ANNUAL RESULTS 2014

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OPERATIONAL REVIEW SKL INTERNATIONAL ANNUAL RESULTS 2014 21 rapidly-changing context within the country and wider region. At the same time, while Tunisia was the first Arab State to genuinely recognise decentralisation as a serious policy alternative, there were a number of question marks concerning its validity and applicability to the Tunisian context. We therefore needed to develop and deliver a multifaceted work plan that would, on the one hand, build the capacity of, and correctly position out Tunisian partners while, on the other, carry out high-quality policy analysis related to decentralisation in the Tunisian context. I think our strategy to use the one year pilot project to engage local actors, build mechanisms for decentralisation dialogue, and populate the policy arena with evidence-based and context-specific analysis was successful, but there is now a greater expectation for us to continue our work and support the fulfilment of the aspirations of the Constitution (Chapter 7). This is why we, together with our Tunisian partners, have requested financing for a new phase of support starting in 2015.” “The exposure provided by TLG2P on Swedish and other country decentralisation experiences has been invaluable to us. As indicated in our Constitution, we are united in our view that the best form of Government for Tunisia is a decentralised one. It is fair to say that the proposals and ideas put forward by TLG2P have influenced the preparation of the Constitution. TLG2P has provided us with know-how and competences on various processes including the value of a strong and independent lobbying voice for municipalities. A number of my NCA colleagues have even reversed their opinion on the importance of having a strong national federation of municipalities!” MR Imed Hammami Chairman of the Committee on Local and Regional Authorities, Tunisian National Constituent Assembly (NCA) The year in Amman By Ryan Knox Despite witnessing numerous challenges, 2014 has been a successful year for SKL International in the Middle East and North Africa (MENA) region, where our regional office was opened in 2013. As well as our ongoing projects in Lebanon, Iraq and Tunisia, we have provided consultancy inputs to a range of donors and supported our civil society partners on issues of key concern. Having a base in the region has given us greater insights and allowed us to continue our effort to build awareness about the rapidly-changing context for local authorities, particularly with an eye towards future programming. In February, we carried out an evaluation of a UNDP project in Jordan focusing on Youth Participation on Local Governance. Subsequently, during the period March – September, we carried out an institutional and organisational capacity assessment of the Jordanian Ministry of Interior’s Local Development Directorate and 12 Governorate Local Development Units, as part of the EU project “Promoting Local Economic Development in Jordan” (PLEDJ). In September, we co-hosted (together with Cités Unies France and United Cities and Local Government) a seminar in Amman involving over 60 representatives from local and regional authorities from the wider Mashrek region (Jordan, Palestine, Syria, Lebanon, Egypt, Yemen and Sudan), where we delivered a discussion paper on the challenges and opportunities to support decentralisation in the region (focus on three case studies of Lebanon, Jordan and Yemen). In October, we delivered the final activities of the Tunisia Local Governance Pilot Project (TLG2P) and finally, in December, we carried out a feasibility study on the applicability of the SymbioCity Approach for Tunisia. Based on our discussions with Sida and the Swedish Ministry of Foreign Affairs, as well as an increased demand from different donors and partners for our technical support and cooperation, we look forward to 2015. We anticipate it will present a wide range of challenges and opportunities, focusing both on our traditional fields of assistance, as well as new areas such a peace-building, resilience and post-conflict local development. About the Project: Project name: Support to Local Governments in Serbia in the EU Integration process Main Partners: Standing Conference of Towns and Municipalities (SCTM) in Serbia, and the Swedish Association of Local Authorities and Regions (SALAR), with SKL International as implementing organisation. Program implementation period: Dec 2011 to Oct 2015 Budget: 32 MSEK. Overall objectives: To contribute to strengthened democracy, equitable and sustainable development in relation to local governance and closer ties between Serbia and EU. Enhanced knowledge and capacity together with organisational changes are expected to lead to better inclusion of local governments in the EU integration process and improve outcomes at local level. Focus areas: EU integration, gender equality, environment protection, business climate and SCTM organisational development. Photos by Dennis Ersöz, Klarsyn Serbia on the road to EU accession the stakes for municipalities The formal opening of accession negotiations in January 2014 was a major milestone in Serbia’s relations with the EU. Yet even the most optimistic observers recognise that this is merely the start of a process that will take at least half a decade. Moreover, the onus throughout will be on Serbia to demonstrate its readiness, with little margin for give and take from the EU side. Still, even if the rules must be accepted largely as they are, there is some flexibility in exactly when and how they are implemented on the ground. By David Young →
OPERATIONAL REVIEW SKL INTERNATIONAL ANNUAL RESULTS 2014 23 In 1992, the Swedish Association of Municipalities (SALAR’s forerunner) published what is known in local government circles as the “Green Book”. Entitled Municipal consequences of membership in the European Community, it proved to be a timely contribution. Two years later, with a close-fought referendum on membership to win, the government’s official commission found, for instance, that the rules on public procurement were ‘unlikely to make very much difference to municipal self-government.’ TOP RIGHT: Ms Tanja Miščević BOTTOM RIGHT: Project Managers Mr Vladimir Jovanovic (STCM) and Ms Annakarin Lindberg (SALAR/SKL International) This is why the accession negotiations are of vital interest to local government. The experience of current member states suggests that most items on the day-to-day municipal agenda are influenced by the EU in one way or another – through its procurement rules, environmental standards, employment law and funding opportunities to give just a few examples. Local authorities – a Key but oft-neglected Partner Yet in many other recently acceded The Swedish Green Book But the municipalities knew better. “The Green Book forced the government to take the issue seriously and helped the association to influence Sweden’s preparations through high-level political contacts as well as at technical level through line ministries”, says Mr Håkan Gustafsson, Managing Director of SKL International and then head of the association’s European integration unit. countries, local government has had little if any say in the accession process. That has often proved to be a costly mistake, with frequent examples of fines for illegal state aids or failure to upgrade waste and water facilities, while at the same time municipalities were ill-prepared to access the EU funds that could have helped with vital investments. “We learn a lot from our neighbourhood countries, but also from successful member states and their experience,” says Ms Tanja Miščević, Nevertheless, it was impossible to predict the full extent of the impact of accession. In public procurement, for example, the number of appeals from losing bidders shot up by more than anyone had anticipated. Even in areas where Sweden considered itself a model for the rest of the EU, there were unexpected effects, such as when the country found itself before the EU Court in 2000 because some municipalities had failed to uphold bathing water standards. But on the whole, those who said the EU would weaken Sweden’s system of strong local government have been proved wrong. head of Serbia’s EU accession negotiating team. “SCTM has a multiple role in the process. It is raising awareness of EU-related issues at local level and enhancing local government capacities in the field of EU policies, standards and funds. Among many other activities, SCTM has a great initiative on establishment of municipal EU officers, which is strongly supported by the negotiation team. Also, I would like to emphasise SCTM’s role as a hub for information flow among all cities and municipalities, which greatly facilitates communication.” Of course the challenge for local authorities does not end with accession. SALAR continues to play a vital role in following new developments in the ever-evolving EU acquis. The association established a Brussels office in 1994, the year before Sweden’s accession. As its former head, Mr Tommy Holm, explains, “the Brussels office makes it possible for SALAR to gain early informal knowledge about possible future proposals, which allows us to react without delay. By the time formal proposals are on the table, it is often too late.” SCTM’s Impact Assessment – a Foot in the Door Inspired by SALAR’s experience prior to Sweden’s EU entry in 1995, SCTM drew up an analysis of the impact of accession on local authorities. “Nobody else in the region has done this, says Ms Aleksandra Vukmirović, head of EU integration and international cooperation at SCTM. Not only has the process helped municipalities to understand the scale of the challenge, but the final report was something that SCTM could bring to the national table. “The impact assessment was our foot in the door,” says Ms Ivan Božović, coordinator of the EU integration component of the programme.” Line ministries and the chief negotiator now see us as partners in the process.” Tanja Miščević explains how SCTM and the negotiating team organised a working session with mayors in October 2014 to share information on the issues at stake, with the message that ‘it is never too soon to get involved in negotiations with the EU and that local governments have a lot to offer in the preparation of the negotiating position for some important chapters. The plan is to make this ‘a permanent cooperation mechanism, with thematic sessions aimed at transfer of specific knowledge.’ Subsequently, SCTM representatives have been invited to join working groups charged with preparing the negotiations in four key areas: public procurement (chapter 5), social policy and employment (ch. 19), regional policy (ch. 22) and environment (ch. 27). “SCTM’s contribution in these areas was of great importance,” says Ms Miščević, “and I believe that the significance of its participation in the process will be more visible in the following stages of negotiations.” State of play in the Negotiations The initial ‘screening’ – in which the EU Commission outlines the relevant acquis, and the Serbian government details progress so far – is complete for the above chapters. However, the starting date for negotiations proper is still uncertain. Some observers expect that EU member states will want to open heavier political chapters first, such as judiciary and fundamental rights (ch. 23) and justice, freedom and security (ch. 24), and may also want to see further progress on relations with Pristina. “Realistically, we are not expecting negotiations on environment to begin before 2016,” says Mr Miodrag Gluščević, programme coordinator and SCTM’s representative in the working group on environment. It is also likely that the EU will set ‘benchmarks’ – conditions that must be met before difficult chapters such as this one can be opened. “But now that our voice can be heard,” says Mr Gluščević, “we must organise ourselves to prepare specific negotiating positions and implementation plans that reflect the interests of local authorities.” Room for Improvement “There is still room for improvement as far as SCTM’s involvement is concerned,” says Aleksandra Vukmirović. For instance, some ministries wanted to invite SCTM representatives to Brussels for the screening meetings, but this was ruled out by the Serbian European Integration Office (SEIO). “Instead we were invited to follow the proceedings via video link and to collect questions from local authorities,” says Mr Gluščević. At the local level too, there have been hitches. Municipalities wishing to designate EU officers were challenged by administrative inspectors from the Ministry of Public Administration and Local Self-Government on the grounds that EU integration does not figure in the official list of local government powers. “This makes no sense”, says Ms Vukmirović: “Local authorities have to implement national laws related to the acquis, so they have to be informed about the process and involved in it, and they have to inform citizens. Municipal EU officers are even envisaged in the government’s own communication strategy,” she adds. But to be on the safe side, SCTM has, in dialogue with the ministry and with Ms Miščević’s support, secured an amendment to the law on local self-government that gives municipalities the formal legal right to address EU matters. Growing Local Influence on EU matters But on the whole Ms Vukmirović is satisfied with the growing influence of the local level on EU matters. She cites SCTM’s presence in the relevant bodies for planning, programming and monitoring Instrument for Pre-Accession II (IPA II) funding. Compared with IPA I, ‘the organisation of the whole process is much better, and local authorities have been consulted by SEIO on thematic priorities.’ Challenges remain, not the least of which is that many local politicians, relatively new in office after recent elections, are unfamiliar with the EU acquis and how it will affect their day-to-day business. “We have to keep explaining,” says Ms Vukmirović. Tanja Miščević hopes that municipalities in Serbia will follow the example of their Swedish counterparts in strengthening ties and raising the voice of local governments in Europe. “Cooperation between municipalities, both within Sweden and across borders, is evident,” she says, “and it is partly thanks to this that European issues become issues of everyday life.” →
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