France: Far-right strength put to test in local elections – DW.com

France's far-right Rassemblement National (RN) has strategically leveraged local elections as crucial battlegrounds to solidify its political legitimacy and expand its grassroots presence across the nation. These electoral tests, notably the 2020 municipal and 2021 regional and departmental polls, have provided critical insights into the party's evolving strength, its capacity for local governance, and its enduring challenges in overcoming traditional political barriers. The outcomes of these contests are not merely local affairs; they serve as vital barometers for the RN's broader national ambitions, particularly in the lead-up to future presidential and legislative elections.

Background: The Enduring Rise of France’s Far-Right

The trajectory of France's far-right, from a fringe movement to a dominant force in national politics, is a complex narrative spanning several decades. Its evolution reflects deep societal shifts, economic anxieties, and a persistent search for political alternatives among a segment of the French electorate. Understanding this historical context is essential to grasp the strategic importance of local elections for the Rassemblement National.

From Protest to Political Force: A Historical Overview

The origins of the modern French far-right are deeply rooted in post-World War II political currents, but its contemporary manifestation largely coalesced with the founding of the Front National (FN) in October 1972 by Jean-Marie Le Pen. Initially a collection of nationalist, anti-immigrant, and traditionalist factions, the FN struggled for widespread recognition in its early years. Its ideology was staunchly conservative, emphasizing national sovereignty, law and order, and a critical stance on immigration and European integration.

The party's first significant electoral breakthrough occurred in the mid-1980s. In the 1984 European Parliament elections, the FN garnered an unexpected 10.95% of the vote, securing ten seats and signaling its emergence as a tangible political force. This success was partly attributed to the proportional representation system used for European elections, which lowered the threshold for smaller parties to gain representation. The 1986 legislative elections, also conducted under proportional representation, further solidified its presence, with the FN winning 35 seats in the National Assembly. This period marked the end of the party's absolute marginalization and the beginning of its integration, albeit contentious, into the French political landscape.

However, the FN's national influence remained largely constrained by the two-round majoritarian system used for presidential and legislative elections, which often saw mainstream parties coalesce in a "republican front" to block its candidates in the second round. The watershed moment arrived in the 2002 presidential election when Jean-Marie Le Pen unexpectedly advanced to the second round, eliminating the Socialist candidate Lionel Jospin. This event sent shockwaves through France and Europe, prompting massive street protests against the far-right and ultimately leading to a landslide victory for Jacques Chirac in the second round, who secured over 82% of the vote. While a defeat, Le Pen's second-round presence demonstrated the FN's capacity to disrupt the traditional political order.

The leadership transition from Jean-Marie Le Pen to his daughter, Marine Le Pen, in January 2011 marked a pivotal strategic shift. Marine Le Pen embarked on a deliberate and sustained effort to "de-demonize" the party, aiming to shed its extremist image and broaden its appeal beyond its traditional protest base. This strategy involved moderating some of its more radical rhetoric, expelling controversial figures, and eventually rebranding the party. In June 2018, the Front National officially became the Rassemblement National (RN), a name chosen to reflect its ambition to unite a broader spectrum of national-conservative voters. This rebranding was more than cosmetic; it signaled a renewed push for mainstream acceptance and governing credibility.

Ideological Pillars and Policy Shifts

The core ideology of the Rassemblement National, while evolving, remains anchored in several key principles: nationalism, sovereignty, and a firm stance on immigration. These pillars have been consistently present, but their articulation and the specific policies proposed have undergone significant refinement under Marine Le Pen's leadership.

Nationalism and sovereignty form the bedrock of the RN's platform. The party advocates for a strong, independent France that prioritizes its national interests above supranational bodies. This translates into a critical view of the European Union, which the RN sees as an erosion of French sovereignty. While Jean-Marie Le Pen's FN had openly called for France to leave the Eurozone and even the EU ("Frexit"), Marine Le Pen gradually softened this position. By the 2017 presidential election, the focus shifted from outright exit to a strategy of "renegotiation from within," aiming to transform the EU into a looser alliance of sovereign states. This pragmatic adjustment was designed to reassure voters concerned about the economic implications of leaving the EU and to present a more palatable, less radical image.

Immigration control is another central and unwavering tenet. The RN advocates for significantly reduced immigration, stricter border controls, and a preference for national citizens in access to social benefits, housing, and employment. The party frequently links immigration to issues of national identity, security, and economic strain. Policies proposed include restricting family reunification, increasing deportations of undocumented immigrants and foreign criminals, and amending the French constitution to enshrine "national preference" (priorité nationale). This stance consistently resonates with a significant portion of the electorate concerned about immigration and its perceived societal impacts.

Economic policy under the FN was initially characterized by a mix of liberal and protectionist ideas. However, under Marine Le Pen, the RN has increasingly embraced an economic protectionist agenda. This includes advocating for "intelligent protectionism" to safeguard French industries and jobs from international competition, particularly from countries with lower labor costs. The party supports state intervention in strategic sectors, favors national companies in public procurement, and champions policies to boost the purchasing power of French workers. This shift aims to appeal to working-class voters and those in de-industrialized regions who feel left behind by globalization and free-market policies.

On social policy, the RN emphasizes law and order, national identity, and traditional values. The party calls for increased police presence, tougher penalties for criminals, and a robust response to urban crime and insecurity. It promotes a vision of French identity rooted in its historical, cultural, and linguistic heritage, often expressing concerns about the perceived erosion of these values. While not overtly socially conservative on all issues (e.g., it generally avoids direct attacks on abortion rights), its rhetoric often aligns with traditionalist views on family, education, and secularism (laïcité).

National Electoral Trajectory: Peaks and Plateaus

The Rassemblement National's national electoral performance has been marked by a consistent upward trend in presidential and European elections, while facing more significant hurdles in legislative, regional, and departmental contests.

In presidential elections, Marine Le Pen has consistently demonstrated the party's growing national appeal. In 2012, she secured 17.90% of the vote in the first round, a significant improvement over her father's previous performances (excluding 2002). This momentum carried into 2017, where she reached the second round against Emmanuel Macron, garnering 21.30% in the first round and 33.90% in the run-off. Her most impressive performance came in the 2022 presidential election, where she again faced Macron in the second round, achieving 23.15% in the first round and a historic 41.45% in the second round. This result solidified her position as the primary opposition leader and demonstrated the RN's ability to mobilize a vast segment of the electorate, even if the "republican front" against the far-right still proved decisive.

Legislative elections, however, present a different challenge due to France's two-round majoritarian system with single-member constituencies. While the RN's share of the national vote has increased, translating this into a large number of seats in the National Assembly has been historically difficult. The "winner takes all" nature of the system, combined with tactical voting and alliances against the RN in the second round, has limited its parliamentary representation. After the 2017 legislative elections, the RN secured only 8 seats, despite Marine Le Pen's strong presidential showing. However, a significant breakthrough occurred in the 2022 legislative elections, held shortly after the presidential contest. The RN capitalized on voter fatigue with the "republican front" and a more fragmented political landscape, winning 89 seats. This unprecedented result granted the RN a substantial parliamentary group, allowing it to exert greater influence in legislative debates and demonstrate its capacity for opposition leadership.

European elections have consistently been a strong suit for the RN. The proportional representation system, coupled with lower voter turnout and the perception of these elections as a protest vote against the government, often benefits the far-right. The RN topped the polls in the 2014 European elections with 24.86% of the vote and again in 2019 with 23.34%, narrowly beating Macron's Renaissance list. These victories underscored the party's strong base and its ability to mobilize voters when national stakes are perceived as lower.

Regional and departmental elections represent an intermediate level of electoral performance. While the RN has made significant inroads, gaining numerous councilors, it has largely struggled to win executive presidencies of regions or departments. The 2015 regional elections saw the RN come close to winning several regions in the first round, but alliances between mainstream parties in the second round prevented any outright victories. The 2021 regional elections followed a similar pattern: the RN performed strongly in the first round, often leading in several regions, but ultimately failed to win any regional presidencies due to the concerted efforts of other parties to block them. These results highlight the enduring "glass ceiling" for the RN at the executive level, even as its electoral base expands.

Key Developments: The Far-Right’s Local Electoral Strategy

For the Rassemblement National, local elections are not merely supplementary contests; they are integral to its long-term strategy of achieving national power. The party understands that building a credible pathway to the Élysée Palace requires more than just high presidential poll numbers; it demands a robust local presence, a network of elected officials, and tangible proof of its capacity to govern.

The Imperative of Local Roots: Why Municipalities Matter

Local elections, particularly municipal polls, offer the RN a unique opportunity to embed itself within the fabric of French society. Unlike national elections, which are often dominated by broad ideological debates and the personalities of national leaders, municipal elections focus on concrete, everyday concerns of citizens: local security, public services, urban planning, taxes, and community life.

By winning mayoralties and securing seats on municipal councils, the RN aims to achieve several critical objectives. Firstly, it allows the party to build and strengthen its grassroots networks. Local elected officials become visible representatives of the party, engaging directly with residents, understanding their concerns, and building trust at a micro-level. This direct contact is vital for a party that has historically been viewed with suspicion by many and has struggled to establish deep local roots compared to traditional parties like the Socialists or Les Républicains.

Secondly, local governance provides the RN with a platform to demonstrate its capacity to manage public affairs effectively. For decades, the party has been labeled as a protest movement, lacking the experience and competence to govern. Running municipalities, even small ones, offers tangible proof that the RN can manage budgets, deliver services, and address local challenges. Successful local administration helps to dispel fears about the party's governance capabilities and lends credibility to its national aspirations. It allows the RN to move beyond its image as solely a protest party and present itself as a viable alternative for governing the country.

Thirdly, local mandates serve as training grounds for future party cadres and elected officials. Mayors and municipal councilors gain invaluable experience in public administration, policy implementation, and political negotiation. This experience is crucial for developing a pool of competent individuals who can eventually run for higher office, such as legislative seats or regional presidencies, and ultimately contribute to a future RN national government. The party recognizes that a lack of experienced personnel has been a historical weakness.

Finally, having elected officials at the local level helps to normalize the party's presence. When RN mayors are seen working alongside their counterparts from other parties in inter-communal bodies, or when their administrations are perceived as competent, it chips away at the "cordon sanitaire" that mainstream parties have historically tried to impose. This normalization is a key component of Marine Le Pen's "de-demonization" strategy, making the party seem less threatening and more acceptable to a broader electorate.

Targeted Campaigns: Selecting Battlegrounds

The RN's local electoral strategy is highly targeted, focusing resources on specific towns and regions where the party believes it has the best chance of victory. These battlegrounds are often chosen based on a combination of factors: existing strong electoral support for the RN in national polls, specific socio-economic conditions (such as high unemployment, industrial decline, or perceived insecurity), and the presence of a strong local candidate.

Historically, the FN/RN has found success in certain geographical areas. In the 1990s, towns like Orange (led by Jacques Bompard, who later left the party) and Marignane briefly elected FN mayors, providing early, albeit isolated, examples of far-right local governance. In more recent times, under Marine Le Pen's leadership, the party has consolidated its hold in towns like Hénin-Beaumont, a former mining town in the Pas-de-Calais region, where Steeve Briois has served as mayor since 2014. Hénin-Beaumont has become a showcase for RN local governance, often cited by the party as an example of effective management and improved security.

Other notable RN mayoralties include Fréjus in the Var department, led by David Rachline since 2014, and Beaucaire in the Gard department, where Julien Sanchez has been mayor since 2014. These municipalities, often in the south of France, have become laboratories for the RN's local policies, particularly in areas like security, local taxes, and cultural identity. The party aims to demonstrate that its national platform can be successfully translated into local action, leading to tangible improvements for residents.

The recruitment of local candidates is a critical aspect of this strategy. The RN actively seeks individuals with local credibility, sometimes attracting defectors from traditional parties who are disillusioned with their former political homes. These candidates often emphasize local issues, downplaying national ideological divides, to appeal to a wider range of voters. The party's ability to field full and credible lists of candidates in a sufficient number of municipalities is a constant challenge, as traditional parties have deeper, more established local networks.

The 2020 Municipal Elections: A Mixed Bag of Results

The 2020 municipal elections were a significant test for the Rassemblement National, representing its first major local electoral challenge since Marine Le Pen's strong performance in the 2017 presidential election. The elections were unique, split over two rounds in March and June due to the sudden onset of the COVID-19 pandemic, which significantly impacted voter turnout and campaign dynamics.

The RN entered these elections with high aspirations. Following its strong national performances, the party aimed for a significant increase in the number of mayoralties, particularly in larger towns. The goal was to expand its footprint beyond its established strongholds and prove its ability to win in more diverse urban settings.

The most notable victory for the RN came in Perpignan, a city of over 100,000 inhabitants in the Pyrénées-Orientales department. Louis Aliot, a long-time associate of Marine Le Pen and her former partner, won the mayoralty in the second round, securing 53.09% of the vote. This was a historic achievement: Perpignan became the first French city with more than 100,000 residents to elect an RN mayor. The victory was hailed by the party as a major breakthrough, demonstrating its capacity to win in a significant urban center and signaling a new phase in its "de-demonization" strategy. Aliot's campaign focused heavily on local issues, security, and urban development, successfully portraying himself as a competent local leader rather than just a national party figure.

Beyond Perpignan, the RN secured victories in a handful of other municipalities, primarily smaller towns, adding to its existing mayoralties in places like Hénin-Beaumont, Fréjus, and Beaucaire. For example, in Moissac (Tarn-et-Garonne), Romain Lopez, a former RN advisor, won the mayoralty. However, the overall increase in the number of RN-led municipalities was more modest than the party had hoped. Many of its targeted towns, particularly larger ones, remained out of reach.

A significant factor limiting the RN's gains was the persistent "Republican Front" strategy. In numerous second-round contests, mainstream parties, spanning from the traditional right (Les Républicains) to the left (Socialists, Greens), coalesced to block RN candidates. Even if their own candidates had performed poorly in the first round, these parties often called upon their voters to support the candidate best placed to defeat the RN. This strategic alliance, though sometimes fragile and controversial, proved effective in preventing the far-right from capturing more mayoralties.

The 2020 municipal elections thus yielded a mixed bag of results for the RN. While the victory in Perpignan was a symbolic and strategic triumph, the party's overall gains in terms of mayoralties and municipal councilors were not as extensive as its national polling numbers might have suggested. It highlighted both the RN's growing strength and the enduring challenges it faces in translating national popularity into widespread local executive power.

The 2021 Regional and Departmental Elections: A Plateau Reached?

Following the municipal elections, the 2021 regional and departmental elections provided another critical test for the Rassemblement National, particularly in the run-up to the 2022 presidential election. These elections, held in June 2021, involved larger administrative units than municipalities, offering the RN an opportunity to demonstrate its appeal across broader territories and its capacity for managing regional and departmental budgets and policies.

The RN's strategy for these elections was ambitious: to win at least one regional presidency. The party had performed strongly in regional elections in 2015, leading in several regions in the first round, and aimed to convert that first-round strength into executive power. Jordan Bardella, then the interim president of the RN, led the party's campaign in the Île-de-France region, while other prominent figures were deployed across the country. The party focused on issues such as regional security, economic development, public transport, and the management of European funds, attempting to present itself as a serious and competent alternative to the incumbent regional majorities.

The results, however, proved to be a significant disappointment for the RN. While the party again performed strongly in the first round, often leading the polls in several regions, it failed to win a single regional presidency. In regions where it was expected to perform particularly well, such as Provence-Alpes-Côte d'Azur (PACA) with Thierry Mariani as its candidate, the "Republican Front" once again proved decisive. Mainstream parties, including Les Républicains and the Socialists, often formed alliances or called for tactical voting to block the RN in the second round. In PACA, for instance, the incumbent LR president Renaud Muselier was re-elected after a strong mobilization against Mariani.

Similarly, in departmental elections, the RN increased its number of departmental councilors but did not gain control of any departmental assemblies. The complex electoral system for departmental elections, which involves a two-round majority vote in cantons, often makes it difficult for a single party to achieve outright majorities, especially for a party like the RN that struggles to form alliances.

The low voter turnout in these elections, which reached historic lows (around 33% nationally in the second round), also complicated the analysis. While some argued that low turnout disproportionately affected the RN's less committed voters, others suggested it reflected a broader disenchantment with politics that the far-right often capitalizes on.

Ultimately, the 2021 regional and departmental elections indicated that while the RN had a substantial and loyal voter base, it continued to face a "glass ceiling" when it came to securing executive power at the regional and departmental levels. The "Republican Front," despite its internal strains and criticisms, remained an effective barrier. These elections suggested that while the RN was a formidable force in the first round, its inability to forge alliances and its persistent pariah status among other parties prevented it from translating its electoral strength into governing responsibility on a wider scale. This outcome forced the RN to re-evaluate its strategy for building executive credibility, particularly ahead of the crucial 2022 presidential contest.

Impact: Reshaping the French Political Landscape

The far-right's performance in local elections, particularly its strategic gains and persistent challenges, has had a profound impact on the broader French political landscape. It has contributed to a narrative of normalization, highlighted the difficulties of local governance for the RN, accelerated the decline of traditional parties, and tested the limits of the "Republican Front."

The “Normalisation” Narrative: From Pariah to Contender

One of the most significant impacts of the RN's local electoral presence has been its contribution to the party's "normalisation" in French politics. For decades, the Front National was widely considered a pariah, beyond the pale of mainstream political discourse, and its members were often shunned by other elected officials. Marine Le Pen's "de-demonization" strategy, however, has sought to dismantle this image, and local victories have played a crucial role in this effort.

When an RN candidate wins a mayoralty, particularly in a city like Perpignan, it forces other political actors and the media to treat the party as a legitimate, albeit controversial, governing force. Louis Aliot, as mayor of Perpignan, has taken a pragmatic approach, focusing on local issues and collaborating with various stakeholders, including those from other political stripes, on specific projects. This practical engagement challenges the perception that the RN is solely a protest party incapable of responsible administration.

Public perception shifts as well. When citizens see an RN mayor managing their city, delivering services, and addressing local concerns, the fear and apprehension often associated with the party can diminish. For some voters, the experience of living under an RN administration, if perceived as competent, can make the party seem less extreme and more like any other political option. This gradual process of normalization is vital for the RN's long-term goal of achieving national executive power, as it aims to overcome the psychological barrier that has historically prevented many voters from supporting it in decisive second-round national elections.

This normalization also impacts mainstream parties. They are increasingly forced to engage with the RN, either by directly addressing its policy proposals or by adopting some of its themes, particularly on issues like security, immigration, and national identity. This can blur the lines between the far-right and the traditional right, creating a more fluid and competitive political environment.

Challenges of Local Governance for the RN

While local victories offer significant advantages, they also present unique challenges for the Rassemblement National. Governing a municipality or having a significant presence on a regional council brings intense scrutiny and demands practical competence.

RN-led municipalities are closely watched by political opponents and the media. Their performance on budgets, public services, urban development, and social policies is constantly under review. Critics often highlight instances where RN administrations have faced difficulties, such as struggles in securing funding from higher levels of government (which may be controlled by opponents) or challenges in forming inter-communal alliances necessary for larger projects. For example, some RN mayors have been criticized for focusing on symbolic gestures rather than addressing fundamental economic or social issues.

Conversely, RN mayors like Steeve Briois in Hénin-Beaumont or David Rachline in Fréjus often point to improvements in local security, reductions in local taxes, or revitalization efforts as proof of their effective governance. They emphasize their focus on practical, non-ideological solutions to local problems. However, their ability to deliver on all promises can be constrained by limited resources, the complexities of local bureaucracy, and the need to cooperate with other political entities, many of whom remain hostile to the RN.

The party's relative lack of experienced cadres compared to traditional parties also presents