Conference on Local Dimension of European Policy
Vienna, Austria, 29 November 2011
Speech by Secretary General Andreas Kiefer, Congress of Local and Regional Authorities, Council of Europe
Mr President,
Excellencies,
Ladies and Gentlemen,
First and foremost, I would like to thank the organisers of this conference for taking the initiative to bring us together to discuss the subject of growing importance in Europe today – the local dimension of European policy.
Indeed, our continent has been undergoing a tremendous change, boosted by European unification and integration, globalisation and the digital revolution. This change has had an impact not only on political and economic processes but on our society as a whole. Globalisation and technological advances affected the lifestyles and needs of our citizens, changing their expectations. The ever-growing complexity of tasks before national governments, and the sheer magnitude of challenges faced by our society, highlighted the need to involve local and regional authorities as equal partners in policy-making, causing a power shift in the national/local balance. Modern technologies offered new ways for involving citizens in democratic processes, while integration opened the door for direct cross-border co-operation between local and regional communities.
These transformations are compelling us to rethink the existing model of governance in Europe and adapt it to the changing realities. In response to this imperative, the Committee of the Regions of the European Union; for example, has put forward a proposal to create a system of multilevel governance – a partnership framework involving European, national, regional and local authorities as equal stakeholders with clearly delimited competences. This would definitely require a change of attitude and approach at both European and national level, as it would mean the recognition of the equal role of territorial authorities – including local authorities – in the business of government. This, in turn, would mean a long overdue local policy change at the top – from national policies about the cities, reflecting the governments’ needs, to policies for the cities, addressing the needs of local communities.
The Council of Europe is in an excellent position to lead in this change, for three reasons: first, because of its more than 60 years of experience in European standard-setting and harmonisation of national legislations, and its capacity built over these six decades; second, because of its pan-European dimension of 47 countries, which allows it to reach out to the authorities across the entire continent; finally, because the Council of Europe has as its integral part the Congress of Local and Regional Authorities, itself a pan-European assembly of local and regional politicians representing more than 200,000 territorial communities of Europe, and defending their interests vis-à-vis national governments.
It is a great pleasure for me to address you today on behalf of the Council of Europe and its Congress, and to outline certain future prospects of local self-government on our continent.
Let me begin by saying that it was that Council of Europe that laid down the legal basis for local democracy by adopting, twenty-five years ago, the European Charter of Local Self-Government. A key European convention, this was the first international binding treaty that recognised the right to local self-government, codified the principles of local democracy and set out the rights of local communities and their authorities. It was also the first treaty to establish the principle of subsidiarity, providing for the transfer of competences and necessary financial resources to the level closest to the citizen.
Through this principle, and the ensuing delimitation of competences between the different tiers of government, the Charter has already ensured a legal basis for multilevel governance within a member State. One objective of a future system of multilevel governance, proposed by the EU Committee of the Regions, is to take the principles set out in the Charter to a higher plane, and apply them to relations between the EU, the member State and the subnational level (local and regional).
Monitoring the implementation of the European Charter of Local Self-Government in Council of Europe member States, and assessing the situation of local and regional democracy, has been the core mission of the Congress of Local and Regional Authorities. This monitoring, which also includes observation of local and regional elections, implies a direct contact and constant dialogue with national governments of the 47 countries. At the same time, the legal mandate of the Congress requires national authorities to act on our recommendations. The monitoring mandate and direct access to central authorities in Greater Europe is a key difference between the Congress and the Committee of the Regions, which is our counterpart and natural partner within the European Union.
Essentially, these two institutions are working in synch to advance territorial democracy and strengthen territorial self-government, on the basis of a co-operation agreement first signed five years ago and revised again last year, in 2009. However, the Congress, with its focus on monitoring democratic processes and standard-setting, plays a specific role in the multipolar political landscape of European institutions, concerned mostly with practical co-operation in the economic field.
Ladies and Gentlemen,
The spectacular advance of local and regional democracy in Europe, on the basis of the European Charter of Local Self-Government, was a landmark of this continent’s democratic development at the end of the 20th century. Beyond the recognition of the growing power of local communities, its entry into force in 1988 began a new era of re-orienting our democratic system towards the citizen, bringing democratic processes to our doorstep and building grassroots democracy.
Today, we are on the threshold of a new beginning, a new phase in democratic development. The legal framework for grassroots democracy, although it continues to evolve, has been essentially established. At regional level, Congress efforts to adopt a binding treaty similar to the European Charter of Local Self-Government, resulted in 2009 in a Reference Framework for Regional Democracy, approved by governments. A new protocol was adopted to complement the Self-Government Charter itself, clarifying the framework for citizens’ participation at local level.
In this new phase, our attention is focused on governance – improving the way of managing local communities, raising the quality of services available to citizens, responding better to their needs and creating a new framework of what I would call “proximity governance”. Clearly, this is not a task for the European level or national governments alone; in fact, it is unimaginable without the close involvement of local authorities, and without a change in European local policy. As I have mentioned earlier, local policy change in Europe will require a considerable shift in the power balance at European and national level. However, this process is a two-way street: at the local level, we also need to change the ways our communities are governed.
Within the Council of Europe and its Congress, we have identified several key elements for achieving this objective, which are closely interlinked and which I see as future prospects of local self-government. These are innovation, increased citizen participation, intercultural dialogue, and the delivery of human rights at local level.
The Congress brought together these elements to present our vision of new urban governance in the European Urban Charter: Manifesto for a new urbanity, adopted in 2008. This new Charter offers a model of urban communities that are citizen-centred, sustainable, cohesive and knowledge-driven, that are catalysts for cultural development, creativity and innovation. This is a vision of communities that are built FOR the citizens and WITH the citizens, through the close involvement of local residents not only in decision-making but also in the building process.
Before elaborating in greater detail on these elements, I would like to stress that their implementation depends to a large extent on the institutional and governing capacity of local communities. Local capacity-building is a required condition for improving governance, and one of the crucial means for boosting this capacity is through intermunicipal co-operation and networking, through the sharing of experiences and best practices, through joint projects and cross-investment.
This is why the Congress places great emphasis on cross-border co-operation between local and regional communities, which is considerably facilitated today by European integration. In this context, a new additional protocol to the Madrid Convention on transfrontier co-operation, which was opened for signature in November 2009, makes easier the creation of Euroregional co-operation groupings between communities of EU and non-EU countries.
At European level as well, European institutions and associations of local and regional authorities can be successful only if they are actively engaged in networking and building partnerships. This is why the Congress relies heavily in its activities on its partners such as the Assembly of European Regions or the Council of European Municipalities and Regions – among many others – and the networks such as the Association of Local Democracy Agencies (ALDA), the Network of Associations of Local Authorities of South-East Europe (NALAS), the European Network of Training Organisations for local and regional authorities (ENTO), Cities for Local Integration Policy (CLIP), Intercultural Cities or Cities for Children. We must work together in order to be successful in building new governance.
Ladies and Gentlemen,
Allow me now to elaborate on the key elements which I have mentioned earlier.
Innovation
The first element is innovation at local level. To succeed in finding new ways if governing, we must try new, innovative approaches. On the governmental side of the Council of Europe, we have elaborated the European Strategy for Innovation and Good Governance at Local Level, which was approved by European ministers responsible for local and regional government in 2007, and which sets out twelve principles for innovative action.
Within the Congress, we are convinced that there are three keys that would make innovation at local level both more effective and lasting. The first key is having a sound framework for such action, a legal basis to make sure that the governance we have is accountable, accessible, transparent, ethical and therefore efficient and effective.
The second key is citizen participation. Involving the local population in decision-making is a sure way of tapping into their great potential for innovative ideas and approaches. Learning about their needs and expectations is also one way of placing people at the heart of our action. This participation means greater commitment on the part of community residents, but also greater accountability, transparency and therefore efficiency in local government action.
Last but not least, the third key is a healthy network of vertical and horizontal power relationships: vertical, with regional and national governments and horizontal, with other local communities, also across borders. Inasmuch as governments need the input of local communities into national policy-making, local authorities need political and financial support for their action from the national and regional level.
Citizen participation
As I have just mentioned, innovation is boosted through citizens’ participation, which cannot be limited to elections alone. Citizen participation is the second element of new governance, indeed an underlying and enablaing factor for it. In the Congress, we have been pursuing several axes of action to increase this participation, staring by improving the legal basis for it. In November 2009, the Additional Protocol to the European Charter of Local Self-Government was adopted, which reaffirms and clarifies the right of citizens to participate in the affairs of a local authority.
As the Congress’ action in this field is manifold, and the time of my presentation is limited, allow me simply to list these areas of activities:
A few words about local integration and the European Local Democracy Week. The Congress has been active in helping with the integration of migrant workers in local communities and co-founded, in 2006, the Cities for Local Integration Policy, or CLIP, network. The network has been a big success, with almost 40 European municipalities participating today. In parallel, the Congress has also been advocating the creation of representative structures of foreign residents, both locally and regionally, and supported recently a proposal to set up a European network of foreign residents’ councils.
Another Congress initiative which has been a success story is the European Local Democracy Week, launched in 2007. It is an annual event to increase the knowledge of local democratic institutions and processes among citizens and to strengthen links between community residents and their local representatives.
The objective of the Week is to have local populations meet their elected representatives, to raise citizens’ awareness of how local authorities operate, to inform them of the opportunities available for taking part in decision-making at local level and, as a result, draw their attention to how crucial their participation in local affairs is for maintaining the vitality of local democracy. The week around 15 October has been chosen for holding this event as a tribute to the European Charter of Local Self-Government, opened for signature on that date in 1985.
This year, some 170 municipalities from 24 European countries took part in the Week during the month of October. Among those participating for the first time were several capital cities and large municipalities, which considerably increased the number of people involved. Also this year, new impetus was given to the Local Democracy Week with the “12 Star City” concept. Sixteen cities from 12 countries were registered under this “12 Star”-label, thus committing themselves specifically by dedicating resources to this event (including staff, budget, PR-initiatives, and youth involvement).
Intercultural dialogue
Ladies and Gentlemen,
Among the activities which I have just mentioned, intercultural and interreligious dialogue at local level is another important element of, and enabling factor for new governance. European communities today are increasingly multiethnic, multicultural, multireligious and multilingual. This cultural diversity can be a source of strength or a source of conflict, depending on how we deal with it. We must find ways to engage different community groups in a permanent dialogue with each other and with local authorities. Indeed, one cannot manage properly a community which is torn apart by interethnic and interreligious tensions.
In 2006, the Congress elaborated twelve principles for local authorities aimed at fostering intercultural and interreligious dialogue at local level, which were part of our contribution to the Council of Europe’s White Paper on this subject. Two years later, the Council of Europe and the European Commission launched a programme entitled “Intercultural Cities”, seeking to promote intercultural policies in European municipalities.
Through this programme, which is intended to help cities to encourage exchanges between the cultures of persons of a variety of origins, a balance is sought between the concepts of identity, inclusion and exclusion. In practical terms, this meeting with others and this promotion of dialogue may take place in schools, homes, in the social services and leisure sectors, serving to bring mutual understanding where once there was hostility or confrontation.
In accordance with the concept of the intercultural town or city, municipal policies are targeted on these areas, and public places are so designed that persons of different cultural origins are able to mingle and communicate with one another, so as to improve mutual understanding.
The Congress gave its full support to this programme and the new network of Intercultural Cities, and came out in favour of interculturalism at local level. In 2009, we adopted a recommendation and resolution calling on local authorities to commit themselves to an intercultural political approach, acknowledge the usefulness of each community's contribution and encourage the development of multiple cultural identities.
This commitment could be demonstrated through training and awareness-raising programmes, greater involvement of immigrants in local action and the initiation of dialogues between cultural groups. It is for the authorities to make diversity an effective part of their administrative policy: it is in practice important to involve and integrate immigrants more as municipal employees.
Local dimension of human rights
However, good governance which we are seeking to establish is inseparable from the question of human rights implementation. Promoting and protecting human rights is certainly a responsibility shared by all the tiers of governance, but it is in regions and cities that human rights need to be nurtured, and local and regional authorities have a key role to play in their day-to-day application. In the Congress, we are convinced that they are already playing a key role in providing access to human rights, from housing to health care to schooling and even higher education in certain regions. Indeed, they implement on a daily basis much of human rights principles and standards set out in international treaties, such as the European Convention of Human Rights and Fundamental Freedoms.
However, usually we do not refer to social services, basic needs and services of general interest as human rights, and many territorial authorities are not fully aware of their important contribution to safeguarding these rights by a large variety of activities they are performing. We need to raise awareness of these issues, and to make sure that the conditions exist in our communities for the full exercise of these rights.
This is why in March this year, the Congress decided to add a new element to our assessment of the situation of territorial democracy in Europe – the local and regional dimension of human rights. In a resolution addressed to local and regional authorities, we recommended setting up appropriate structures and developing procedures at local and regional level to monitor and improve human rights situations, in particular in providing public services.
We must begin by elaborating indicators to gauge the fulfilment of human rights, to identify exactly what rights fall under the remit of local authorities. It is mostly social and economic rights, such as housing, health care, education and employment, but also some cultural and even civil and political rights which are within the competence of local and regional authorities – for example, freedom of expression and freedom of assembly. We also need to provide the necessary budgeting and training for human rights implementation, establish independent complaints mechanisms at local level, and enforce guarantees of equal access to public services, and a system of their quality control.
Charter for a new urbanity
Finally, a few words about a new model of modern urban environment and governance, proposed by the Congress and built on the principles which are laid down in European Urban Charter II: Manifesto for a new urbanity, adopted in 2008..
The Charter offers a new vision and model of urban living and governance, laying down the principles of building and managing an urban environment adapted to the modern needs of communities and covering the various aspects of urban life. These include ecology, biodiversity, urban planning and development, sustainable consumption, public spaces, access to economy, culture, education and health care, to name but a few.
The new Charter calls for building towns and cities in a way which would make them citizen-oriented, cohesive, sustainable and modern, cities that would be driven by innovation, scientific knowledge and cultural development. Most importantly, it urges territorial authorities to place people, with all their multiple identities and cultures, at the heart of public action in urban planning and development.
The prime ambition, reflected in the new Charter, is that of a city for the people, seeking a strong and dynamic relationship with its citizens, a city where democracy is regenerated in all its forms and where various forms of participation, association and debate are developed.
The second ambition is that of a sustainable and environmentally friendly city. The concern is to develop urban ecology, reduce the ecological footprint of municipalities, preserve natural resources and biodiversity, save energy, and aid access for all to major public assets. The Charter advocates in particular denser, more compact cities that conserve space and facilitate general access to services and recreation.
The third ambition is that of a more inclusive, cohesive and diversified city which actively combats division, exclusion and discrimination, and which is an area of solidarity between districts, social and occupational categories and people of different origins.
Finally, the fourth ambition is that of a city which is a setting of modernity, catalyst for knowledge and creativity, and a host of learning and cultural diversity. Towns and cities must make full use of their potential as engines for innovation and major poles for scientific and cultural development, and for furtherance of research and education.
European Urban Charter II is intended as a source of inspiration and a guide for action to turn this vision of a new urbanity into reality.
Intermunicipal co-operation
Ladies and Gentlemen,
One of the practical tools for putting in place these elements of new governance is intermunicipal co-operation, both within a country and across the border. The importance of inter-municipal co-operation grew particularly in the context of the current economic crisis and the need to find innovative solutions faced by local communities. An increasing number of municipalities are joining their forces to use the economies of scale in the provision of public services – for example, public transport, use of energy sources, or garbage collection and waste management. In some countries, both national governments and local authorities are looking into creating urban agglomerations. However, for us in the Congress, joining forces should not necessarily mean creating bigger cities in which smaller communities will lose their competences and autonomy. Inter-municipal co-operation on the basis of equal partnership for all communities involved represents a sound alternative to amalgamation and mergers.
We are convinced that the equality of all stake-holders must be the basis of any approach to inter-municipal co-operation. After all, this co-operation is a form of partnership for innovation and joint action, which offers great opportunities for spreading new initiatives that attracts investments, or for borrowing new ideas from others to complement your own. Innovative action is what our citizens expect from local authorities today, and especially so in a time of economic crisis. This is why the Congress attaches particular importance to transfrontier co-operation and networking between European municipalities, as a means of both promoting partnerships for innovation, and reducing development gaps between communities through joint economic management.
We in the Congress strongly believe that exchanges and co-operation between communities will make local innovative action much more effective. At the same time, national and regional governments should effectively involve their local authorities as partners for innovation and support intermunicipal co-operation. This translates, among other things, into changing the framework of governmental finance for local communities, to enable investments into innovative local proposals and joint initiatives.
Ladies and Gentlemen,
To conclude, I would like to underline the interdependence between the different elements which I described earlier, starting from the bottom up. A favourable human rights situation in local communities will be conducive to better dialogue among community groups and between them and authorities, which will boost citizen participation at local level contributing, it its turn, to innovative action that will serve to improve governance. In the end, good governance in our towns and cities will make them valuable and equal partners in the system of multilevel governance at European level, with which I began my intervention today.
This is the goal that must be in the centre of new European local policies – policies not only about the cities, but first and foremost policies for the cities.
Thank you.