The development of a territorial strategy is part of the 2030 Sustainable Urban Development Strategy of the Republic of Serbia (Official Gazette of the RS No. 47/2019). The post-socialist context is characterised by dominant involvement of the public and weaker participation of the civil sector in public policy development. In response, Leskovac’s SUD strengthens the active involvement of the private sector and academia in order to encourage innovation and expands citizen participation and transparency to help gain public trust. The process of creating and delivering such a strategy included the following key milestones:  

• political decision and development of a council for strategy and a working group;  

• thematic round tables with different stakeholders;  

• a public forum involving citizens;  
• definition of priority areas of intervention;  

• setting a framework for monitoring and evaluation;  

• establishing a project coordination unit. 

The territorial focus of the strategy is defined in the context of solving key problems and identifying possible interventions to realise local potential and encourage development. Priority areas of intervention comprise smart specialisation zones; urban renewal areas - public spaces, brownfields, industrial and socialist architectural heritage; regeneration of deprived neighbourhoods; new green infrastructure; and urban mobility. 

To develop the strategy, Leskovac applied a multi-sector approach, proposing place-based and integrated solutions. This enables interconnected, cross-sectoral responses to urban challenges, and overall improved approaches to urban development. The cross-sectoral approach aims to overcome silo structures, i.e. the traditional division of functions according to sectors or policy areas.  

The strategy is organised within five goals, each representing a thematic area: 

1. urban identity; 
2. energy transition, green and blue investments, climate change adaptation and mitigation, risk management and sustainable urban mobility; 
3. innovative and smart economic transformation; 
4. social wellbeing; and 

5. urban governance. 

    

   Its development and implementation therefore require cross-sectoral integration. The strategy also promotes the blending of different sources of urban development funding.

The process encourages local participation and promotes a change in planning culture towards inclusive, collaborative practices. This was achieved by applying a participatory approach through public dialogue and inter- and transdisciplinary cooperation between a wide range of actors. These include participants from different levels of administration, non-profit organisations, private companies, social groups and academia. The collaborative process is characterised by diversity (in the institutions/participants, levels of administration, policies, disciplines, etc.), and interaction, using consultation and active participation.  

The participatory process included thematic roundtables and four workshops with members of working groups, following these steps: SWOT analysis and needs assessment; creation of vision, goals and measures; analysis of sources of funding and financing; definition of priority areas of intervention and strategic projects; monitoring, evaluation, implementation of the strategy; and definition of governance structures (SM2 Steps in the strategy development process). In addition, citizen participation was ensured through three key steps: 

• a survey to support the problem and needs analysis; 
• a citizens' forum to help formulate the strategy’s vision, goals and measures,
• public hearing of the draft strategy.  

Additionally, pupils of two primary schools presented their needs and vision through an art competition entitled: ‘My city in the future’. 

The impacts of the strategy for this territory of about 124 890 inhabitants are visible in the transformations made possible by the new participatory approach. These include: 

• new and improved relationships through the creation of the Working Group, the Council for Development and the Project Coordination Unit (PCU); 
• recognition of new priorities that arise during discussions, such as priority areas of intervention;
• change of existing perceptions and values, as well as connecting planning with financing and implementation.   

With a sound strategy, the city has been able to apply for public calls for financing, such as from the EU PRO plus programme, URBACT and Interreg Europe.

The positioning of governance as a separate thematic goal can be seen as an added value. It involves supporting multi-level governance and a multi-stakeholder, participatory approach, blending funding and ensuring transparency.  

The strategy was adopted by the city assembly, and the formation of the PCU is in progress.   

This represents Leskovac’s first innovative EU strategy for the planning and implementation of sustainable and integrated urban development. 

This is an excellent case study of applying the available Joint Research Centre's (JRC) guidance in a city. The resulting goals and measures defined by the strategy contribute to improving conditions for urban development. Aligned with EU and national policies, Leskovac’s strategy pushes for the synergy of integrated urban development and smart specialisation.  

Specifically, the strategy builds on the JRC’s 2020 Handbook of Sustainable Urban Development Strategies, and 2022 Handbook of Territorial and Local Development Strategies, as well as technical support from international and national experts. They guided the process while adapting it to the local institutional setting and capacity development.  

This adaptable, participatory approach is transferable to other cities – and can be modified to suit other urban contexts. 

Collaborative governance initiatives can encounter resistance, and it takes time to bring about change. External incentives and peer-to-peer exchanges give such governance initiatives a tailwind. For Leskovac, the realisation of this strategy, together with 11 other cities in the EU PRO Plus programme, is part of the creation of a national model for Integrated and Sustainable Territorial Development. 

Leskovac’s experiences of creating a sustainable, integrated urban development strategy have been presented on various occasions, including a dedicated session at the Salon of Urbanism, 2023, in Niš, Town Planners Association of Serbia. In addition, a paper entitled ‘Sustainable and Integrated Territorial Development Strategy of the City of Leskovac Urban Area - A new challenge for local self-governments’ was presented at the Summer School of Urbanism in Novi Pazar, in May 2024.