CONTEMPORARY ASPECTS OF THE GEOGRAPHICAL REGIONALIZATION AND ADMINISTRATIVE-TERRITORIAL ORGANIZATION OF CROATIA

Considering some contemporary aspects of the geographical regionalization and administrative-territorial organization of Croatia, the author introduces the thematic through a retrospect of geographic thought development in the question of regionalisation. Main changes in administrative-territorial organization of Croatia from World War II to the beginning of the 21 century as well as some problems of applying geographical regionalization principles in the defining of regional units have been discussed. Finally the characteristics of the actual regionalization in Croatia have been analysed and an attempt of defining the functional regionalization of the country in the contemporary circumstances at the beginning of the 21st century has been given.


Introducing considerations
Contemporary principles of the geographical regionalization in the world can be considered from the period between two World Wars, when some geographers, while developing geographical thought, gave prominence to the questions of regionalization, summarising experiences of older geographers and taking in consideration new guidelines on the development of geographical thought (ROTH, 1926, HARTSHORNE, 1939 etc.).After the World War II a series of approaches to this problem came along (WHITTLESEY, 1954, BOUDEVILLE, 1966, HAGGET, 1977, SEDLAČEK, 1978, PAASI 1986, PODUP, 1988).In the 1990ies a larger number of authors inaugurated new theoretical bases of territorial regionalization especially in Europe and USA, completely abandoning descriptive and deterministic methods (MURPHY, 1991, POHL, 1993, TRIFT, 1993, TERLOUW, 1994, BRUNT, 1995, NUHN, 1997 etc.).Some theoretical considerations are particularly interesting.They are often illustrated by examples of regionalization in certain countries, in some parts of countries or even in multinational borderlands (e.g. in 1996 Koči-Pavlaković, using examples from North America, talks about integration, cooperation and regional organisation of trans-national regions in border regions).They mostly follow modern guidelines of certain territorial-structural more liberal concepts such as they appear in United Europe (European region concept), USA, Canada etc, and in accordance with the principles of applied geography.However, one should emphasize that the geographical concept is not the only one, that certain sciences approach problems of regionalization from their own view, and that geographical regionalization is not exclusive in spatial differentiation at, for example, administrative-territorial organization in particular countries.
Croatian geographers adopt some conceptual approaches to the regionalization of already mentioned geographers, but it needs emphasizing that, in this case, V. Rogić's approach, which evoluted from the sixties to the nineties of the 20 th c., is exceptionally significant because of its simplicity and applicability.In Croatia, as well as in the world, geographical regionalization does not exercise bigger influence on administrativeterritorial division of the state or, in other words, the territorial differentiation is the consequence of political-administrative decision, which only in a certain measure takes into account (sometimes more, sometimes less) geographical, traditional, economic, historical and other factors.Lately, some politicians have been talking out of geographical science, about the necessity of reorganization in the terms of forming European regions on the Croatian territory too, which in a larger sense constitutes the political concept.Namely, that is a question of strengthening the regions' autonomies in the framework of European Union within interrelational process of political strengthening of Union and building up the right of languages, cultures and particularities within regions (MYKLEBOST, 1993).

Contemporary aspects of regionalization in Croatia
If a pioneering work treating these problems (ROGLIĆ, 1955) is excluded, the first to study principles and methods of the geographic regionalization in Croatia in larger measure was V. Rogić.As early as sixties, he explained the theoretical approach and offered practical application of both models of the geographical regionalization i.e. "physiognomical" and "functional" regionalization of Croatia concurrently (ROGIĆ, 1962) (Figs. 1 and 2) and in particular the geographical regionalization of Croatian littoral (ROGIĆ, 1964).

Problems of applying geographical regionalization principles
Contemporary regional development of Croatia is also manifested through direct consequences of uneven and overemphasized process of polarization.These consequences are more on the peripheries of the administrative regions.As a direct consequence they often point to a certain disharmony between administrative-territorial system of Croatia and principles of the geographical regionalization.This discord that is insufficient scientific approach to the regionalization especially from geographical and economic point of view characterizes not only present-day administrative-territorial division of the country, it was typical for older divisions too.For a while it has had repercussions on the continual problems of administrative-territorial organization accepting coexistence specially with functional and natural-geographical possibilities of particular regions."The biggest error in the regional history of Croatia lies in the politicization of the regional system in Croatia..." specially if and when..." low-level and passing criteria, which often influence formation of unnatural and wrong regions, dominate.
The modern model of local government regional differentiation diverges from hoped -for (optimal, scientifically objectively affirmed) models of regional system.This divergence is accompanied by the problem of too frequent changes of territorial system i.e. changes inside territorial division and organization of the country."Reducing the regionalization of Croatia to the sphere of politics" without scientific basis often provoked polemics which in the end meant the institutionalization of regional system as political system and devaluation of the system which functioned as economic, cultural and geographical system for very many decades and through our long history (ŠIMUNOVIĆ, 1992).
The existing new regional system of local government, which reflects also through the administrative-territorial organization of the state in Croatia, has not been completely examined scientifically.It should be done specially from the aspect of geographic science.It is considerably important to examine the degree of so called regional particularism with regard to the degree of centralism.Scientifically well-founded model i.e. of the system and structure of districts, towns and countries just on the principles of regionalization as well as economic basis of the regional differentiation concept are the essential preconditions of the system stability i.e. its survival and durability.In this way the lines of force of a stable administrative-territorial system and economic development gain strength directly.How much a new system is founded on scientific determinants and how much on local central -political ones time shows just through (in)stability of the system.
In some countries with stable political systems a firm territorial-administrative system, can be followed.Such a system not infrequently reflects very well the principles of geographical regionalization.On the contrary, in many countries, frequent and sometimes even disorganized changes of regional concepts and their applications can be followed, which are mostly the repercussion of frequent political changes.Some models of dispersion and decentralization of administrative-territorial organization in Croatia had no success particularly because of impossibility to aliment all the necessities of local government, so one would resort to concentrated system, i.e. to decentralization, which resulted in intensified polarization.This problem was present in Croatia for a longer period  evidently as the consequence of too frequent previous changes of territorial organization or politically compromise and simplified solutions.The problem of proper functioning of the new administrative-political organization, i.e. modern model of local government introduced in 1993 is not expressed in a larger measure.Generally regarded, the positive decentralization process stimulated activation and strengthening of local resources and universal and more diffused development in the region.However, from the geographical aspect, the measure of fragmentation in some cases, when the national territory is administratively parceled out to the utmost, is questionable.It is especially expressed in cases when a formed district consists of a single smaller settlement without adequate economic force to cope with the burden of the proper district administration.
The changes in the territorial structure of Croatia that happened after some 4 to 5 years (1995) were not substantially radical to point to more serious disarrangements or mistakes.They were more the necessity for some borders, defined during the war events of 1991-1995, to be altered (e.g. the question of counties: Zadar county, Šibenik-Knin County, Lika-Senj County, Požega County and appurtenance of certain districts).However, in some cases strangely also arbitrations interfered, and they have not much connection with regional-geographical and economic arguments.

The characteristics of administrative-territorial organization of Croatia from World War II to the beginning of the 21 st century
With regard to administrative view, the contemporary differentiation of the Croatian state territory onto counties, towns and little districts from 1993 replaced up-tothen relatively established  division into districts (later known as district communities and local districts -105).Very soon, in fact in 1997, it was changed and supplemented which in the statistic sense presents certain difficulties in following it.From 1997 the administrative organization has been including counties (21) as the traditional form of the Croatian state territory division, then towns (122) and districts (426) (MAGAŠ, 2000).
The transition from the system, which by 1993 consisted of big districts, suits, the accommodation to the European model in the sense of strengthening local government and the model of decentralized and dispersed development.As it has already been stressed, it is generally a stimulating process, as it initiates the development of local initiatives and potentials, which also reflects itself in more versatile and dispersed development in the region.On the other hand, it is questionable from the other aspect; to what degree the fragmentation can be tolerated, especially in chopping up of the state territory.It refers primarily to forming some districts that consist of a single statistic settlement, often without adequate economic strength to support the burdens of its own district administration (MAGAŠ, 2000).Here, the political arbitrator was decisive.The similar situation was in some opposite cases when there was an aspiration to keep the "old" district (now town or district).So, some smaller centres were prevented from achieving recognition for their districts, though the new division just incites and declares such a development.So, while in the first case new-formed districts cannot guarantee self-governed development on a satisfactory level, in the second case the arbitration of a larger centre restrains them from developing self-government.It is here that contrasts manifest mostly.On one side there is a scientific and professional, multidisciplinary approach, on the other side political or rather party arbitrary approach.Therefore, it can be expected that there will still be changes of borders and the number of self-governing units considering large liberties of mutual arbitration (local and central).Considering these problems, it is also exceptionally important to keep in mind the degree of socioeconomic development, i.e. it is often disputable the necessary degree of economic power to enable a steady development of government (MAGAŠ, 2000).
Tab 1 Changes in administrative and territorial organisation of Croatia 1946Croatia -1998)) In Croatia, as well as in some other countries, the models of governmental system dispersion and in the function of diffusion and uniformity of the economic development were not successful, in particular because of insufficient functioning of the socio-political system.That was the reason for resorting to centralistic and concentrate development, i.e. polarization.Besides, for the past fifty years too frequent changes of the territorial organization occurred Croatia (Tab.1).
So, for example, the system of local People's Committees of towns, districts and provinces, which had replaced the traditional system of local districts, districts or counties in the period of the Independent State of Croatia, lasted from the end of World War II to 1952, when local district was introduced as the territorial unit like the one that existed before World War II.Though essentially decreasing, the number of People's Committees and local districts till 1962 points to more diffusive structure of the political and governmental system.In 1962/63 the number of local districts and districts was radically reduced since it could not survive economically.Grouping numerous micro-units into large districts, particularly in poorer and isolated areas, enabled the concentration and polarization of power and funds in a smaller number of centres and higher degree of control from the main centres of the political power.At the same time, margin areas undergo the process of relative decline, which is accompanied, by processes of rural exodus, abandoning of the islands and mountain zones, increased number of inhabitants in towns, suburbanization etc.
"Scientific well-foundedness model, i.e. the system of local districts, towns and counties, and its economic basis are important precondition of its stability too, i.e. its survival and permanence, in which way the lines of magnetic force of the stable administrative-territorial system and economic development strengthen.Time shows how much a new organization is based on scientific determinants and how much on political ones, just through the (in)stability of the organization.Lifting and establishing changes of borders, frequency of demands for changes, etc. of certain administrative-territorial units do not point to the democratism and possibilities of free and dynamic reduction, but also to errors in evaluations and decisions.In scarcely 50 years Croatia experienced a series of territorial changes (at lest 12), which reflected all the sensibility, instability, overtransparence, but also the adaptability of the system i.e. of changes, which, in the western societies, they try to avoid through economic affirmation, stability and valuation of traditions on the local level" (MAGAŠ, 2000).

The characteristics of the contemporary regionalization in Croatia and the attempt of defining the functional regionalization in the contemporary circumstances at the beginning of the 21 st century
After Rogić's contribution no other model of regionalization in Croatia was presented which would completely take in consideration the complex geographical factors and principles of regionalization.Considering the fact that it corresponded only partly with the administrative organization, mainly when taking in consideration the principles of nodal-functional regionalization, it could be used in the same measure as a model or a principle in practical application.The use of a certain model of geographical regionalization in present-day circumstances in Croatia must be the reflex of a real need for its actual application in the practice of the territorial organization of the country.It means that, appreciating also other scientific approaches, there would be a gradual transition from the stage of arbitrary, political i.e. administrative division of the state territory into the stage of scientific approach of the territory differentiation.The basic question of modern geographical regionalization now is defining contemporary functional system of the regions' centres of different levels i.e. of the development and territory poles and their prevailing influences.
In the absence of relevant models, which should be the result of team researches and complex scientific research processes, founded on the quantitative indicators and analyses, it is possible to give only an empiric concept of the regionalization in Croatia whose result would be the problem map of regions in Croatia.
Considering the polarization processes in Croatia imposes the differentiation of the cores' regions from peripheral areas.Acknowledging the importance and affirmation of macroregional centres of Rijeka, Split, Osijek and the degree of development and influence of certain centres on the axis of development from Varaždin to Pula (Croatian axis), it could be conditionally pointed out that it is a question of more developed regions on the periphery.Appurtenance of some underdeveloped subregions and macroregions to their regional complexes (a part of islands, Gorski Kotar, Lika, some parts of Zagora, inland Istra etc.) diminishes, logically, the possibilities of a rapid growing into core regions, but, when the state of development of main centres and their urban-regional complexes is compared, it surpasses the underdevelopment of subperipheral parts of aforesaid more developed regions.Other larger regional centres: Zadar, Dubrovnik, Karlovac, Slavonski Brod, Bjelovar-Koprivnica and Vinkovci-Vukovar, in regard to large gravitational underdeveloped areas (Bukovica, islands, Banovina, Kordun, parts of Lika, Poilovlje and others) for the time being do not possess the force of prevalence i.e. of annulling the differences of development.It is a question of areas of almost the same ponders of developed regional centres, on the one hand, and underdeveloped subregional and microregional areas that gravitate to them, on the other hand.In the end, because of a pronounced underdeveloped state of certain subregional and microregional areas within remaining Croatian regions, they can be characterised as underdeveloped peripheral regions.It is a question of Šibenik region (Zagora, islands), and Sisak region (Banovina, Posavina).Aggravating factor in mentioned differentiation, are relatively large areas without regional centres, which is specially expressed and can be exemplified by Lika with Krbava.Generally they link up with one centre, on the administrative level (for ex.Lika mostly to Rijeka), though in interpenetration of influences from more centres is evident in this space (Rijeka, Zadar, Karlovac).The applicability of this model to subregional and microregional level would certainly produce more favourable results.So it is evident that inside Rijeka region there are, for ex., more developed subregions with a regional centre (Rijeka urban region, Opatija littoral, Crikvenica littoral, etc.) in relation with transitional areas of Senj, Krk, Lošinj, Rab, and underdeveloped Čabar, Delnice, Otočac, Gospić, Cres and similar.
Acknowledging nodal-functional concept of regionalization, which has been successfully applied, respecting 14 Croatian regions on the adequate hierarchical level then cognition of polarizing relations and core-periphery relations as well as other geographic determinants, it is necessary to elaborate the regionalization problem map of Croatia (Fig. 8).However the application of central-local concept with observing and acknowledging all gravitational lines, nodal-functional i.e. nodal-local influences and relations, demands exclusively complex quantitative researching process.The result of such a process is, however, connected with the relations of lines in an observing moment, and is consequently of somewhat limited value.But the empirical knowledge of spatial relations and influences can also result in the review of the regional system relevant for a particular period.For example, it is clear that the influences of certain Croatian centres on macroregional level determine directly their adequate status of macroregional centres, though the level, range and power of some influences considerably vary (for comparison Zagreb -Osijek).
Fig. 8 Regional centres in Croatia administrative-territorial division and gravitational connection of local districts with regional centres in 2002 (1 -strong influence, 2 -weak influence, 3 -very weak influence).Sl. 8. Regionalna središta Hrvatske, upravno-teritorijalna podjela i gravitacijska povezanost općina s regionalnim središtima (1 -jaki utjecaj, 2 -slabi utjecaj, 3 -vrlo slabi utjecaj) 2002. godine The same relates to the level of regional centres (Fig. 9) where some centres show in certain functions moves towards some macroregional characteristics (Zadar, Varaždin, Slavonski Brod), while some others merely satisfy regional level (Šibenik, or Koprivnica, Virovitica).Namely there are essential differences among certain regional centres, owing to the geographical position, traditional circumstances (Zadar was old capital of Dalmatia, i.e.Southern Croatia, Dubrovnik has a specific and world important heritage of long lasting autonomous republic etc.), number of inhabitants, etc., so that some of them stand out as explicit regional centres, some of "sufficient", and in some other cases a social effort should just be made so as to establish a new regional centre in under-developed and isolated area (Gospić).Fig. 9 Basic differentiation of the regional centres in Croatia: A -macroregional centres, B -regional centres with some macroregional functions, C -other regional centres, Dregional centres with insufficient influences; 1-4 -see fig.8. Sl. 9. Temeljna diferencijacija regionalnih središta u Hrvatskoj: A -makroregionalna središta, B -regionalna središta s nekim makroregionalnim funkcijama, C -ostala regionalna središta, D -regionalna središta sa slabijim gravitacijskim utjecajem; 1-4 -vidi sl. 8 Discussing this problematic, it should be stressed that number of inhabitants and gravitation area should not be the excuse for a rigid and overstressed polarization and concentration, but opposite.Namely, some of the regional centres should be supplied by functional features on macroregional level, so that the spatial development could start to be more diffuse, deconcentrated and flexible.Fig. 10 Interactive influence zones with schematic borders of macroregional centres (5) and a potential macroregional centre (Zadar) (6); A-D, 1-6 -see fig.9. Sl. 10.Zone međuutjecaja sa shematskim prikazom granica makroregionalnih centara (5) i potencijalnog makroregionalnog centra na primjeru Zadra (6); A-D, 1-6 -vidi sl. 9.
The problem map of gravitational influences i.e. interconnections of some regional centres with local districts round them proves the complexity of regional differentiation in Croatia.Spatially, one notices easily the lack of regional centres in Lika-Krbava area, with relatively weakened influence of Rijeka, Zadar and Karlovac.A part of regional functions is taken in charge by Gospić, but not in a necessary measure, and its size and importance do not surpass the minimal level, which characterizes a regional centre.In regional plans, Gospić is potentially scheduled to become the centre and guidelines of general development of Lika-Krbava territory are declaratively defined, but in practice the situation, specially after Great-Serbian aggression and destruction in this area, far from being optimal.Therefore, in this phase of development, it needs to insure other regional centres to optimise their influence on this territory and intermediary stimulate creating a new one in Gospić.It will be mostly contributed by building new motorways, which, owing to the tunnel that has been broken through Velebit Mountain, will render possible broadening of regional (ore even conditionally macroregional i.e. "semi-macroregional") influence in this area primarily of Zadar, but also strengthening the influence of Rijeka and Karlovac.
There is also a pronounced lack of a real regional centre on the area of a larger part of Podravina and Lonja-Čazma basin.Slowness in the development of regional functions of Bjelovar and its slow economic and demographic growth as well as simultaneous propulsiveness of Koprivnica with its strengthening functions, and stability of functions in Virovitica, points to the forming of a specific regional complex with the division of leading functions among three centres.Vinkovci with Vukovar form practically dual regional centre, particularly this day after demographic and economic potentials of Vukovar were cut in half.There are also other particularities, especially conurbanity effects in Varaždin (Varaždin-Čakovec) and Sisak (Sisak-Petrinja) centres, as well as a specific division of functions in Slavonski Brod region with relevant additional significance of Požega.
The analysis of the regional influences and particularly of macroregional influences of some centres in Croatia has so far been generally connected with the traditional scheme of four macroregional centres.However the form, size and variety of the national territory point to the necessity of creating more practical models, which will depend less on classical schemes of inherited borders that is an extremely polarizational concept, which has negatively influenced up to now or almost made impossible an even development of the country, opening real demographic and economic-geographic cavities on the influence peripheries of macroregional centres.The indispensability of a diffusive, dispersed and uniform development reveals the necessity of additional functional equipping of some regional centres, especially Zadar, Varaždin, Pula and Slavonski Brod in border zones in order to meet the needs of large, neglected areas (Zadar, Slavonski Brod) or considerably inhabited ones (Varaždin, Pula).A try of a schematic differentiation of such a maxiregional/condititionaly macroregional or semimacroregional area, here given by the author, uses Zadar as an optimal example (Fig. 10).LITERATURE BOGNAR, A., (1973): Nacrt homogene regionalizacije Istočnohrvatske ravnice, Geografski glasnik, 35, Zagreb, 67-82. BOGNAR, A., (1995): Fizičko-geografske pretpostavke regionalnog razvoja Hrvatske, Zbornik I. hrv.kongresa HGD, Zagreb, 51-65.BOGNAR, A., (1999): Geomorfološka regionalizacija Hrvatske, Acta Geographica Croatica, 34, Zagreb, 7-29.