This study provides a comprehensive analysis of territorial exaptive resilience along the EU's eastern borders, examining how regions mobilize and repurpose existing assets and capabilities in response to external challenges or shocks. Through rigorous quantitative analysis and detailed case studies, the research advances our understanding of regional adaptation and transformation in peripheral areas, contributing to both theoretical discourse and policy development.

The analysis of structural conditions across European regions reveals significant territorial disparities. Employing Latent Class Analysis, the study identifies six distinct regional types, with eastern border regions predominantly classified as "Industrial-Agricultural Peripheries." These regions exhibit the lowest levels of employment and gross value added at European level, alongside weak local resilience indicators and limited institutional capacity. Despite receiving substantial EU funding support, they remain characterized by structural weaknesses and constrained resource endowments, reflecting persistent core-periphery dynamics within the European space.

However, the examination of regional responses to successive crises through the Territorial Exaptive Resilience Index (TERI) presents a more nuanced understanding of these regions' coping capacities. While central European regions predominantly demonstrate resistance-based resilience, maintaining stability through economic perturbations, eastern border regions exhibit notable capacity for exaptive resilience - the ability to transform and adapt through creative resource reallocation. This pattern manifests consistently across multiple crisis periods, from the 2008 financial crisis through the COVID-19 pandemic and recent geopolitical tensions.

The econometric analysis identifies several critical determinants of exaptive resilience. Institutional quality emerges as a fundamental driver, alongside knowledge infrastructure and local resilience. Notably, traditional sectors, often perceived as impediments to development, can function as assets when effectively repurposed within new development trajectories. The analysis further demonstrates that EU funding has a particularly positive impact in border regions, suggesting that its effectiveness is amplified when aligned with cross-border dynamics. This highlights the importance of fostering institutional and social innovation to maximize the benefits of policy interventions in these contexts.

These quantitative findings are substantiated and enriched through detailed case studies of five strategically selected border regions. The qualitative component of this study reveals the nuanced ways in which territorial exaptive resilience manifests across the border regions. Each case study highlights a unique interplay of local resources, institutional frameworks, and socio-economic strategies in responding to crises. Maramureș County showcases the transformative potential of converting environmental challenges into sustainable opportunities, as evidenced by the SPIRE project, which mobilized local actors to repurpose industrial liabilities for renewable energy and ecological restoration. In Lapland, the combination of traditional knowledge and innovation has fostered diversification into Arctic testing, bioeconomy and tourim sectors, turning geographic isolation into a competitive advantage. Szabolcs-Szatmár-Bereg County demonstrates the critical role of social capital in resilience-building, leveraging grassroots networks to respond effectively to the Ukrainian refugee crisis while strengthening regional cohesion. The Olsztyn Region highlights the challenges of adapting to disrupted cross-border dynamics, with its agricultural sector poised for transformation through inclusive rural development strategies. Meanwhile, Vilnius County exemplifies the importance of institutional coordination in navigating geopolitical and security challenges, demonstrating how governance frameworks can enhance adaptability under pressure.

The synthesis of these findings underscores three key drivers of resilience: the mobilization of local networks and resources, the alignment of institutional frameworks with place-based needs, and strategic investments in skills and infrastructure. Together, these elements offer a coherent framework for fostering exaptive resilience in border regions. The case studies reveal that resilience is not a static trait but a dynamic process shaped by the capacity to creatively repurpose existing resources and adapt to external pressures. The comparative analysis not only highlights the diversity of responses across regions but also identifies shared lessons for empowering communities, fostering innovation, and navigating the complexities of cross-border governance. 

The research findings necessitate a reconsideration of EU cohesion policy post-2027. They advocate for a more nuanced, place-based approach that recognizes and enhances the exaptive capacities of border regions. This entails developing flexible funding mechanisms responsive to emerging opportunities, strengthening cross-border governance frameworks, and investing in both physical infrastructure and social capital development. The evidence suggests that successful regional development requires balancing structural stability with adaptive capacity, fostering innovation while maintaining valuable traditional sectors, and supporting both formal institutions and informal networks.

The study concludes that building resilient border regions requires moving beyond traditional development paradigms toward more transformative approaches that empower local communities and foster cross-border cooperation. As Europe confronts increasing uncertainty from climate change, geopolitical tensions, and technological disruption, the experience of eastern border regions offers valuable insights into processes of regional adaptation and transformation. Their trajectory suggests that sustainable development emerges not from resistance to change, but through the capacity to creatively repurpose existing resources for new development pathways,  ultimately enhancing both regional and EU-wide competitiveness.

This research provides a comprehensive framework for understanding and enhancing territorial exaptive resilience in border regions, offering empirically grounded guidance for policymakers and stakeholders engaged in regional development. The findings indicate that with appropriate support and policy frameworks, eastern border regions can transform their peripheral position into a source of innovative adaptation, enhancing both regional competitiveness and contributing to more balanced and sustainable development across the European Union.

Policy questions:

• What does exaptive resilience mean in a regional/territorial context? What exactly would exaptive resilience be in the specific context of a given region, taking into account its specific characteristics, among others, those related to its location at the EU's external border?
• What practices exist in reutilizing local resources and competitive advantage, demonstrating exaptive resilience?
• Is there an exaptive potential that helps to identify new development paths and overcome path dependency?
• What are the drivers for exaptive practices and potential (local policies, strategies,networks, culture, industrial structure, education, etc.)?
• How to develop and harness the exaptive capacity of these regions considering the geopolitical paradigm shift and their new functions?
• Can existing governance mechanisms serve as exaptive resilience?
• How can the new cohesion policy and other mechanisms post 2027 more efficiently support territorial exaptive resilience? What kind of policies and support instruments (financial, legislative) are expected to be most effective to enhance exaptive resilience?

Service provider: 

Szazadveg, Hungary

Contact:

Vassilen Iotzov, Research and Policy Manager 
Ramona Tanasa, Financial Reporting Manager