Strasbourg, 6 september 2011 CDLR(2011)37
Item B.10. of the agenda
EUROPEAN COMMITTEE ON LOCAL AND REGIONAL DEMOCRACY
(CDLR)
STRATEGY FOR INNOVATION AND GOOD GOVERNANCE
AT LOCAL LEVEL
For preparatory action
Secretariat Memorandum
prepared by the Directorate General of
Democracy and Political Affairs
Directorate of Democratic Institutions
 |
Introduction
The European Ministers responsible for local and regional government endorsed the Strategy of Innovation and Good Governance at Local Level (the Strategy) during the Valencia Ministerial Conference in 2007. The Committee of Ministers of the Council of Europe adopted the Strategy in March 2008.
In July 2011 the GR-DEM debated the (possible adoption of the) draft Recommendation on the Principles of Good Democratic Governance at Local Level (CM (2011)60add1E) which had been prepared by the CDLR. During this meeting doubts were expressed as to the added value of this recommendation, given that that the Strategy for Innovation and Good Governance at Local Level, approved by the Ministers’ Deputies in March 2008, was already based on these principles and that it had not been as successful as expected. It was proposed that the Stakeholder’s Platform be asked to consider the reasons why member states were showing little interest in the Strategy.
Other delegations expressed their support for the draft recommendation. The Secretariat explained that the Strategy for was based on the twelve principles set out in the draft recommendation but that it was important to distinguish between the two. The twelve principles could only be considered Council of Europe norms if they were adopted in the form of a Committee of Ministers recommendation.
The Group agreed to invite the CDLR and the Stakeholders’ Platform to discuss the implementation of the Strategy at their next meetings (19-20 September and 6 October 2011 respectively) and to report to the Group. Consideration of the draft Recommendation will be continued in the light of these reports.
The appendix to this document presents some facts and considerations with regard to the implementation of the Strategy. This appendix has been communicated to the Stakeholders’ platform in view of its meeting on 6 October 2011.
CDLR members may wish to have a discussion on the implementation of the Strategy in general and in their respective countries in particular, so that they can provide their representatives in the SHP (Mr Paul-Henri Philips, Belgium and Ms Greta Billing, Norway) with appropriate input.
Action required
The members are invited to have an exchange of views on the state of implementation of the Strategy, with a view to giving guidance to its representatives in the Stakeholders Platform.
The CDLR is further invited to address a reply to the GR-DEM stating that the CDLR’s contribution to the discussion of the implementation of the Strategy will be made through the Stakeholders’ Platform.
APPENDIX
The Strategy for innovation and Good Governance at Local Level
As per August 2011, Bulgaria and Norway have received accreditation from the Council of Europe’s Stakeholders’ Platform. Bulgaria has been the European country to award European Labels of Governance Excellence (ELoGE), Norway should follow in 2012. The Netherlands have informed the Secretary General that they are officially committed to the twelve principles of good democratic governance; a similar official commitment is to be expected soon from the Flanders’ authorities. The Secretariat is in dialogue with state/regional authorities and/or associations of local authorities in Austria, Belgium, France, Hungary, Italy, Spain and Ukraine as regards accession to and implementation of the Strategy.
Challenges concerning the implementation of the Strategy
Political and financial commitment
Implementation depends heavily upon political and – to a smaller but significan extent – financial commitments from member states, both as regards the central state/regional authorities and associations. In the current financial situation it may be even more difficult to find support for such action because budgets are allocated to other, urgent matters. Nobody challenges the value of good governance (it may be considered to be more important than even), the Strategy, the twelve principles or the purposes it serves as such, member states simply choose not to invest in it now.
Patience is key
When member states are willing to actively participate in the Strategy, several arrangements need to be made: the establishment of the Stakeholders’ Platform, the identification and training of independent experts, the promotion of the Strategy, etc. Ministers responsible for local and regional government are involved and national parliaments are informed. It takes time to organize these matters so effectively that the member states can officially commit itself to the Strategy and request accreditation for awarding the ELoGE.
The Strategy is a non-binding instrument
The Strategy has been adopted by the Committee of Ministers but acceptance and implementation by member states are optional. Lack of deadlines for acceptance or obligation to justify non-accession means that there are no “sanctions” for non-compliance.
Internal Council of Europe factors
The Council of Europe’s internal reform and consequent new prioritizing of its work as well as specific measures on reallocation of budgets have influenced the work of the Secretariat. These factors, which include a smaller operational budget (-35% for 2012-2013) and a reduced staff (1 full-time equivalent), mean that dialogue about the Strategy with member states and implementation can only take place with a few member states at a time.
It has also proven to be difficult to create commitment among Council of Europe bodies. One example is the membership of the Stakeholders’ Platform. It has been problematic to find a second representative from the Committee of Ministers, PACE and the Congress of Local and Regional Authorities. It has also been difficult to get the support of the Directorate of Communication in the promotion of the Strategy, which is rarely considered to be newsworthy, if at all.
Positive experiences of implementation of the Strategy
The Strategy is an overarching instrument
The Strategy encompasses a majority of topics of importance of the Council of Europe such as anti-corruption, human rights, rule of law, minorities. It has therefore the potential to be a very important instrument which can be used to promote the work of the Council of Europe.
Improvement of local and regional government and citizens
The Strategy is a very good instrument which can contribute to the improvement of the quality of local and regional government and service delivery to citizens. A society is more democratic when and where citizens are involved, (local) government is efficient and innovative, follows the rule of law in its work, respects human rights and embraces cultural diversity. This way, local and regional authorities will also contribute to an improvement of the daily lives of citizens.
Enthusiasm
Member states which are interested in the Strategy and have committed themselves are enthusiastic and are eagerly spreading the word. Many local and regional authorities have expressed enthusiasm and lent their support for the benchmark and questionnaires. They have indicated that the Strategy is indeed a good instrument to improve their good governance.
Outside the circle of member states, the European Commission has shown interest in the Strategy as a tool for actively improving the quality of governance in EU candidate and potential candidate states. The Commission has also promoted the Strategy in connection with its Covenant of Mayors’ initiative for sustainable development.
Good press
Even though there is limited budget and limited resources, the Department of local and regional democracy and good governance in the Directorate of democratic institutions of the Council of Europe actively promotes the Strategy at conferences and symposia. There is also a website which is up-to-date and still being developed. For example in Fall 2011 the website will contain different toolkits local authorities can use to improve their performance in respect of one or more of the principles. The Secretariat has always received, so far; good press.