Elections key to preserving grassroots democracy

Local elections are crucial pathways through which citizens can address matters closest to them, and elected representatives are often the closest link between citizens and the authorities. Ensuring freedom of local elections and security of elected officials is an essential component of the overall European democratic architecture. These issues were central to debates today at the 50th plenary session of the Congress of Local and Regional Authorities. These election-related debates were held as contributions to the New Democratic Pact for Europe, a pioneering initiative of the Council of Europe to revitalise democracy.

Free elections at local and regional levels: a fundamental right

Local and regional elections in Europe are increasingly exposed to a complex set of domestic and international challenges, including democratic backsliding. It includes restrictions on the right to vote or stand as a candidate, a deteriorating campaign environment, external interference and breaches of electoral integrity, as well as limitations on elected officials' carrying out their mandates.

Despite various international frameworks affirming democratic importance of the right to free elections at local and regional levels, there are significant gaps in the protection of this right across European countries. Furthermore the European Convention on Human Rights does not expressly cover local and many regional elections in its right to free elections, leaving these elections without meaningful judicial protection at the European level.

To address these deficiencies, the Congress of Local and Regional Authorities calls for the extension of ECHR guarantees to the right to free elections at local and regional levels, and for reinforced measures and safeguards to ensure electoral integrity. Political pluralism, systematic election observation, and the inclusion of all groups are of particular importance, the Congress stresses.

One of the key Congress' recommendations towards free elections is to refrain from any practice likely to compromise the free mandate of elected representatives or to undermine the right to free elections, including but not limited to prolonged pre-trial detention or dismissals. Violence and undue pressure on elected representatives were examined in a greater detail in a separate debate at the Congress plenary.

How can Europe tackle violence against local and regional elected representatives

Over recent years, the Congress has noted with concern signs of a clear deterioration in the security of local and regional elected representatives, and in particular of mayors. Local and regional elected representatives across Europe are reporting an increase in various forms of violence, targeting them directly, and their relatives and collaborators.

The violence that they experience could be linked with the polarisation of European politics and society, amplified by recent crises including the consequences of Russia's war of aggression against Ukraine, and the Covid-19 pandemic.

Pressure and intimidation can take many shapes - verbal and physical personal attacks, hate speech, and defamation, as well as physical attacks on offices and residencies and online threats. Social media also allow users to confront politicians and to spread hateful content more directly and anonymously.

Local and regional politicians are more accessible to voters than their counterparts at the national level. This makes them particularly vulnerable to violence and intimidation, in office and in their personal lives. During electoral campaigns, threats are often used to discourage candidates from standing. While in office, many representatives are working under intense pressure, experiencing harmful mental and physical health issues and resigning before the end of their term of office. At the same time, political parties are struggling to recruit new candidates for local and regional mandates.

All this has a chilling effect on grassroots representative democracy. This is particularly true for women, young people and people belonging to minorities who are often the primary target of such attacks.

The Congress offers a set of recommendations to Council of Europe member states to ensure that local and regional politicians can fulfil their mandates in a free and safe environment. It notably recommends better legislation to address violence, training local officials to handle the issue, setting up alert and support systems, as well as promoting codes of conduct and diversity across the political sphere. The participation of women, people belonging to minorities, and other underrepresented groups in local and regional governance should be fostered through measures such as quotas and targeted outreach, the Congress recommends.

Local election observation missions

On 2 April, at the conclusion of the plenary session, members of election observation missions will present four reports on the local elections held in autumn 2025 which the Congress monitored: in Kosovo*, in Estonia, in North Macedonia and in San Marino.

^*This designation is without prejudice to positions on status, and is in line with UNSCR 1244 and the ICJ Opinion on the Kosovo Declaration of Independence.

Congress of Local and Regional Authorities

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