Strasbourg, 30 January 2009 LR-GG(2009)2
EUROPEAN COMMITTEE ON LOCAL AND REGIONAL DEMOCRACY
(CDLR)
COMMITTEE OF EXPERTS ON GOOD DEMOCRATIC
GOVERNANCE AT LOCAL AND REGIONAL LEVEL
(LR-GG)
DRAFT ADDITIONAL PROTOCOL TO THE ECLSG
ON DEMOCRATIC PARTICIPATION AT LOCAL LEVEL
AND DRAFT EXPLANATORY REPORT
Secretariat Memorandum
prepared by the Directorate General of
Democracy and Political Affairs
Directorate of Democratic Institutions
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Introduction
At its meeting in June 2008, the CDLR examined the preliminary draft additional protocol to the ECLSG on democratic participation at local level.
The CDLR agreed to send this text to the Congress asking for its opinion in time for the meeting of the CDLR in December 2008, indicating that this text was subject to minor and drafting amendments as a result of its examination by the LR-DP at its meeting on 8-9 September 2008.
The Opinion of the Congress, prepared by its Institutional Committee, appears at Appendix 2.
The text of the draft Additional protocol was reviewed at the 42nd meeting of the CDLR from 8-10 December 2008. The decisions reached are reflected in the following extract from the report of the CDLR meeting:
“The delegations from Iceland, Slovakia and Switzerland stated their governments were not in favour of this instrument taking the form of an additional protocol to the ECLSG. The representative of the CEMR expressed the same opinion. However, it was recalled that at Valencia a political decision had been taken to elaborate the instrument in this form and that it was not within the CDLR’s remit to go back on this decision. The Committee therefore decided not to pursue this debate.
The Congress Secretariat informed the Committee that Congress had at its recent session (1-3 December 2008) adopted its opinion in conformity with the draft prepared by its Institutional Committee and included in document CDLR(2008)41. The Committee welcomed the positive spirit of the Congress opinion.
As concerns the text of the provisions, as approved unanimously by the LR-DP Committee at its meeting on 8-9 September 2008 a number of points were raised.
The German delegation would like to see Article A.1 amended in such a way as to make clear that the scope of the provision would be determined by national law. The Committee did not accept this proposal but agreed that the explanatory report would make clear the scope of Article A.1 and in particular that it is subject to the limitations set out in paragraphs 5.1 to 5.3 of that Article.
The same delegation was not in a position to agree with the current text envisaged for Article B.3. This was the only provision on which no agreement had been reached in the LR-DP Committee. No decisions were taken on this point.
The Swiss delegation proposed an alignment of Articles A.5.3 and B.3 with the wording used in Article 10.2 of the European Convention of Human Rights. It was recalled that this wording had been considered at an earlier stage and had been rejected by the delegations. The Committee therefore decided to maintain the wording as it resulted from the LR-DP meeting.
The delegation from Sweden and the United Kingdom proposed to replace the words “place a duty on” in Article C.1 by “empower”. The Committee agreed.
The Committee also noted that the usual opening and final clauses were still to be added to the draft text, as well as a preamble. It asked the Secretariat to prepare these.
The Committee did not make any amendments to the draft Explanatory Report, but requested that it be supplemented in light of the discussions.
In light of the above, the Committee agreed to instruct the LR-GG Committee to prepare a final text of the draft additional protocol and of the explanatory report in time for it to be approved at the CDLR meeting in April 2009. This would be necessary to respect this deadline in order enable the Committee of Ministers to adopt the text and open it for signature at the 16th session of the Ministerial Conference which will take place in Utrecht, on 16-17 November 2009. The CDLR invited the Congress to put forward any issues concerning the text as soon as possible and to be represented at the meetings of the LR-GG Committee.”
In view of the CDLR’s discussions the following points require the Committee’s attention at the meeting in February 2009:
- Draft Preamble and opening clause
The Secretariat has prepared an opening clause which is included in Appendix 1 (in italics). The Committee is invited to give guidance as to the recitals to be included in the preamble.
- Draft final clauses
The Secretariat has prepared for the Committee’s consideration draft final clauses based on the standard clauses adopted by the Committee of Ministers, which are included in Appendix 1 (in italics);
- Draft Explanatory Report
The Secretariat has modified the draft Explanatory Report in light of the CDLR’s discussion. These changes appear in underlining at Appendix 3;
- Draft Article B.3
The Committee is to consider and finalise its proposal for the final text of this Article (see Appendix 1);
- Draft Article C.2
The amendment to Article C.1 retained by the CDLR and reflected in Appendix 1 appears to cause difficulties with Article C, paragraph 2 because the notion of “duty” still appears there. The Secretariat has prepared the following suggestion for consideration by the Committee;
“In the planning and decision making processes concerning the legal and other measures pertaining to the empowerment of local authorities, the latter shall be consulted insofar as possible, in due time and in an appropriate way.”
Members may wish to put forward other options.
- Congress comments
The Congress has been invited to put forward any issues concerning the text as soon as possible and to be represented at the LR-GG meeting. The Committee may thus wish to consider possible suggestions by the Congress, which will be submitted to the Committee as soon as they are available.
Action required
The Committee is invited to adopt the text of the draft additional protocol and the Explanatory report with a view to submitting it to the CDLR for final approval at its meeting in April 2009.
Appendix 1
DRAFT ADDITIONAL PROTOCOL TO THE EUROPEAN CHARTER OF LOCAL SELF-GOVERNMENT
as approved by the CDLR at its meeting in December 2008
(subject to elaboration of options for Article B.3)
New suggestions by the Secretariat appear in italics
./.
PROJET DE PROTOCOLE ADDITIONNEL A LA CHARTE EUROPEENNE DE L'AUTONOMIE LOCALE
comme révisé et approuvé par le CDLR lors de sa réunion de décembre 2008
(sous réserve de l'élaboration d’options pour l'Article B.3)
Les nouvelles propositions du Secrétariat apparaissent en italiques
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Les Etats membres du Conseil de l’Europe, signataires |
The member States of the Council of Europe, signatories hereto |
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Ont décidé ce qui suit: |
Have agreed as follows: |
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Article A Droit de participer aux activités d’une collectivité locale |
Article A Right to participate in the affairs of a local authority |
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1. Les Parties assurent à toute personne relevant de leur juridiction le droit de participer aux activités des collectivités locales. |
1. The Parties shall secure to everyone within their jurisdiction the right to participate in the affairs of a local authority. |
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2. Le droit de participer aux activités d’une collectivité locale désigne le droit de s’efforcer de déterminer ou d’influencer l’exercice des compétences de la collectivité locale. |
2. The right to participate in the affairs of a local authority denotes the right to seek to determine or to influence the exercise of a local authority's powers and responsibilities. |
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3. La loi prévoit des mesures qui facilitent l’exercice de ce droit. Sans opérer de discrimination injustifiée à l’égard de quelque personne ou groupe que ce soit, la loi peut prévoir des mesures spécifiques adaptées à certaines situations ou catégories de personnes. |
3. The law shall provide means of facilitating the exercise of this right. Without unfairly discriminating against any person or group, the law may provide particular measures for different circumstances or categories of persons. |
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4.1. La loi reconnaît aux citoyens de la Partie le droit de participer, en qualité d’électeur ou de candidat, à l’élection des membres du conseil ou de l’assemblée de la collectivité locale dans laquelle ils résident. 4.2. La loi reconnaît également ce droit à d’autres personnes pour autant que la Partie en décide ainsi conformément à ses dispositions constitutionnelles ou à ses obligations légales internationales. |
4.1. The law shall recognise the right of citizens of the Party to participate, as voters or candidates, in the election of members of the council or assembly of a local authority in which they reside. 4.2. The law shall also recognise the right of other persons to so participate where the Party, in accordance with its own constitutional order, so decides or where this accords with the Party’s international legal obligations. |
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5.1. Toute formalité, condition ou restriction à l’exercice du droit de participer aux activités d’une collectivité locale doit être prévue par la loi et être compatible avec les obligations légales internationales de la Partie. 5.2. La loi fixe les formalités, conditions et restrictions nécessaires pour garantir que l’intégrité éthique et la transparence de l’exercice des compétences de la collectivité locale ne sont pas compromises par l’exercice du droit de participer. 5.3. Toute autre formalité, condition ou restriction doit être nécessaire au fonctionnement d’un régime politique véritablement démocratique, au maintien de la sécurité publique dans une société démocratique ou au respect par la Partie des exigences de ses obligations légales internationales. |
5.1. Any formalities, conditions or restrictions to the exercise of the right to participate in the affairs of the local authority shall be prescribed by law and be compatible with the Party’s international legal obligations 5.2. The law shall impose such formalities, conditions and restrictions as are necessary to ensure that the ethical integrity and transparency of the exercise of local authorities’ powers and responsibilities are not jeopardised by the exercise of the right to participate. 5.3. Any other formalities, conditions or restrictions must be necessary for the operation of an effective political democracy, for the maintenance of public safety in a democratic society or for the Party to comply with the requirements of its international legal obligations. |
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Article B Droit d'accès à des documents publics |
Article B Right of access to official documents |
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1. Les Parties assurent à toute personne relevant de leur juridiction, sans discrimination pour quelque motif que ce soit, le droit d’accès, à la demande, aux documents publics détenus par les collectivités locales. |
1. The Parties shall secure to everyone within their jurisdiction, without discrimination on any ground, the right to have access, on request, to official documents held by local authorities. |
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2. Les Parties prennent, dans leur droit interne, les mesures nécessaires pour faciliter l’exercice de ce droit. |
2. The Parties shall take the necessary measures in their domestic law to facilitate the exercise of this right.
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3. [Les limitations doivent être précisément établies dans la loi, être nécessaires dans une société démocratique, être proportionnelles au but de protéger un intérêt légitime et être compatibles avec les obligations légales internationales de la Partie.]
NB : Aucune décision n’a encore été prise sur la terminololgie de ce paragraphe. |
3. [Limitations shall be set down precisely in law, be necessary in a democratic society, be proportionate to the aim of protecting a legitimate interest and be compatible with the Party’s international legal obligations.] NB: No decision on the wording of this paragraph has been taken yet. |
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Article C Mesures de mise en œuvre par les collectivités locales |
Article C Implementing measures by local authorities |
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1. Les Parties habiliteront les collectivités locales à permettre, promouvoir et faciliter l'exercice du droit de participer et du droit d’accès aux documents publics établis dans le présent Protocole. |
1. The Parties shall empower local authorities to enable, to promote, and to facilitate the exercise of the right to participate and the right of access to official documents set out in this Protocol. |
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2. Au cours du processus de planification et de décision concernant les mesures juridiques et autres régissant le respect de cette obligation, les collectivités locales doivent être consultées, autant qu’il est possible, en temps utile et de façon appropriée. |
2. In the planning and decision making processes concerning the legal and other measures governing the implementation of this duty, local authorities shall be consulted insofar as possible, in due time and in an appropriate way. |
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3 Ces mesures doivent prévoir : |
3 These measures shall include: |
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i. des procédures permettant l’exercice du droit de participer, qui peuvent inclure des procédures de consultation, des référendums locaux et des pétitions ; |
i. procedures for the exercise of the right to participate, which may include consultative processes, local referendums and petitions; |
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ii. toutes mesures visant à répondre aux besoins des catégories de personnes qui sont confrontées à des obstacles particuliers à participer ; |
ii. any steps and measures to meet the needs of categories of persons who face particular obstacles in participating; |
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iii. des procédures permettant à la population de participer à un niveau proche d’elle, notamment lorsque la collectivité locale est fortement peuplée et/ou géographiquement très étendue ; |
iii. procedures for involving people at levels close to them, in particular where the local authority has many inhabitants and/or covers a large geographical area; |
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iv. des procédures permettant l’exercice du droit d’accès aux documents publics, y compris des mesures pour mettre à disposition les documents publics qu’elles détiennent dans l’intérêt de promouvoir la transparence et l’efficacité de l’administration publique et pour encourager la participation éclairée du public à des questions d’intérêt général ; |
iv. procedures for the exercise of the right of access to official documents, including measures to make public official documents which they hold in the interest of promoting the transparency and efficiency of public administration and to encourage informed participation by the public in matters of general interest; |
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v. des mécanismes et des procédures en vue du traitement et de la réponse aux réclamations et suggestions concernant le fonctionnement des collectivités locales et des services publics locaux. |
v. mechanisms and procedures for dealing with and responding to complaints and suggestions on the functioning of local authorities and local public services. |
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4. Ces mesures peuvent énoncer différentes dispositions pour différentes catégories de collectivités locales, au regard de leur taille et compétences. |
4. These measures may make different provisions for different categories of local authorities, having regard to their size and competences. |
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Article D Application du Protocole aux collectivités |
Article D Authorities to which the Protocol applies |
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1. Le présent Protocole s'applique à toutes les catégories de collectivités locales existant sur le territoire de la Partie. Toutefois, chaque Partie peut, au moment du dépôt de son instrument de ratification, d'acceptation ou d'approbation, désigner les catégories de collectivités locales ou régionales auxquelles elle entend limiter le champ d'application ou qu'elle entend exclure du champ d'application de la présente Charte. Elle peut également inclure d'autres catégories de collectivités locales ou régionales dans le champ d'application de la Charte par voie de notification ultérieure au Secrétaire Général du Conseil de l'Europe. |
1. This Protocol applies to all the categories of local authorities existing within the territory of the Party. However, each Party may, when depositing its instrument of ratification, acceptance or approval, specify the categories of local or regional authorities to which it intends to confine the scope of the Protocol or which it intends to exclude from its scope. It may also include further categories of local or regional authorities within the scope of the Protocol by subsequent notification to the Secretary General of the Council of Europe. |
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2. Tout Etat peut, au moment du dépôt de l’instrument de ratification, d'acceptation, d'approbation ou d’adhésion, ou ultérieurement en adressant une notification au Secrétaire Général du Conseil de l’Europe, inclure des catégories de collectivités régionales dans le champ d’application du présent Protocole.
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2. Each State may, when depositing its instrument of ratification, acceptance or approval, or subsequently by notification to the Secretary General of the Council of the Council of Europe, include categories of regional authorities within the scope of this Protocol. |
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Article E Application territoriale |
Article E Territorial application |
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1. Tout Etat peut, au moment du dépôt de l’instrument de ratification, d'acceptation, d'approbation ou d’adhésion, désigner le ou les territoires auxquels le présent Protocole s’applique. |
1. Any State may at the time of signature or when depositing its instrument of ratification, acceptance, approval or accession, specify the territory or territories to which this Protocol shall apply. |
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2. Toute Partie peut à tout moment par la suite, étendre l'application du présent Protocole, par déclaration adressée au Secrétaire Général du Conseil de l'Europe, à tout autre territoire désigné dans la déclaration. Le Protocole entrera en vigueur à l'égard de ce territoire le premier jour du mois qui suit l'expiration d'une période de trois mois après la date de réception de ladite déclaration par le Secrétaire Général. |
2. Any Party may at any later date, by a declaration addressed to the Secretary General of the Council of Europe, extend the application of this Protocol to any other territory specified in the declaration. In respect of such territory the Protocol shall enter into force on the first day of the month following the expiration of a period of three months after the date of receipt of such declaration by the Secretary General. |
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3. Toute déclaration faite en vertu des deux paragraphes précédents pourra être retirée, en ce qui concerne tout territoire désigné dans cette déclaration, par notification adressée au Secrétaire Général du Conseil de l'Europe. Le retrait prendra effet le premier jour du mois qui suit l'expiration d'une période de six mois après la date de réception de ladite notification par le Secrétaire Général. |
3. Any declaration made under the two preceding paragraphs may, in respect of any territory specified in such declaration, be withdrawn by a notification addressed to the Secretary General. The withdrawal shall become effective on the first day of the month following the expiration of a period of six months after the date of receipt of such notification by the Secretary General. |
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Article F Relations avec la Charte |
Article F Relationship to the Charter |
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Les Etats parties considèrent les articles A-E comme des articles additionnels à la Charte et toutes les dispositions de la Charte s'appliquent en conséquence. |
As between the Parties, the provisions of Articles A-E shall be regarded as additional articles to the Charter and all the provsions thereof shall apply accordingly. |
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Article a Le présent Protocole est ouverte à la signature des Etats membres du Conseil de l'Europe, signataires de la Charte de l’autonomie locale. Elle sera soumise à ratification, acceptation ou approbation. Un Etat membre du Conseil de l'Europe ne pourra ratifier, accepter ou approuver le présent Protocole sans avoir simultanément ou antérieurement ratifié la Charte de l’autonomie locale. Les instruments de ratification, d'acceptation ou d'approbation seront déposés près le Secrétaire Général du Conseil de l'Europe. Article b 1. Le présent Protocole entrera en vigueur le premier jour du mois qui suit l'expiration d'une période de trois mois après la date à laquelle huit Etats membres du Conseil de l'Europe auront exprimé leur consentement à être liés par le Protocole conformément aux dispositions de l'article a. 2. Pour tout Etat membre qui exprimera ultérieurement son consentement à être lié par le Protocole, celui-c entrera en vigueur le premier jour du mois qui suit l'expiration d'une période de trois mois après la date du dépôt de l'instrument de ratification, d'acceptation ou d'approbation. Article f 1. Toute Partie peut, à tout moment, dénoncer le présent Protocole en adressant une notification au Secrétaire Général du Conseil de l'Europe. 2. La dénonciation prendra effet le premier jour du mois qui suit l'expiration d'une période de six mois après la date de réception de la notification par le Secrétaire Général. Article g Le Secrétaire Général du Conseil de l'Europe notifiera aux Etats membres du Conseil de l'Europe et à tout Etat ayant adhéré au présent Protocole : a. toute signature; b. le dépôt de tout instrument de ratification, d'acceptation, d'approbation ou d'adhésion; c. toute date d'entrée en vigueur du présent Protocole conformément à ses articles b, c et d; d. tout autre acte, notification ou communication ayant trait au présent Protocole. En foi de quoi les soussignés, dûment autorisés à cet effet, ont signé le présent Protocole. Fait à Utrecht, le 16 novembre 2009 en français et en anglais, les deux textes faisant également foi, en un seul exemplaire qui sera déposé dans les archives du Conseil de l'Europe. Le Secrétaire Général du Conseil de l'Europe en communiquera copie certifiée conforme à chacun des Etats membres du Conseil de l'Europe et à tout Etat invité à adhérer au présent Protocole. |
Article a This Protocol shall be open for signature by the member States of the Council of Europe signatories to the European Charter of Local Self-Government. It is subject to ratification, acceptance or approval. A member State of the Council of Europe may not ratify, accept or approve this Protocol unless it has, simultaneously or previously, ratified the European Charter of Local Self-Government. Instruments of ratification, acceptance or approval shall be deposited with the Secretary General of the Council of Europe. Article b 1. This protocol shall enter into force on the first day of the month following the expiration of a period of three months after the date on which eight member States of the Council of Europe have expressed their consent to be bound by the protocol in accordance with the provisions of Article a. 2. In respect of any member States which subsequently expresses its consent to be bound by it, the Protocol shall enter into force on the first day of the month following the expiration of a period of three months after the date of the deposit of the instrument of ratification, acceptance or approval. Article f 1. Any Party may at any time denounce this Protocol by means of a notification addressed to the Secretary General of the Council of Europe. 2. Such denunciation shall become effective on the first day of the month following the expiration of a period of six months after the date of receipt of the notification by the Secretary General. Article g The Secretary General of the Council of Europe shall notify the member States of the Council and any State which has acceded to this Protocol, of: a. any signature; b. the deposit of any instrument of ratification, acceptance, approval or accession; c. any date of entry into force of this Protocol in accordance with Articles b, c, and d; d. any other act, notification or communication relating to this Protocol. In witness whereof the undersigned, being duly authorised thereto, have signed this Protocol. Done at Utrecht on the 16th of November 2009, in English and in French, both texts being equally authentic, in a single copy which shall be deposited in the archives of the Council of Europe. The Secretary General of the Council of Europe shall transmit certified copies to each member State of the Council of Europe and to any State invited to accede to this Protocol. |
Appendix 2
The Congress
of Local and Regional Authorities
Chamber of Local Authorities
AUTUMN SESSION
CPL(15)9OPINION
31 October 2008
Preparation of a draft Protocol to the European Charter
of Local Self-Government on democratic participation at local level
Christopher Newbury, United Kingdom (L, EPP/CD)
Draft Opinion
Institutional Committee
R : Chamber of Regions / L : Chamber of Local Authorities
ILDG : Independent and Liberal Democrat Group of the Congress
EPP/CD : Group European People’s Party – Christian Democrats of the Congress
SOC : Socialist Group of the Congress
NR : Member not belonging to a Political Group of the Congress
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Approved with 9 votes in favour and one vote against by the Institutional Committee of the Chamber of Local Authorities on 31 October 2008. Members of the Committee: E. Calota (Chair), R. Aguilar Rivero, J. Almeida Barreto (alternate: A. Torres Pereira), Secretariat of the Committee: A. Schröder, S. Poirel, L. Nikoghosyan |
The Congress, bearing in mind the proposal of the Chamber of Local Authorities and having regard to the request of the European Committee on Local and Regional Democracy (CDLR) for an opinion on the preliminary draft additional protocol to the European Charter of Local Self-Government on democratic participation at local level:
1. Welcomes the CDLR’s initiative to set down the principle of democratic participation at the local level in a European legal instrument;
2. Emphasises that the issue of citizen participation is high on the agenda of the Congress and has been dealt with in several Congress reports, Recommendations and Resolutions, namely on youth, women’s and foreigners’ participation;
3. Recalls that the Preamble of the European Charter of Local Self-Government refers to “the right of citizens to participate in the conduct of public affairs” as one of the democratic principles shared by all member states of the Council of Europe and that it is at the local level where this right can be most directly exercised;
4. Sees absolutely no contradiction between the protection of local self-government and the protection of citizen participation, as a modern understanding of local democracy and good governance includes the active participation of citizens at the local level;
5. Reiterates the crucial importance of having a legal instrument for strengthening democratic participation at the local level and therefore subscribes to this initiative of the CDLR, despite its remaining preference to see citizens’ rights to participation enshrined in a legal instrument separate from the European Charter of Local Self-Government;
6. Notes, with regard to the deadline given for this opinion, that an appropriate final Congress position on the details of the provisions would require additional time for reflection and discussion;
7. Stands ready to contribute actively to the finalisation of the draft in a small, operational joint working group comprising representatives of the CDLR and the Congress with a view to best possible co-ordination and efficiency;
8. Believes that the finalisation of the draft should be achieved before the end of March 2009.
Appendix 3
Draft explanatory Report
NB: The text is identical to the text presented to the CDLR in document CDLR(2008)41 Add. Proposals for change are underlined in the text.
I. The Additional Protocol was drawn up within the Council of Europe by the European Committee for Local and Regional Democracy (CDLR). It was opened to signature as a convention by the parties to the European Charter of Local Self-Government on …………. 2009.
II. The text of the explanatory report prepared on the basis of the committee's discussions and submitted to the Committee of Ministers of the Council of Europe does not constitute an instrument providing an authoritative interpretation of the text of the Additional Protocol, although it may facilitate the understanding of its provisions.
A. Origins of the Additional Protocol
The Preamble of the Charter itself, adopted and opened for signature on 15 October 1985, recognises that the right of citizens to participate in the conduct of public affairs is one of the democratic principles that are shared by all member States of the Council of Europe. The Charter itself does not include substantive provisions on the topic.
The additional protocol to the European Charter of Local Self-Government on democratic participation is, in terms of standard setting, the culmination of more than two decades of intergovernmental work by the Council of Europe on democratic participation at local level.
As early as in 1978, the European Ministers responsible for Local Government at their 3rd meeting (Stockholm, 7-8 September 1978) adopted a resolution concerning citizen participation at the municipal level. The same topic appeared in the conclusions of their 4th meeting (Madrid, 21-23 May 1980).
In addition to numerous reports prepared by the CDLR, the Committee of Ministers over the years adopted a number of recommendations to member States pertaining to the topic, all prepared by the CDLR:
- Recommendation R(81)18 concerning participation at municipal level;
- Recommendation R(96)2 on referendums and popular initiatives;
- Recommendation Rec(2001)19 on the participation of citizens in local public life.
Following the adoption by the Committee of Ministers of Recommendation Rec(2001)19, the CDLR agreed to keep the implementation of this recommendation under review as well as to explore possible further steps, including standard-setting.
The Conference of European ministers responsible for Local and Regional Government at its 14th session in Budapest (24-25 February 2005) adopted the Budapest Declaration in which ministers agreed “to make delivering good local and regional governance an essential objective to be pursued by our member States in order to respond to the challenges facing our societies and meet the legitimate expectations of our citizens”.
In the Budapest Agenda, adopted at the same occasion and subsequently endorsed by the Third Summit of Heads of State and Government of the member states of the Council of Europe (Warsaw, 16-17 May 2005), the Ministers identified the challenges and actions to be taken in the period 2005-2010.
“Responding to the changing ways in which citizens engage in public life at local level and, in some cases, the decreasing willingness to do so” figured among the challenges identified. In order to address this challenge, the Ministers agreed “to examine the desirability and feasibility of introducing convention-based legal standards on the participation of citizens in public life at local and regional level”.
The CDLR and its sub-committee of Experts on Democratic Participation and Public Ethics (LR-DP) worked on this subject, first by examining the different options for the types of convention it would possible to prepare and subsequently by developing concrete proposals for substantive provisions.
At the 15th session of the Ministerial Conference, which took place in Valencia (15-16 October 2007), the Ministers gave a decisive political impetus to the process. They declared:
“2. The European culture of democratic participation of citizens in local public life constitutes an essential feature in our common understanding of and commitment to 21st century democracy in our continent. It therefore deserves to be enshrined in a pan-European legal instrument such as a convention. On this basis, we ask that the preparation of a draft Additional Protocol to the European Charter of Local Self-Government (CETS 122) be brought to a successful conclusion with a view to submitting it to the Committee of Ministers for approval and opening for signature and ratification before 31 December 2008.
3. This Protocol should reflect and respect the wealth and diversity of participatory techniques and procedures established in national, regional or local legislation and cover the following topics:
- the right to participation in public life at local level;
- the right to information from local authorities;
- the duties of local authorities to enable the exercise of these rights”.
The CDLR, assisted by the LR-DP Committee took forward the drafting work which was completed in…………….. The draft of the protocol was sent by the CDLR to the Committee of Ministers in …..2009.
At its 16th session on 16 and 17 November 2009 in Utrecht, the Council of Europe Conference of Ministers responsible for Local and Regional Government adopted the additional protocol and opened it for signature and ratification by member States Party to the Charter. The Ministerial Conference was expressly authorised to do so by decision of the Committee of Ministers, taken at its ….meeting on…….2009.
B. General remarks
The additional protocol aims to bring within the scope of the Charter the right of everyone to participate in the affairs of a local authority and to have access to the official information a local authority has.
This addition reflects a long-term societal development in European States. All countries, in different ways and to differing degrees, have come to recognise the fundamental importance of citizens being engaged and involved in public life. Democratic institutions should not be designed and cannot be sustained without taking on board the fundamental role and place of citizen participation.
Three main reasons are recognised for making this so. Firstly, participation is crucial to help sustain the legitimacy of decisions and deliver accountability. A second key argument is that public authorities need to listen and learn in order to design better policies and services. Finally, participation has an intrinsic value. It gives a sense of belonging and makes local communities places where people want to live and work, now and in the future.
Based on these considerations it was felt that the Charter of Local Self-Government, which commits the Parties to applying basic rules guaranteeing the political, administrative and financial independence of local authorities should also offer member States Party to the Charter the possibility to extend the scope of their international legal obligations to include certain rights for individuals at local level.
The addition of rights for individuals at local level does not in any way mitigate nor dilute the fundamental importance and validity of existing provisions of the Charter. The Charter embodies the conviction that the degree of self-government enjoyed by local authorities may be regarded as a touchstone of genuine democracy. By adding rights of individuals to the possible substantive provisions of the Charter its role as a beacon for democracy can only be enhanced.
[The Additional Protocol is in two parts. The first part contains the substantive provisions. The last part of the text contains final provisions consistent with those customarily used in conventions drawn up under the auspices of the Council of Europe.]
C. Commentary on the Additional Protocol's provisions
Preamble
(To be completed)
Article A - Right to participate in the affairs of a local authority
Paragraph 1
The first paragraph sets out the main substantive provision and is cast in the form of an individual right in manner used in the Convention for the Protection of Human Rights and Fundamental Freedoms. As is the case in that instrument, the issue of limitations to the right are dealt with in a separate paragraph (paragraph 5). The legal content results only from the combined reading of these paragraphs.
Paragraph 2
The second paragraph sets out the content of the individual right to participate in the affairs of a local authority.
Paragraph 3
The third paragraph requires a Party to the additional protocol to establish and/or to maintain a legislative framework that facilitates the right to participate in the affairs of a local authority. This framework need not provide for uniform measures, but may provide for measures that differ according to objective circumstances of people and/or of local authorities. An explicit stipulation is included to rule out that differentiation leads or amounts to discrimination.
Paragraph 4.1
This paragraph guarantees at international level the right of citizens of the Party to participate, as voters or candidates, in the election of members of the council or assembly of a local authority in which they reside. No such international guarantee is provided elsewhere. Article 3 of the first additional protocol to the European Convention of Human Rights concerns only elections for the legislature. Article 3 paragraph 2 of the Charter provides for the democratic election of local councils but is not cast as an individual right.
Paragraph 4.2.
The guarantee at international level contained in the previous paragraph is limited to citizens of the Party who reside within the area of the local authority.
The purpose of the current provision is to make clear that the additional protocol does not oppose the granting of electoral rights by the Party to other persons, such as citizens not resident in the local authority or non-citizens. If the Party chooses to grant such a right, this provisions requires it to do so by law.
This provision does thus not provide for an individual electoral right of non-citizens of the Party. With respect to Council of Europe standards, this matter is the subject of Part C of the European Convention on the Participation of Foreigners in Public Life at Local Level (CETS 144).
Paragraph 5.1
Paragraphs 5.1 – 5.3 deal with the issue of limitations that may or in some case must be imposed on the exercise of the right to participate in the affairs of a local authority.
Limitations on individual rights may, of course, not be arbitrary. Paragraph 5.1 therefore requires that any formalities, conditions or restrictions shall be prescribed by law and be compatible with the Party’s international legal obligations. Whereas the reference to the Party’s international legal obligations may, strictly speaking, appear superfluous, its inclusion was deemed appropriate in order to draw attention to relevant other international legal obligations, first and foremost of which are those provided for by the European Convention for the Protection of Human Rights and Fundamental Freedoms.
Paragraph 5.2
This paragraph requires the Party to establish formalities, conditions and restrictions necessary to ensure that the ethical integrity and transparency of the exercise of local authorities’ powers and responsibilities are not jeopardised by the exercise of the right to participate. The inclusion of this provision demonstrates the determination of the parties to safeguard against wholly inappropriate actions such as bribery or the use of force or coercion forms of participation and requires them to take appropriate action. Any formalities conditions and restrictions introduced in this respect must meet the standard set out in paragraph 5.1.
Paragraph 5.3
This paragraph deals with formalities, conditions or restrictions other than those under paragraph 5.2. It provides criteria which, in addition to those under paragraph 5.1, apply in order for a formality, condition or restriction to be acceptable. The three grounds set out in this paragraph are alternatives, i.e. for a formality, condition or restriction to be acceptable, it suffices that one them is applicable.
Article B - Right of access to official documents
Paragraph 1
This paragraph sets out for anyone within the jurisdiction of a Party, without discrimination on any ground, the right to have access, on request, to official documents held by local authorities. The substance of this right conforms to the rights provided for in the Council of Europe Convention on the Access to Public Documents (….). Its inclusion in the additional protocol is justified by its inherent connection to the right to participate in the affairs of a local authority and the fact that member States need not necessarily be Party to both instruments.
Paragraph 2
This provision requires Parties to take the necessary measures in their domestic law to facilitate the exercise of this right. The provision thus requires an active engagement of the Party to take measures which will often be necessary for making the exercise of this right a real and practical option for the citizen.
Paragraph 3
(to be completed)
Article C - Implementing measures by local authorities
Paragraph 1
This provision ensures that the domestic legal order of the Party empowers local authorities to enable, promote and facilitate the exercise of the right to participate and the right of access to official documents set out in this protocol.
It is couched in general terms so as to leave to the Party and its internal structures, including in particular local and regional authorities, a maximum amount of flexibility for its implementation in accordance with its domestic constitutional arrangements.
As a subject of international law the Party is considered as a single entity and the aim of the provision is to avoid an ambiguous situation whereby as a matter of international law the Party would be bound yet as a matter of domestic law local authorities would not be.
A member State that is unwilling or unable to establish the envisaged duty on local authorities will therefore refrain from becoming a Party to this additional protocol.
Paragraph 2 (to be reviewed)
This paragraph ensures the proper consultation of local authorities in the planning and decision-making processes concerning the legal and other measures governing the implementation of the duty set out in paragraph 1. Its wording is drawn from Article paragraph 6 of the Charter.
Paragraph 3 (to be reviewed)
This provision identifies, in general terms, measures to be taken further to the duty set out in paragraph 1.
Paragraph 4
This provision corresponds, as regards the possibility for differentiation between categories of local authorities, to Article A3.
Article D - Authorities to which the Protocol applies
Paragraph 1
Whilst establishing as a general point of departure that all the categories of local authorities existing within the territory of the Party, this provision allows, in terms identical to that of Article 13 of the Charter, for the possibility of confining at the time of ratification, acceptance or approval the scope of the additional protocol. Furthermore, again as Article 13 of the Charter, it provides parties with a permanent possibility to enlarge the scope of application.
Paragraph 2
This provision supplements paragraph 1 by specifically providing that regional authorities may from the very beginning, i.e. the time of ratification of the additional protocol or subsequently be brought into the scope of application of this additional protocol.
Article E - Territorial application
This article sets out the provisions on territorial application which are usual to Council of Europe conventions.
Article F – Relationship to the Charter
This article makes clear that this instrument is an additional protocol to the European Charter of Local Self-Government and thus is only open to signature by states which are already signatory to the ECLSG.
Article a-g
These articles provide the rules governing signature, ratification and entry into force of the Protocol.