Mind the Border! Agents and functions to shape regional Challenge-oriented innovation policy

This paper explores the operationalization of policy directionality in terms of goal consistency as well as the spatial dimensions of problems and solutions. The study focuses on cross-border regions (CBRs), since they are engaged in cooperation to tackle common challenges. This study employs a comparative analysis across two EU CBRs, drawing on a theoretical framework that integrates the trinity of agency scholarships and the literature on the multiplicity of border functions. By combining these perspectives, we aim to illustrate how agents navigate the opportunity spaces generated within CBRs. This paper aims to shed light on the interplay between agents to navigate the conditions that the presence of international border generates in the EU cross-border regions (CBR)s to tackle Societal Challenges (SC)s. Through this integrated framework, we explore how agents perceive, interpret, and respond to the complex dynamics and possibilities that emerge in CBRs, shedding light on the interplay between structure and agency in these unique spatial settings. The findings show how SC can be framed at different scales with ambivalent results in terms of consistency of policy goals. Framed through the trinity agency framework, actors interacted collectively to generate and transfer knowledge in the CBRs.