White
Book on Governance - a Step in the Right Direction
Europe faces a democratic challenge. There
is a growing understanding that unless the European institutions
are brought closer to the citizens, a dangerous rift may
further deepen and put into question the legitimacy of the
European structures. That could endanger the bold visions
of building a united and prosperous Europe.
This state of affairs has undoubtedly many reasons, but
one of them is related to the structural weaknesses of the
European Union, a "democratic deficit" of the
organisational structures.
The European institutional architecture was created in
the aftermath of the Second World War to put an end to the
devastating conflicts between major European nations. After
a dark period of dictatorship and massive human rights violations,
decision-making was concentrated in the national governments,
as represented in the Council of Ministers.
While safeguarding of peace and stability is still a prerequisite
for any European progress, we are also facing new challenges
that brought about growing interdepen-dency, major social
and demographic challenges including inequality, and new
threats to our health and environment. International terrorism,
trafficking of drugs and human beings and other forms of
crime are on our daily agenda. New situation also requires
new solutions. The citizens of Europe have to be mobilised
in safeguarding, defining and developing the values of our
future European House.
Traditionally, the local and regional authorities have
been playing a relatively minor, if not marginal, role on
the European Union stage. This has fortunately started to
change recently, as exemplified also by the White Paper
on Governance published by the European Commission (July
2001). This is only natural, as the local and regional authorities
play a crucial role as spheres of governance that are closest
to the citizen. The cities and regions also have a major
role in the implementation, financing and enforcement of
policies and legislation.
The European Union is a system of multilevel governance.
This implies that the arenas of policy making are linked
rather than nested. Linkages between the levels of decision-making
(the Union's level - national level - regional and local
authorities) challenge the division of labour between the
authorities. This has led to a situation where the European
Union has lost its purpose and clarity in the eyes of European
citizens.
The White Paper is not an answer to the democratic deficit
of the European Union as such but aims at reducing the management
deficit of the Union. The White Paper is a product of the
Commission and views the European Union from the perspective
of the Commission. Its main argument is that the Community
method should be revitalised and the balance between the
institutions restored. This would contribute to openness,
participation, accountability, effectiveness and coherence
of the EU.
The UBC should welcome the general approach of the Commission.
The restoration of the confidence of the European citizens
towards the Union activities is needed and the White Paper
offers important insights into that. The UBC has been stressing
that in the process of bringing the European Union closer
to its citizens, local and regional authorities should have
an important role and has welcomed the Commission's approach,
which stresses the value of these actors.
Regional and local authorities have important role in many
policy areas, and in particular a key position in the management
of structural policies. Their voice and needs are not yet,
directly channelled into the work of the European Union.
On the contrary, structural policy instruments have strengthened
the position of central governments. The present systems
does not offer channels and instruments to voice the interests
of local and regional authorities.
The UBC has welcomed the proposals of the White Paper to
emphasise the expertise of local authorities. This would
in the best take place in a triangular relationship between
the central institutions, national governments and local
authorities. Local authorities have the expertise and experiences
not only in the field of structural policies but also in
issues that are close to the needs and interests of the
European citizens. Local authorities represent the best
expertise in these policies and this should be exploited
in better ways in the European Union. UBC member cities
welcome proposals which promote that goal.
This will help the EU to reach out to citizens in ways,
which take into consideration local conditions. It calls
for a new kind of partnership. We should urge the Commission
to establish a more systematic dialogue with national and
European associations of regional and local authorities
at an early stage of policy shaping. The UBC is ready to
take a constructive part in that dialogue. We also offer
out partnership in "target-based contracts" suggested
by the White Paper.
We call for a new kind of partnership not only between
the institutions of the European Union but also between
the local authorities and central government authorities
in order to facilitate the participation of local authorities
in the early stages of decision-making that concern local
authorities.
We also welcome the recognition of the White Paper to the
role of networks in the European governance. The UBC is
in itself a voluntary network of more than 100 cities on
a regional basis. The region of the Baltic Sea constitutes
an area of Europe where different traditions of local administration
can work together through networking. Our organisation covers
both Member states of the EU and the applicant countries,
as well as north-western part of the Russian Federation.
The UBC demonstrates that the network approach is a valuable
instrument in promoting collaboration between the local
authorities. We suggest that the European institutions should
devote more attention to these types of activities and recognise
their value.
We should recognise with satisfaction that the White Paper
notes with appreciation the important role of exchange of
staff and joined training between administrators at different
levels. This is an important element in strengthening the
bases of good governance in Europe. We stress in particular
the importance of networking in regions where the enlargement
of the EU is likely to take place. We stress that the role
of local authorities is of a central value to the governance
of the EU through training and twinning in the acceding
countries.
The UBC also welcomes proposals concerning
the new methods of regulation and the use of new legislative
instruments. In our view the use of framework directives
and co-regulation would serve the interest of cities and
local authorities in allowing them to take into consideration
local conditions and national and regional differences.
The use of these instruments should be studied and tested
before their universal application.
All in all, the UBC evaluates positively the proposals
of the White Paper, as should everyone interested to see
local and regional public authorities to play a more active
role in the governance of Europe. The larger involvement
of local authorities and their associations could greatly
contribute to the governance of the European Union. We urge
the Commission to pursue its ideas forward in collaboration
with local authorities, as we are convinced that for the
EU to achieve its objectives, cities must be allowed to
play a more active role in the framework of European governance.
At the same time it is obvious that many of the issues
addressed in the White Paper call for deep changes in the
European Unioa Problems of transparency, participation,
accountability and openness should be linked to the broader
debate on the future of Europe and addressed by the work
of the Convention on the Future of the Europan Union.
The issues of governance, and the future of EU, are issues
that must be at the permament focus of the discussion within
the UBC. Natural partners in this discussion are other cities
networks, notably Eurocities, and organisations of regions
such as BSSSC.
What is at stake is which kind of European home we want
to construct for ourselves, and more importantly, for our
children.
Mr Mikko Lohikoski Director,
External Affairs and Communication,
City of Turku
e-mail: mikko.lohikoski@turku.fi
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