Significance of self-government units’ cooperation in creating cross-border tourism product (on the example of Zachodniopomorskie voivodeship and Meclenburg vorpommern)

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SIGNIFICANCE OF SELF-GOVERNMENT UNITS' COOPERATION IN CREATING CROSS-BORDER TOURISM PRODUCT (ON THE EXAMPLE OF ZACHODNIOPOMORSKIE VOIVODESHIP AND MECLENBURG VORPOMMERN)

Zachodniopomorskie voivodeship is located in the north - western part of Poland. In the west it borders directly with the German regions of Brandenburg and Mecklenburg -Vorpommern. These areas have a lot of similarities, apart from a similar area (23 thousand km2) and population (1,7 million), these regions have very similar conditions for tourism. This is mainly due to the location next to the Baltic Sea, a rich and diverse water network, land topography, which is the result of glaciation in this part of Europe, and the occurrence of anthropogenic attractive qualities that allow participation in all forms of tourism. These conditions predispose both areas to develop cross-border tourism product. However, creation of such a product is only possible with the cooperation and involvement of many entities on both sides of the border, including local authorities.

This article aims to analyze and evaluate the cooperation of Zachodniopomorskie voivodeship with partner municipalities from the area of Mecklenburg - Vorpommern in creating cross-border tourism product. The basis for discussion were the results of a survey conducted among employees of municipal offices in Zachodniopomorskie voivodeship who are in charge of international cooperation in the municipality.

1. Cross-border tourism product and its creators

The concept of a tourism product has been analyzed in literature of the subject matter by many authors. This is due to the complexity and diversity of the tourism product, as well as a wide perspective on its nature. The tourism product can be considered from different perspectives that emphasize:

- service nature of the product, which is a collection of material objects and services;

- importance of tourist attractions which are a dominant destination;

- different perception of the product by tourists that causes satisfaction or dissatisfaction of its consumption;

- spatial nature due to the specific location of the product.

However, the issue of cross-border tourism product is not sufficiently described in publications and scientific texts. The starting point for the analysis of the product's essence is to define tourism product of the region. According to E. Dziedzic the tourism product of the region is the whole that consists of tangible and intangible elements that underpin perception and expectations that exist in a tourist's mind with respect to a stay in a given place [1]. However, J. Kaczmarek, A. Stasiak, B. Wlodarczyk define tourism product of the region as an «internally complex set of elements distinguished by their specific location in space, characterized by tourist attractions» [6]. Thus, the cross-border tourism product can be defined as the tourism product of the cross-border region. According to this definition, it is considered that the cross-border tourism product is formed on the basis of the tourism product (or individual elements forming it), of at least two territorial units of neighboring countries.

Tourism products are in a simple form (thing, service) or a complex one (trail, party, region). In the case of cross-border tourism product it takes the complex form. Crossborder tourism product requires correlating many simple products present on the area of at least two countries.

Cross-border tourism product is primarily formed by attractions of the natural environment, as well as cultural and social attractions, tourist facilities and hotel, catering, transport and other services offered in at least two countries. The cross-border product should not be confused with tourist potential of the cross-border region as a distinctive feature of the product is to surrender the elements of a common concept, which aims to meet the specific needs of tourists. As noted by T. Studzieniecki, cross-border regions of tourist reception often have the potential, rarely the product [11].

Cross-border tourism product aimed at a tourist who wants to relax should be based primarily on the qualities of the natural environment (beach, sea, lake, etc.), tourist infrastructure to enable leisure and tourist attractions which tourists could optionally use to make their stay more attractive. Such a product may also include forms of adventure tourism, especially cycling, hiking, canoeing. It should then consist of walking or cycling routes running through the area of at least two countries, along with tourism infrastructure (accommodation facilities, catering) occurring along the route, with supporting infrastructure (bike rentals, repairing bike sites, bus shelters, bus stops, parking lots) and with additional attractions which tourists will be able to use while consuming this product (e. g. participation in cultural - entertainment event).

Cross-border product may be also based on a common cultural offer of the crossborder region (theater performances, festivals, painting exhibitions) or it may concern services relating to the history of both regions. The components of this product should be easily identifiable and should refer to the architecture and culture of these regions. The components may include various taverns and restaurants decorated in a regional style, offering local, traditional food, promoting art of folk artists.

Cross-border tourism product is therefore a specific product of the region, which is characterized by the following assumptions:

- it is made by a part of the tourist potential of the cross-border region combined in one unit, subject to the common name, idea, promotion;

- management of the product is the responsibility of tour operators located on both sides of the border in the cross-border region;

- the product is consumed by tourists from both neighboring countries and other domestic and foreign tourists;

- the creation of cross-border tourism product stimulates the development of services related to its consumption;

- funds for the creation of such a product in the majority come from the EU assistance programmes, but the maintenance of the product's results should be ensured by entities forming it and by the local authorities.

Cross-border tourism product is always created in cooperation of tour operators with involvement of local self-government units of the neighboring countries. In its creation participate regional and local tourism organizations, tourism businesses, institutions interested in the development of tourism in the cross-border area. However, for the creation of cross-border tourism product local self-governments' cooperation is very important with the apparent approval of the local community.

2. Partnership of local self-government units as form of cross-border cooperation

The term «cross-border cooperation» means taking advantage by participating regions thanks to overcoming mutual animosity, cultural barriers, social and economic differences, and through efficient and effective solutions of common problems of a different nature. Regulations concerning the conduct of cross-border cooperation are included not only in domestic law (Article 172 of the Polish Constitution and section 6 of the Act on Regional Government) [9], but also in many EU documents ratified by Poland, i.e. the European Outline Convention on Transfrontier Co-operation between Territorial Communities or Authorities i.e. the Madrid Convention of the Council of Europe adopted on 21 May 1980 and the European Charter of Border and Cross-Border Regions for the first time adopted on 20 November 1981 and amended on 1 December 1995 [8].

The Madrid Convention defines cross-border cooperation as «any commonly taken action designed to reinforce and develop neighborly relations between territorial communities or authorities of two or more parties, as well as making agreements and approving arrangements necessary for the implementation of such plans» [3]. The main objectives of cross-border cooperation, mentioned by the European Charter of Border and Cross-Border Regions are [2]: a new quality of borders, harmonization of spatial planning in Europe, improving infrastructure, promoting attractiveness of the regions and common economic development, improving cross-border environmental and nature protection, supporting cross-border cultural cooperation, partnership and subsidiarity.

Among the direct determinants of cross-border cooperation at the regional and local level great significance belongs to the reform of public administration and to the introduction of an administrative - territorial division comparable to the structures observed in the EU countries. The establishment of local self-government at the municipal [15], poviat [13] and regional (voivodeship) [14] levels assimilated Polish solutions to the Western European model and provided the possibility for cooperation with local and regional communities from other countries (including formal cooperation with foreign partners and joining international associations of territorial units) [12].

One of the forms of cross-border cooperation is cooperation of municipalities and the so-called twin cities, i.e. twinning. In Europe there are over 17,000 partnerships, but the final number is difficult to estimate due to the fact that some local governments have more than one partner [16]. Partnership agreements are concluded between municipalities directly adjacent to each other or completely distant from each other and have a very different nature - from spontaneous cultural contacts to close cooperation in a manner that is organized and based on the expertise [5].

There are two types of partner cooperation of cities and municipalities [7]:

- traditional twinning - based on the opinion that mutual contacts are important, hence the areas of cooperation often revolve around sports, culture, student exchange. The most active participants of mutual meetings are young people, the least prejudiced, not being direct witnesses of nations' hostility, growing up during the construction of united Europe and around the idea of partnership,

- modern twinning - develops economic cooperation through giving tax preferences to encourage partners to invest in the partner's local market. Also important is the exchange of experience in local governance. During mutual visits partners watch architectural and municipal solutions and transfer them on their own ground. As a result of cooperation the other city's officials are frequently invited to the partner city for an internship or training.

Twinning of municipalities and cities can be carried out between the municipal offices. It is then based on mutual visits of local authorities' representatives, as well as on the exchange of administrative staff. The duty of local authorities is to maintain contact with the partner. Furthermore, the municipality should provide unrestricted access to information about the functioning of self-government in the friendly municipality, should organize training and study trips and provide information and assistance to public and private institutions that wish to make direct contact with their counterparts from abroad.

The way to the partnership agreement consists of several stages, which include but are not limited to [10]: personal and institutional contacts, expression of the will to work together, description of the partnership's scope, formal meetings, signing the agreement.

The subject of cross-border cooperation of partner municipalities is virtually all areas of socio - economic and political life, and the cooperation is carried out in the field of [4]:

- technical infrastructure, development of border crossings, of communication systems, of municipal infrastructure,

- regional and local economy, such as the association of foreign traders, the exchange of goods and raw materials, the provision of services, the creation of industrial - commercial chambers, business activity in the areas of information and consulting, training, promotion of the region and companies,

- social sphere including the development of local and regional democracy, cultural, sports, education, scientific and tourist exchange;

- environmental protection, cross-border protected areas;

- spatial and urban planning, creating uniform concepts of cross-border areas' spatial development.

Cross-border cooperation of cities and municipalities also provides a flow of experiences between regions from different countries, thereby supporting efforts to improve the quality of self- government institutions' functioning, facilitating development of tourism, ensuring coordination of infrastructure development on both sides of the border and being a tool for promotion.

3. Activities of local self-government that support development of cross-border tourism product in Zachodniopomorskie voivodeship and Mecklenburg-Vorpommern

In order to diagnose forms of cooperation between local self-governments and foreign partners in the development of cross-border tourism product, a survey was conducted in municipalities of Zachodniopomorskie voivodeship. Websites of all municipalities in this voivodeship have been analyzed (114 municipalities). On the basis of the information contained in the websites 51 municipalities have been selected that have a partner municipality in the area of Mecklenburg - Vorpommern. The structure of selected municipalities are made up of two cities with poviat's rights (Szczecin, Swinoujscie) as well as 16 rural municipalities, 28 urban-rural municipalities and 5 urban municipalities. Cooperation with partner municipalities from Mecklenburg - Vorpommern is formalized and implemented on the basis of cooperation agreements or letters of intent.

In Zachodniopomorskie voivodeship's municipalities that have a partner from Mecklenburg - Vorpommern (51 municipalities) a telephone interview was conducted with an employee of the municipal office in charge of international cooperation in order to obtain information about the nature of cross-border cooperation in the field of tourism in 2007-2013.

During the interview it has been diagnosed that only 10 municipalities take any tourism actions together with a partner municipality from Mecklenburg - Vorpommern, which represents 20 % of the units surveyed. The remaining 41 municipalities, in cooperation with a partner, realize soft projects mainly in the following areas: partnership municipality project

- youth exchanges (such as summer camps for school youth - Bobolice municipality and Demmin, student exchange - Przelewice municipality and Woldegk);

- cultural events (such as theater workshops - Stepnica municipality and Monkebude, European Music Days - Tychowo municipality and Burg Stargard, an exhibition presenting Pyrzyce municipality, knowledge contest about Bad Sulze - Pyrzyce municipality and Bad Sulze, Cross-border Market of Many Cultures - Slawno municipality and Ribnitz - Darmgarten);

- sporting events (e.g. Polish - German Football Tournament for Ex-footballers - Bobolice municipality and Demmin, International Football Tournament of partner municipalities from Germany, Czech Republic and Poland - Borne Sulinowo municipality and Anklam Land Office, fishing competition for the Mayor's Cup and International Bike Rally - Dobra Szczecinska municipality and Liepgarten and Blankensee municipalities, Euroregional Fishing Meetings - Kalisz Pomorski municipality and Torgelow);

- harvest festivals and local holidays (participation of representatives from partner municipalities at local events such as Insko Days, Tychowo Days, Polanowo Days, Krzecin Days, Stargard Szczecinski Days, Gustrow Days, Harvest Festival in Gryfice, Insko Summer Film Festival, Walruses Meeting in Mielno, German Days of Mills in Woldegk, Przelewice Farm Days);

- meetings of residents and local environmental groups (e.g. joint meetings of residents of Dobrzany municipality and Warrenzin, hunting club meetings and teacher club meetings - Borne Sulinowo municipality and Anklam Land Office, meetings that concern writing EU applications - Bialogard municipality and Rowa, meetings of Housewives from Krzecin municipality and Franzburg, collaboration of Seniors' clubs from Kolobrzeg and Ferdinadshof);

- cooperation of Volunteer Fire Brigade (for example, the organization of firefighter joint demonstrations on the Fireman's Day in Insko municipality and Hohenzieritz, multiday training courses with participation of fire youth teams - Pyrzyce municipality and Bad Stilze);

- study tours of administrative staff.

The main reason for the lack of cooperation in tourism between the municipalities of Zachodniopomorskie voivodeship and Mecklenburg - Vorpommern is German lack of interest in cooperation (11 responses) and no opportunities for such cooperation (9 responses, figure 1). Employees of municipal offices emphasized that the German partner on one hand would take cooperation, on the other hand does not want to engage with regard to time and money.

Respondents drew attention to the problem of different priorities and vision of partners' development on both sides of the border. This mostly applies to partnership of municipalities that has different utility nature. An example of this can be partnership between rural municipality of Darlowo with Karlsburg municipality. Cooperation in tourism (and cooperation in other areas) is inactive because of the diverse landscape of partners' development. Darlowo municipality is a seaside municipality, aimed at the development of tourism and Karlsburg municipality is a typically agricultural municipality and it is difficult to find common tourism ties. Noteworthy is also the problem of lack of funds. Implementation of a joint tourism project requires financial commitment of both partners and the budgets of small municipalities are not big and do not take into consideration this type of expenditure. In the case of four municipalities formalized cooperation is too short and therefore does not yet concern the area of tourism. Three respondents also indicated that in the municipal office there is no employee who would be competent to deal with cross-border cooperation with a partner municipality and to monitor it. Kolbaskowo municipality does not cooperate at all with the unit from Mecklenburg since it is focused mainly on cooperation with partners from neighboring Brandenburg.

Table 1