B Explanatory Memorandum - (presented by Mr.
SMITHERS, Rapporteur)
1. While there is a constant
exchange of visits between mayors, town clerks and other municipal officials,
there are very few exchange visits between the rank-and-file councillors and
junior officials whose journeys are not paid for out of public or other
funds.
2. Some of the international associations of local authorities
have set up offices where councillors can obtain the names of persons engaged
in local administration in other countries, but such schemes have so far only
proved partially successful.
3. There seems little hope of organising
exchange visits by groups of councillors or of increasing the number of
journeys undertaken by councillors with the specific object of studying methods
of local administration. In the latter case, the chief difficulties are
financial. It is certain, on the other hand, that a large number of people
concerned with local administration do, in fact, travel abroad, either on
business or on holiday, and would certainly be glad to take advantage of the
special facilities for studying local administration in the countries they
visit if they knew of the existence of such facilities.
4. These
considerations have led to the attempt to set up a scheme aimed at increasing
the number of visits of this kind, thus extending international contacts in
local government into a new field.
5. At the request of the Committee
on Municipal and Regional Affairs a preliminary draft was prepared and
submitted for comment to the associations of local authorities in various
European countries as well as to the two chief international associations, the
International Union of Local Authorities and the Council of European
Municipalities. The draft was accompanied by the following questionnaire :
a Are there in your country an appreciable
number of members of local authorities who might be interested in paying visits
to other countries under the scheme?
b If so, which countries
would be most likely to interest them from a local government point of
view?
c Would there be an appreciable number of members of
local authorities in your country who would be willing to offer hospitality
under the scheme?
d What percentage of members likely to
participate in such a scheme speak any foreign languages, and, if so, which
ones?
e Have you any suggestions for alteration or
improvement of the draft scheme?
6. All in all, the
response lias been most favourable, as will be seen from extracts from replies
sent in by the national associations which arc given below and from letters,
also reproduced below, received from «the two international
associations.
7. Union of Austrian Municipalities (Oesterreichischer
Stâdtehund) " Th e Oesterreichischer Stâdtehund wholeheartedly welcomes all
measures to encourage exchange of knowledge of, and experience in, the
administrative practice of local authorities.
a Are there an appreciable number of members of local authorities in
your country who might be interested in paying visits to other countries under
the scheme? " Yes , there are in Austria a considerable number of persons
responsible for running local affairs who would be interested in visits abroad.
"
b If so, which countries would be most likely to interest
them from a local government point of view? " Th e countries which the Austrian
municipal authorities would be most interested in visiting are Britain, Germany
and the Scandinavian countries. "
c Would there be an
appreciable number of members of local authorities in your country who would be
willing to offer hospitality under the scheme? " Ther e would certainly be a
number of persons or local authorities prepared to offer hospitality as
suggested in your plan, particularly to members of the countries which Austrian
local government officials would be especially interested in visiting. "
d What percentage of members likely to participate in such a
scheme in your country speak any foreign languages and, if so, which ones. "
Onl y a small percentage of our members have an adequate knowledge of
languages. "
e Have you any suggestions for alteration or
improvement to the draft scheme? " Th e principle of reciprocity on which the
plan is based seems to us to be applicable only to countries at a roughly equal
level of development. Visits by members of less-advanced countries to more
highly-developed local administrations with better technical equipment would
hardly, in our view, satisfy the reciprocity principle.
The
already existing international bodies grouping municipal and local associations
should be invited to participate in the administration of the proposed exchange
and research scheme. (Executive Chairman) "
8. Association of Danish Municipalities (Den Danske Kôbstadforening) " Th e
Danish Associations of Local Authorities hold a very favourable opinion on ihe
idealistic plans to promote the exchange of visits between members of local
authorities. It can be mentioned that a number of Danish municipalities are in
close contact with ' vens-kabsbyer ' (friendship-towns) in other northern
countries, with which they exchange visits and information. At the same time we
are of the opinion that, as far as Denmark is concerned, there will hardly be
any need for a further initiative in this respect. If the Secretariat-General,
however, takes upon itself the task of being the administering authority of the
scheme and would care to ask for our assistance in the placement of members of
local authorities from outside countries within Denmark, I am quite convinced
that you might count on all the facilities we are able to give. S. HJAHSOK. "
9. French Association for the Council of European Municipalities
(L'Association française pour le Conseil des Communes d'Europe)
a Ar e there an appreciable number of members of
local authorities in your country who might be interested in paying visits to
other countries under the scheme? " Th e interest already shown by French
mayors in the " pairings " organised on the initiative of the Council of
European Municipalities shows that such exchanges meet a real need in our
country. There is, generally speaking, a much greater tendency.to visit
neighbouring countries than there was in pre-war years. The elected members of
local authorities are genuinely anxious to obtain information on the municipal
experience and achievements of foreign countries such as is already supplied by
the international municipal organisations; it is realised that these questions
are common to all countries, as was revealed during the States-General of
European Municipalities held at Versailles. This tendency should therefore be
encouraged, and the facilities provided for in the scheme could contribute to
this end. The Council of European Municipalities, one of whose statutory
objectives is the development of the European outlook within the municipalities
and local communities, should give its support to the scheme as soon as it
comes into operation. It has already organised meetings of mayors, notably
between those of France and Germany, and is continuing its efforts on these
lines using the method of mutuaf hospitality proposed in the scheme.
b If so, which countries would be most likely to interest
them from a locaf government point of view? " Th e elected members of
municipalities and departmental councils are particularly interested in
countries known for :
thei r communal and
regional autonomy : Switzerland, Great Britain, the Benelux countries and
Austria;
th e social work done by local authorities : in
particular, the Scandinavian countries ;
thei r work in the
provision of housing : notably Germany, Italy and Great Britain.
"
c Would there be an appreciable number
ofmembers of local authorities in your country who would be willing to offer
hospitality under the scheme? " I t is difficult to give a precise reply to
this question. Nevertheless, the organisation of " pairings " has shown that in
France the municipalities have been able to provide hospitality for their
visitors, even in the case of rural authorities with their relatively modest
resources. "
d What percentage of members likely to
participate in such a scheme speak any foreign languages, and, if so, which
ones? " f t is difficult to state even apprpx-imateiy the percentage of persons
likely to participate in the scheme who would know foreign languages. As far as
fluent practical knowledge of languages is meant, the percentage in France
would appear to be small. This is a handicap in the sene that the • visitor
welcomed in the bosom of the family of a colleague will not be able to take
part in lively conversational exchanges. Where such language difficulties
exist, however, it would generally be possible to find in the locality a
willing interpreter for English in most districts, for German in the East of
France, and for Italian in the South. '".
e Hav e you any
suggestions for alteration or improvement of the draft scheme? " Thes e
exchanges might be developed within the framework of the towns already paired
on the initiative of the Council of European Municipalities and be extended to
other elements of the population such as students and young workers. As Mr.
Smithers suggests, contacts might be limited, at least at the outset, to a
specific number of local authorities of varying character (particularly urban
and rural authorities). The Executive Committee of the French Association for
the Council of European Municipalities has proposed that the central office for
exchange be organised within the framework of the Secretariat of the Council of
Europe and that the municipal organisations should serve as intermediaries
between it and the municipalities. An organisation of this kind would reduce
the cost of the central office, thanks to the co-operation of unions which by
their very nature have a better knowledge of the towns and villages. The
Governments might be asked to support the various organisations, particularly
by according transport facilities, by the help of their consular agents abroad
and of their administrative authorities at home. They should take into account
the major part played by the elected members of local authorities, who have
considerable influence, both on personal grounds in that the local population
has given them its confidence and in view of the facilities they can supply in
the extension of exchanges by helping local societies to develop their
relations with similar organisations in other countries.
"
10. Association of Norwegian Municipalities (Norges
by-og Herredsforbund) " I n our opinion the proposed international
administration of an exchange scheme should be entrusted to the International
Union of Local Authorities at The Hague. I trust that the International Union
will keep in close contact with all municipal institutions concerned as well as
with the Council of Europe. The Norges Byforbund and Norges Herredsforbund will
give the International Union all possible assistance in carrying out such a
scheme as between Norway and other countries. I sould, however, like to mention
that linguistic difficulties may be an obstacle for most of the local
authorities in Norway. In point of fact, a highly successful exchange scheme of
many years standing is already in operation between the Scandinavian countries.
As you no doubt appreciate, the language question does not raise difficulties
for the Northern countries among themselves. At the moment I do not think it
necessary to circulate your questionnaire to our municipalities, as we feel
sure that any European municipal representative who wants to study municipal
life in Norway will obtain all the necessary facilities from our unions. It
also feel sure that there will be a sufficient number of Norwegian
host-municipalities. KJELL T. EVERS "
11. Union of Netherlands Communes
(Vere- niging van Nedeiiandse Gemeeten)
a Are
there an appreciable number of members of local authorities in your country who
might be interested in paying visits to other countries under the scheme? "
Experienc e has shown that many members of Dutch local authorities are
interested in visiting other countries to increase their knowledge of local
government institutions and methods abroad. The main problem in preparing
schemes for promoting such exchanges will be that of travelling expenses; the
scheme in its present version does not yet contain concrete suggestions to meet
this difficulty. "
b If so, which countries would be most
likely to interest them from a local government point of view? " Dutc h local
government officials would be most interested in visiting Great Britain,
Scandinavia, France, Belgium, Switzerland, Austria or Germany. "
c Would there be an appreciable number of members of local authorities
in your country who would be willing to offer hospitality under the scheme? " I
f preparations could be made well in advance, many local authorities in the
Netherlands would be willing to offer hospitality for a limited period to local
government officials from abroad. "
d What percentage of
members likely to participate in such a scheme in your country speak any
foreign languages, and, if so, which ones? " Mos t of the Dutch officials
likely to participate in an exchange scheme would speak English, German or
French (in this order of likelihood), or even more than one of these languages.
"
e Have you any suggestions for alteration or improvement of
the draft scheme? " A s all Dutch municipalities are members of our Union, we
gladly offer you any assistance you may wish in the preparation and execution
of such a scheme. The international administration of such exchanges should, in
our opinion, be entrusted to the International Union of Local Authorities,
which has member organisations in 15 European countries and to which the
Netherlands Union has been affiliated for over 40 years. N. AKKEMA
"
12. British Committee of the International Union of
Local Authorities
a Are there an appreciable
number of members of local authorities in your country who might be interested
in paying visits to other countries under the scheme? " Yes . "
b If so, which countries would be most likely to interest them from a
local government point of view? " Al l countries. For the most part they will
be interested in a particular function of local government •—• such as refuse
disposal, or housing — rather than in the local government system itself. "
c Would there be an appreciable number of members of local
authorities in your country who would be willing to offer hospitality under the
scheme? " I do not know. We have no experience to judge by. "
d What percentage of members likely to participate in such a scheme in
your country speak any foreign languages, and, if so, which ones? " Abou t half
would speak one language—usually French, sometimes German, occasionally Italian
or Spanish. "
e Have you any suggestions for alteration or
improvement of the draft scheme? " I suggest an extension to the scheme. Many
of our people go abroad for holidays and would gladly spend a day learning
about the local authority. The question of hospitality, except for lunch, would
not arise in these cases. All that is needed is a simple method of providing
introductions. B. BLIGH "
13. Urban District Councils
Association " Withou t making full enquiries of urban district councils
throughout England and Wales, of which there are 571, the Executive Council are
unable to give a categorical reply to the questions set out in your
questionnaire, but I am instructed to suggest that, within the knowledge of the
Executive Council, they are of the opinion that local authorities generally
might be interested in the scheme for the exchange of visits between members of
European local authorities, and that there will be an appreciable number of
members of local authorities in this country who would be willing to offer
hospitality under this scheme. H. S. HASLAM Secretary " A subsequent letter
added : " In the view of the Executive Council, the members of local
authorities in this country would be most likely to be interested from the
local government point of view in the Western European and Scandinavian
countries. "
14. Letter from the International Union of Local
Authorities to the Secretary-General of the Council of Europe " Sir ,
Representatives from our member-unions in Europe discussed during a recent
preparatory meeting of the European Affairs Committee of the International
Union of Local Authorities (held at The Hague, January 22nd, 1954) your
circular letter A. 13.850, asking for comment on a draft scheme for promoting
exchange visits between local authorities in Europe. Your initiative was
welcomed by the meeting and it was decided to ask all European member-Unions of
the I. U. L. A. to reply to your questionnaire on this problem. The secretariat
of the 1. U. L. A. was instructed to communicate with you to offer any support
which our organisation might be able to give in the further elaboration and
subsequent execution of this project. In particular the 1. U. L. A. offers to
take in charge the whole international administration of this scheme. We are
ready to co-operate fully with the Council of Europe in this matter and we hope
that the necessary close contacts between the Council and our Union will be
established in order to elaborate, in common, the detailed working procedure of
this project and the methods of further cooperation with regard to its
execution. Hoping that our support will prove to be a useful contribution
towards the realisation of this important European project, we sign ourselves,
N. ARKEMA General Secretary "
15. Letter from the Chairman of the
Council of European Municipalities to the Secretary-General of the Council of
Europe " Sir , As International Chairman of the Council of European
Municipalities I have taken note of the questionnaire of the Consultative
Assembly of the Council of Europe concerning the scheme for exchange visits
between members of local authorities in Europe. Having studied this scheme most
attentively, f feel that it merits wide support by all organisations working on
the municipal and European plane, particularly by the Council of European
Municipalities.
1 Value of cisits
abroad to local representatives
I a m sure the plan will be
warmly welcomed by local government officials. Despite the many obstacles
imposed by the national authorities, tourism is more popular than ever in
Europe. This fact surely testifies to the keen interest felt by the European
peoples in each other's countries and to the bond of sympathy existing between
them.
Local representatives, moreover, have repeatedly given proof
of this spirit of solidarity, in adversity no less than in happier times. The
Council of European Municipalities has taken care to associate itself with this
movement, and indeed to encourage it by developing the " pairing " scheme and
organising inter-municipal meetings, which have enabled the mayors to compare
their own particular problems and achievements with those of their
colleagues.
2 Particularly interesting
countries from the point of view of local administration
Whatever the municipal system of a country, it is to be observed that it
can derive great benefit from contacts with others. Those countries where
centralisation is carried to extremes will find it especially useful to
establish links with countries in which municipal freedoms have been most
carefully preserved. On the other hand, each country has something of value to
offer, and exchanges should not be confined to a single country or a small
number of countries on the ground that their municipal system is one of the
most highly perfected. On the contrary, such exchanges should be varied in
character. Some countries may have forged ahead on town-planning, others made
special efforts in connection with agricultural equipment; some may have
developed an unusually strong.civic spirit, while others may have shown
outstanding initiative and resourcefulness with very limited means, etc.
Europe's main potentialities derive from its diversity. Each of our countries,
respecting the traditions and methods of its neighbours, will thus learn to
draw on this inexhaustible wealth.
3 Are the
mayors prepared to offer hospitality to their colleagues?
European mayors have repeatedly proffered such hospitality to their
colleagues from other lands. In some countries, however, there are obstacles
which sometimes make it impossible for the mayor of a municipality to show the
true sympathy he feels towards a Europea n colleague. The Council of Europe
should do its utmost, not only to secure the removal of these obstacles, but
also to persuade Governments to encourage exchanges between local
representatives.
4 Proportion of persoiis
speaking a foreign language
The language problem should present
no real problem. English is widely spoken in Western and Northern Europe.
German is spoken in Austria, Switzerland and often in the Netherlands,
Luxembourg, etc.
Wherever permanent contacts are established
between two towns the mayor and inhabitants display a great co-operative
spirit; where necessary they take the trouble to learn the language of their
foreign correspondent or find a friendly interpreter in the
neighbourhood.
5 Suggestions
This scheme for the exchange of visits between the members of European
local authorities will have the wholehearted support of the Council of European
Municipalities. The Executive Committee of our Association is convinced that
the organisations already existing in other national administrations can
effectively contribute to the success of this scheme proposed by Mr. Smithers
and adopted by the Consultative Assembly of the Council of Europe. As observed
under II, Europe's wealth derives from its own diversity. Exchange visits
between local representatives may give them some idea of the varied problems
confronting our Continent and the novel methods devised to solve them. Europe
is at one and the same time the Europe of the Scandinavians, the
Mediterraneans, the West and of the Continent as such. Europe is both rural and
urban. This whole community must gradually learn to live at the same pace and
strive for the same ideal. We must do our utmost to remove mutual
misunderstandings and work together for a better Europe. The Council of Europe
can do much in this field, with the help of the municipal associations, by
keeping in direct touch with the local authorities.
In so doing it
can count on the support of the Council of European Municipalities.
I am, etc.,
E. HAMILIUS
Burgomaster of
Luxembourg
Chairman of the C. E. M. "
16. 16. It
is now for the Assembly to agree to give its patronage to the scheme which we
submit to it in the name of all members of the Committee on Municipal and
Regional Affairs and, taking into consideration that the scheme does not
involve any increase in the budget of the Council of Europe, to instruct the
Secretary- General to take the necessary steps to implement it.
17.
The Committee also hopes that the Committee of Ministers, which the Assembly
will no doubt wish to inform officially of the implementation of the scheme,
will agree to share the patronage, and that the Governments of the Member
States will do everything in their power to give it the necessary
publicity.
