IMPLEMENTING DECENTRALISATION REFORM

Transcription

1 IMPLEMENTING DECENTRALISATION REFORM PERSPECTIVES FROM FRANCE Jean-Christophe BAUDOUIN, Director, Department for Territorial Strategies, January 26th 2017

2 GENERAL COMMISSION FOR TERRITORIAL EQUALITY Since the post-war, the organisation is dedicated to the conduct by the State in land use planning, including suburbs policy Our main ambition: to ensure the equitable development of territories including the most vulnerable in rural areas and in parts of urban areas Interministerial vocation and attached to the Prime Minister Works with associations of local authorities Designs the strategy, implements and evaluates the corresponding public policies François Hollande, Tulle, January 18th 2014 I have always considered that it would be extremely dangerous to set the territories against each other ( ) There is only one France, whatever the territory in which one lives. 2

3 DATAR, THE ARMED WING OF LAND USE PLANNING 1963: Creation of DATAR (regional land development agency) A proactive policy to correct determinism of territories Modernize, urbanize, develop the productive apparatus and transport DATAR has joined the General Commission for Territorial Equality in

4 ACTION IN THE TERRITORY By its complex nature, the territory is a space of life on which the territorial action is taken to benefit the life of the territory itself or to benefit its influence. The territory is the product of all actors. Public and especially local actors are assemblers who must set in motion this complex universe and encourage the emergence of territorial ecosystems. The territory, privileged framework of the CGET 4

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6 FRANCE IN FIGURES Population: 66,99 millions people (January 1 st, 2017) Growth: + 1,2% (2015) GDP: billions $ (2016) GDP/capita: $/capita(2016) Inflation: +0,6% (2016) Unemployment: 10% (3rd trimestre 2016) France in figures 6

7 GDP PER CAPITA AT THE LEVEL OF THE EUROPEAN UNION GDP per capita at the level of the European Union 7

8 FRANCE France 8

9 FRENCH REGIONS French regions: 13 metropolitan regions 9

10 FRENCH DEPARTMENTS French departments: 96 metropolitan departments 10

11 THE CONTEXT OF TERRITORIAL REFORMS A CHANGING CONTEXT The context of new determinants of territories Rising inequality The institutional context A confusing administrative organization THE CONTEXT The financial context Savings required, simplification of approaches for greater efficiency The context of the current crisis State challenged, finding new landmarks The current European context After the 70 and 80, new series of reforms 11

12 THE TERRITORIAL CONTEXT ILLUSTRATION OF THE MAJOR DETERMINANTS OF TERRITORIAL FRAGILITIES IN 7 MAPS Recognition of the urban phenomenon 80% of the population is concentrated in 20 % of the territory THE CONTEXT Divide between urban and rural Housing, services, GDP Divide within cites 12

13 DEMOGRAPHY A DEMOGRAPHY REVEALING THE DYNAMICS OF THE TERRITORIES A France of cities, coasts and borders that boost French demography on the one hand DEMOGRAPHY Territories that drop out and become interstitial between areas of strong development on the other hand 13

14 Population density Population growth Population growth : a generally sparse space but poles of urban concentrations and a process of growing suburbanization. 14

15 THE SOCIAL SPECIALIZATION OF SPACE INCOME INEQUALITIES THAT CROSS ALL TERRITORIES Richer urban areas (ranging from 1 to 6 times richer than poor territories in the mining basin or overseas) But spatial segregation in cities with a concentration of poor populations in large cities Peripheries are often more affluent than city centers but with a tendency to gentrification of city centers. Poorer but more homogeneous remote peri-urban and rural areas According to the OECD (Regional Outlook 2016), this phenomenon is observed in several member states such as Canada, the United States, Denmark and the Netherlands THE SOCIAL SPECIALIZATION OF SPACE 15

16 The medium tax revenue The low-income households - Lyon and Marseille Number of households in 2011 By tile of 200x200m Less than 50 Beetween 50 and 200 More than 200 Medium tax revenue in /consumption unit/ municipality Proportion of lowincome households in 2011 As a percentage of total household By tile of 200x200m Major urban centers concentrate both a considerable proportion of the wealth and the greatest number of households with very low incomes. Mainland France: /CU Data not available 16

17 DISPARITIES IN TERMS OF EMPLOYMENT WHICH REMAIN THE SPATIAL DISPARITIES OF UNEMPLOYMENT ARE VERY MARKED AND VERY SUSTAINABLE Inertia is high in terms of unemployment, with wellknown contrasts observed since 1990 On the one hand, areas where unemployment is low: regions of the West; South of Ile-de-France; South of the Massif Central; or Rhône-Alpes region. DISPARITIES IN TERMS OF EMPLOYMENT On the other hand, spaces in difficulty: the overseas departments, with unemployment systematically above 17.4%, then the Languedoc coastline and the mining basin. 17

18 Localized unemployment rate Geographical concentration of employment Unemployment rates vary of 4.8% (Yvelines) to 34.4% (French Guiana). A geography of unemployment which freezes but to be analyzed in the face of the geographical concentration of employment. 18

19 THE DISTRIBUTION OF GENERATIONS A GENERATIONAL SPECIALIZATION OF SPACE Young people, students or working people (-25 years old) are mostly grouped in large urban centers (they represent up to 10% of the population). On the other hand, they are very few (less than 6%) in rural and remote peri-urban areas THE DISTRIBUTION OF GENERATIONS Conversely, over-representation of the over 65s in small towns and rural spaces in decline but also in the attractive territories of the south and the west. 19

20 The young people Proportion of young people aged 18 to 24 in the total population in % by municipality Whole France: 8,6% mostly presents in the centers of large cities. 20

21 TRAINING INEQUALITIES IN TERMS OF TRAINING Unequal territories facing access to education o Fractures between territories o Fractures within territories: Disadvantaged neighborhoods within cities TRAINING 21

22 Graduates Proportion of the population over 15 years not schooled with a two-year degree or higher Most graduates concentrated in urban centers and in the Alps. Whole France: 25,2% 22

23 The NEET (Neither in Employment nor in Education or Training) 17% of young people are NEETs, with significant differences between employment areas 23

24 ACCESS TO SERVICES A CONTRASTED ACCESSIBILITY TO SERVICES A satisfactory accessibility in metropolitan France (less than 20 min to access thirty basic services for 92% of the population) ACCESS TO SERVICES A difficult situation for some isolated areas (especially mountain) An increase in the difficulties of access to care which tend to become widespread 24

25 Accessibility of services The territories are generally well supplied with services but large inequalities persist especially in mountain areas or in certain sparsely populated areas. 25

26 Service to the public houses Shared spaces for services to the public. In one place, the users are accompanied in their daily life. 26

27 THE LOCAL INSTITUTIONAL CONTEXT A CONFUSING LANDSCAPE 3 levels of local governments 26 regions, 100 departments and municipalities inter-municipal groupings to overcome this fragmentation No recognition of the role of large cities Egalitarian conception and uniformity No level exercises authority over other levels, all levels of local governments have the same status Confusion of competences Specific competences but a clause de compétence générale allowing local authorities to engage in any activity THE CONTEXT 27

28 THE FINANCIAL CONTEXT A SHARP DETERIORATION A sharp deterioration of public finances A large public sector contested for its weight and cost The State is making drastic savings and asking to local authorities to do the same. A reduction of transfers from the central government to local governments, like in other countries. THE CONTEXT 28

29 THE TWO PRINCIPLES BEHIND THE REFORM SIMPLIFY & CLARIFY SIMPLIFY THE ADMINISTRATIVE ORGANIZATION by strengthening the couple region/inter-municipal grouping at the expense of the historic couple (inherited from the French Revolution), department/municipality (these two levels do not disappear) THE REFORM CLARIFY THE COMPETENCES between levels of local governments with specific competences, avoid duplication and rationalize public spending. 29

30 INTER-MUNICIPAL GROUPINGS A REMEDY FOR THE COMMUNAL CRUMBLING MUNICIPALITIES 1/3 of the municipalities of the European Union with 28 members The average population of a French municipality is 1,750 compared with 4,100 in Europe THE REFORM THE FRENCH ARE VERY ATTACHED AT THE COMMUNAL LEVEL AN ADVANTAGE in terms of local democracy and maintenance of local public services 30

31 INTER-MUNICIPAL GROUPINGS THE NECESSARY RATIONAL ORGANIZATION OF THE TERRITORY PLACING A MESH OF THE TERRITORY that responds to the country's land-use planning challenges, be they problems related to urban development or the devitalization of rural areas THE REFORM INTER-MUNCIPAL GROUPINGS ALLOW the common management of certain local public services (collection of household refuse, urban transport, etc.) or the realization of local equipment AND the conduct of local development projects 31

32 INTER-MUNICIPAL GROUPINGS AN OLD AMBITION Law of March 22, 1890 creating the inter-municipal trade union with a single vocation The first form of technical inter-municipal grouping that allows the municipalities to associate in order meet the equipment needs of the territory (electrification, water supply, sanitation, road network...). Law of Decembre 31, 1966 creating the first urban communities (Bordeaux, Lille, Lyon and Strasbourg) A more ambitious formula to accompany the urbanization process and contribute to the development of the territory and the organization of modern local public services. THE REFORM 32

33 INTER-MUNICIPAL GROUPINGS PREFERRED TOOL FOR RATIONALIZING THE LOCAL BLOCK PREFERRED TOOL in the absence of the possibility to reduce the number of municipalities. AMALGAMATION of inter-municipal groupings to reduce the number (> inhabitants) and promote the internal balances Go from to ENHANCING their competences. CREATION OF 15 METROPOLISES from the biggest urban areas including 3 with specific status: Paris, Marseille and Lyon and soon seven more THE REFORM 33

34 INTER-MUNICIPAL GROUPINGS, January 1st 2007 THE REFORM 34

35 INTER-MUNICIPAL GROUPINGS, January 1st 2017 THE REFORM 35

36 METROPOLISES MAP THE REFORM 36

37 METROPOLISES MAP according to the bill currently under discussion in Parliament THE REFORM 37

38 The meshing of French territory 197 medium-sized cities which ensure the meshing of French territory and constitute 26 regional urban systems 38

39 THE REGROUPING OF CONTIGUOUS MUNICIPALITIES ANOTHER WAY TO RESPOND TO COMMUNAL FRAGMENTATION LAW OF JULY 16, 1971, known as the "Marcellin Act LAW OF DECEMBER 16, 2010 of reform of local authorities THE REFORM FAILURE 39

40 AMELIORATION OF THE COMMUNE NOUVELLE FRAMEWORK (law of march 16, 2015) IMPROVING THE 2010 PLAN WHICH RESULTED IN THE CREATION OF 25 NEW MUNICIPALITIES ONLY GIVING MORE PLACE TO THE MUNICIPAL COUNCILORS of the former communes: all the municipal councilors are part of the transitional municipal council pending its renewal. BETTER TAKING INTO ACCOUNT COMMUNAL SPECIFICATIONS in urban planning documents A FINANCIAL PACT guarantees for three years the level of state grants in the new municipalities with less than inhabitants + than 300 new municipalities created THE REFORM 40

41 AN ACCOMPANYING DYNAMIC TERRITORIAL REFORM IS ACCOMPANIED BY OTHER REFORMS TERRITORIAL ADMINISTRATION REFORM around new regions and new regional capitals. CONSULAR NETWORK REFORM within the new regional framework. OTHER ASPECTS OF THE REFORM Overall, RATIONALIZATION of many networks to reflect the new regional map. 41

42 CHALLENGES SUCCESSFUL REFORM DEPENDS ON THE SUCCESS OF SEVERAL CHALLENGES THE IMPACT OF MERGERS on strengthening the regions THE DYNAMIC REGIONS/METROPOLISES in competition especially on economic development CHALLENGES THE ABILITY OF METROPOLISES to create sustainable growth and spread it to rural and peri-urban areas. WHAT IDENTITY BASIS FOR THE NEW REGIONS? 42

43 CITIZEN PARTICIPATION BEYOND REFORM, STRENGTHENING CITIZEN PARTICIPATION The National Commission for Public Debate (CNDP) is responsible for informing citizens and ensuring that their views are taken into account in the decision-making process Projects for development or equipment of national interest that have significant impacts on the environment and that have significant socio-economic stakes. CITIZEN PARTICIPATION Neighborhood councils: each municipality with more than inhabitants has a neighborhood council. The mayor can involve citizens in the development, implementation and evaluation of actions affecting the neighborhood. 43

44 CITIZEN PARTICIPATION BEYOND REFORM, STRENGTHENING CITIZEN PARTICIPATION Citizens' councils set up in all the disadvantaged neighborhoods allow citizen mobilization, by fostering shared expertise and guaranteeing the place of inhabitants in all steering bodies, by creating a space for proposals and initiatives from of the needs of the inhabitants. CITIZEN PARTICIPATION The local referendum allows voters to decide by vote whether to implement a project of local interest The local referendum of popular initiative allows voters to request the organization of a consultation on a municipal development operation. 44

45 THE LAWS OF THE TERRITORIAL REFORM ACTE III OF DECENTRALIZATION Law MAPTAM (Modernisation of Public Territorial Action and Metropolises), January 27 th 2014 Each level of subnational government is primarily responsible for organizing and assuring some competences Introduction of the metropolis Transfer of the management of EU funds to regions Law relative to the Delimitation of Regions and Regional and Departmental Elections, January 16 th 2015, introduces amalgamations for regions Law relative to the Amelioration of the Commune Nouvelle Framework, March 16 th 2015, aiming at promoting local amalgamations on a voluntary basis. 45 THE LAWS OF THE TERRITORIAL REFORM

46 THE LAWS OF THE TERRITORIAL REFORM ACTE III OF DECENTRALIZATION Law NOTRe (New Territorial Organization of the Republic) August 7 th 2015 Strengthening inter-muncipalities Abolition of the general clause of competence for the regions and the departments Clarification of competences Department refocused on territorial and social solidarities Region gained greater responsibilities and powers regarding regional economic development and land use planning. THE LAWS OF THE TERRITORIAL REFORM 46

47 A REVISED PUBLIC ACTION AN INTANGIBLE FUNDAMENTAL ACTION BUT NEW MODES OF INTERVENTION AN INTANGIBLE FUNDAMENTAL ACTION: providing long-term support for responsiveness, continuity, inclusion, regulation, strength to deal with threats, know-how outside any market contingency A REVISED PUBLIC ACTION BUT A NEW OBJECTIVE: to bring public and private actors (including citizens) into dynamic by promoting collective intelligence 47

48 TERRITORY PLANNING ACCORDING TO THE STATE TOWARDS THE ALLIANCE OF TERRITORIES AN ARTICULATION SEARCH TO ENABLE THE MESHING OF THE TERRITORY: Towards a contractualisation of relations between public actors: Contract of State-region plan, contracts of reciprocity, contracts of rurality, contracts of city, pact State-metropolises... A leveraged state putting in capacity and coproducing the development of the territories with the local actors by contracting. TERRITORY PLANNING 48

49 SOME COMPARATIVE ELEMENTS NUMBER OF LOCAL AUTHORITHIES Local Intermediate Regional France Germany SOME COMPARATIVE ELEMENTS UK Poland Ukraine Source: CCRE-CEMR, Gouvernements locaux et régionaux en Europe, septembre 2016, p,3

50 THANK YOU FOR YOUR ATTENTION Jean-Christophe BAUDOUIN, Director Department for Territorial Strategies IMPLEMENTING DECENTRALISATION REFORM PERSPECTIVES FROM FRANCE January 26th 2017