Strasbourg, 28 October 2014                                                                       GT-TD(2014)5

EUROPEAN COMMITTEE ON DEMOCRACY AND GOVERNANCE

(CDDG)

WORKING GROUP FOR THE PREPARATION
OF A REFERENCE TEXT ON DEMOCRACY

(GT-TD)

MEETING REPORT[1]

6 October 2014

1.         Opening of the meeting

The meeting was opened by the Chair, Mr Alexander Balthasar, who welcomed the participants. The list of participants appears in Appendix 1.

2.         Adoption of the agenda

The agenda as adopted appears in Appendix 2.

3.         Elaboration of an opinion on a reference text on the existing principles and        standards of democracy

Director-General Samardžić-Marković addressed the participants and underlined that the Secretary General, in his Statutory Declaration before the Ministers’ Deputies on 16 September 2014, indicated that there was a need to reinforce the role of the Council of Europe when it comes to upholding democratic principles and that elaborating a reference text on democracy would be a useful exercise in this regard as well as for many other stakeholders since such text does not exist at the international level.

The Director-General recalled the intended functions of such a non-binding text – to serve for defining the CoE programmes and activities in the democracy field and, should the member states deem it appropriate, help them in shaping their policies in compliance with the CoE standards.

The Director-General considered that there was a momentum for elaborating a reference text on democracy and that the CDDG was well-placed to outline its content as the committee members are experts on democracy and good governance issues.       

Tour de table

The Group held a tour de table on the “usefulness” and “necessity” of a reference text on democracy.

Whereas several delegations considered that such a text could be quite useful, the majority was not of the explicit opinion that preparing it would be, in the strict sense of the term, “necessary”.  

Several delegations felt quite uneasy that such a text, although established pursuant to the mandate, only for internal programming purposes of the Secretariat-General, in particular for the Directorate-General “Democracy”, would nevertheless, in the course of time, have more or less expanded binding or assessing effects on member states.

If, however, the “purpose” of the text was indeed restricted to internal use of the Secretariat, the need was not felt to confer the task of elaborating such a text to the CDDG; rather, delegations were of the opinion that this work could be done entirely by the Secretariat itself.

In this case, assessment of “feasibility”, including personal and budgetary resources, would be completely up to the Secretariat.

With regard to the current mandate, however, several delegations expressed their concern that, for different reasons, it would be difficult for them to provide the resources needed, at least within the framework of CDDG, for the preparation of such a text.

Finally, several delegations stressed that even a mere compilation of already existing documents on democracy would, when put together in a single reference text, need thorough assessment of their respective weight, careful balancing and, therefore, exceed the capacities of CDDG, given its other tasks and priorities. 

Draft advice

The Group discussed and agreed on a draft advice on a reference text on democracy as it appears in Appendix 3. The Chair requested the Secretariat to disseminate it to all members of the Group and submit it also to the CDDG for consideration at its next meeting in December. 

4.         Other business

None

APPENDIX 1

LIST OF PARTICIPANTS

MEMBERS / MEMBRES

CHAIRMAN / PRESIDENT

Mr Alexander BALTHASAR, Head of the Institute for State Organization and Administrative Reform, Federal Chancellery of Austria, Ballhausplatz 1, A - 1014 WIEN

Tel: (43) 1 53115 202806 ; Fax: (43) 1 53109 202806;

E-mail: [email protected]

ARMENIA / ARMENIE

Ms Elen HARUTYUNYAN, Deputy to the Permanent Representative, Permanent Representation of Armenia, 40 allée de la Robertsau, 67000 STRASBOURG

E-mail: [email protected]

BELGIUM / BELGIQUE

M. Paul-Henri PHILIPS, Chargé des Relations internationales, Bruxelles Pouvoirs Locaux, Service public régional de Bruxelles, Boulevard du Jardin Botanique, 20, B – 1035 BRUXELLES

Tel : (32) 2 800 32 77; Cel-phone: (32) 499 58 81 05; Fax :(32) 2 800 38 00;

E-mail : [email protected]

M. Xavier KALBUSCH, Ministerium der Deutschsprachigen Gemeinschaft, Gospert 1, 4700 EUPEN

Tél : (32) (0)87 59 63 00 ; Fax : (32) (0)87 55 28 91 ;

E-mail : [email protected]; [email protected]

BULGARIA / BULGARIE

Mrs Desislava DRAGOVA, Senior expert, Ministry of Regional Development, 17-19 St. Kiril I Metodii Str., 1202 SOFIA;

Tel : +(359) 2 9405 428 ; E-mail: [email protected]

Mrs Marina PETKOVA, Junior expert, Ministry of Regional Development, 17-19 St. Kiril I Metodii Str., 1202 SOFIA;

Tel : +(359) 2 9405 538 ; E-mail: [email protected]

DENMARK / DANEMARK

Miss Maken TZEGGAI, Deputy Permanent Representative, Permanent Representation of Denmark to the Council of Europe, Strasbourg

Tel: 33 (0)6 08 69 74 44; E-mail: [email protected]

ESTONIA / ESTONIE

Mr Kaur KAASIK-AASLAV, Adviser to the Regional Administration Department, Ministry of the Interior, Pikk 61, TALLINN, 15065

Tel: (372) 612 5136; E-mail:[email protected]

Mr Tanel TANG, Deputy to the Permanent Representative, Permanent Representation of Estonia to the Council of Europe

Tel: 33 (0)3 88 24 76 51; E-Mail: [email protected]

FINLAND / FINLANDE

Ms Inga NYHOLM, Ministerial adviser, Department for Local Government and Regional administration, Ministry of Finance, PO Box 28, FIN – 00023 GOVERNMENT

Tel: (358) 40 760 5524; E-mail: [email protected]

GERMANY / ALLEMAGNE

Mrs Kristina SCHADE, Division O2, Better regulation, bureaucracy reduction; Act on E-Government; local matters, Federal Ministry of the Interior, Alt-Moabit 101, D-10559 BERLIN

Tel: (49) 30 18 681 2137; E-mail: [email protected]

GREECE / GRECE

Mr Georgios CHRYSAFIS, Directorate of Organisation and Functionning of Local Government, Mnistry of the Interior, 27, Stadiou Str., 10183 Athens

E-mail: [email protected]

HUNGARY / HONGRIE

Apologised for absence / excusé

ITALY / ITALIE

Mr Francesco GIUSTINO, Presidenza del Consiglio dei Ministri, D.A.R. - Ufficio Attività Internazionali, ROMA

Tel. +39.06.6779.5130; E-mail: [email protected]

LATVIA

Mr Martins KLIVE, Deputy Permanent Representative, Permanent Representation of Latvia to the Council of Europe, Strasbourg

Tel: 33 (0)3 88 24 70 81; E-mail: [email protected]

MALTA / MALTE

Apologised for absence / excusé

NETHERLANDS / PAYS-BAS

Mr Tom LEEUWESTEIN, Head of Europe and Local and Regional Governance Unit, Directorate General for Governance and Kingdom Relations, Ministry of the Interior and Kingdom Relations, P.O Box 20011, NL - 2500 EA THE HAGUE

Tel: (31) 6 53578243; Fax: (31) 70 426 7655; E-mail: [email protected]

Mrs Gabriëlle METZ, Policy Advisor, Europe and Governance, Ministry of the Interior and Kingdom Relations, P.O Box 20011, NL - 2500 EA THE HAGUE

Tel: (31) 6 52766098; E-mail: [email protected]

NORWAY / NORVEGE

Mrs Greta Ulland BILLING, Senior International Adviser, Department for Local Government,  Ministry of Local Government and Modernisation, Postbox 8112 DEP, N - 0032 OSLO

Tel: (47) 22 24 72 25; Mobile: (47) 92 61 37 27; Fax: (47) 22 24 27 35;

E-mail: [email protected]

RUSSIAN FEDERATION / FEDERATION DE RUSSIE

Mr Igor KOCHETKOV, Section Chief, Department for Liaisons with the Constituent Entities of the Federation, the Parliament, and the Public Associations of the Russian Ministry of Foreign Affairs, Arbat Str, 57, MOSCOW

E-mail: [email protected]

SPAIN / ESPAGNE

M. Federico TORRES MURO, Représentant permanent adjoint, Représentation permanente de l’Espagne auprès du Conseil de l’Europe, Strasbourg

E-mail : [email protected]

SWITZERLAND / SUISSE

Dr Robert BAUMANN, Responsable du Service du Fédéralisme/Responsible for the Service of Federalism, Office fédéral de la Justice, Bundesrain 20, CH – 3003 BERNE

Tél : (41) 31 322 41 61 ; Fax : (41) 31 322 84 01 ;

E-mail : [email protected]

TURKEY / TURQUIE

Mr Ufuk HASÇKAL, Head of Department, Ministry of Interior, ANKARA

E-mail: [email protected]

UNITED KINGDOM / ROYAUME-UNI

Mr Paul ROWSELL, Deputy Director, Democracy, Department for Communities and Local Government, 2^nd Floor Fry Building, 2 Marsham Street, Westminster, LONDON SW1P 4DF

Tel: (44) 303 44 42568; E-mail: [email protected]

OTHER PARTICIPANTS / AUTRES PARTICIPANTS

PARLIAMENTARY ASSEMBLY / ASSEMBLEE PARLEMENTAIRE

Mrs Silvia ARZILLI, Service des questions politiques et de la démocratie

E-mail : [email protected]

CONGRESS OF LOCAL AND REGIONAL AUTHORITIES OF THE COUNCIL OF EUROPE / CONGRES DES POUVOIRS LOCAUX ET REGIONAUX DU CONSEIL DE L’EUROPE

Mr Tim LISNEY, Deputy Secretary of the Chamber of Local Authorities / Secrétaire adjoint de la Chambre des pouvoirs locaux – Secretary of the Governance Committee / Secrétaire de la Commission de la gouvernance

Tel: (33) 3.88.41.35.73; Fax: (33) 3.88.41.27.51; E-mail: [email protected]

Mrs Nichola HOWSON, Co-secretary to the Governance Committee / Co-secrétaire de la Commission de la gouvernance

Tel: (33) 3.88.41.22.39; Fax: (33) 3.88.41.27.51;  E-mail: [email protected]

CONFERENCE OF INGOS OF THE COUNCIL OF EUROPE / CONFERENCE DES OING DU CONSEIL DE L’EUROPE

M. Michel AGUILAR, Président de la Commission droits de l’homme

E-mail : [email protected]

M. Thierry MATHIEU, Vice-Président de la Commission démocratie, cohésion sociale et enjeux mondiaux

E-mail : [email protected]

SECRETARIAT

Mrs Snežana SAMARDŽIĆ-MARKOVIĆ, Director General of Democracy (DG II) / Directrice Générale de la Démocratie (DG II)

Tel : +33 (0)3 88 41 22 36 ; E-mail : [email protected]

Ms Claudia LUCIANI, Director of Democratic Governance / Directrice de la gouvernance démocratique / Directorate General of Democracy / Direction générale de la démocratie

Tel : +33 (0)3 88 41 21 49 ; Fax : +33 (0)3 88 41 27 55;

E-mail : [email protected]

Mr Alfonso ZARDI, Head of Democratic Institutions and Governance Department / Chef du Service des institutions et de la gouvernance démocratiques - Directorate of Democratic Governance / Direction de la gouvernance démocratique, Directorate General of Democracy / Direction générale de la démocratie

Tel : +33 (0)3 88 41 39 06; Fax : +33 (0)3 88 41 27 84; E-mail : [email protected]

Ms Severina SPASSOVA, Senior project manager / Responsable principale de projets - Directorate of Democratic Governance / Direction de la gouvernance démocratique, Directorate General of Democracy / Direction générale de la démocratie

Tel: +33 (0)3 88 41 25 75; Fax: +33 (0)3 88 41 27 84;

E-mail: [email protected]

APPENDIX 2

AGENDA

         

APPENDIX 3

DRAFT OF A POSSIBLE CDDG ADVICE ON THE PREPARATION

OF A REFERENCE TEXT ON DEMOCRACY

1.         The Committee of Ministers, in the Terms of Reference it adopted on 19-20 November 2013 for the European Committee on Democracy and Governance (CDDG) has instructed the Committee to:

“on the basis of a comprehensive document by the Secretariat, advise the Committee of Ministers on the necessity, purpose, scope, feasibility and budgetary and workload implications of the preparation of a reference text bringing  together existing principles and standards of democracy, intended for programming purposes….”

2.         Having carefully considered the Secretariat’s Memorandum of 25 September 2014 on a possible reference text on democracy, and noted and considered the Secretary General's comments on a reference text in his Statutory Declaration of 16 September 2014 to the Ministers’ Deputies, the CDDG’s advice to the Committee of Ministers is as set out below.

Advice

3.         The CDDG takes note of the Secretary General's view that “it would be a useful exercise to go through a process of bringing the existing principles and standards of democracy together, reaffirming them in a single authoritative document, as a reference text on democracy”. The CDDG similarly takes note of the Secretary General’s comment that “such a text does not exist in any other organisation and it could be useful for many others as a book of reference”.

4.         Underpinning this position of the CDDG is the belief that it would be feasible to draw into a single document statements in existing Council of Europe documents which set out principles and standards of democracy. The Secretariat Memorandum provides some indication of how such an exercise might be approached, and the CDDG accepts that this could prove a practicable way forward.

 

5.         The CDDG nevertheless believes that such an exercise might not be straightforward, and that creating a reference text carries risks (for example, highlighting inconsistencies and incompatibilities between different texts, or providing an overly narrow understanding or definition of democracy). These risks, if realised, could lower the existing standards of democracy.

6.         As to the purpose of a reference text on democracy, the CDDG notes that its Terms of Reference envisages the document is to be used “for programming purposes”. The CDDG accepts that such a document could contribute to the internal decision-making and prioritisation within the Council of Europe. The CDDG also notes that the Secretary General envisages such a document as being potentially useful for many organisations “as a book of reference” and hence facilitate the upholding of democratic principles, and the CDDG also accepts that such a document could serve such a purpose. However, the CDDG recognises that a reference text which could under certain circumstances serve such beneficial purposes might on occasion risk being detrimental to the promotion of a modern and effective democracy.

7.         Accordingly, the CDDG considers that there is a balanced judgement to be made as to whether the clear usefulness of a reference text on democracy outweighs the risks the existence of such a text might pose. The CDDG is therefore clear that there is no unequivocal necessity for a reference text on democracy.

8.         The budgetary and workload implications of preparing a reference text with the scope and form that maximises its usefulness and minimises its risks are important factors to take into account. The CDDG believes that these implications are not insignificant, and considers that this task could not be undertaken by the CDDG without putting at risk other of its activities within the current Terms of Reference. However, the CDDG is clear that questions of prioritisation and the allocation of resources are not matters for it to consider, but are matters for the Committee of Ministers.

9.         The CDDG therefore advises the Committee of Ministers that decisions about whether or not it is appropriate now for the member states of the Council of Europe to embark on drawing up a reference text on democracy will involve reaching a balanced judgement which must be a matter for the Committee of Ministers. Further, the CDDG advises that in reaching this balanced judgement the Committee of Ministers should have regard to the following:

• A reference text on democracy, bringing the existing principles and standards of democracy together, and reaffirming them in a single document could be useful for internal programming purposes and for facilitating the upholding of democratic principles across Europe and indeed more widely.

• There is no unequivocal necessity for such a text.

10.      Given these considerations, the CDDG advises the Committee of Ministers to ask the Secretariat of the Council of Europe to prepare a compendium of the most relevant existing documents in the area of democracy.

11.      Upon the agreement from the CDDG on which existing documents should be in the list, the Secretariat will (1) use this compendium for its own programming purposes; (2) make it available online on the web-site of the Council of Europe for the information purposes of European citizens.