Pre-Accession (IPA), 2011. Cross-Border Programme Croatia – Montenegro 2007-
2013. [pdf]. Available at: <
http://www.europarl.europa.eu/RegData/docs_autres_institutions/commission_europeenne/comitolo
gie/info/2012/D023078-02/COM-AC_DI(2012)D023078-02(ANN2)_EN.pdf> [Accessed 20 January
2014].
Ministry for Foreign Affairs of Finland, 2011. Cross-border cooperation: benefiting from borders.
[pdf] Helsinki. Available at:
<http://www.aebr.eu/files/publications/CBC_Benefiting_from_Borders.pdf> [Accessed 20 January
2014].
OurAirpots, n.d. Airports in Azerbaijan. [online]. Available at:
<http://ourairports.mobi/countries/AZ/airports.html> [Accessed 21 January 2014].
Schelberg, W.L.G., 2001. EUREGIO: Pioneer in the Practice of European Cross-Border
Cooperation. [pdf] . Available at:
Page | 26
<http://webcache.googleusercontent.com/search?q=cache:ftp://78.153.208.68/bkp/ipa/PDF/B2_eur
egio.pdf> [Accessed 20 January 2014].
Streitenberger, W., 2013. Cross-Border-Cooperation in the New European Territorial Cooperation
ETC. [pdf] Brussels. Available at:
<http://www.aebr.eu/files/publications/Speech_Streitenberger_ETC-CBC.pdf> [Accessed 20
January 2014].
USAID/Georgia, 2012. Promotional plan for Georgia’s wine tourism sector. [pdf] Available at:
<http://www.gwa.ge/upload/file/Promotional_Plan_for_Georgias_Wine_Tourism_Sector.pdf>
[Accessed 20 January 2014].
Zaqtala, 2006. Əsas təsərrüfat fəaliyyəti haqda məlumat. [online] Available at:
<http://zaqatala.my1.ru/index/0-12> [Accessed 20 January 2014].
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IV. Appendix
Appendix A: Interview Transcripts
(Tue, Dec 10, 2013 at 3:33 PM by Kristina Brbora)
Part one: motivation and general work
Q1: In general, how important would you consider the cooperation for your
organization?
A1: Cooperation is one of the most important aspects of this programme. Solid
cooperation is the basic for this programme and its success. First of all,
cooperation was essential when two operating structures of the programme
(Ministry of regional development and EU funds of the Republic of Croatia and
Ministry of foreign affairs and European integration of Montenegro) established
this cross border programme. Furthermore, the institutions and organizations
from cross border region that implement joint projects have to closely cooperate
in order to implement all the activities and consequently reach the goals and
objectives of the projects.
Q2: What was your motivation to start the Croatia-Montenegro cross-border
programme cooperation?
A2: Namely, due to the war that took place in the early nineties social, cultural
and economic connections between Croatia and Montenegro were severely
damaged. This programme addresses the need to re-establish and strengthen
cross-border connections with the aim of promoting good neighbourly relations
and the sustainable economic and social development of the border areas.
Q3: How would you describe the mission, vision and goals of Croatia-
Montenegro cooperation?
A3: The vision of the programme has been defined as follows: Cross-border
area between Croatia and Montenegro is recognized as a region for high quality
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of life and one of the most successful European tourist destinations because of
its unique and preserved natural resources, cultural and historical heritage and
high quality of services, as well as a region in which socio-economic partners
are empowered to achieve and manage the optimal development potential of
the area.
The overall objective of the Programme is: Improved quality of life in cross
border area between Croatia and Montenegro.
This objective will be achieved through the implementation of actions under the
following set of programme priorities and measures: Priority 1 (Creation of
favourable environmental and socio-economic conditions in the programme
area by improvement of the cooperation in the jointly selected sectors and good
neighbourly relations in the eligible area, measures of the priority 1 (Measure
1.1: Joint actions for environment, nature and cultural heritage protection,
Measure 1.2: Joint tourism and cultural space, Measure 1.3: Small cross-border
community development projects), Priority 2 (Technical Assistance) and
measures of the priority 2 (Measure 2.1: Programme Administration and
Implementation, Measure 2.2: Programme Information, Publicity and
Evaluation).
Q4: What are the main achievements/results of the cooperation (so far)?
Overall and specific for your organization?
A4: On the governmental level cooperation between two countries is
enhancing, especially since Montenegro became an independent country. Until
now several bilateral agreements have been signed.
Concerning the overall results of the cooperation, we still cannot determine
whether the quality of life in cross border area between Croatia and
Montenegro has been improved given the fact that the programme still runs and
it is expected that it will terminate in 2016 and the fact that some projects are in
the phase of implementation. Moreover, several new projects are expected to
start with the implementation in late 2014. On the other hand, some specific
results can be highlighted. It is determined that most of the
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organizations/institutions that participated in the programme throughout
implementation of the joint projects in the cross border area have achieved
excellent cooperation, cooperate even after the termination of their projects,
submit new project proposals, have raised human resources capacities within
their organizations, development of new services, etc.
Q5: Concerning joint program in ‘tourism and cultural space’, how far have you
achieved overall objectives?
A5: Concerning the project DOT from 1st Call for Proposals it can be
determined that joint planning and business cooperation in the sector of tourism
has been achieved, knowledge, infrastructure and technical capacities have
been improved and cross border area has been recognized. The activities that
were implemented and that contributed to the achievement of the objectives are
as follows: establishment of cross border cluster, trainings related to cycling,
sea kayaking and hiking, security trainings conducted and the establishment of
procedures and operational guidelines in case of future rescue actions, marking
the paths, development of maps, brochures, etc. It is also important to stress
out that the beneficiaries from this project: Croatian mountain rescue service
and Centre for sustainable development of Montenegro have prolonged and
continued their cooperation through second mutual project-Development of ICT
for outdoor destination (DIOD) that is currently in 11th month of implementation.
Part two: challenges
Q6: Have there been challenges within the cooperation/cooperation process?
What kind of? How did you solve them?
A6: Main challenge/risk with the cooperation process actually relates to lack of
cooperation or insufficient cooperation. Currently we have one project where
two institutions (one from Croatia and the other one from Montenegro) do not
cooperate as they were supposed to. Lack of cooperation affects the project
itself in a way that the planned activities are delayed and not coordinated which
of course impacts the achievement of the project results. The reason behind
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lack of cooperation is insufficient initiative and inexperienced staff from one
institution. We as Joint Technical Secretariat of the programme are trying to
mitigate this risks by providing all the technical assistance and monitoring their
activities as well as ensuring that they meet all the criteria.
Q7: Do you see differences between national networks and international
networks?/ In which way does working in a cross-border network differ from
working in national networks?
A7: In my opinion there are differences and most of them are related to the
cultural background. Organizations/institutions from international networks in
most of the cases do not share same language, culture, religion, nationality and
political environment unlike national networks and this actually might trigger
some misunderstanding, different ideas and approaches to solving problems
and mitigating risks. It is essential that organizations from international network
are acquainted with each other’s culture in order to achieve successful
cooperation.
Q8: Do language and cultural differences impact on your work? In which way?
A8: Since Croatian and Montenegrin people share same language (but with
different accents) and great part of the culture it cannot be said that there are
differences that impact the work or endanger cooperation.
Part three: success factors/ lessons learned and future outlook
Q9: Considering your experiences from cross-border networks - which things
you would do differently next time (lessons learned)?
A9: As previously stated, it is still early to measure the overall impact of the
programme but some lessons learned show that many institutions are not
aware of the existence of this programme and its benefits. Concerning the
future actions, it is crucial to focus more on the visibility of the programme and
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the marketing so that more institutions from different sector can submit their
project proposals.
Q10: According to your personal experiences which five factors would you
consider the most important factors/success factors for cross-border
cooperation? OR In general what are your recommendations for organizations
that are about to start a cross-border cooperation? What should they consider?
Be aware of?
A10: First of all, in order to engage in cross-border cooperation, organizations
have to be fully aware of all the disadvantages, lacks and weaknesses of their
own organizations as well as of their strengths, opportunities and challenges.
They have to determine what are the needs of their organizations and which
capacities (human, finance, etc) they possess. They also have to be aware of
possible cultural differences the organization from other country might have.
Moreover, they ought to be aware that they may change their ways of
conducting the business and adapt to the new ones. They also have to think
about embracing new technologies, products or services.
Q11: What are your future plans for the Croatia-Montenegro cross-border
network? (Will you continue working together after the project has ended?)
A11: After the termination of this bilateral programme Croatia-Montenegro (in
2016) institutions are likely to continue their cooperation probably through new
trilateral programme that will also be financed from EU funds.
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V. Eidesstattliche Erklärung
Erklärung gem. § 15 (5) Prüfungsverfahrensordnung über die
selbstständige Anfertigung einer Hausarbeit:
Erklärung
Hiermit erklären wir, dass wir die von uns eingereichte Assignment Paper ‘Analysis
of the EUREGIO and Croatia-Montenegro cross-border cooperation and design the
new Azerbaijan-Georgia cross-border cooperation’ selbstständig und nur unter
Verwendung der angegebenen Quellen und Hilfsmittel angefertigt haben.
Heide, 23.01.2014
(Shahriyar Humbatov)
