ZSUZSANNA VÁRADI THE RELATIONSHIP BETWEEN BUDAPEST AND ITS AGGLOMERATION DETERMINING FACTORS AND REGIONAL CONFLICTS

Eötvös Loránd University Doctorate School of Earth Sciences Geography-Meteorology Doctorate Programme

ZSUZSANNA VÁRADI THE RELATIONSHIP BETWEEN BUDAPEST AND ITS AGGLOMERATION – DETERMINING FACTORS AND REGIONAL CONFLICTS PhD. Theses

SUPERVISOR: DR. HABIL ÉVA IZSÁK ASSOCIATE PROFESSOR EÖTVÖS LORÁND UNIVERSITY

The Relationship between Budapest and its Agglome ration – Determining factors and regional conflicts

Budapest, 2012.

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Theses of PhD Dissertation

1. THE RESEARCH OBJECTIVES The 20th century brought us the age of dominance of metropolitan regions and urban areas. One of its manifestations are that they are the engines of the economic growth, a determinative participants of a successfully developing region (Enyedi, Gy. 2004; Bordeau-Lepage, L. 2003; Hegedűs, J. 2008; Szigeti, E. 2003, Somlyódyné Pfeil, E. 2008). However, along with their growth, urban areas’ have to face several challenges as well: aging and changing structure of society, environment issues, deteriorating neighbourhoods, changing urbanization processes, modifying relations with their surrounding settlements, and existing conflicts (Enyedi, Gy. 2011; Szirmai, V. 2004; Le Galés, P. – Therborn, G. 2009). These processes can be detected in Hungary too. The social-political and economic Transition in 1989-90, the modernization’s procedures during the decade came along with society and economic impacts, the urban areas became privilaged geographical nodes of the economic development and the social transformation (Faluvégi, A. 2000; Nemes Nagy, J. 2001; Lőcsei, H. 2004). In addition, new urbanization processes have emerged. The Budapest Agglomeration was significantly affected by the changes (Hegedűs, J. 2008; Kocsis, J. B. 2010; Izsák, É. 2003).

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Namely the very close relationship between the Capital and its agglomeration settlemets surroundings has transformed. The related question is, what specific factors caused the changes in this relationship, what types of conflicts have been created between Budapest and its agglomeration? Based on the analyzed scientific literature I was able to separate two standpoints. One of my standpoint is that the relation was detected by the changes concerning local, municipal level. The Local Government Act in 1990 fragmented the administrative system, designed with a very high degree of autonomy of municipalities, which created competition and conflict of interest between them. According to my other standpoint, where the social changes, urbanization processes, especially suburbanization also had a significant impact on the development of relationship. The historic core-periphery model - based on a hierarchical relationship transformed (Szirmai, V. 2009), and a new type of inequalities

have

emerged

between

Budapest

and

its

agglomeration. The social structure has changed, the residents’ territorial

consumption

have

changed,

the

expansion

of

settlements, the urban sprawl phenomenon started to exist (Csanádi, G. – Csizmady, A. 2002; Dövényi, Z. – Kovács, Z. 1999).

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The changes were realized in social and economic inequalities, environmental and social problems, conflicts involving more settlements, and in conflicts of interest. The contradictions emerged between different groups, municipalities in particular, and they were detected by the inhabitants. The most visible contrasts are in connection with transport, commuting, decreasing of green areas, and increasing of built-up areas. These phenomena did not help forming the co-operations, and could cause disadvantages of urban areas: Hungary’s most developed regions, urban areas can fall behind from others in economic competition between European metropolitan regions, left out of application sources

from

EU,

furthermore,

the

social,

economic,

environmental and political tensions between municipalities can impact the regional competitiveness too. Concerning to the research problem, my hypothesis’ are that the relationship and the contradictions and conflicts, the lack of co-operation between the settlements were not influenced by the factors separately but built on one to another. In my view these factors should be taking into account together and after understanding them in detailed, could help to develop useful suggestions and practical solutions.

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The problems associated with my research objectives as follows:



My goal is to examine in the last 20 years what kind of relationships developed between Budapest and its Agglomeration, and what factors formed the relationship between settlements.



My additional aim is to explore whether there are specific regional conflicts, and contraditcitons between Budapest and their surrounding settlement and how they occur on the residential side and the decision-making side.



My third goal is to analyze what kind of laws, concepts, plans, regulations, and organizations have appeared concerning the Budapest Agglomeration and what role they could play to improve the relations. My further objective is to examine what the Budapest Agglomeration can learn from European metropolitan regions’ examples.



My final goal is to create a model that realizes an ideal cooperation, which includes all factors and marks for the Budapest Agglomeration the right co-operation directions.

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2. THE METHODS OF THE RESEARCH From the several methods I used to examine for the research, it can be highlighted the scientific literature, former related researches, legislation analysis of background which ensured the theoretical framework of the thesis. To

present

some

co-operation

in

the

European

metropolitan areas, and to introduce guidelines of the European Union related to urban areas’ relations, I have analyzed development documents and EU doctrines. For the examination of social and economic characteristic and changes of the Budapest Agglomeration and the presentation of the current situation I performed statistical data analysis, and comparative investigations, which I represented on thematic maps. For the most important part of the research, namely to reveal the concrete contradictions between Budapest and its Agglomeration settlements, to reveal the opinion of the decisionmakers, empirical methods were used. It has framed by my participation in two separate researches, as well as my own personal empirical analysis.

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My research site, the Centre for Social Siences of the Hungarian Academy of Sciences, Institute of Sociology insured chance of participation in two specific empirical researches, that helped me to analyze the subject1. Between 2004 and 2007, with the participation of more institutions, ‘Urban Areas, Socio-spatial Inequalities and Conflicts – The Socio-spatial Factors of European Competitiveness’ research project was carried out – with the sample area of nine Hungarian big cities and their surrounding areas – I was involved in depth interviews, questionnaire survey and press analysis. In the thesis I analyzed structured in-depth interviews made in Budapest Agglomeration, twelve in all together, six of them carried out by me. I have evaluated the survey results concerning the Budapest Agglomeration whether the inhabitants perceived conflict on their place of residence. Another research framework was provided within the research programme between 2009 and 2011 called ‘Sustainable consumption, production and communication’, with the subprogramme called ‘The social mechanisms and interests determining consumption models. The model of sustainable territorial consumption’ where the urban sprawl processes of Budapest Agglomeration, and its socio-spatial effects were explored.

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During the research 53 interview were made, 10 carried out by me. My analytical aspects fully differed from the aspects of the research: the evaluation of the interviews was carried out strictly along the thesis problem, focusing only the relation between Budapest and its Agglomeration, and the existing conflicts. In addition, I carried out own structured in-depth interviews for the problem of the thesis. For the exploration of international processes, for the understanding of a developed metropolitan region I made interviews with three professionals in Gothenburg: one of the leading project manager of the region as well as geographic researchers who knew well the processes of the region. To get to know the processes of Budapest Agglomeration even more in details, I made structured in-depth interviews with decision-makers working at the districts as well as suburban settlements, and with experts and politicians between January and December 2011. They completed the previously received information, seven interviews all together. In overall, the base of the empirical results is provided by a total of 75 structured depth interviews, in which 26 was carried out by me evaluated subject-specific and summarized in SWOT analysis.

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To develop the model, along with evaluating the empirical results, I analysed planning and development documentations of Budapest Agglomeration, and also analysed exploration of creative factors related to European researches. 3. NEW SCIENTIFIC RESULTS Related to the research hypotheses and objectives, the dissertation’s new scientific results are: 1. The research in a complex way, several factors taken together, covering the European samples showed that the changes in the local government system, the change of legal background and regulations were built on the socio-economic former socio-economic inequalities existed between the settlements. The research is highlighted that the two factors should not be separated, they complement one another (synergistically) influenced that current cooperation between Budapest and the agglomeration is weak, in many cases their relationship manifests in regional conflicts. After 1990, the development of local government’s fragmentation, the changes in the economic situation of the settlements, to survive its 'struggle' worked against the co-operation. Contributed to this the suburbanization process started earlier, but becoming mass

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phenomenon after the Transition, and the related problems to the lack of institutional, or infrastructure supply, or with the transport, and land use in the suburban settlements. So the question indicated in the research objectives, according to my answer we can’t say that only the changes in the local government or the social transformation played more important role – they are to be treated together. 2. My second set of research objectives was to examine, what type of territorial conflicts appeared in the Budapest agglomeration, on both public and decision-making sides. Based on the analysis of the interviews, numerous of conflicts have been revealed, along with the most significant, the transport-related

conflicts

between

the

Capital

and

surrounding towns and villages. This problem was seen by the decision-makers as the most current and most urgent. I examined from the residental side too, what type of social groups play a role in this problem formulation. According to the results, the transport-related conflicts can be solved on the agglomeration level, but with differentiated assets. So not only the infrastructure development, but, for a different spatial and social groups different solving tools could be useful to develop. In addition to the traffic problems, land use and institutions conflicts also appeared. Furthermore, decision makers clearly

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pointed out that there is very poor communication between the leaders of the settlements, which effected the relations. 3. To reach the next aim, I analyzed what laws, regulations and concepts appeared in the Budapest Agglomeration, and whether these documents could play some role improving the relations in the area. According to the results, in the past 20 years numerous documents were prepared, each of which included the importance and the need of inter-municipal cooperation, whether it was development concept for the area or national plan. In my opinion they can provide a good basis and background to a meaningful cooperation in the future. It’s antecedents had already appeared during in some work in former organization in the Agglomeration, but because of its termination, further continuation was not possible. In the last year a smaller organization – created with the participation of suburban settlements – the Local Government Association of Metropolitan Agglomeration (FAÖT) can provide a good basis for development cooperation, a bottom-up organization for determining a common goal. Their activities should be pursued by all means not to ‘against Budapest’ act, it is obvious for both sides to live together, so with the appropriate relationship with the districts and the Municipality, with ongoing consultation should try to solve the existing conflicts.

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4. I examined what sort of European examples can the Budapest Agglomeration learn from and what items can be received. Following the overview of the examples of Europe nearly everywhere when organizations were formed, they had only one specific target or problem, initially they worked informally, and later they received an organizational framework. Most of them was established to achieve a goal that had a positive outcome for both parties, so the traffic problems in many European cities was the motivation to cooperate. From the examples developed it would be necessary to take over the culture in co-operation, and the need of thinking in long term. Additionally, creative tools could be used in the Budapest Agglomeration in relation to the strengthening of cooperation such as information flow, determination of metropolitan vision, communication channels establishment, catalyst projects, all this combined with a rational decisions. It should be underlined the importance of participation in tenders, the importance of joint ownership. 5. Finally, the research’s point of view of practical applicability, I formulated that most important element builds on a regional approach, rather than a general cooperative schema. In other words, to take into account the established socio-economic differences,

the

inequality

conditions

13

of the

Budapest


Agglomeration. Nevertheless, regulations and concepts are necessary – a kind of control from ‘above’ – along with the building coming from the ‘bottom’, and formulating common goals for both municipalities and the local participants, and this potential external opportunities exploitation (for example, participation in tenders), namely taking a multi-factor cooperation model elements into account together. The optimal model of co-operation in the Budapest Agglomeration

Source: own edition

RESEARCH UTILIZATION OPPORTUNITIES It is important in the future that the local governments, organizations executing transport development, relevant social groups to take into account the regional, social effects, and like in

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Western European models, through participation in a common application, gradually start to develop co-operation. So my goal is to present the outcome of the thesis among the leaders in the Budapest agglomeration. Another recommendation of my research is that the decision-makers might use lobbying activity by the application system, which prefers the local government cooperation and joint participation. The thesis has opened new directions for me, provided a base to continue for future research goals, which aims to develop the game theory methods in connection with decisions affecting major cities, and the using of creative tools in Hungary in a more detailed way.

REFERENCES Bordeau-Lepage, L. (2003): Metropolization in Eastern Europe. Unequal Chances. LEG - Document de travail - Economie LEG, Laboratoire d'Economie et de Gestion, Université de Bourgogne. p 22. Csanádi, G. – Csizmady, A. (2002): Szuburbanizáció és társadalom. ’Suburbanization and society.’ In: Tér és Társadalom ‘Space and Society’16. year 3. sz. pp. 27–55. Dövényi, Z. – Kovács, Z. (1999): A szuburbanizáció térbenitársadalmi jellemzői Budapest környékén. ’Suburbanization’s sociospatial characteristics around Budapest.’ In: Földrajzi Értesítő, ‘Geogrpahical Bulletin’ 48. year 1–2. sz. pp. 33–57.

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Enyedi Gy. (2004): Városi világ – Városfejlődés a globalizáció korában. ’Urban World - Urban Development in the era of globalization.’ Pécsi Tudományegyetem Közgazdaság-tudományi Kara Regionális Politika és Gazdaságtan Doktori Iskola. ‘University of Pécs, Faculty of Economy, Doctorate School of Politics and Economy. Habilitációs előadások Habilitation Presentations 4. 26 p. Faluvégi, A. (2000): A magyar kistérségek fejlettségi különbségei. ’The Hungarian sub-regions inequalities.’ Területi Statisztika. ‘Regional Statistics’ 3. (40.). 4. pp. 319-346. Hegedűs J. (2008): A nagyvárosi kormányzatok és az önkormányzati rendszer. ’The metropolitan government and the local government system.’ In: Tér és Társadalom ‘Space and Society’22. year 1. pp. 59-75. Izsák É. (2003): A városfejlődés természeti és társadalmi tényezői. ’The natural and social factors of the urban development.’ Napvilág Kiadó, 177 p. Kocsis J. B. (2010): A fővárosi agglomeráció átalakulása. ’The transformation of agglomeration in the capital.’ In: Csanádi G. – Csizmady A. – Kocsis J. B. – Kőszeghy L. – Tomay K. (szerk): Urban – Planning – Society (Város Tervező Társadalom.), Budapest: Sík Kiadó, 2010. pp. 229-324. Le Galés, P. – Therborn, G. (2009): Cities in Europe. From CityStates to State Cities, and into Union and Globalization. Working papers du Programme Villes & territoires, 2009/4, Paris, Sciences Po. http://blogs.sciences-po.fr/recherche-villes/files/2010/05/Le-GalesTherborn.pdf Nemes Nagy, J. (1995): A „gazdasági egészség” földrajzi képe Magyarországon. ’The ‘economic health’ geographic image of Hungary.’ „Földrajztanítás” ‘Geography teaching ‘3-4. sz., pp. 4-11.

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Szirmai V. (2004): Globalizáció és a nagyvárosi tér társadalmi szerkezete. ’Globalization and the social structure of urban areas.’ In: Szociológiai Szemle ‘Sociological Bulletin’ 2004/4. pp. 3-24. Szigeti, E. (2001): A közigazgatási térstruktúra regionalizálásának feltételei és alternatívái ’The conditions and alternatives of administrative regionalization’s spatial structure.’ In: Szigeti, E. (szerk.) (ed): Régió, közigazgatás, önkormányzat. ‘Region, administration, local governments.’ Hungarian Institute of Public Administration, pp. 119-143. Somlyódyné Pfeil, E. (2008): A városi térségek a közigazgatási struktúra és a „governance keresztmetszetében. ’The urban areas in

the cross section of the administrative structure and the governance.’ In: Tér és Társadalom ‘Space and Society’ 22. year 1. No. pp. 27-43. 4. RELATED PUBLICATIONS BY THE AUTHOR Váradi Zs (2007) Várostérségi konfliktusvizsgálat

sajtóelemzés alapján. ’Cityregional conflict analysis by press analysis.’ In: Hervainé Sz. Gy. – Szirmai V. (2007): Versenyképesség és Várostérségi Egyenlőtlenségek. Tanulmánykötet, II-III. Kodolányi János Főiskola – MTA Veszprémi Területi Bizottság – MTA Szociológiai Kutatóintézet. Székesfehérvár – Veszprém – Budapest. pp. 197-214. Csizmadia Z – Molnár B – Váradi Zs (2007) Társadalmi konfliktusok a magyarországi nagyvárosokban. ’Social conflicts in the big cities in Hungary.’ In: Hervainé Sz. Gy. – Szirmai V. (2007): Versenyképesség és Várostérségi Egyenlőtlenségek. Tanulmánykötet, II-III. Kodolányi János Főiskola – MTA Veszprémi Területi Bizottság – MTA Szociológiai Kutatóintézet. Székesfehérvár – Veszprém – Budapest. pp. 177-196.

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Váradi Zs (2007) A magyarországi nagyvárosi és környéki konfliktusok vizsgálata sajtóelemzés alapján. ’Anaysis of conflicts in Hungarian big cities and their surroundong by press analysis.’ In: Balogh, M. (szerk.): Diszciplínák határain innen és túl. Fiatal Kutatók Fóruma 2. MTA Társadalomtudományi Kutatóközpont, Budapest. pp. 2007. 373-397. Csizmadia Z – Molnár B – Váradi Zs (2009) A nagyvárostérségi elit társadalmi konfliktus-érzékenysége. ’The conflict preception of the urban elite groups.’ In: Szirmai V. (szerk): A várostérségi versenyképesség társadalmi tényezői Hogyan lehetnek a magyar nagyvárostérségek versenyképesebbek? Dialóg Campus Kiadó, Pécs – Budapest. pp. 129-140. Szirmai V – Váradi Zs (2009) A nagyvárostérségi társadalmak és a konfliktusok. ‘Urban societies and conflicts.’ In: Szirmai V. (szerk): A várostérségi versenyképesség társadalmi tényezői Hogyan lehetnek a magyar nagyvárostérségek versenyképesebbek? Dialóg Campus Kiadó, Pécs – Budapest. pp. 141-150. Szirmai V. – Váradi Zs (2010) Társadal mi konfliktusok. ’Social conflicts.’ In: Szirmai V. (szerk): Közép-Dunántúli régió. Dialóg-Campus Kiadó, PécsBudapest. pp. 366-377. Váradi Zs. (2011) Social conflicts and changing consumption patterns related to the suburbanization processes in Hungary. The struggle to belong. Dealing with diversity in 21st century urban settings. Annual RC21 Conference 2011, Conference Paper. http://www.rc21.org/conferences/amsterdam2011/prog-16.php

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Szirmai, V. – Váradi, Zs. – Kovács, Sz. – Schuchmann, J. – Baranyai, N. (2011): Urban Sprawl and its Spatial, Social Consequences in the Budapest Metropolitan Region. In: V. Szirmai (ed): Urban sprawl in Europe. Aula Kiadó, Budapest. pp. 141-186. Szirmai, V. – Váradi, Zs. – Kovács, Sz. – Schuchmann, J. – Baranyai, N. (2011): A nagyvárosi területfogyasztás térbeli társadalmi problémái: város és környék dichotómiák. ’Spatial and social problems of territorial consumption: urban and suburban dichotomies.’ In: Kerekes Sándor –Szirmai Viktória – Székely Mózes (szerk): A fenntartható fogyasztás környezeti dimenziói. Tanulmánykötet. Aula Kiadó, Budapest. pp. 125-166. SCIENTIFIC PRESENTATIONS Váradi Zs Várostérségi konfliktusvizsgálat sajtóelemzés alapján ‘Urbansuburban conflict by press analysis.’ Konferencia az MTA Társadalomtudományi Kutatóközpont szervezésében „Fiatal kutatók fóruma” címmel Budapest, 2006. május 4-5. Váradi Zs Magyarországi várostérségi konfliktusok jellemzői. ’Characteristics of urban areas’ conflicts in Hungary.’ Konferencia az MTA Veszprémi Területi Bizottság Gazdaság-, Jogés Társadalomtudományi Szakbizottsága, Komárom Város Önkormányzata és a Magyar Jogászegylet Komárom Esztergom Megyei Szervezete szervezésében Komárom, 2006. április 28.

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Váradi Zs Város és környéke közötti konfliktusok a magyarországi nagyvárosi térségekben. ’Conflicts between city and surrounding in

metropolitan areas in Hungary.’ „Régiók, kommunikáció, vidékfejlesztés” c. konferencia-nyári egyetemen, a Budapesti Műszaki és Gazdaságtudományi Egyetem Gazdaság- és Társadalomtudományi Kar Szociológia és Kommunikáció Tanszéke, az MTA Veszprémi Területi Bizottságának, a Pannon Egyetem Nagykanizsai Telephelye szervezésében Nagykanizsa, 2007. június 28-30. Váradi Zs A magyarországi nagyvárostérségek társadalmi konfliktusai: a város és környék ellentmondásai. ’Social conflicts of Hungarian metropolitan areas: contradictions of the city and surrounding.’ Projektzáró nemzetközi konferencia az MTA Szociológiai Kutatóintézetének szervezésében „Várostérségek, térbeli társadalmi egyenlőtlenségek és konfliktusok Az európai versenyképesség térségi társadalmi tényezői” címmel Budapest, MTA Székház, 2007. november 19. Váradi Zs. Város és környéke közötti konfliktusok. ’Conflicts in the urban

areas in Hungary.’ Kerekasztal beszélgetés az MTA RKK NYUTI Közép dunántúli Kutatócsoportja és Székesfehérvár Megyei Jogú Város Önkormányzata által szervezett „Székesfehérvár a XXI. század elején – Helyzetkép – A továbblépés pillérei. Várostérségek, térbeli társadalmi egyenlőtlenségek és konfliktusok – Az európai versenyképesség térségi társadalmi tényezői” című NKFP kutatás eredményeihez kapcsolódóan Hiemer-ház, Székesfehérvár, 2008. december 10.

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Váradi Zs Nagyváros és környéke konfliktusai Magyarországon. ‘Conflicts in

Hungary in the Hungarian metropolitan areas.’ IX. Geográfus Doktoranduszok Konferenciája. Szeged, 2009. március 12-13. Baráth G. – Váradi Zs. Generációk a nagyvárosi térben: együttélés és konfliktusok. ’Generations in the metropolitan areas: coexistence and

conflict.’ MTA Szociológiai Kutatóintézet, a Magyar Szociológiai Társaság és az ELTE Szociológia Tanszék által rendezett ’1989-2009. Magyar Generációk” című tudományos konferencián. Budapesti Francia Intézet, 2009. május 28. Váradi Zs Changing processes between the cities and their surroundings. With or without? Vetenskapsfestivalen 2010 Göteborg, 2010. április 23. Váradi Zs Changing Processes between the Cities and their surroundings suburbanization and conflicts. Regional Studies Association Annual Conference Pécs, 2010. május 24-26. Váradi Zs The sustainable or unsustainable territorial consumption, suburbanisation problems with the example of social conflicts. Consommations durables - mise en place d'un projet de recherche en sciences sociales. Seminar for the participant French and Hungarian researchers under the CNRS-MTA collaboration 15-16 June 2010 Budapest, Institute of Sociology of HAS.

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Váradi Zs Sustainable consumerism and human communication Human Dimension in Sustainable Development. Conference/Workshop. Budapest, October 13th Office of the Parliamentary Commissioner for Future Generations. Szirmai Viktória - Váradi Zsuzsanna Kompakt város-szétszórt város. A térfogyasztás társadalmi fenntarthatósági konfliktusai a budapesti városrégióban. ’Compact city – dispersed city. The social conflicts of the sustainable territorial consumption in Budapest region.’ A budapesti városrégió társadalomföldrajzi kihívásai”. Budapest a földrajztudósok szemével. Magyar Tudomány Ünnepe kiemelt rendezvény. MTA Székház, Budapest, 2010. november 8. Váradi Zs. Urban Sprawl and its Spatial, Social Consequences in the Budapest Metropolitan Region. (presentation of the study by V. Szirmai – Zs. Váradi – Sz, Kovács – N. Baranyai – J. Schuchmann) Urban Sprawl in Europe - International conference and book publishing ceremony. Centre for Social Studies at the Hungarian Academy of Sciences, Budapest, 18th November 2011.

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ZSUZSANNA VÁRADI THE RELATIONSHIP BETWEEN BUDAPEST AND ITS AGGLOMERATION DETERMINING FACTORS AND REGIONAL CONFLICTS

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