OBSERVARE

Universidade Autónoma de Lisboa

e-ISSN: 1647-7251

Vol. 10 Nº.1 (May-October 2019), pp. 143-151

Notes

CROSS-BORDER COOPERATION IN THE

GALICIA-NORTHERN PORTUGAL EUROREGION

Vera Ferreira

veralsf.vf@gmail.com

PhD Candidate in Climate Change and Sustainable Development Policies at the Institute of Social

Sciences of the University of Lisbon (Portugal) and junior researcher at the Centre for Social

Studies of the University of Coimbra, where she's part of the Research Group on Studies on

Science, Economy and Society. Masters Degree in International Relations (Peace and Security

Studies speciality) by the Faculty of Economics of the University of Coimbra (2017), with a

dissertation on 'Climate migrations and human security'. Graduate in International Relations by

the Faculty of Economics of the University of Coimbra (2015).

Foreword

After centuries of mistrust and rivalry, territorial cooperation relations – and, specifically,

cross-border cooperation – between Portugal and Spain are nowadays characterised by

an increasing dynamism. Indeed, since the second half of the 1970s, we have watched

a gradual evolution and consolidation of such relations. The creation of Eurocities,

Euroregions, Working Communities and European Groupings of Territorial Cooperation in

the Cross-border Area of Spain and Portugal

clearly illustrates such vitality.

According to Araújo and Varela (2014: 807), 'territorial cooperation emerges as a political

objective to promote development and cohesion at the local, regional, national or even

transnational levels'. In this context, the Galicia-Northern Portugal Euroregion stands out

due to its 'institutional longevity' (Araújo and Varela, 2014: 805), thus deserving a

deeper reflection. Some authors even go as far as mentioning that 'the joint territory

This text is a result of a study included in the research project 'Cities and Regions: paradiplomacy in

Portugal', coordinated by Professor Luís Moita, in the scope of the research unit OBSERVARE of the

Autonomous University of Lisbon, financed by FCT – Portuguese Foundation for Science and Technology,

under reference UID/CPO/04155/2013

The translation of this article was funded by national funds through FCT - Fundação para a Ciência e

a Tecnologia - as part of OBSERVARE project with the reference UID/CPO/04155/2019, with the aim of

publishing Janus.net. Text translated by João Nicolau.

The Cross-border Area of Spain and Portugal covers 37 NUT III (Nomenclature of Territorial Units for

Statistics) in both sides of the border.

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composed by Galicia and the Northern Region is [probably] the best defined cross-border

area in Europe' (Pardellas and Padín, 2017: 32).

Located in the northwest of the Iberian Peninsula, the Galicia-Northern Portugal

Euroregion includes Portugal's Northern Region (composed of the Alto Minho, Cávado,

Ave, Alto Tâmega, Tâmega e Sousa, Terras de Trás-os-Montes, Douro and Porto's

Metropolitan Area NUT IIIs) and the Autonomous Community of Galicia (composed of the

Pontevedra, Ourense, Corunha and Lugo provinces), stretching over an area of 51

thousand sq km.

According to Cancela (2013: 89-90), besides the tangible elements (such as bridge

building and the revamping of communication routes), the rapprochement of Northern

Portugal and Galicia bears a huge intangible heritage, namely the creation of a context

that promoted the cooperation between several political, administrative and socio-

economic players, in an attempt to found a socially and economically attractive and

cohesive territory and to reduce its peripheral character (in relation to the main political

and economic centres) – thus giving rise to a true Euroregion.

In Medeiros' conception (2010: 6), an 'Euroregion' can be defined as

a region or subregion, usually with an area under 200,000 sq km,

which spreads beyond the borders that separate one or more

European countries, and that: (i) is currently the target of a common

development strategy, with permanent and reinforced intervention

characteristics, and with a significant participation and collaboration

of several players at the local and regional levels, specially from civil

society. […] (ii) the barrier effect, in all its dimensions, is

considerably limited, allowing for intense cross-border flows that

help to structure the territory and promote positive socio-economic

effects in both sides of the border; (iii) the sharing of social and

cultural facilities is a reality; (iv) there's an intense and networked

cooperation between the main research hubs, urban centres and

cross-border business entities.

As stressed by Varela et al. (2015: 82-83), with the participation of subnational players

in international relations

there's a new space generated in parallel to the formal, centralised

diplomatic spaces, generating a network which is formal, but also

peripheral and paradiplomatic, in which interdependencies and

cooperation feed themselves, multiplying and, in some cases,

producing impact through successive cross-border, interregional

and territorial cooperation initiatives.

Thereby, the adoption of the 'paradiplomacy' concept points to the 'study of the external

relationship of social players distinct from the centralised powers of the national states'

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(Curto et al. 2014: 115). Consequently, beyond the contextualisation and

characterisation of the cooperation between the Northern Region and Galicia, we also

want to understand if the Galicia-Northern Portugal Euroregion presents itself as a

relevant player in this non-governmental diplomacy.

Thus, first we will clarify the elements that motivated cooperation between Northern

Portugal and Galicia; secondly, we'll identify the stages in the institutionalization of the

cross-border cooperation between the two regions; next, we'll highlight the strategic

areas of cooperation, as well as the projects and initiatives implemented in the

Euroregion; later, we'll assess the cooperation between the Northern Region and Galicia,

foreseeing some of the future challenges; finally, we'll try to find if we can speak of a

paradiplomacy in the Galicia-Northern Portugal Euroregion.

Elements that motivated cooperation between Northern Portugal and

Galicia

Historically, the coexistence and exchanges between Northern Portugal and Galicia have

benefited from the geographical contiguity and the cultural and linguistic affinities

(Cancela, 2010: 152). Furthermore, as stated by Trillo and Lois (2011: 129), 'the demand

of benefits through wage differences, housing prices, soil, raw materials, manufactured

products or leisure activities explain the daily or frequent cross-border movements, which

can only occur on border areas'. Nevertheless, there are other political and institutional

elements that favour such cooperation.

The democratic transition in Portugal and Spain in the second half of the 1970s decisively

influenced the reshaping of their external policies, which boosted cross-border

cooperation between the two states. Indeed, in 1977 both countries signed the Treaty of

Friendship and Cooperation between Portugal and Spain, aiming to 'strengthen the

existing friendship and solidarity bonds between the two countries'. It stated that the

reinforcement of cooperation between the Iberian states and the prosecution of good

neighbourhood practices would contribute to international peace and security, as well as

to the 'harmonious development of the relationships which derive from the shared

historical and cultural heritage'. It thus attempted to encourage mutually beneficial

economic relations – specifically in industrial sectors, trade, mining, agriculture, fishery,

transportation and tourism –, to develop new areas of cooperation and to 'promote the

protection and rational exploitation of the shared natural resources' (Articles 3, 4 and 7).

It's equally important to mention the decentralization of the Spanish state (after the

passing of the 1978 Constitution), which led to the establishment of autonomous

communities. In fact, Galicia is, since 1981, an Autonomous Community whose political

powers derive from its Statute of Autonomy. It has its own political institutions – a

Parliament, a Regional Government and a President – and its territory is divided into

provinces and municipalities.

On the other hand, Pardellas and Padín defend that (2017: 12) 'the process of European

integration constituted an inflexion point in border history', starting with the lifting of the

borders and the integration in the European single market (which allows the free

movement of persons, goods, services and capital). Portugal and Spain joined the then

called European Economic Community in 1986 and in 1988 and 1990, respectively,

ratified the 1980 European Outline Convention on Transfrontier Co-operation between

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Territorial Communities or Authorities, according to which the signatory states committed

to 'facilitate and foster transfrontier co-operation between territorial communities or

authorities within its jurisdiction' (Article 1). Consequently, cross-border cooperation is

defined as

any concerted action designed to reinforce and foster neighbourly

relations between territorial communities or authorities within the

jurisdiction of two or more Contracting Parties and the conclusion of

any agreement and arrangement necessary for this purpose (Article

2).

Furthermore, the European Union's cohesion policy – whose main objective is to reduce

the economic, social and territorial disparities between regions (Article 174 of the Treaty

on the Functioning of the European Union) – has strengthened regional cooperation,

namely as regards cross-border cooperation. In this context, INTERREG stands out. This

community initiative consists of an array of programmes financed by the European

Regional Development Fund, which aim to promote the cooperation between European

Union regions. Started in 1989, it's currently undergoing its fifth programming period

(2014-2020)

Stages in the institutionalization of cross-border cooperation between

Galicia and Northern Portugal

Using Cancela's systematisation (2010), we can distinguish two stages in the

institutionalization of cooperation between the Northern Region and Galicia: an informal

stage, between 1981 and 1991, and a formal one, which the author places between 1991

and 2008, but which can be extended until the present day. In this way, the informal

stage was characterized by preliminary contacts between the Government of Galicia and

the North Regional Coordination and Development Commission (CCDR-N) – the two main

players and stimulators of the cooperation processes –, culminating in the Technical

Seminars between Galicia and Northern Portugal (1988 and 1990). Starting with the 2nd

Technical Seminars, the need was determined to establish a framework that favoured

the continuity, coherence and increase of cross-border cooperation, framed in a

structured work programme at the functional and institutional levels (CTGNP, 2019).

Thus started the formal stage of cooperation. Indeed, in October 1991 the President of

the Government of Galicia, Manuel Fraga Iribarne, and the President of the CCDR-N, Luís

Braga da Cruz, signed the Agreement Establishing the Working Community Galicia-

Northern Region of Portugal. This Agreement recognised that 'cross-border cooperation

is one of the most effective ways of securing the proximity of the border populations, of

overcoming the challenges the whole border faces and of boosting development in the

In the context of INTERREG V-A Spain-Portugal (POCTEP) 2014-2020, the territorial cooperation strategy

between the two states is based on the following thematic objectives: to reinforce research and

technological development; to improve the competitiveness of small and medium-sized enterprises; to

promote the adaptation to climate change and risk prevention and management; to preserve and protect

the environment and to promote efficient use of the resources; and to strengthen the institutional capacity.

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border areas'. To this end, the creation of the Working Community Galicia-Northern

Portugal (CTGNP) aimed to reinforce the good neighbourly relations, 'with the triple aim

of contributing to the development of both regions, to the European integration and to

improve the situation of border populations'. Thus, through the action of Sectoral

Commissions, the Working Community would favour economic and rural development;

transportation, communications and tourism; culture, education and innovation;

agriculture and cattle breeding; the environment and regional planning.

In 2006 this Agreement was adapted to include the provisions of the Convention entered

between the Portuguese Republic and the Kingdom of Spain on Cross-border Cooperation

between Territorial Bodies and Entities (Valencia Convention), signed in 2002. This

Convention aims to 'legally promote and regulate cross-border cooperation between the

Portuguese territorial bodies and the Spanish territorial entities' (Chapter I, Article 1).

Thereby, in 2006 the Convention on Transfrontier Cooperation between the North

Regional Coordination and Development Commission of Portugal and the Government of

Galicia was signed. This Convention has since ruled the functioning of the CTGNP.

According to the terms of the Convention (Chapter I, Article 3), the actions of the CTGNP

should focus on the following areas of cooperation: economic development;

transportation and communications; agriculture, environment, natural resources and

regional planning; fishery; health and social affairs; local development; regional and local

government; education, training and employment; scientific research and universities;

culture, heritage and tourism.

Also in 2006, aiming to remove the obstacles to territorial cooperation, the European

Union introduced tools of territorial cooperation with legal status – the European

Groupings of Territorial Cooperation

. In this context, in 2008 the European Grouping of

Territorial Cooperation Galicia-Northern Portugal (GNP-AECT) was created through the

European Territorial Cooperation Agreement between the Xunta de Galicia and the North

Regional Coordination and Development Commission – opening a new historical stage in

cross-border cooperation between Northern Portugal and Galicia, referred to as 'second

generation' cooperation (Cancela, 2010: 155).

According to Cancela (2010: 151), such cooperation presumes 'the deepening and

institutionalization of cooperation and the renewal of the political compromise of the

Government of Galicia and CCDR-N with this joint undertaking'. The GNP-AECT was

established in 2010 and aims to facilitate and promote territorial cooperation between

Galicia and Northern Portugal in several fields of work, generating an ever more

integrated euro-regional area. Thereby, the GNP-AECT declares as its main objectives:

to foster and simplify cross-border relations; to expand the territorial and corporate

competitiveness; to promote the transfer of skills, know-how and innovation; to develop

access to basic transportation systems; to strengthen social and institutional cohesion in

the Euroregion; to ensure sustainable development; to rationalize the cross-border

resources, promoting its shared use. In the end, it's an agent entrusted with establishing

communication, investment and convergence bridges between institutions, companies

and citizens on both sides of the border (GNP-AECT, 2019).

Regulation (EC) No. 1082/2006.

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Consequently, there are currently two institutional tools in the space of euro-regional

cooperation: the CTGNP, acting as a political and strategical entity, and the GNP-AECT,

which works as a de facto performer of cooperation projects (Cancela, 2013: 97).

Strategic areas of cooperation, projects and initiatives

Regarding the measures consolidating the relations between Northern Portugal and

Galicia, we see that the GNP-AECT implements an annual plan of activities, and is

currently executing the Joint Investment Plan (PIC) for 2014-2020 (Table 1).

Table 1 - Joint Investment Plan of the Galicia-Northern Portugal Euroregion 2014-2020, with its

activity areas and strategic priorities

Areas

Strategic priorities

Research and transfer of

know-how

Consolidation and potentiation of research hubs;

Potentiation of the transfer of results to the productive

sector.

Competitiveness and

employment

Attraction of productive investment;

Promoting the Euroregion's economic internationalisation.

Environmental quality and

heritage

Enhancement and protection of the natural and cultural

heritage;

Enhancement of the polycentric urban system;

Promoting the efficiency of environmental resources.

Institutional capacity

building, fostering

citizenship

Promotion of cross-border cooperation between public

authorities as an effective tool to improve the quality of life

of citizens.

Source: own elaboration based in data from the PIC.

The PIC prescribed the design of an euro-regional Smart Strategy of Specialisation, which

was achieved in 2015 with the adoption of the Cross-border Smart Strategy of

Specialisation Galicia-Northern Portugal (RIS3T). The RIS3T is part of the new European

Union's Cohesion Policy 2014-2020, which promotes economic development through

support for research and innovation, aiming for the competitive economic specialisation

of each region. To this end, the RIS3T Galicia-Northern Portugal specifies six strategic

fields of cooperation: i) exploitation of biomass and sea energies; ii) improving the

competitiveness of the agri-food and biotech industries; iii) strengthening the

competitiveness of the industrial sector (industry 4.0); iv) fostering the competitiveness

of the mobility industries; v) modernization of the touristic and creative industries,

including the use of ICT; vi) development of advanced solutions for a healthy lifestyle

and active aging.

Assessment of the cooperation between Northern Portugal and Galicia

and future challenges

Based on a series of interviews with representatives of the CCDR-N and the GNP-AECT,

we can say that the global impact of the Galicia-Northern Portugal Euroregion is

extremely positive.

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However, regarding the perception of the Euroregion by the border population, the CCDR-

N and GNP-AECT representatives recognise that there are difficulties in conveying the

results of the actions undertaken. However, that does not hinder an active participation

of the Euroregion population in the initiatives and programmes launched by the GNP-

AECT. Summing things up, we can say that 'the citizens are strongly in favour of the

Euroregion', more so when we think about cities such as Valença and Tui – separated by

only 3 km –, where the populations live their daily lives on both sides of the border.

Regarding the assessment of the global impact of the actions undertaken, we verify that

this has been predominantly of a qualitative nature (mostly interviews). According to the

CCDR-N and GNP-AECT representatives, the assessment is hindered because there are

several policies converging on the same territory, making it difficult to isolate the results

of each (and, therefore, of the tools of cross-border cooperation). According to the

respondents, it's urgent to delineate assessment indicators for the territorial impact of a

cross-border nature, aiming to select the programmes that matter the most for the

territory, assess their effects and reformulate them (if needed).

Finally, regarding future challenges, we come to the conclusion that the main weakness

of the cooperation between the Northern Region and Galicia is institutional in nature,

stemming from the skills imbalance between the Autonomous Community of Galicia –

whose government has a political mandate and that has the autonomy and budget to

implement policies – and the Northern Region – where the CCDR-N represents the central

government (it's not a legal entity per se), and thus doesn't have the autonomy for a

broader political intervention. This means that many issues related to cross-border

cooperation must be discussed directly with the Portuguese Government, which may

constitute a disadvantage, in the sense that there is a greater distance in Lisbon

regarding the specifics of cooperation between the Northern Region and Galicia.

Conclusion: can we speak of a paradiplomacy in the Galicia-Northern

Portugal Euroregion?

Regarding the coordination of the external relations of the Northern Region with the

priorities of the portuguese foreign affairs (defined by the central government), and

based on the interviews, we came to the conclusion that two paradoxical dynamics

coexist:

i) There's a dependency towards the central government, resulting from the lack of

autonomy of the CCDR-N. However, 'certain experiences that are real in the areas

that endure the border impact are not immediately visible, in whatever ways, to the

people, entities and bodies that have a centralised view – there is a huge distance'.

The interviewee thus concludes that 'the regionalisation may be defensible at several

levels, but from the perspective of the resolution of issues of a cross-border nature it

is an obvious element'. In her opinion, it would facilitate a symmetric dialogue between

the Northern Region and Galicia, as well as the implementation of actions that have

already been designed and budgeted, but which execution has been facing obstacles.

ii) There's an explicit will for autonomy in the prosecution of the cooperation relations in

the Euroregion. In the words of the CCDR-N representative, 'many of the actions we

undertake end up describing demands, wishes and intentions felt in the territory, for

instance at the municipalities level, or at the NUT IIIs level, and not so much top

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down'. At the internationalization level, the Euroregion is part of networks that 'don't

follow a centralised logic'. The interviewee further adds that such actions are dictated

by the recognition of the 'importance these actions have in the scope of our own

Euroregion, in an autonomous way, according to our interests and what we perceive

as an aim […] to project the region, even if subject to the institutional constraints we

may face'.

Summing up, we can conclude that the dynamics and vitality which characterise the

cross-border cooperation processes in the Galicia-Northern Portugal Euroregion do not

translate into a real non-governmental diplomacy, or paradiplomacy. In fact, even if at

some European forums for regions the Northern Region and Galicia present themselves

as the Euroregion, acting in a concerted manner, this does not mean that the Euroregion

constitutes a unitary player or an autonomous agent of internationalization. On the

contrary, the international position of the Euroregion is still dependent on the external

policies of the portuguese and spanish states.

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How to cite this Note

Ferreira, Vera (2019). "Cross-border Cooperation in the Galicia-Northern Portugal

Euroregion". Notes, JANUS.NET e-journal of International Relations, Vol. 10, N.º 1, May-

October 2019. Consulted [online] on the date of last consultation,

https://doi.org/10.26619/1647-7251.10.1.01