At a time when European leaders are focused on the Western Balkans and speaking of "geopolitical enlargement", local authorities in candidate countries appear to be insufficiently involved in reforms – even though they will be the ones most responsible for implementing them.
Ana Mađar, rapporteur for enlargement from the European Committee of the Regions and co-chair of the Joint Consultative Committee (JCC) between the Committee and Serbia, warns that without strengthening local self-government and its early involvement in European processes, reform risks remaining only on paper.
In her conversation with EUpravo, Ana Mađar discusses the challenges and potential of cooperation between local authorities in the EU and candidate countries, the importance of decentralisation, and the plans of the Joint Consultative Committee in collaboration with Serbia. Her experience, which includes personal involvement in cross-border projects between Hungary and Serbia, adds further weight to her recommendations for the continuation of the enlargement process – from the ground up.
Why do you believe that decentralisation is one of the most important elements for the success of the EU enlargement process, particularly from the perspective of local governance?
“Decentralisation is not an abstract principle, but a practical necessity for aligning candidate countries with the obligations and laws of the EU, known as the acquis communautaire. The European Committee of the Regions estimates that local and regional authorities are directly responsible for implementing up to 70 percent of EU-level legislation, in areas such as environmental protection, public procurement, energy efficiency, and social services. Effective decentralisation creates conditions for faster implementation of reforms. Without a certain level of local ownership in the process, reforms are likely to remain ineffective. Empowering locally elected leaders to make concrete improvements, in line with EU standards, is therefore essential – not only to meet formal alignment obligations, but also to ensure the benefits of the accession process are visible in every community.”
As co-chair of the Joint Consultative Committee (JCC) between the Committee of the Regions and Serbia, what would you highlight as the main results of the cooperation so far?
“Although the first JCC meeting with Serbia under the new political leadership is yet to take place, I can emphasise what we hope to achieve together. Our goal is to strengthen the role of local and regional authorities in Serbia’s EU accession process – not merely as implementers of reforms, but as active partners in shaping them. The JCC should serve as a practical platform where local leaders from Serbia can connect directly with us, their EU counterparts, share experiences, discuss key challenges, and identify concrete opportunities for cooperation.
We want our dialogue to be problem-solving oriented. We will prioritise areas where local authorities can have a transformative impact on improving public services and preparing for effective use of EU funds. We also aim to support municipalities in building administrative capacity and institutional resilience so they are prepared for the additional responsibilities that come with progress toward EU membership.
We are entering this new mandate of the Joint Consultative Committee with ambition and pragmatism. Although enlargement is managed by national governments, it is most effective when it builds on local realities. That is the message we want to clearly convey from the very first meeting.”
To what extent are local authorities currently involved in the European integration process in candidate countries, and how can their role be further strengthened?
“In most candidate countries, local and regional authorities are involved in the integration process mainly as executors of decisions made at the national level. In practice, this means that municipalities are expected to implement reforms, often with limited input in their design and without sufficient resources to carry them out effectively.
To change this, we must enable earlier and more structured involvement of local authorities in the planning and implementation phases of accession-related reforms. This can be achieved in line with the partnership principle established in the EU’s cohesion policy, which requires national governments to engage local actors as strategic partners, not only in implementing policies, but also in shaping them from the outset.
This is particularly important in preparations for decentralised management of EU funds and aligning local development plans with national and European priorities. However, formal consultations are not enough. What is needed is a lasting and high-quality dialogue, supported by investments in the administrative, legal, and technical capacities of local authorities, to build a governance culture that recognises local knowledge as key to the successful implementation of reforms on the ground.”
Where do you see the greatest challenges – and the greatest opportunities – for cooperation between local and regional authorities from the EU and those from candidate countries?
“One challenge we want to address is helping EU negotiators better understand the wide range of deeply rooted administrative systems and political traditions across Europe. There is no one-size-fits-all model for local governance, and this diversity in the Western Balkans must be respected. What matters is not how institutions are structured, but whether they function effectively – by providing quality services, managing resources transparently, and contributing meaningfully to national and European policies.
That’s why cooperation between EU municipalities and those from candidate countries should be based on mutual respect and focused on practical solutions. Peer exchanges, partnerships through ‘twinning’ projects, and collaboration based on concrete projects allow local leaders to better understand each other, adapt ideas and best practices to their own context, and build lasting professional relationships. This is the kind of cooperation I want to see more of – because it brings not only technical knowledge, but also trust and political maturity. Both are essential if we are to meet the demands of EU membership and the expectations of our citizens.”
Which topics or areas would you highlight as priorities for future JCC meetings with Serbia?
“The agenda will, of course, be shaped in part by current events, as addressing political and strategic developments is a natural part of our discussions. However, regardless of the context at the time, the focus should remain on strengthening the local dimension of Serbia’s EU accession process. Based on the draft work programme, I expect our efforts will centre on improving local governance, with priorities in areas where local authorities have both competence and a direct stake.
This will likely include topics such as energy security and access, digitalisation, local transport and connectivity, reducing unemployment through skills development, and youth initiatives. There are many concrete issues where local authorities must be involved for positive change to occur. The key condition is to ensure they are adequately empowered and included in the process.”
Are the experiences of regional governance from countries such as Hungary applicable to the Western Balkans, and is there interest in knowledge exchange?
“Each country has its own institutional framework and political culture. Experiences of regional governance from EU member states can be partially transferable, but they must always be adapted to the local context. The world is changing, and so are the challenges faced by local administrations.
One example of structured knowledge exchange I would highlight is the long-standing partnership between my home county of Csongrád-Csanád in Hungary and the neighbouring region of Vojvodina in Serbia. Our cross-border cooperation has produced tangible results for local communities, particularly in improving connectivity and mobility across the border. We continue to invest in collaboration between businesses, students, and mentors, thereby enhancing regional competitiveness and promoting sustainable development in border areas.”
(EUpravo zato)
