16 November 2001
Freak weather descended on Athens last week as local, regional and national politicians from EU member states joined the candidate countries in one of the first major gatherings since negotiations for enlargement began in 1998. The conference, organised by the EU Committee of the Regions, was designed to debate the future role of local and regional government in an enlarged Europe – a particularly poignant subject for several of the candidate countries.
Thirteen states have applied to join the EU and if successful will create the largest single market in the world, far outstripping the economic power of America and Japan combined. But the majority of these – Bulgaria, the Czech Republic, Estonia, Latvia, Lithuania, Hungary, Poland, Romania, Slovenia, Slovakia and Turkey – are traditionally centralised or former Eastern Bloc states with little or no history of local democracy. Cyprus and Malta have the advantage with fairly well established structures of local or regional government.
These 13 states have so far been given just four years to transform their internal structures to comply with the EU definition of local democracy, along with 30 other 'chapters' which make up the non-negotiable 'Acquis' – the legislation and structures they have to introduce into national law. Ten states are expected to complete all these chapters by the end of 2002, entering by 2004. Romania and Bulgaria are set to join in 2007 and a question mark still hangs over Turkey.
Political pressure is mounting to ensure there is no slippage in this ambitious programme. The EU is anxious for the ten countries to play a full part in the 2004 elections for the European Parliament. But, despite this, the message is clear – true devolution is a prerequisite for joining an enlarged Europe.
This is not going to be an easy task. The Czech Republic, for example, is seen as one of the more advanced contenders, but has its fair share of problems. It has only had regional self-government from January, with its first elections for its 14 first-tier and eight second-tier regions held late last year. Legislation for self-government was only passed in 1998.
Its government's next task is to review the central powers enjoyed by the ministries, and slowly devolve some responsibilities down to the regions. According to Cestmir Sajda, the Czech Republic's deputy minister of European Integration, the political upheaval to meet the EU conditions has been immense. 'We can't change everything without problems,' he said. 'We still have several areas to master. We cannot fully devolve until officials are properly trained to prepare them to occupy stable posts. Only after administrative reform, will we transfer powers,' he told the conference on November 5.
Devolution, certainly the EU's models, could pose greater challenges for the smaller Baltic states, such as Estonia, Latvia and Lithuania, simply because of their size. Estonia, with only 1.3 million inhabitants, has a smaller population than the county of Essex, yet it has 247 local authorities, 70% of which serve fewer than 3,000 people.
Latvia is in a similar situation with a population of 2.4 million and an amazing 552 local authorities, created in the mid-1990s.
Yet, according to Professor Manfred Dammeyer, first vice- president of the Committee of the Regions, the EU expects these countries to implement similar structures to other much larger member states.
In a heated exchange, he told delegates: 'Structures of local governance are not the business of the EU. The principle of subsidiarity should come from the regions. The council takes these decisions and one feels that they have forgotten the principle of subsidiarity.'
Delegates from Slovenia were also cynical about the EU's demands. 'The EU has to be careful when proposing a process of regionalism. It has been established only in countries that have had democracy in the long term. For us, it may not lead to more decentralisation,' said Anton Kokalj from Slovenia's Association of Municipalities.
So, while there are still questions as to whether these countries will meet the EU's demands on time, with slippage likely in at least four states, there were also demands that the EU get its own house in order.
'There is concern that with 28 member states and with its existing structure, whether the EU's ultimate goal of citizen participation will be served,' said Toomas Valimae of the Union of Associations of Local Authorities.
In true long-winded style, the European Commission has already published a white paper on new forms of governance – its consultation is open until March next year. But it may find its local representatives and those in its member states pushing forcefully for more devolution before then.
'People in the candidate countries see power located in Brussels far away from them. The EU has to adjust its policies more rapidly to take in the new and differing needs of the applicant countries,' said Costas Skandalidis, minister for decentralisation in Greece.
PFnov2001
