sou · H4B35d2 · 2016-10-18 00:00:00 — Moreover, several of the challenges we face today imply the need to make difficult decisions regarding the distribution of resources. The capability of political actors to create political consensus, through democratic mechanisms, on decisions necessary for the sustainable development of society is crucial, not only for the future of the political decisionmaking process, but for society as a whole. New objectives of democracy policy The course of action to achieve the objectives of democracy policy must be based on the challenges mentioned above. The Commission therefore proposes a new objective of democracy policy: ‘A sustainable democracy that is characterised by participation and equal influence’. We believe that democracy is strengthened by a high degree of engagement and participation in society. Broad political participation increases the possibilities for more voices to be heard and the possibilities for equal influence. equal participation means that all citizens have the same opportunities to participate in and exert influence on political processes, regardless of their sex, skin colour, ethnicity, religious belief, disability, sexual orientation, age or socio-economic status. The aim of democracy policy must there- fore be to broaden political participation and to promote equal influence. In addition, democracy needs to be sustainable. By this we mean a democracy characterised by strong public institutions capable of effective and transparent decision-making, under the rule of law. A sustainable democracy also requires citizens’ confidence in democratic institutions and procedures. Furthermore, it requires high levels of democratic engagement and the belief among citizens that they can exert influence. In conclusion, a sustainable democracy requires respect for individuals’ human rights. The objective of democracy policy must be followed by measures aimed at increasing political participation and creating conditions for equal influence. The Government should carry out measures to promote democracy before and between elections with the aim of increasing political equality. Civil society organisations should be provided with the necessary conditions to engage those who otherwise participate to a lesser extent. Municipalities, county councils and the Government have a specific responsibility to create opportunities for citizens to participate and communicate their concerns and preferences in the political decision-making process. This is also the aim of several of the Commission’s proposals. relations within society are not likely to be changed by democratic reforms or through measures intended to increase political participation. The Commission’s remit is restricted to analysing political participation and opportunities for citizens and politicians to influence decision-making between general elections. Our remit did not include studying power relations in society as a whole. However, due to the extent and severity of the societal changes that we observe today, we propose that a new commission be appointed. The remit of the commission should be to contribute to a deeper understanding of power relations in , and also to describe how these relations have altered since the turn of the millennium. By providing relevant information to political decision-makers, the commission should also contribute to long-term and suitable decisions that can address the future challenges facing democracy and society. There is no party crisis The Commission’s review demonstrates that the idea of a party crisis can generally be written off. There is no longer a decline in membership of the political parties. The review further indicates that the role of party members has changed. Digital technology has simplified communication with voters while there has been a professionalisation of political campaigning. In addition, the political parties have recruited more staff. At the same time, one in four local party organisations state that they had difficulties identifying candidates for the 2014 general election. It is therefore vital that parties continue their efforts to recruit new members. The parties must improve their recruitment processes The under-representation of certain groups among party members, such as foreign-born people, young people and women, as well as individuals with a low level of education and a working class background, creates a problem for party democracy. The lack of representation from certain socio-economic groups can lead to difficulties for parties in reflecting the views and perspectives of these groups. The Commission’s review indicates that all parties strive to recruit new members, and a majority of the parties strive to recruit new members from under-represented groups. At the same time, research shows that social networks are crucial in the recruitment process. This tends to reinforce the homogeneity of party members. Overall, the parties consist of a socially coherent group, standing with their backs outwards. The 2014 Commission on Democracy therefore believes that the parties must improve their recruitment processes. The parties should actively pursue new members outside of the traditional networks and channels. In order to recruit young people it is vital that parties are present in schools, youth clubs and civil society organisations. It is also crucial that parties are present in local communities, in particular between elections, to create opportunities for party engagement among those who otherwise participate to a lesser extent. This is particularly relevant for local communities with high levels of unemployment and a large population of foreign-born individuals. Take measures to combat the professionalisation of parties The professionalisation of political parties has increased. As a result, policy development is largely driven by people who do not hold and have never held political office. This means there is a lack of experience of the political decision-making process within parties. The increased number of paid party officials, and in particular the increasing number of ‘idea-brokers’, can lead to fewer opportunities for members to participate in policy development. Moreover, it can contribute to driving politics further from the reality that voters experience and elected representatives in local government have to deal with. Furthermore, the parties are more focused on the opinions and views expressed through different media channels than on their communication with individual voters. The political debate in the media is important, but since fewer citizens get their news from traditional media or take part in opinionforming through these channels, the parties run the risk of not grasping the broader views expressed in society. There is also a risk of parties becoming more receptive to the advocacy work carried out by various interest groups and PR firms, using media channels. The parties must reform their organisations There has been a heavy decline in party identification among the Swedish population, something that reduces the possibilities of mobilising politically interested individuals based on an ideological affinity. This development can partly be explained by changes in values, such as individualisation and a declining belief in authorities. Individuals today are more inclined to engage in issue-based politics rather than join a political party. Confidence in political parties has risen during the twenty-first century, yet the parties are among the institutions in society that citizens express the lowest degree of confidence in. It is likely that many choose other ways to express their political engagement based on a distrust of the possibilities to exert influence through political parties. The Commission’s review also indicates that a large proportion of party members state that internal democracy, also known as intra-party democracy, is lacking. However, intra-party democracy has been strengthened over time. Political party members are more committed and have higher demands on exerting influence today than before. It is, however, essential that political parties do not become exclusive channels of influence for a minority of engaged party members. We therefore believe that the parties should strive to include local party members in the development of party policies. The parties should also consider carrying out internal elections on principal matters and increasing the influence of members regarding the election of party leaders. At the same time, since party members today do not reflect the composition of the population, strengthening intra-party democracy could result in parties further distancing themselves from the rest of the population. It cannot be expected of the political parties that they regain the position they once held in our democracy. The decline of party membership is not only the result of professionalisation and unsuccessful recruitment strategies, but also an effect of changes in societal engagement. This emphasises the necessity to give voters the possibility to express their interest and views to elected representatives in ways other than joining a political party. The Commission’s proposal on consultations prior to decisions and the citizen’s initiative at local and national level are ways to improve the possibilities for citizens to exert political influence. Review the public funding of parties The Commission’s review demonstrates that the public funding of parties is not used in accordance with the intended purpose. The funding provided to Members of the Riksdag to support their parliamentary work is mainly used for other purposes. Moreover, parts of the local funds for parties are transferred to the national level. At the same time, the Commission’s review indicates that the number of political secretaries and fullor part-time salaried political positions has increased. One reason for this is that the political majority in municipalities offers smaller political parties positions, such as salaried political secretaries, as a way of assuring themselves of their support. Overall, we believe that there are reasons to carry out a review of the public funding of parties. The review should mainly focus on the appropriateness of how the funds are used and, if needed, propose amendments or clarifications on how the funding should be distributed, used and reported. Elected representatives and their social representativeness The Commission’s analysis of the representativeness of elected representatives, with respect to sex, age and country of origin, clearly shows that certain groups are under-represented. While the number of women in the Riksdag has decreased over the last decade, the number of women represented in the decision-making assemblies in municipalities and county councils has increased. Women’s representation in the weightier positions, such as executive committee chairs, has improved since the turn of the millennium, but women are still under-represented. Female politicians are more exposed to threats, violence and harassment. of them also choose to leave their position before the end of their term than their male counterparts. Women are also under-represented in the boards of municipal companies. The elected assemblies do not reflect the composition of the population. Foreign-born people are under-represented at all levels in the political system. Individuals who have migrated to are less politically engaged than those who were born here, which partly explains their under-representation in elected assemblies. However, their participation increases with the length of their stay in . Discrimination is also a factor that affects political participation among foreign-born people. Residential segregation means that a large number of foreign-born people reside in areas with few elected representatives. This, in turn, affects the likelihood of foreign-born individuals entering politics since a majority of those who enter politics do so after contact with individuals engaged in political parties. Research also shows that foreign-born representatives advance towards the weightier positions at a slower pace than those born in . people, under the age of 29, are the group in society that is most strongly under-represented in local government assemblies, while those over the age of 65 are heavily under-represented in the Riksdag. This could result in the perspectives of young people and the elderly not having a sufficient impact on decision-making, at local and national levels respectively. people’s under-representation in local government assemblies also leads to a lack of experience among young people of holding an elected office, something that is important for a continued political career. Social representativeness is important for the legitimacy of democracy The Commission believes that elected assemblies that reflect the composition of the population as a whole improve the conditions for equal political influence. Social representativeness is a matter of and a question of the legitimacy of democracy. Elected representatives that share social and cultural experiences with a particular voting group are better able to hear, capture and convey the interest and views of those voters. In addition, representativeness affects the degree of participation in society. It is also reasonable to assume that a feeling of being represented can increase an individual’s motivation to participate. Since efforts to achieve political equality are mainly a question for the political parties, we give a number of recommendations to the parties on how to improve their social representativeness. The parties in a municipality or county council could, for instance, coordinate their internal nomination processes in order to improve the gender balance in the executive committee and the other committees. This is of particular importance when it comes to appointing the members of the board of the municipal companies, where women are strongly under-represented. We further propose that the parties should adopt the principle of always nominating two candidates, one man and one woman. This would facilitate the work of the nomination committee in coordinating the appointment process. The conditions of the elected representatives The conditions of local politics have changed in recent years. There has been a decline in both the number of committees and the number of elected positions, and fewer elected representatives are responsible for a greater number of positions. Moreover, influence in local politics is concentrated on a few leading elected represen- The Commission believes that it is beneficial for a large share of the population to have experience of participating in political decision-making processes. , the Commission believes that there should not be a reduction in the number of elected positions in future reforms of the political organisation. In order to stimulate democratic participation at local level, municipalities can hold direct elections for a limited number of seats in a district committee. As a result of increased media coverage, the role of politicians has become more demanding. Moreover, public demand for quicker decision-making processes and the emergence of more complex political decisions has also contributed to a more demanding role. These factors affect who decides to engage in politics. Moreover, the number of elected representatives who choose to leave their elected positions before the end of their term is high. This is especially true for young people under the age of 29 and women with children living at home. It is important that the rules and regulations governing the conditions for elected representatives are adapted to living conditions in society, making it possible to combine an elected position with full-time work and family life. A new meeting culture is needed where long meetings constitute an exception rather than the norm. The use of stop-times and opening up for long-distance decisionmaking are also ideas that should be considered. Measures should also be taken to make it easier for elected representatives with children under the age of six to participate. Municipalities could, for instance, introduce more generous rules regarding the right to day care in connection with political meetings in the municipality or county council. Possibility to keep an elected office after moving During the 2010–2014 term of office, one in five elected representatives in municipal councils decided to leave office before the end of their term. According to research, the cause behind every third termination was a move away from the municipality. When it comes to young people under 29, an even higher share – 59 per cent – reported leaving office due to a move from the municipality. can be explained by the higher level of mobility among young people, especially prior to pursuing studies or entering the labour market. There is already the possibility for the elected assemblies to decide that an elected representative appointed by the elected assembly can keep his or her office, despite moving from the municipality. We propose that this possibility should be extended to include the elected assembly members. Preventing threats and violence against elected representatives According to a survey by (Brå), one in five elected representatives reported that they had been subjected to threats, violence or some kind of harassment in 2013. One in two politicians holding multiple or weightier positions reported that they had been threatened and harassed multiple times. Considering the fact that one in four elected representatives state that they have censored themselves due to fear of harassment, this can be said to have an effect on democracy. We believe that it is important that all elected representatives receive support if they are subjected to threats, violence or harassment and that this leads to them feeling safe both when they enter an elected office but also when carrying out their duty as an elected representative. We therefore propose that amendments be made to the Local Government Act with a provision stating that municipalities and county councils are to promote a safe working environment for elected representatives. The organisation of local politics A shift of power has recently taken place from the elected assemblies and the part-time politicians to the members and chairs of the executive committees in municipalities and county councils. The elected assembly – which under the Local Government Act is the decision-making body in municipalities and county councils – has a relatively weak position. Furthermore, the preparation of political decisions often takes place outside the formal institutions, for instance through negotiations between the political parties governing the municipality or county council. This affects the possi- bilities of elected assemblies and the citizens both to monitor the decision-making process and to hold the elected representatives accountable. In order to give the elected assembly the authority to scrutinise and demand accountability, we believe that the elected assemblies should adopt a praxis for the internal review of the exercise of power in the municipality or county council. Moreover, the Commission believes that the elected assemblies should decide on a description of the tasks of the elected representatives with the intent of clarifying the division of labour between the elected representatives. This is particularly relevant for the role of chair of the executive committee and the chair of other committees and other important functions in local politics. From a citizens’ perspective, it is fair to demand that the elected assemblies clarify the function of these elected representatives in local democracy. To prevent elitism and power concentration in politics, it is also necessary to promote increased rotation in political office. We believe that the parties, either internally or jointly in the elected assemblies, should introduce term limits for weightier positions, such as executive committee chairs or chairs of other committees. This would open up the possibility for more candidates to step forward and gain important positions in politics. It could also result in breaking the social homogeneity in the higher tiers of politics. In order to increase parties’ visibility in local democracy, the elected assemblies should, following the model of the Riksdag, arrange debates on various topics relevant to the municipality or county council. These debates could stimulate general interest in local politics and provide opportunities for elected representatives to express their standpoints on political issues. We therefore propose that elected assemblies should be able to decide to hold general debates without having to consider other ongoing decision-making procedures. Possibilities to influence national decision-making processes through formal tools: referrals, consultations and committees of inquiry The formal tool for influencing decision-making in national politics, the referral procedure, is an important tool for individuals and interest groups to express their views. The sharing of opinions within the referral procedure takes place through formal rules and regulations. Thus, it facilitates transparency and equal participation. Besides the referral procedure, consultations, hearings and meetings with selected organisations have increasingly become methods for the Government Offices to the public’s views and thoughts on matters, as well as methods for consultation with the public prior to government decisions. Open up the referral procedure and the consultations The Commission’s review indicates that it is mainly the relatively large and resourceful organisations that engage in the referral procedure, as well as in consultations and hearings. In light of the decline in membership of traditional civil society organisations, their local connections have become severely weakened. At the same time, newer social movements have emerged at local level and there is thus a risk of the views and perspectives conveyed through formal channels, such as the referral procedure, failing to reflect the views of the wider public. , the Commission proposes that the list of organisations included in the referral procedure, as well as invitations to hearings and consultations, should be extended to include newer sections of civil society. In addition, formal guidelines for consultations and hearings should be developed. Electronic administration and digital consultations The Government has adopted an ICT policy goal: that should become the best country in the world at making use of the opportunities of digitalisation. According to its eGovernment strategy, the Government is to promote “an open administration that supports innovation and participation”. In light of this we find it remarkable that the Government Offices has not developed its own electronic administration. Certainly, the Government Offices has a special position among government agencies in terms of security and confidentiality requirements. However, the lack of digitalisation has resulted in insufficient transparency and a lower degree of participation. This is especially true for the referral procedure. The conditions for consultations of committees of inquiry The Commission’s review shows that the possibilities for individuals and organisations to influence politics through committees of inquiry have decreased. Terms of reference have become more detailed and the aim and purpose of the committees are normally decided beforehand. Moreover, the time allocated to the committees has been reduced. As a result of the growing number of committees with an inquiry chair with a short deadline, the role of to build consensus has weakened.