Inner peripherality: the case of European areas of poor access to SGIs and their socio-economic challenges

Gergely Tagai

Mar Ortega Reig

Carsten Schürmann

Core-periphery relations and theories of peripheralisation are often used to explain spatial patterns of socio-economic inequalities. However, the role of distance as a limiting geographical factor in social and economic life is being reassessed. Today's information and communication technologies mitigate the impact of distance, placing the role of geography into a different perspective. The concept of proximity is undergoing a transformation, with a shift from physical proximity to legal or institutional proximity, emphasising the role of social, economic, and political links.

The necessity for research on inner peripheries (IPs) has arisen from the fact that, although this phenomenon is well-known in regional development discourse and spatial planning in many countries, there was a lack of experience at EU level to help understand the situation of inner peripheries and plan solutions to the related social problems. In contrast to traditional peripheries in a geographical sense, where peripheries are defined in terms of distance from centres of economic activity, the term 'inner periphery' refers to areas that, although not necessarily physically located at a significant distance from centres, are in a particular shadow situation due to their inadequate embeddedness in (global) economic systems, their weak networks and power relations, poor access to services of general interest (SGIs) and other local characteristics.

PROFECY has developed four different inner periphery delineations, which, although with partly overlapping content (and spatial distribution), capture different aspects of the creation and persistence of inner peripheries

The two ESPON PROFECY research projects (2016-17, PROFECY data and maps update in 2021-22) proposed a multidimensional interpretation of the problem of Europe's inner peripheries, reflecting the territorial handicaps mentioned above. Based on theoretical considerations, this approach has developed four different inner periphery delineations, which, although with partly overlapping content (and spatial distribution), capture different aspects of the creation and persistence of inner peripheries: 1) Higher travel time to regional centres; 2) Economic potential interstitial areas; 3) Areas of poor access to SGIs; 4) Depleting areas.

Inner peripherality is not a constant phenomenon, especially if it is related to areas of poor access to SGIs and is in a constant state of flux.

Delineations of inner peripheries

The ESPON PROFECY research also sought to gain deeper insight into the European context through case studies in seven countries. These studies provide a thorough understanding of the drivers of peripheralisation, existing processes at the local level, and possible responses to the social challenges of inner peripheries related to areas of poor SGI access or other types of peripherality. At the national and EU levels, the primary objective is to guarantee that inner peripheries receive adequate policy attention, and that (proposed) integrated development schemes are made available to provide suitable intervention options to mitigate the disadvantages associated with inner peripheries.

Challenges of IPs have been acknowledged to some extent in EU policies, such as the European Green Deal, with its Sustainable Europe Investment Plan and the Just Transition Mechanism, the Territorial Agenda 2030, and Cohesion Policy. At the local and regional levels, the focus is on identification and strategic planning of challenges related to the inner peripheries, as well as the development of local capacities and linkages.

Inner peripherality is not a constant phenomenon, especially if it is related to areas of poor access to SGIs and is in a constant state of flux. These dynamics were analysed during the ESPON PROFECY data and maps update. Shifts in accessibility appear both from changes in service provision and in transport infrastructure, even in relatively short periods of time. Residents in rural areas perceive deterioration in the accessibility of centres and services of general interest very quickly and precisely. This negative perception is reinforced by the fact that core areas of IPs remain relatively stable over time.

European areas with poor access to SGIs may not only overlap other delineated types of inner peripheries but may also coincide with other types of areas of EU policy relevance. In particular, there is a large overlap between inner peripheries and rural areas, mountain areas, and border areas, but a large number of inner peripheries also coincide with areas considered as lagging behind at the EU or even national level(s). Although peripheral status does not automatically imply a disadvantaged socio-economic position, persistent depopulation, age acceleration, lower access to services, and reduced economic performance are challenges often associated with the inner peripherality.

Drivers, impacts and intervent ion logic in areas of poor access to SGIs

The ongoing research project ESPON DESIRE (2024-25) not only extends the service types for which inner peripheries are delineated, but it is also analysing the relationship between IPs and lagging regions and areas with special needs (mountain, island, coastal, sparsely populated). This analysis aims to assess the current landscape of essential services in such regions and to gather and analyse examples of sustainable solutions in service delivery (ICTs, social innovation or alternative governance solutions in service provision) that can serve as transferable learning points for ESPON Member States. DESIRE also focuses on the affected population - how many residents actually have poor accessibility to services of general interest?

Gergely Tagai, research fellow, HUN-REN CERS Mar Ortega Reig, professor, Valencia Polytechnic University Carsten Schürmann, managing director, TCP International