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CEMR report of 2021 

Meet Local Leaders - News

Report on the publications, knowledge-sharing, advocacy and communications in 2021 


The Council of European Municipalities and Regions (CEMR) is pleased to present its 2021 Activity Report, which provides an overview of the organisation’s main actions and achievements over the year. Guided by the 2021–2030 multiannual strategy and the 2021–2022 work programme, CEMR focused its work on four objectives: 

  1. Policies and advocacy 
  1. Knowledge sharing and capacity-building 
  1. Pan-European campaigns and visibility 
  1. Internal organisation and sustainability 

All actions were aligned with the aim of advancing the Sustainable Development Goals (SDGs) across Europe’s territories. 

Shaping European and Global Agendas 

Throughout 2021, CEMR actively influenced European initiatives and alerted members to upcoming developments affecting local and regional governments. Activities included: 

  • Monitoring EU initiatives on recovery, resilience, and international cooperation. 
  • Engaging in structured dialogues on cohesion policy, rural development, disability rights, and urban development. 
  • Providing input that shaped OECD analyses, Council Conclusions, and the European long-term vision for rural areas. 
  • Publishing position papers and resolutions on gender equality, migration, the Fit for 55 energy package, water, and digitalisation. 

At the international level, CEMR deepened cooperation with UCLG, the Global Taskforce, OECD, and the Congress of Local and Regional Authorities. 

Building Knowledge and Capacity 

To strengthen understanding of EU policies and empower members to act, CEMR: 

  • Produced publications and webinars, including a new edition of the TERRI Report on decentralisation reforms. 
  • Organised workshops on member participation in national and European processes. 
  • Delivered capacity-building through externally funded projects in areas such as EU funding, climate adaptation, gender equality, migration, and SDG implementation. 

Raising Visibility and Engaging Citizens 

2021 was also a year of celebrations: 

  • 70th anniversary of CEMR and the 15th anniversary of the Equality Charter brought together 500 participants online. 
  • Pan-European campaigns were launched for Europe Day, SDG Day, and equality, highlighting the voices of local leaders and women in politics. 
  • CEMR ensured visibility for its spokespersons through social media, interviews, videos, and participation in international events. 

In numbers: 

  • Over 120 articles published in English and French. 
  • More than 650 tweets reaching 1 million views. 
  • 14 newsletters delivered to the network. 

Strengthening Internal Organisation 

CEMR took concrete steps to become a more sustainable, inclusive, and resilient organisation: 

  • Two online Policy Committee meetings gathered 170 elected representatives to adopt policy positions and validate the strategy. 
  • A new Secretary General selection process was launched. 
  • Internal processes were modernised with digital templates, e-signatures, and reduced paper use. 
  • Staff received training on project management, budget monitoring, public speaking, and team collaboration. 

Milestones and Campaign Highlights 

  • Advocated for local governments to be included in post-COVID recovery plans (#CohesionAlliance). 
  • Shared local leaders’ visions for the Conference on the Future of Europe
  • Continued the #Power2Her and #LocalEquality campaigns on gender equality. 
  • Helped secure recognition of the multilevel cooperative model in the Glasgow COP26 agreement

2021 was a year of adaptation, resilience, and influence for CEMR. Despite the challenges of the pandemic, the network succeeded in shaping European debates, amplifying the voice of local and regional governments, and strengthening internal capacities. With a stronger foundation and renewed strategy, CEMR continues its mission to empower Europe’s municipalities and regions to lead sustainable change. 

Read the study here

For more information, contact:

Recovery & Resilience Facility funds 

RRF Consultation - News

Local and regional governments warn of weak involvement, risks of fund misallocation, and limited ownership of recovery plans 


The Recovery and Resilience Facility (RRF) is the EU’s largest ever economic support plan, launched in response to the COVID-19 crisis. While national governments designed National Recovery and Resilience Plans (NRRPs) to guide investments and reforms until 2026, a new consultation by the Committee of the Regions (CoR) and the Council of European Municipalities and Regions (CEMR) highlights a persistent problem: local and regional authorities (LRAs) remain sidelined in the process. 

Weak involvement in preparation and governance 

The survey, conducted in early 2022 among 26 associations across 19 EU member states, shows that most LRAs had little to no influence on defining objectives, reforms, or investments. Compared with 2021, dialogue with national governments slightly improved, but respondents stress that these consultations had minimal impact on final plans. Governance of the process remains largely top-down. 

Mixed views on the plans’ content 

Respondents were broadly positive about the NRRP’s contribution to the green (37% earmark) and digital transitions (20% earmark). However, they expressed doubts about the plans’ ability to advance territorial cohesion, one of the RRF’s six pillars. The interplay between NRRPs and other EU funds such as the ERDF or Cohesion Fund also remains unclear and inconsistent, raising fears of overlaps and inefficient spending. 

Implementation: low ownership, high risks 

When it comes to implementation, optimism is scarce. Only a handful of LRAs reported having a meaningful role in monitoring, adapting, or co-managing projects. Ownership is strikingly low, despite LRAs’ frontline role in pandemic response and recovery. The main barriers identified were a lack of political will at the national level and tight or unsuitable formats and timelines, rather than a lack of local capacity. 

These shortcomings translate into serious risks: 

  • Failure to meet milestones and targets 
  • Misallocation of funds 
  • Increased territorial disparities 
  • Public distrust in the EU and national institutions 

Calls for stronger EU-level monitoring 

To improve outcomes, respondents strongly supported enhanced dialogue between the EU and local/regional representatives and the creation of an early warning mechanism to flag delays or problems in implementation. 

Conclusion 

Two years after the pandemic outbreak, Europe’s recovery is underway, but its governance remains overly centralised. The CoR-CEMR consultation warns that without meaningful involvement of local and regional governments, the RRF risks missing its objectives, weakening both recovery efforts and citizens’ trust in the European project. 

Read the study here 

For more information, contact: 

TERRI – mapping territorial reforms

Terri - News 2022

Discover “TERRI”: a new tool mapping territorial reforms and powers in Europe


How is Europe’s complex patchwork of local and regional governments evolving? How have the responsibilities of municipalities, counties and regions changed in recent years, marked by environmental and health crises? What examples of successful territorial reforms can inspire others?

To answer these questions, we present to you a new digital report entitled ‘Territorial Governance, Powers and Reforms in Europe’, or TERRI Report for short. This online tool highlights territorial reforms and decentralisation trends over the past decade in 40 countries. It also analyses the changing nature of relationships between central and subnational governments.

In light of the pandemic, this edition zooms in on local health responsibilities in different countries and evaluates the impact of COVID-19 on local health systems. TERRI visualises trends with numerous charts. In just a few clicks, you have access to individual country profiles, an interactive map and recommendations to policymakers for undertaking successful territorial reforms. There is also a unique tool for side-by-side comparisons of different countries’ systems of local government.

The TERRI Report is based on research by the Council of European Municipalities and Regions (CEMR), gathering data from its member associations on the state of local and regional governments across Europe.

The trends reshaping local Europe

While the situation in different European nations is necessarily diverse, the TERRI Report has identified several common trends.

Europe today is made up of 114,534 towns and cities, 1058 provinces and counties, and 353 regions. There have been reforms reducing the number of municipalities or regions in several countries. These typically aimed to consolidate the territories concerned into larger entities. Portugal, Albania, Estonia, Latvia, Ukraine and Turkey, for example, all saw drastic reductions in the number of municipalities, while Norway and France considerably reduced the number of regions.

National associations of local and regional governments emerge as central players in both territorial reforms and healthcare systems. As regards healthcare, associations play a key role through activities such as sharing expert information and best practices amongst their members and in negotiating healthcare roles and budgets with national governments.

In many countries, there has been a decentralisation of healthcare responsibilities. This typically takes the form of increased healthcare responsibilities for subnational governments and/or more healthcare coordination between levels of government.

These are just a few of the changes that are affecting local life in our municipalities and regions. To find out more, explore the TERRI Report at: terri.cemr.eu.

Read the full study here

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Empowering local Europe since 1951  

Democracy, diversity, and sustainability at the heart of CEMR 


Since its founding in 1951, the Council of European Municipalities and Regions (CEMR) has worked to promote a peaceful, democratic, and united Europe. Rooted in local self-government and citizen participation, CEMR brings together municipalities, counties, and regions across 41 countries, giving local democracy a strong voice at European and international levels. 

Our Values 

CEMR stands on three core pillars: 

  • Local democracy: Protecting municipal autonomy, human rights, and the rule of law. 
  • Sustainability: Guiding action through the United Nations’ Global Goals. 
  • Diversity: Promoting gender balance, inclusiveness, and respect for differences. 

With a team of 40 professionals in Brussels, representing a dozen nationalities and speaking 15 languages, CEMR embodies the European mosaic it serves. 

A History of Local Leadership 

CEMR was born in 1951 when 56 mayors from six countries gathered in Geneva to lay the foundations of a united Europe from the bottom up. Their early efforts focused on town twinning, fostering reconciliation through exchanges and cultural ties. Today, with some 20,000 twinnings across Europe, this remains the continent’s most widespread form of cooperation. 

CEMR also pioneered the push for local autonomy, adopting the European Charter of Municipal Liberties in 1953, which later inspired the Council of Europe’s European Charter of Local Self-Government. 

In 1984, CEMR officially added “Regions” to its name, reflecting its advocacy for decentralisation and the growing importance of regional governance. 

What We Do Today 

CEMR’s mission is organised around four “Ps”: People, Places, Planet, and Partnerships

  • Advocacy: Representing local and regional interests to the EU, the Council of Europe, OECD, and the United Nations. CEMR works to ensure that 70% of EU laws affecting municipalities and regions take account of local realities. 
  • Knowledge: Sharing expertise and producing ground-breaking studies on local democracy, equality, climate action, migration, and finance. 
  • Partnerships: Leading externally funded projects on sustainable development, integration, climate, and democracy, including initiatives such as PLATFORMA, IncluCities, and the Covenant of Mayors. 
  • Communication: Reaching citizens, members, and global partners through campaigns, media work, and digital platforms. 

Looking Ahead 

Marking its 70th anniversary in 2021, CEMR reflected on past achievements while preparing for future challenges. In an age of polarisation, climate change, and digital transformation, the organisation continues to champion local democracy as the bedrock of peace and progress. 

As former CEMR President Valéry Giscard d’Estaing once urged Europe’s young people: “Today, power is there for the taking! It is the power to act, to bring on the future and to organise it.” 

Read the study here 

For more information, contact: 

Revitalising the Equality Charter 

Gender Charter - News

CEMR’s 15-year reflection process sets the stage for a renewed push to advance gender equality in Europe’s local and regional life 


2021 marked the 15th anniversary of the European Charter for Equality of Women and Men in Local Life, a milestone moment to celebrate achievements, reflect on lessons learned, and chart a course for the future. Initiated by CEMR in 2006, the Charter has grown into a powerful instrument for advancing gender equality at the local level, now embraced by nearly 2,000 signatories in 36 countries. 

The anniversary served not only to honour progress but also to examine how the Charter can evolve to remain relevant and impactful for today’s and tomorrow’s local governments. 

To mark the occasion, CEMR launched a wide-ranging reflection process. A series of six online workshops was held between June and November 2021, involving Charter signatories, national associations, gender focal points and other stakeholders. Five in-depth interviews complemented these to deepen the analysis. 

The process revolved around four key areas: 

  • Recognising achievements: Highlighting the tangible improvements in local equality made possible by the Charter; 
  • Reflecting on relevance: Considering how to modernise the Charter and connect it with broader policy frameworks; 
  • Celebrating commitment: Acknowledging the people and organisations driving real change on the ground; 
  • Revitalising tools: Gathering practical insights and suggestions to strengthen the Charter’s implementation. 

Participants emphasised that while the Charter remains a strong and valuable framework, its language, accessibility, and visibility could be improved. There was broad support for clearer, more inclusive, and action-oriented language. Concerns about legal implications for current signatories were addressed with a proposed solution: allowing signatories to either reconfirm or upgrade their commitment, while still validating earlier engagements. 

The 15-year review reaffirms the Charter’s relevance and potential as a living document. CEMR has now put forward a set of concrete recommendations to enhance its clarity, inclusivity and usability, ensuring it remains a cornerstone for gender equality at the local and regional level: 

  • Simplify the language and prioritise clarity and accessibility; 
  • Use assertive, action-driven phrasing to emphasise commitments; 
  • Improve translation quality in coordination with national associations; 
  • Adapt language to gender-inclusive norms, particularly in gendered languages. 

As the Chair of the Standing Committee for Equality put it: 

“Beyond chapters and clauses lies a common goal: bringing equality closer to home.”

Read the study here 

For more information, contact: 

Local green recovery in Europe 

Climate - News

Discover our infographic and key messages for COP26


After much delay and uncertainty to due to COVID crisis, it’s finally happening: the 26th UN summit on climate change (COP26) is taking place in Glasgow, Scotland, from 31 October to 12 November.

On this occasion, CEMR has prepared an infographic on “Ensuring a local green recovery in Europe: 5 key facts for local implementation of the Paris Agreement”. The visual vividly shows why tackling climate change is a human and environmental necessity and why local and regional action are critical to successfully shift to sustainability.

Do not hesitate to share this infographic far and wide! Please contact us if you would like to localise the infographic in your own language.

Key messages to achieve carbon-neutral territories

We have also prepared 6 key messages as the core of our advocacy on behalf of local and regional governments at the COP26 summit. These messages are:

  1. The Paris Agreement needs to be delivered now covering both mitigation and adaptation at all levels.
  2. Local and regional leadership and action are key to strengthening work at international level within UNFCCC and in collaboration with global partners.
  3. Providing appropriate regulatory frameworks, financial and technical resources is essential for the implementation of Local and Regional Governments’ climate action.
  4. The localisation and territorialisation of the Sustainable Development Goals are fundamental to have a positive impact on the ground.
  5. Climate justice and social equity need to go hand in hand to combat climate change inequalities efficiently.
  6. Resilience and recovery should be the opportunity focus to guide society out of the pandemic crisis.

For more detailed information, discover our position paper: “Ready for COP: Key messages for local led implementation of the Paris Agreement”.

CEMR and PLATFORM at the COP

Discover the list of events at which CEMR and PLATFORMA representatives will be speaking.

Local finances hit by COVID-19

MFF and COVID recovery - News 2020

CEMR report reveals rising costs and falling revenues for local and regional governments during the pandemic, threatening public services and investments


As the COVID-19 pandemic swept through Europe, local and regional governments (LRGs) were on the frontlines, maintaining public services, managing emergency measures, and supporting vulnerable communities. A new analysis by the Council of European Municipalities and Regions (CEMR) sheds light on how this essential work came at a high financial cost, creating long-lasting challenges for municipalities and regions across Europe.

Based on a survey conducted among 40 national associations in 15 countries, the CEMR report highlights what it calls a “scissor effect”: rising local expenditure paired with declining revenue. While towns and regions had to invest in health, social care, education, and digital tools to respond to the crisis, income from taxes, public service fees, and tourism sharply declined.

Some countries, such as Sweden and Estonia, offered significant support to help offset these financial shocks. Others, including Portugal, provided little to no compensation. The situation varied widely, revealing major disparities in how LRGs were supported at the national level.

The report also underscores the challenges LRGs faced in accessing EU support due to limited consultation, legal constraints, or complex procedures. Despite some flexibility under EU fiscal rules, many authorities remain uncertain about their mid- and long-term financial stability. The risk: cuts to investment in essential areas like climate action, digitalisation, housing, and public transport.

CEMR calls for a long-term rethink of how LRGs are financed and included in national and EU recovery plans. Municipalities and regions have proven their capacity to lead in times of crisis. To continue doing so, they need clear legal frameworks, financial autonomy, and a real partnership with national and European institutions.

The report is a clear reminder: Europe’s recovery depends on strong, resilient local and regional governments. Equipping them today is the key to building a more sustainable, inclusive, and future-proof tomorrow.

Read the study here 

For more information, contact: 

Building partnerships with Ukraine

Ukraine partnership - News

Key factors for successful and sustainable partnerships between Ukrainian and EU local governments 


Ukrainian municipalities have a long tradition of international cooperation, especially with their counterparts in European Union (EU) member states. Today, this cooperation is more relevant than ever. Municipalities seek to improve local services, modernise administration, attract investment, and promote tourism and culture by learning from and working with EU partners. 

At the same time, establishing meaningful partnerships is not straightforward. Many municipalities, particularly those with limited international experience and resources, face challenges in sustaining long-term cooperation. To respond to this need, the Bridges of Trust initiative was launched to support exchange, promote best practices, and help local governments in Ukraine and the EU build effective partnerships. 

Mapping cooperation 

Ukraine’s decentralisation reform, launched in 2014, created 1,469 consolidated territorial communities, strengthening local governance and budgets. This has enabled municipalities to take greater responsibility for international engagement. Reports by the European Commission and the European Parliament have recognised Ukraine’s decentralisation as a success story, while also stressing the need to safeguard its achievements through constitutional reform. 

Success factors in municipal cooperation 

Drawing on decades of European experience with twinning and decentralised cooperation, several factors emerge as critical to success

  • Careful partner selection, ensuring shared interests and commitment. 
  • Clear partnership strategies with defined objectives. 
  • Sustainable planning and dedicated support structures (e.g. steering committees). 
  • Joint financing and access to external funding. 
  • Active involvement of schools, youth, and citizens to broaden visibility. 
  • Political leadership and motivated staff, supported by international departments. 
  • A strong European dimension to reinforce unity and common identity. 

Challenges facing Ukrainian municipalities 

Despite progress, obstacles remain. Studies of cooperation with Polish and other EU municipalities highlight recurring issues: 

  • Partnerships that exist only on paper, with little or no joint activity. 
  • Limited staff capacity, foreign language barriers, and a lack of experience in managing international projects. 
  • Insufficient awareness among citizens of the benefits of cooperation. 
  • Irregular contacts and a lack of strategic alignment between partners. 
  • Funding shortages for travel, exchanges, and project implementation. 

The COVID-19 pandemic has created both challenges and opportunities. While some partnerships stalled due to travel restrictions, others adapted by embracing online platforms. Virtual exchanges, such as U-LEAD’s study visits and the Bridges of Trust online forums, demonstrated how digital tools can sustain and even intensify cooperation. 

Looking ahead 

Above all, motivation and leadership remain the decisive factors. As Ukrainian officials note, training and case studies are valuable, but without committed local leaders and engaged staff, partnerships cannot thrive. Conversely, municipalities with strong motivation but little experience can quickly grow if supported with targeted training, funding, and practical guidance. 

International municipal cooperation is not simply an instrument of solidarity: it is a strategic investment in Ukraine’s recovery, resilience, and European future. By learning from each other, municipalities in Ukraine and the EU can build sustainable partnerships that deliver tangible results for their communities and strengthen the foundations of a common European identity. 

Read the study here 

For more information, contact: 

European territories localise the SDGs

Climate - News

Hot off the press: “European Territories Localise the SDGs”


From global to local: PLATFORMA and CEMR are proud to present the 2021 edition of our regular series of publications on how municipalities, regions and their associations are making the UN Sustainable Development Goals (SDGs) a reality on the ground.

Entitled European Territories Localise the SDGs: Continuity and Change in Times of COVID-19, this 46-page report is jam-packed with data, infographics, charts and best practices on how local and regional governments are working on the SDGs in Europe and beyond.

Based on data from 39 local and regional government associations in 29 countries, the study provides a succinct overview of the often-diverse situation across the European continent.

Local governments: key to monitoring and cooperation on the SDGs

The report’s findings are clear: an increasing number of local and regional governments and their associations in Europe are taking the lead in implementing what is still seen by many others as ‘just’ a global agenda. Those on the forefront however know how the 2030 Agenda and its SDGs can transform their daily work, policies and public services with inclusive approaches.

Indeed, 15.4% of associations are now more involved in the SDGs than in 2019. Today, over 3/4 associations have sound knowledge of the SDGs and 1/3 use them as a guiding reference.

The SDGs offer a shared vocabulary and goals, enabling local governments to interconnect with other governments and players, ultimately forming links between citizens and the world. Local governments and their associations have a particularly crucial role in promoting cooperation on and monitoring of progress on the SDGs.

84% of associations are involved in some way in national SDG coordination mechanisms. What’s more, around 4/5 associations have taking action on the SDGs’ international dimension and considers that the SDG framework helps development of partnerships with peers (i.e. decentralised cooperation activities around the 2030 Agenda).

The report also highlights the essential role of local government associations have played during the COVID crisis. This has included sharing information with municipalities and regions, capacity-building, advocating for financial support and participating in national consultations.

Recommendations to realise the 2030 Agenda from the bottom-up

We have long known that the ambitious goals of the 2030 Agenda need to be implemented from the bottom-up. The local level is ideal for experimentation, innovation and acceleration of work on the SDGs. However, the right conditions need to be in place to realise this potential.

The report formulates 5 key recommendations:

  • Increase EU and national funding for SDG localisation
  • Promote mutli-level governance, multi-stakeholder partnerships and policy coherence
  • Local and regional governments and their associations should continue peer learning within and outside Europe
  • National governments should increase recognition and support for SDG localisation (notably to monitor progress)
  • Strengthen human resources and capacities on SDG localisation

The report and its key findings will be presented on 29 June at the 12th Annual Meeting of Cités Unies Frances (CUF), on 8 July during a PLATFORMA-CEMR dedicated webinar taking place in the context of the the UN High Level Political Forum on Sustainable Development (HLPF, registration form) and at other local government events.

More information:

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Engaging in the European semester 

CEMR Conferences

CEMR–EPSU handbook helps local government social partners strengthen their role in EU economic governance 


The European Semester, launched in 2010 to coordinate EU Member States’ economic, financial, employment and social policies, increasingly shapes national reforms and public investments. For local and regional governments (LRGs) and their social partners, the Semester is not just about fiscal discipline, it now covers areas like health, education, taxation, social care, and the green and digital transitions, with direct implications for workers in the LRG sector. 

Recognising this impact, the 2018–2020 CEMR–EPSU joint project produced a Handbook for Social Partners. Its aim: to help LRG social partners navigate the Semester, build their capacity, and influence reforms more effectively. 

The handbook highlights the growing territorial dimension of the process: in 2019, 62% of all Country-Specific Recommendations (CSRs) had a direct or indirect local and regional impact. With future EU funds increasingly tied to Semester priorities, active engagement becomes crucial. 

Practical guidance is provided on how to engage across the Semester’s different phases: 

  • Awareness-raising and capacity building: Social partners should strengthen internal knowledge, build alliances, and establish direct contact with the national ministry leading the Semester and with the European Commission’s Semester Officer. Early and proactive engagement, including joint employer–worker positions on key issues, helps set the agenda. 
  • Country reports and fact-finding missions: In December–February, the Commission assesses national situations. LRG social partners can influence this by meeting fact-finding missions, submitting analyses, and ensuring that their priorities are reflected in reports. 
  • Implementation phase (April–July): As Member States draft their National Reform Programmes (NRPs) and receive new CSRs, social partners can contribute written submissions, highlight gaps, and propose reforms aligned with local needs. Examples from Sweden, Lithuania, and Spain show structured opportunities for input through consultation fora or tripartite councils. 
  • Follow-up phase (August–October): With reforms under implementation and budgets prepared, dialogue with national authorities and Semester Officers is vital to ensure LRG perspectives are integrated. 

The handbook stresses that the aim is not one-off consultations, but structured, regular dialogue between governments, the Commission, and LRG social partners. By organising themselves, building alliances, and proactively shaping priorities, local government employers and trade unions can ensure their voices count in one of the EU’s most influential policy processes. 

Read the study here 

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