ZN WSH Zarządzanie 2018 (2), s. 181-198 Oryginalny artykuł naukowy Original Article Data wpływu/Received:28.02.2018 Data recenzji/Accepted: 6.04.2018/7.04.2018 Data publikacji/Published: 30.06.2018 Źródła finansowania publikacji: środki WSH DOI: 10.5604/01.3001.0012.2047 Authors’ Contribution: (A) Study Design (projekt badania) (B) Data Collection (zbieranie danych) (C) Statistical Analysis (analiza statystyczna) (D) Data Interpretation (interpretacja danych) (E) Manuscript Preparation (redagowanie opracowania) (F) Literature Search (badania literaturowe) dr Joanna Podgórska-Rykała B C D Humanitas University CHANGE OR CONTINUATION? LONG – TERM CITY MANAGEMENT ON THE EXAMPLE OF LOCAL DEVELOPMENT STRATEGY OF KATOWICE ZMIANA CZY KONTYNUACJA? ZARZĄDZANIE MIASTEM W PERSPEKTYWIE DŁUGOFALOWEJ NA PRZYKŁADZIE STRATEGII ROZWOJU LOKALNEGO KATOWIC 182 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie Abstract: The aim of this article is to look at strategic management of a large city from the two different perspectives: theoretical and empirical. In the first part the author focused on theoretical fundaments of management, particularly of the public strategic management. The second part presented the characteristics of the process of strategic management based on empirical data: two strategic documents adopted in Katowice over the last number of years were analysed. One of these documents is a currently binding one and the other is of an archival character. Referring to both the systematics and the means of preparation of these documents, as well as to their content, the author showed their common elements and the transformation which have occurred over the last number of years concerning the manner and approach to strategic management in the city. Based on documents analysis, the author answered the question asked in the introduction, which is whether in relation to the long-term policy of Katowice can one talk about change or continuation. Keywords: strategic management, city, Katowice, public management Streszczenie: Celem artykułu jest spojrzenie na zarządzanie strategiczne dużym miastem z dwóch perspektyw: teoretycznej i empirycznej. W pierwszej część autorka skoncentrowała się na fundamentach teoretycznych zarządzania, szczególnie publicznego zarządzania strategicznego. W drugiej części przedstawiła charakterystykę procesu zarządzania strategicznego w ujęciu empirycznym: analizie poddała dwa dokumenty strategiczne uchwalone w Katowicach w przeciągu ostatnich kilkunastu lat. Jeden z nich jest dokumentem obecnie obowiązującym, a drugi archiwalnym. Są to: Katowice 2020 Strategia Rozwoju Miasta, będąca załącznikiem do uchwały nr LII/1068/05 Rady Miasta Katowice z dnia 19 grudnia 2005 r., oraz drugi, nowszy: Strategia Rozwoju Miasta. Katowice 2030, wprowadzona uchwałą XIX/365/15 Rady Miasta Katowice z dnia 17 grudnia 2015 r. Odnosząc się zarówno do systematyki dokumentów, sposobu ich przygotowania i wdrażania, a także zawartości merytorycznej, autorka ukazała elementy wspólne, jak i zmianę, jaka zaszła w ciągu ostatnich kilkunastu lat w sposobie i podejściu do zarządzania strategicznego. Na podstawie przeprowadzonej analizy dokumentów autorka odpowiedziała w tekście na pytanie, czy w odniesieniu do polityki długofalowej Katowic można mówić o zmianie czy o kontynuacji. Słowa kluczowe: zarządzanie strategiczne, Katowice, samorząd terytorialny, strategia rozwoju lokalnego Introduction The aim of this article is to look at the strategic management of a large city from two different perspectives: theoretical and empirical. In the first part of the article, the author focuses on theoretical fundaments of management, particularly on public strategic management: its essence, goals, rules, tools, subjects and legal regulations. The second part presents the characteristics of the process of strategic management based on the empirical approach: two strategic documents enacted in Katowice over the last number of years have been analysed. One of these documents is a currently binding document and the other one is of an archival character, preceding the first one. These are Katowice Change or continuation? Long - term city management on the example of local... 183 2020 Strategy for City Development (Katowice 2020 Strategia Rozwoju Miasta) being an annex to Resolution no. LII/1068/05 of the Katowice City Council of 19 December 2005 and the newer one: Strategy for City Development. Katowice 2030 (Strategia Rozwoju Miasta. Katowice 2030) which came into force by Resolution number XIX/365/15 of the Katowice City of 17 December 2015. To refer to the scheme of documents as well as to the manner in which these are prepared and implemented and to their content, the author presented their common elements as well as any change in the last number of years and the means and approach to the strategic management. Based on the conducted analysis the answer will attempt to answer the following question: In the view of a long-term policy of the city of Katowice, can we talk about change or continuation? 1. Starting point for the long term development management – planning Management process, irrespective of the type of an organisation and its goals, can be characterised by distinguishing four basic types of an activity, such as planning, organising, leading and controlling1. In the context of deliberations on strategic management, it seems that planning is the most important stage, which precedes all the other stages and constitutes a particular fundament for further actions. This includes a number of significant elements such as exploring opportunities and threats within an organisation and its environment in a multi-annual perspective; application of methods of analysis and planning; agreement and attempting to necessary modifications; skilful risk-taking and accepting the uncertainty of realised actions; constant application of new methods of management and acceptance of the functioning in a multi-cultural2. B. Kożuch also points out to another significant feature of the planning stage, which is a swift reaction to political processes arising from an increasing complexity of external environment3. The last element will be extremely important, when we refer to cities as to strategic planning units. For example, the length of terms of office of the local authorities is one of the basic barriers and as a result, challenges in this context. However, the planning stage is regarded only as one of the elements of management, which shall lead not only to defining, but also to achieving defined goals in reality. Management itself is a broader ‘process of guiding the activity of an enterprise to achieving its goals in an efficient and effective way’4. S.P. Robbins, D.A. DeCenzo, Podstawy zarządzania, Polskie Wydawnictwo Ekonomiczne, Warszawa 2002, p. 32; R.W. Griffin, Podstawy zarządzania organizacjami, Wydawnictwo Naukowe PWN, Warszawa 1998, p. 36. 2 G. Gierszewska, Sztuka skutecznego zarządzania, Oficyna Ekonomiczna, Kraków 2006, p. 138. 3 B. Kożuch, Zarządzanie publiczne w teorii i praktyce polskich organizacji, Wydawnictwo PLACET, Warszawa 2004, p. 186. 4 W. Wytrążek, Podstawowe pojęcia teorii organizacji i zarządzania w instytucjach publicznych, [in:] S. Wrzosek (ed.), Kompendnium wiedzy administratywisty, Katolicki Uniwersytet Lubelski, Lublin 2008, p. 317. 1 184 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie The prime basis for strategic management is to elaborate long-term development directions, which will enable them to take advantages of an existing opportunities5, as well as comprehensive approach to defined problems covering systematic analysis of different socio-economic spheres of life of certain area6. It cannot be denied that the socio-economic growth is the broadest concept covering general tend estimation of a certain country, region or the smallest unit of local government – a city. 2. The importance, goals and rules of strategic management An effective management of an organisation requires nowadays strategic management that is a result – oriented management, based on a long-term strategy.7 However, shaping the strategy cannot be an autotellic goal; despite it can be perceived as such, because of several practical examples of many organisations’ activity. Sometimes financial means are a stable motivation for creating a strategy of development, as one can apply for them only after developing such a document. However, more and more units are aware that the aim of strategic management is to use it in the process of taking up actual decisions, because only then management of a certain unit will be effective and oriented to changes8. When defining strategic management it is important to point out that, it is ‘the set of decisions and actions in formulation and implementation of strategies designed to achieve the objectives of an organization’9. Every goal should comply with the characteristics, which of first letter constitute the ‘SMART’ acronym10. There are many different developments for this acronym, for example such as: S – simple, specific; M – measurable; A – achievable, ambitious, attainable, acceptable, accurate, assignable; R – relevant, realistic; T – time-related, trackable11. 5 A. Potoczek, Zarządzanie w systemie samorządu terytorialnego, [in:] J. Adamiak, W. Kosiedowski, A. Potoczek, B. Słowińska (eds.), Zarządzanie rozwojem regionalnym i lokalnym. Problemy teorii i praktyki, Wydawnictwo Dom Organizatora TNOiK, Toruń 2001, p. 147-148. 6 M. Ziółkowski, Zarządzanie strategiczne w polskim samorządzie terytorialnym, [in:] A. Zalewski (ed.), Nowe zarządzanie publiczne w polskim samorządzie terytorialnym, Szkoła Główna Handlowa, Warszawa 2005, p. 103. 7 S.P. Osborne, The New Public Governance, „Public Management Review” 2006, 8, p. 378. 8 B. Kożuch, Publiczne zarządzanie strategiczne. Zasady i metody, [in:] B. Kożuch, C. Kochalski (ed.), Strategiczne zarządzanie miastem w teorii i praktyce Urzędu Miasta Poznania, Instytut Spraw Publicznych UJ, Kraków 2011, p. 7. 9 J.A. Pearce, R.B. Robinson, Formulation, Implementation and Control of a Competitive Strategy, ed. 10, McGraw-Hill/ Irwin, New York 2007, p. 3. 10 G.T. Doran, There’s a S.M.A.R.T. way to write management’s goals and objectives, “Management Review” 1981, t. 70 (11), p. 35-36. 11 J. Wiśniewska, Podstawy zarządzania projektami, [in:] K. Janasz, J. Wiśniewska (eds.), Zarządzanie projektami w organizacji, Difin, Warszawa 2014, p. 53; R.K. Wysocki, Efektywne zarządzanie projektami. Tradycyjne, zwinne, ekstremalne, ONE PRESS Grupa Helion, Gliwice 2013, p. 106; M. Dadel, Jak stworzyć dobry projekt?, Stowarzyszenie Klon/Jawor, Warszawa 2007, p. 11. Change or continuation? Long - term city management on the example of local... 185 Richard Jones summarises the essence of defining real objectives of an enterprise: ‘if you don’t know where you are going, you are probably getting there’. The author compared acting without a clear objective to driving a car blindfold, saying that ‘you may even get to the right place; however this will be paid with lots of pain and many victims’12. ‘Planning is a design of desirable future and invent ways of bringing it about’13 – stated Russell L. Ackoff. A strategy can be understood as a comprehensive plan of actions for achieving specific objectives14. This is an organised process of which particular stages can be distinguished and characterised, and however they constitute separate elements; they overlap and mix with each other, forming a whole. These can be diagnosis, planning, implementation, monitoring and evaluation. Full implementation of the above strategic cycle allows fact based or evidence based policies making. This means taking up all the decisions (at strategic as well as at operational level) based on foresight analysis, diagnosis or research and not only on current needs or assumptions or convictions of a small group of decision – makers. So-called diagnosis is a starting point for designing every strategy. It is hard to imagine a good strategy without a fundament, which is knowledge of the current situation of particular unit. This is where ‘facts’ and real problems and needs of particular local society result from. When strategic planning is not based on facts and evidence, many different problems, such as lack of continuity and adequate coordination of activities, choosing inadequate solutions and lack of comprehensive analysis of social phenomena, may occur15. It is an important condition necessary to ensure that a high level of efficiency of public intervention is obtained. Strategic management covers various actions, among which the most important are: diagnosis of the status and detailed definition of the expected results and then choice of path of action, which is the strategy (pointing out to the possible options and choice of the best possible variants), implementation of selected solutions and finally, their monitoring and evaluation16. Development of a development strategy requires cooperation between many people and different subjects (including formal institutions and organisations and informal groups of interest) in order to make it the most effective and to make its implementation to bring the expected results in future. Imposing solutions will never be effective in the long term. Not only officers participate in preparation of such documents for cities. These are also industry experts, residents and their orR. Jones, Zarządzanie projektami. Sztuka przetrwania, MT Biznes, Warszawa 2007, p. 77, 79. R.L. Ackoff, Zasady planowania w korporacjach, Państwowe Wydawnictwo Ekonomiczne, Warszawa 1993, p. 35. 14 R.W. Griffin, Podstawy zarzadzania organizacjami, Wydawnictwo Naukowe PWN, Warszawa 2013, p. 245. 15 http://siteresources.worldbank.org/EXTSOCIALDEVELOPMENT/Resources/244362-1350667212030/ Opening-Session-Malgorzata-Sarzalska-Polish.pdf [access: 15.11.2017]. 16 Z. Pierścionek, Strategie rozwoju firmy, Wydawnictwo Naukowe PWN, Warszawa 1997, p. 82-85. 12 13 186 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie ganisations. Considering this criterion, the following approaches to formulation of development strategy can be distinguished: expert, social, participatory and participatory-expert. Today’s most common approach is the last one17, where authorities of particular units plan and coordinate the process, by integrating experts or residents at particular stages, taking care of the dialogue and mutual understanding. Strategy, which has been developed in such a way, gives a guarantee of finding good, socially accepted and possible to implement solutions. However, the development of such a document itself will not cause the expected changes to happen. Implementation is equally important. The most frequent problems related to implementation are: insufficiently and unclearly defined objective, improperly performed process of informing residents about the strategy and as a consequence, unwillingness to implement the strategy by addressee, failure to identify with the strategy by a number of people and institutions, which have not been invited to its preparation, political changes related to the length of terms office of authorities, ‘a trend’ for strategies or lack of performance measures, which would allow to assess the degree in which the objectives were attained18. 3. Strategic management at local level Local government after 1989 became an important element of organisational structure of a state, which is responsible for the exercise of public authority in the field, i.e. realisation of an important part of public tasks for their own responsibility and in the interest of their residents. Therefore, they became an important subject in the process of creation and implementation of development policy and trade public policies. M. Adamowicz thinks that local authorities have a chance to become an effective subject of strategic management and conduct local development policy19. Moreover, ‘public policy which is not consulted with government meets an obstacle, which is its inefficient implementation’20. This is because as expressed by M. Jęczarek, public administration is an interlinking system, where ‘two key elements interact – government administration and self – government administration’21. Many public tasks, especially planning and implementation of the long-term development policy must be realised by several subjects at the same time and their A. Musioł-Urbańczyk, B. Sorychta-Wojsczyk, Przesłanki aktualizacji i bariery implementacji strategii w miastach na prawach powiatu w Polsce, „Zarządzanie Publiczne” 2017, 3(39), p. 266. 18 Ibidem, p. 269. 19 M. Adamowicz, Nowe tendencje w zarządzaniu rozwojem lokalnym, [in:] M. Adamowicz (ed.), Rola samorządu w zarządzaniu rozwojem lokalnym i regionalnym, Wydawnictwo PWSZ w Białej Podlaskiej, Biała Podlaska 2006, p. 22. 20 D. Długosz, Konieczna kohabitacja? Polski samorząd terytorialny w mechanizmie polityki publicznej, „Analizy i Opinie” 2007, nr 69, p. 2. 21 M. Jęczarek, Jednostki samorządu terytorialnego – podmioty wewnętrzne czy zewnętrzne polityk publicznych?, „Polityka i Społeczeństwo” 2016, nr 3 (14), p. 56. 17 Change or continuation? Long - term city management on the example of local... 187 actions should be both complementary and consistent. They should also be based on a subsidiary principle, a good will and cooperation. Only then, the performance of these tasks will be effective both financially and in terms of the content. Every self-government strategy is an obligatory element of a broader development policy and must remain coherent with it. Polish legislation provides the following definition of development policy: ‘a set of interrelated actions which are undertaken and realised in order to ensure a balanced and sustainable development of a country, social, economic, regional and spatial cohesion, boosting the competitiveness of the economy and to create new employment at national, regional or local level’22. ‘The term ‘development’ in the context of public policies means an irretrievable and established change. The development is always of an evolutionary nature, it can be affected and described, however it will never be properly controlled’23. That Act on the principles of the development policy specifies in its article 3 a catalogue of subject that should be responsible for conducting such a policy. These are Council of Ministers, province government units, and metropolitan unions, communal and district self – governments. The legislator also mentions in article 4 that the development policy should be conducted based on the strategy of development, programmes and programming documents. In spite of the fact that the need for improvement of strategic management at local level is indisputable and more and more highlighted, in the light of research undertaken and in experts’ opinions, strategic documents rarely comply with the requirements of the efficient, effective and prospective management24. These are more often programmes written by officers or politicians for themselves, only to comply with the formalities when applying for external funds or subordinated to short-term marketing goals of particular unit or ‘election goals’ of its authorities. Despite there is no statutory obligation to elaborate strategy and despite there are many problems related to this process, many units make an effort to prepare it, as they see it as a tool which could enable concentration of actions and resources around chosen developmental priorities25. The further part of this article presents an analysis of two strategies adopted in Katowice over the past dozen of years. The first strategy was adopted in 2005 and covered the period until 2020; however, in 2015 the authorities decided to change it. The new strategy is oriented to development until 2030. An update of a strategic document (correction or a brand new document) may be applied when the ‘old’ document is still valid and should be related with important changes in an enviArtykuł 2 ustawy z dnia 6 grudnia 2006 r. o zasadach prowadzenia polityki rozwoju, Dz.U. nr 227, poz. 1658, ze zm. 23 J. Hausner, Zarządzanie publiczne, Scholar, Warszawa 2008, p. 391. 24 Zarządzanie strategiczne w samorządzie lokalnym. Wnioski i rekomendacje płynące z debaty eksperckiej zorganizowanej przez Fundację Rozwoju Demokracji Lokalnej, http://www.frdl.org.pl/pliki/ frdl/zarzadzanie%20strategiczne/Raport_z_debaty.pdf [access: 13.20.2017]. 25 A. Musioł-Urbańczyk, B. Sorychta-Wojsczyk, Przesłanki aktualizacji…, p. 264. 22 188 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie ronment or inside the unit, which have an important influence on possibilities and measures for meeting objectives. Moreover, a reason for such actualisation may lay in the fact that most of the objectives included in the old strategy have already been met or, on the contrary, some of the objectives are no longer needed to be attained. In practice, the motivation to change strategies is most often ‘crisis events and situations, legislative changes, organisational changes in office, economic and social changes’26. What was the reason for change in Katowice? The author will attempt answering this question in the further part of this article. The two strategies at first sight differ significantly. Mostly officers and chosen experts have prepared the one adopted several years ago, contrary to the newer, which has been developed based on cooperation between many different environments – authorities, experts and most of all – residents. The style and design of these documents is different, however many elements remained stable – such as so-called focal points in city development (strategic areas), which are the starting point for each of this documents. 4. Change or continuation? Analysis of the two consecutive strategies of City of Katowice The City of Katowice began the elaboration of their first development strategy in the half of 2004. The first stage was concentrated on comprehensive analysis of the City of Katowice condition report, which was supposed to become a ‘deep diagnosis of strategic situation of the city and an integral element of the final strategic document’27. Such a document was created in January 2005 with the final amount of 120 pages (more than the later adopted strategy). In methodological terms, the works were managed by research team, formed by employees of Strategic and Regional Research Institute of Karol Adamiecki University of Economics. The second stage of works covered formulation of particular elements of the strategy. A special focus was given to create a vision of development of Katowice, to select priorities, strategic objectives and directions of activities, projects and indicative system of evaluation and monitoring of the realisation of the strategy. The following groups, among others, were involved in elaboration of the document: City Council, employees of the Strategic and Regional Research Institute of Karol Adamiecki University of Economics and other task forces and people, including the President of the city. In total, approximately 20 working meetings took place. An important group of people participating in works on the strategy ( so called Programming Committee) was formed by representatives of the most important institutions Ibidem, p. 273-274. https://bip.katowice.eu/UrzadMiasta/ZamierzeniaIProgramy/dokument.aspx?idr=94741&menu=633 [access: 7.02.2018]. 26 27 Change or continuation? Long - term city management on the example of local... 189 and organisation acting in Katowice and cooperating with the city – in total around 100 people working in two separate teams and also smaller ‘professional’ working groups. Further social consultations took place, whereby employees of the Municipal Office, councillors, Marshall Office and 7 neighbouring cities, offered more than 30 suggestions. In October 2005, a conference with 120 participants took place. This was the second stage of consultations. In mid-November 2005 the elaboration was submitted for the opinion of the City Council, and then for further works28. The Katowice 2020 Strategy of City Development adopted by the City Council of Katowice was 109 pages long and was divided into five chapters: strategic areas and developmental challenges, a diagnosis of strategic situation, vision, priorities and strategic objectives, action lines and strategic projects and implementation of the strategy of development. As a preliminary indication the five so-called focal points (strategic areas) has been mentioned, including: metropolitanity, quality of life, centre, entrepreneurship, transportation and logistics. In relation to the first criterion (metropolitanity), the following features of the city were included: culture, higher education, international transportation, sales and trade, public administration offices location; as these are considered to be of a metropolitan character. To sum up this strategic area, it was declared that ‘the principle of partnership should be considered as an essential mean of obtaining synergistic effect of joint exploitation and development of an endogenous potential of Silesian agglomeration, which are human and infrastructure potentials’. The strategic area described as ‘quality of life’ declares the intention to ‘make Katowice a city, which ensures its residents safe, healthy and friendly living conditions’. This part concentrated on three elements: ecological living conditions, housing and service capacity. The general rule for this area was social and territorial cohesion of the city. Another area, called ‘Centre’ was related to the expectation of residents, which concerned making the city centre a place with its own climate which could offer both residents and visitors attractive forms of spending their free time. The problem of inefficient and overloaded communication system under constant construction was raised here. In relation to another strategic area defined as ‘entrepreneurship’, the necessity of an increase in diversification of urban enterprise environment and improvement of investment competitiveness of the city were pointed out. The general rule for actions taken up in this area were supposed to be creation of a climate friendly to small and medium sized enterprises as well as selective fostering of emergence and development of activities, which create a high benefit. As regards the last area, ‘transportation and logistics’, the objective was to create a smooth (both internal and external) integral transportation system, which would create conditions for the increase of mobility of residents and economic entities. 28 https://bip.katowice.eu/UrzadMiasta/ZamierzeniaIProgramy/dokument.aspx?idr=94741&menu=633 [access: 7.02.2018]. 190 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie In the next part of the documents so-called strategic challenges, including an ongoing process of deurbanisation of all the area of Silesian agglomeration were pointed out. In this context, the creators of the strategy postulated the need to “make Katowice together with other cities of the Upper Silesian Agglomeration as a metropolis of the same rank as Krakow and Wroclaw, and further: social and urban revitalization of degraded districts of Katowice and development of municipal, social and commercial housing, creating the City Centre and shaping a new use of its space as a showcase of Katowice and the entire Upper Silesian Agglomeration, transformation of Katowice from an industrial centre into a higher-level service centre, including those provided for a knowledge-based economy, and shaping Katowice as a European transport node through the use of trans-European transport corridors . Meeting these challenges will allow the cities of the Upper Silesian Agglomeration to enter the path of the reurbanisation process and to create Katowice as an authentic metropolis’. In this context, the creators of the strategy postulated the need to “make Katowice together with other cities of the Upper Silesian Agglomeration as a metropolis of the same rank as Krakow and Wroclaw, and further: social and urban revitalization of degraded districts of Katowice and development of municipal, social and commercial housing, creating the City Centre and shaping a new use of its space as a showcase of Katowice and the entire Upper Silesian Agglomeration, transformation of Katowice from an industrial centre into a higher-level service centre, including those provided for a knowledge-based economy, and shaping Katowice as a European transport node through the use of trans-European transport corridors. Meeting these challenges will allow the cities of the Upper Silesian Agglomeration to enter the path of the reurbanisation process and to create Katowice as an authentic metropolis’. The ‘diagnosis’ it was based on four elements: external conditions scenario, SWOT analysis (presentation of opportunities and threats, strengths and weaknesses for the development – individually for each of the strategic areas), as well as on the description of strategic situation. The diagnosis included into the strategy was however only a small part of total, not even a summary of the data collected in the Report on city condition, which is an important weakness of the strategy. Things that were considered most threatening among external conditions were competitiveness of other cities (Krakow, Wroclaw), lack of willingness to cooperate among cities of Silesian Agglomeration and also problems related to too slow recovery of degraded areas and urban lands, as well as ongoing depopulation and deurbanisation. SWOT analysis showed that the most favourable, both current and future conditions for actions were placed in the strategic area described as ‘entrepreneurship’. On the other hand, the least favourable conditions were mentioned in the ‘metropolitanity’ section. For example, among ‘threats’ in the ‘metropolitanity’ area the following were mentioned: an ongoing demographic regress, lack of consistency of political establishment’s actions to the region’s benefit, mining and metallurgy cultural tradition and its negative social and environmental consequences, high competitiveness of Krakow and Wroclaw, fixed Change or continuation? Long - term city management on the example of local... 191 stereotype of a negative view of the region, disadvantageous image of Katowice, resulting from the condition of train and bus stations and the lack of attractive city centre. The chapter called ‘Vision, priorities and strategic objectives’ pointed out to the so called ideologies and visions common to all the strategic areas. These included expectations in relation to cooperation with Gliwice and Sosnowiec, an ambition to make Katowice the capital of Upper Silesia of 21st century, as well as national scientific and developmental research centre in scope of advanced technologies or a pole of Europolis of Central Europe covering Krakow – Ostrava – Katowice as a business and finance centre of Silesian Agglomeration and Southern Poland. Further on, so called strengthening factors were mentioned (for example Katowice as a European road, rail and air transportation hub through the use of transEuropean corridors), main components of the vision (for example Katowice as a strong cultural centre in scope of cinema, theatre, art and multimedia) and factors balancing the main components of the vision (divided into social and economical). The next part of the document is more transparent than the previous ones. It presents strategic priorities and strategic objectives assigned to them together with operational. Each of the areas includes one strategic objective and two to four operational objectives. For example as regards to ‘metropolitanity’ these were” development of higher education institutions., high culture and advanced technologies as the strategic objective and among operational objectives assigned them one can find the ambition to make Katowice an interdisciplinary academic centre of an international reputation, which could generate human capital of a high quality and international scientific, research and implementation centre in scope of advanced technologies. The above mentioned operational objectives were assigned to so-called lines of action, this is for example in relation to the first operational objective: strengthening an international attractiveness of educational offers in higher education institutions in Katowice or supporting didactical and research infrastructure of higher education institutions. The horizontal direction for this objective will be cooperation of local authorities with cultural, scientific and business elites. Among other horizontal direction for the ‘metropolitanity’ area, the following were mentioned: cooperation with Silesian Agglomeration, Krakow and Wroclaw, which is related to the previously presented diagnosis, this is the concern about the competition of Krakow and Wroclaw as one of the external threats for the city. A set of strategic projects have been proposed. For example as regards to the ‘metropolitanity’ these were: the construction of “Symphony” Centre for Music Education and Research, construction of the regional department of National Polish Bank or construction of a seat of regional court) – as realised projects and for example construction of the Opera and Ballet Theatre, construction of the New Silesian Museum or Regional Academic Campus with cultural and sports facilities as those to be realised in 2006-2013. 192 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie The chapter ‘Implementation of the development strategy’ presented a description of actions related to the monitoring and evaluation of the strategy realisation as well as its rules and organisational process and operational programmes. For example, as regards to ‘metropolitanity’ for the objective ‘Katowice an interdisciplinary academic centre of an international reputation, which could generate human capital of a high quality’, the following, measurable indicators have been mentioned: the position of higher education institutions of Katowice in ranking of universities, the number of foreigners studying in Katowice, or the number of international educational and research projects realised by universities in Katowice. At the end a reference to studies, policies, programmes and plans, which then existed or were supposed to be prepared in order to integrate current activities with the assumptions of long-term policy of city’s development, was made. For example, as regards to the ‘metropolitanity’ one document has been mentioned: Lines of action of City of Katowice in scope of culture and protection of monuments29. It has also been stated that the Steering Committee for development strategy implementation, Task Force for development strategy implementation together with the Problem Teams will be responsible for the supervision of the whole process in works, which will be attended by social partners and Team for Fusion. The composition of these teams has been defined together with the diversification of the scope of duties of each as well as the list of potential social partners, who should be included into the realisation of the strategy. Finally, the document presented a table, which summed up all the most important: areas, visions, priorities, objectives, lines of actions and strategic projects together with a list of names of all those who participated in its elaboration. The strategy’s principles included a statement that ‘the Katowice City Council can update the strategy in scope of strategic projects (every year), lines of actions (every two years), objectives (every four years) and priorities (every seven years).’ To sum up, the elaborated strategy, adopted for the City of Katowice in 2005 was strictly of an ‘expert’ nature. The problems identified were described in very general terms and only ‘one-dimensially’, without analysing their causes. Moreover, the diagnosis presented in the document (SWOT analysis) was only a small part of a whole spectrum of tasks of the municipality, which’s realisation influences its current and longterm development. Also, insufficient attention was paid to the specificity of particular districts of the city, as all of them were considered as a whole and the proposals prepared for them were immeasurable and general, for example ‘Katowice as a city ensuring ecological and public safety to its residents in every district’, ‘Katowice as a city of excellent conditions for the sustainable development of the whole city and a positive example of how to revitalise the city’s run-down districts’, or ‘Katowice as a city with an efficient internal network of communication connections between its districts’. As it has already been Kierunki działań miasta Katowice w zakresie kultury i ochrony zabytków. Resolution of the City Council of Katowice No. XX / 277/2000 of 20 March 2000. 29 Change or continuation? Long - term city management on the example of local... 193 mentioned, a very extensive diagnosis was included in a separate document, which is the Report on the Condition of the City, which was created next to it, although in connection with the strategy and should be an integral part of it. It describes, among other things, the general characteristics of the city, the socio-economic and environmental situation, functional and spatial structure. It refers to the districts and their place in the spatial structure of the city, as well as to the metropolitan functions of Katowice and the central places, which are a pride of the city. It also indicates the most important areas of the city’s functioning, describes the economic, social and infrastructural sphere, citing a number of statistical data. It seems that the basic assumption of the strategy from the point of view of the strategic area ‘metropolitanity’, which turned out to be wrong from the time perspective, was the hope for cooperation with neighbouring cities in order to make Katowice a real metropolis, leading in the implementation of specific functions (service, education, transport, financial, recreational, cultural etc.) at the expense of other local governments. This was not possible due to many different factors, including dynamically growing competition between cities - in almost every area of socio-economic life, as well as adverse legal conditions that are unfavourable for metropolisation. The priorities related to the metropolitan character of Katowice have been moved to the new strategy, although the accent has been spread a bit differently, which will be described further. Many of the proposed investments have been successfully implemented. What is important, the participation of the social factor in the development and subsequent implementation of the strategy was negligible. Perhaps this is because the document was written in a difficult, expert-official language, incomprehensible to the average inhabitant, and its large volume (additionally including the report), and a tangled and meticulous structure deter potential interested parties. The next document, the latest and currently binding, which is the City of Katowice Development Strategy 2030, was adopted by resolution XIX /365/15 of the Katowice City Council of December 17, 2015. It programs the 15-year perspective for the city (as planned in case of the first document). The introduction includes the words of the President explaining the need to update earlier assumptions and underlining the importance of social participation in the strategy preparation process: ‘The dynamically changing environment requires an update of the strategic goals and directions in a new perspective. (...) Continuing the positive, multi-dimensional transformation of Katowice, our activities will focus on four areas considered to be the leading ones, such as quality of life, metropolitanity [and the downtown area - author’s footnote], entrepreneurship and economic development, and urban transport and logistics. (...)Works on updating the City Development Strategy were carried out in accordance with the principle of social participation. I would like to thank all those who responded to our invitation and joined the process of building the strategy: representatives of entrepreneurs, universities, non-governmental organizations, housing cooperatives, cultural institutions, departments and organiza- 194 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie tional units of the city, Councillors of the City Council and knowledge experts, and most of all, residents of Katowice who took part in social consultations’. The strong participation of the social factor in the development of the new strategy is what definitely differs it from the earlier one in plus. This strategy was also prepared on the basis based of the Report on the Condition of the City, which dates from 2014. This report is more than twice as large as the previous one (it has 327 pages). Additional issues have also been added in relation to the report from 2005. The novelty is a chapter ‘The image of the city’, which was not included in the previous study. The creators of the strategy recognized that it is impossible to build long-term developmental assumptions in isolation from the existing opinions about the city not only in the environment of residents, but also wider - regional and national. A large study was therefore carried out, including a query of press materials from 2007-2011, as well as a marketing study, which covered 3,000 interviews30. Moreover, the table is titled ‘The position of Katowice and its entities in selected rankings’, presented all information on awards and prizes awarded to the city by prestigious institutions or media, such as Rzeczpospolita, Forum Biznesu, Newsweek or Association of Polish Cities or Festival Awards Europe. The strategy itself has only 32 pages (30% of the previous document’s volume) and although its substantive assumptions are a continuation of the previous ones (three of the five previous strategic fields remained unchanged, and two were combined together to form one common), it is a completely different document based on for info graphics (pictures), a transparent one that is easy to read. Its language is simple and understandable. The strategy systematics are similar to the earlier one. In addition, in this case, it was decided to distinguish: the centres of gravity in the development of the city and strategic areas and their structure, while the information about the desired position of the city in the strategic areas was added. The strategy also includes a general and strategic vision along with strategic priorities and objectives as well as action lines and project proposals. Finally, the proposed system of implementation, monitoring and evaluation was discussed and participants of works were named. In addition, the so-called general principles - for each of the strategic fields were exposed. For example, for the field “Metropolitanity and the inner-city area” it is ‘Katowice’s leadership in the metropolisation process of the Silesian Agglomeration’, and in 2005, it was ‘Katowice partnership with the cities of the Silesian Agglomeration, creating the Katowice Metropolitan Team’. It seems to be the same; however, the accent is in a different place. For the area ‘Quality of life’, the ‘Specialization of the functions of urban districts Inhabitants of the country – 1000 interviews, residents of the Silesian Voivodeship 500 – interviews, inhabitants of the Upper Silesian Agglomeration – 500 interviews, residents of Katowice – 1000 interviews. Source: marketing research results concerning internal and external recipients of the promotion. Annex to the Katowice Promotion Strategy. Resolution of the City Council of Katowice XXXIII / 706/2013 of January 30, 2013. 30 Change or continuation? Long - term city management on the example of local... 195 and decentralization of the residents’ service system’ was indicated, and in 2005 it was: “Social and territorial cohesion of the city”. In this case, the rule has been concretised and simplified, making it easier for residents to identify with the strategy. A novelty with respect to the previous strategy is the addition of the so-called basic values in shaping the strategic vision of the city’s development that is four key words that define the expected features of the city in 2030. These are intelligence, innovation, integration and internationalization. According to these key words, Katowice is to become a city that skilfully exploits the potential of knowledge, a strong centre of creation and implementation of innovation, ensuring a high level of social, economic and territorial cohesion in the district and urban layout, and an international centre. Besides the new elements of the strategy, the content of individual chapters is significantly different from those in the 2005 document – though not substantively. All elements of the strategy are drawn in info graphics, tables or graphs, and the so-called the continuous text, which dominated the previous strategy, appears very rarely in the new one. As for the content of the 2015 strategy, it is not a brand new proposal, but rather an update and, above all, unification and simplification of the earlier one. It is dealing mostly with the same assumptions and priorities as in 2005, but now they are clearly arranged and aptly (as slogans) named. At the same time, there are places where the assumptions seem identical, but shifting the accents or using other formulations changes the meaning of the content, making it more interesting for the residents. Reading or maybe ‘watching’ the new strategy, their influence on formulating particular assumptions is visible. It is worth noting that neither the SWOT analysis was included in the 2015 strategy, nor any other element diagnosing the initial situation. This is its key weakness. The report itself is a separate document and is a background to the strategy, not an integral part of it. Strategy without data and facts, and what is more, without clearly articulated weaknesses and threats, seems to be a colourful ‘leaflet’, something like the election program showing residents, in a very optimistic way, as it will be in the future. There is no risk analysis and time perspective for individual objectives. The monitoring indicators were presented, but without any detailed information that would allow us to ‘measure’ the scale of the promised success. In summary, both strategies adopted in Katowice have similar characteristics, although they differ significantly in terms of marketing. The first one is extensive, written in a difficult expert language, formulated by officials and focused on infrastructure issues. The second one is an update of the first, its graphic ‘summary’, reformulated based on the comments of the social factor (including residents and their organizations). However, the main directions of development remained the same, only the accents and the manner of presentation of priorities changed. What is interesting, although each strategy was created under the direction of a differ- 196 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie ent President (Piotr Uszok, Marcin Krupa), the political change did not change the priorities at all; on the contrary, it was decided to continue the initial assumptions, only slightly substantively changing them. One can therefore risk the statement that the ‘new things’ in the strategy are mainly: language and graphics, and the content is a continuation of the policy of the previous authorities. Bibliography Ackoff R.L., Zasady planowania w korporacjach, Państwowe Wydawnictwo Ekonomiczne, Warszawa 1993. Adamowicz M., Nowe tendencje w zarządzaniu rozwojem lokalnym [in:] M. Adamowicz (eds), Rola samorządu w zarządzaniu rozwojem lokalnym i regionalnym, Wydawnictwo PWSZ w Białej Podlaskiej, Biała Podlaska 2006. Dadel M., Jak stworzyć dobry projekt? Warszawa: Stowarzyszenie Klon/Jawor, Warszawa 2007. Długosz, D., Konieczna kohabitacja? Polski samorząd terytorialny w mechanizmie polityki publicznej, „Analizy i Opinie” 2007, nr 69. Doran G.T., There’s a S.M.A.R.T. way to write management’s goals and objectives, “Management Review” 1891, t. 70 (11). Gierszewska G., Sztuka skutecznego zarządzania, Oficyna Ekonomiczna, Kraków 2006. Griffin R.W., Podstawy zarzadzania organizacjami, Wydawnictwo Naukowe PWN, Warszawa 2013. Hausner J., Zarządzanie publiczne, Wydawnictwo Naukowe Scholar, Warszawa 2008. Jęczarek M., Jednostki samorządu terytorialnego – podmioty wewnętrzne czy zewnętrzne polityk publicznych?, „Polityka i Społeczeństwo” 2016, nr 3 (14). Jones R., Zarządzanie projektami. Sztuka przetrwania, MT Biznes, Warszawa 2007. Kożuch B., Publiczne zarządzanie strategiczne. Zasady i metody, [in:] B. Kożuch, C. Kochalski (ed.), Strategiczne zarządzanie miastem w teorii i praktyce Urzędu Miasta Poznania, Instytut Spraw Publicznych UJ, Kraków 2011. Kożuch B., Zarządzanie publiczne w teorii i praktyce polskich organizacji, Wydawnictwo PLACET, Warszawa 2004. Musioł-Urbańczyk A., Sorychta-Wojsczyk B., Przesłanki aktualizacji i bariery implementacji strategii w miastach na prawach powiatu w Polsce, “Zarządzanie Publiczne” 2017, nr 3(39). Osborne S.P., The New Public Governance, “Public Management Review” 2006, nr 8. Pearce J.A., Robinson R.B., Formulation, Implementation and Control of a Competitive Strategy, ed. 10, McGraw-Hill/ Irwin, New York 2007. Pierścionek Z., Strategie rozwoju firmy, Wydawnictwo Naukowe PWN, Warszawa 1997. Change or continuation? Long - term city management on the example of local... 197 Potoczek A., Zarządzanie w systemie samorządu terytorialnego, [in:] J. Adamiak, W. Kosiedowski, A. Potoczek, B. Słowińska (ed.), Zarządzanie rozwojem regionalnym i lokalnym. Problemy teorii i praktyki, Wydawnictwo Dom Organizatora TNOiK, Toruń 2001. Robbins S.P., DeCenzo D.A., Podstawy zarządzania, Polskie Wydawnictwo Ekonomiczne, Warszawa 2002. Wiśniewska J., Podstawy zarządzania projektami, [in:] K. Janasz, J. Wiśniewska (ed.), Zarządzanie projektami w organizacji, Difin, Warszawa 2014. Wysocki R.K., Efektywne zarządzanie projektami. Tradycyjne, zwinne, ekstremalne, ONE PRESS Grupa Helion, Gliwice 2013. Wytrążek W., Podstawowe pojęcia teorii organizacji i zarządzania w instytucjach publicznych, [in:] S. Wrzosek (ed.), Kompendnium wiedzy administratywisty, Katolicki Uniwersytet Lubelski, Lublin 2008. Ziółkowski M., Zarządzanie strategiczne w polskim samorządzie terytorialnym, [in:] A. Zalewski (ed.), Nowe zarządzanie publiczne w polskim samorządzie terytorialnym, Szkoła Główna Handlowa, Warszawa 2005. Legal acts: Katowice 2020 Strategia Rozwoju Miasta. Załącznik do uchwały nr LII/1068/05 Rady Miasta Katowice z dnia 19 grudnia 2005 r. Strategia Rozwoju Miasta. Katowice 2030. Załącznik do uchwały XIX/365/15 Rady Miasta Katowice z dnia 17 grudnia 2015 r. Ustawa z dnia 6 grudnia 2006 r. o zasadach prowadzenia polityki rozwoju, Dz.U. nr 227, poz. 1658, ze zm. Wyniki badań marketingowych dotyczące wewnętrznych i zewnętrznych odbiorców promocji. Załącznik do Strategii Promocji Katowic. Uchwała Rady Miasta Katowice XXXIII/706/2013 z dnia 30 stycznia 2013 roku. Kierunki działań miasta Katowice w zakresie kultury i ochrony zabytków. Uchwała Rady Miasta Katowice Nr XX/277/2000 z dnia 20 marca 2000. Internet sources: http://siteresources.worldbank.org/EXT SO CIALDEVELOPMENT/Resourc es/244362-1350667212030/Opening-Session-Malgorzata-Sarzalska-Polish.pdf. ht t p s : / / b i p. k at ow i c e . e u / Ur z a d M i a s t a / Z a m i e r z e n i a I P r o g r a my / d o k u m e nt . aspx?idr=94741&menu=633. Zarządzanie strategiczne w samorządzie lokalnym. Wnioski i rekomendacje płynące z debaty eksperckiej zorganizowanej przez Fundację Rozwoju Demokracji Lokalnej, źródło: http:// www.frdl.org.pl/pliki/frdl/zarzadzanie%20strategiczne/Raport_z_debaty.pdf. 198 Zeszyty Naukowe Wyższej Szkoły Humanitas. Zarządzanie Author’s resume: Joanna Podgórska-Rykała – PhD of social sciences in political science. Title obtained at the University of Silesia in 2015. Graduate of Political Science and Administration, postgraduate studies in Human Resource Management in Public Administration. Currently working at Humanitas University as assistant professor and Vice Dean for Research. Local government activist, member of Będzin City Council for two terms. Working in Social Policy Comission and the Commission for Economy and Local Development and in a few comissions in the Association of Polish Cities. For many years actively co-operated with non-governmental actors, aiming to raise the participation of the citizens in exercising public authority. Nota o Autorze: Joanna Podgórska-Rykała – doktor nauk społecznych (nauki o polityce). Tytuł obroniła na Uniwersytecie Śląskim w 2015 roku. Absolwentka politologii i administracji oraz Podyplomowych Studiów z Zarządzania Zasobami Ludzkimi w Administracji. Obecnie pracuje jako adiunkt w Instytucie Administracji i Prawa Wyższej Szkoły Humanitas oraz pełni funkcję prodziekana ds. badań naukowych. Działaczka społeczna, radna Rady Miejskiej w Będzinie od dwóch kadencji. Pracuje w Komisji Polityki Społecznej i Komisji Polityki Gospodarczej. Od wielu lat aktywnie współpracuje z organizacjami pozarządowymi. Contakt/Kontact: Joanna Podgórska-Rykała e-mail: joanna.podgorska@humanitas.edu.pl