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A () is a level of
administrative division Administrative divisions (also administrative units, administrative regions, subnational entities, or constituent states, as well as many similar generic terms) are geographical areas into which a particular independent sovereign state is divi ...
in the
French Republic France, officially the French Republic, is a country located primarily in Western Europe. Overseas France, Its overseas regions and territories include French Guiana in South America, Saint Pierre and Miquelon in the Atlantic Ocean#North Atlan ...
. French are analogous to
civil township A civil township is a widely used unit of local government in the United States that is subordinate to a County (United States), county, most often in the northern and midwestern parts of the country. The term town is used in New England town, Ne ...
s and incorporated
municipalities A municipality is usually a single administrative division having municipal corporation, corporate status and powers of self-government or jurisdiction as granted by national and regional laws to which it is subordinate. The term ''municipality' ...
in Canada and the United States; ' in Germany; ' in Italy; ' in Spain; or
civil parish In England, a civil parish is a type of administrative parish used for local government. It is a territorial designation which is the lowest tier of local government. Civil parishes can trace their origin to the ancient system of parishes, w ...
es in the United Kingdom. are based on historical geographic communities or villages and are vested with significant powers to manage the populations and land of the geographic area covered. The are the fourth-level administrative divisions of France. vary widely in size and area, from large sprawling cities with millions of inhabitants like
Paris Paris () is the Capital city, capital and List of communes in France with over 20,000 inhabitants, largest city of France. With an estimated population of 2,048,472 residents in January 2025 in an area of more than , Paris is the List of ci ...
, to small
hamlets A hamlet is a human settlement that is smaller than a town or village. This is often simply an informal description of a smaller settlement or possibly a subdivision or satellite entity to a larger settlement. Sometimes a hamlet is defined f ...
with only a handful of inhabitants. typically are based on pre-existing villages and facilitate local governance. All have names, but not all named geographic areas or groups of people residing together are ( or ), the difference residing in the lack of administrative powers. Except for the municipal arrondissements of its largest cities, the are the lowest level of administrative division in France and are governed by elected officials including a
mayor In many countries, a mayor is the highest-ranking official in a Municipal corporation, municipal government such as that of a city or a town. Worldwide, there is a wide variance in local laws and customs regarding the powers and responsibilitie ...
(') and a
municipal council A municipal council is the legislative body of a municipality or local government area. Depending on the location and classification of the municipality it may be known as a city council, town council, town board, community council, borough cou ...
('). They have extensive autonomous powers to implement national policy.


Terminology

A ' is the smallest and oldest administrative division in France. The French word ' appeared in the 12th century, from
Medieval Latin Medieval Latin was the form of Literary Latin used in Roman Catholic Church, Roman Catholic Western Europe during the Middle Ages. It was also the administrative language in the former Western Roman Empire, Roman Provinces of Mauretania, Numidi ...
', for a large gathering of people sharing a common life; from
Latin Latin ( or ) is a classical language belonging to the Italic languages, Italic branch of the Indo-European languages. Latin was originally spoken by the Latins (Italic tribe), Latins in Latium (now known as Lazio), the lower Tiber area aroun ...
', 'things held in common'.


Characteristics


Number of communes

As of January 2021, there were 35,083 communes in
France France, officially the French Republic, is a country located primarily in Western Europe. Overseas France, Its overseas regions and territories include French Guiana in South America, Saint Pierre and Miquelon in the Atlantic Ocean#North Atlan ...
, of which 34,836 were in metropolitan France, 129 in the overseas departments, and 83 in the
overseas collectivities The France, French overseas collectivities ( abbreviated as COM) are first-order administrative divisions of France, like the regions of France, French regions, but have a semi-autonomous status. The COMs include some former French Overseas ter ...
and
New Caledonia New Caledonia ( ; ) is a group of islands in the southwest Pacific Ocean, southwest of Vanuatu and east of Australia. Located from Metropolitan France, it forms a Overseas France#Sui generis collectivity, ''sui generis'' collectivity of t ...
. This is a considerably higher total than that of any other European country, because French communes still largely reflect the division of France into villages or parishes at the time of the French Revolution.


Population of a typical commune

The
median The median of a set of numbers is the value separating the higher half from the lower half of a Sample (statistics), data sample, a statistical population, population, or a probability distribution. For a data set, it may be thought of as the “ ...
population of metropolitan France's communes at the 1999 census was 380 inhabitants. Again this is a very small number, and here France stands absolutely apart in Europe, with the lowest communes' median population of all the European countries (communes in
Switzerland Switzerland, officially the Swiss Confederation, is a landlocked country located in west-central Europe. It is bordered by Italy to the south, France to the west, Germany to the north, and Austria and Liechtenstein to the east. Switzerland ...
or
Rhineland-Palatinate Rhineland-Palatinate ( , ; ; ; ) is a western state of Germany. It covers and has about 4.05 million residents. It is the ninth largest and sixth most populous of the sixteen states. Mainz is the capital and largest city. Other cities are ...
may cover a smaller area, as mentioned above, but they are more populated). This small median population of French communes can be compared with Italy, where the median population of communes in 2001 was 2,343 inhabitants,
Belgium Belgium, officially the Kingdom of Belgium, is a country in Northwestern Europe. Situated in a coastal lowland region known as the Low Countries, it is bordered by the Netherlands to the north, Germany to the east, Luxembourg to the southeas ...
(11,265 inhabitants), or even Spain (564 inhabitants). The median population given here should not hide the fact that there are pronounced differences in size between French communes. As mentioned in the introduction, a commune can be a city of 2 million inhabitants such as Paris, a town of 10,000 inhabitants, or just a hamlet of 10 inhabitants. What the median population tells us is that the vast majority of the French communes only have a few hundred inhabitants, but there are also a small number of communes with much higher populations. In metropolitan France 57 percent of the 36,683 communes have fewer than 500 inhabitants and, with 4,638,000 inhabitants, these smaller communes constitute just 7.7 percent of the total population. In other words, just 8 percent of the French population live in 57 percent of its communes, whilst 92 percent are concentrated in the remaining 43 percent.


Example: Alsace

Alsace Alsace (, ; ) is a cultural region and a territorial collectivity in the Grand Est administrative region of northeastern France, on the west bank of the upper Rhine, next to Germany and Switzerland. In January 2021, it had a population of 1,9 ...
, with an area of , and now part of the Région Grand Est, used to be the smallest of the regions of metropolitan France, and still has no fewer than 904 communes. This high number is typical of metropolitan France but is atypical when compared with other European countries. It shows the distinctive nature of the French commune as a geo-political or administrative entity. With its 904 communes, Alsace has three times as many municipalities as
Sweden Sweden, formally the Kingdom of Sweden, is a Nordic countries, Nordic country located on the Scandinavian Peninsula in Northern Europe. It borders Norway to the west and north, and Finland to the east. At , Sweden is the largest Nordic count ...
, which has a much larger territory covering and yet is divided into only 290 municipalities ( ''kommuner''). Alsace has more than double the total number of municipalities of the
Netherlands , Terminology of the Low Countries, informally Holland, is a country in Northwestern Europe, with Caribbean Netherlands, overseas territories in the Caribbean. It is the largest of the four constituent countries of the Kingdom of the Nether ...
which, in spite of having a population nine times larger and a land area four times larger than Alsace, is divided into just 390 municipalities (). Most of the communes in Alsace, along with those in other regions of France, have rejected the central government's calls for mergers and rationalization. By way of contrast, in the German states bordering Alsace, the geo-political and administrative areas have been subject to various re-organizations from the 1960s onward. In the state of
Baden-Württemberg Baden-Württemberg ( ; ), commonly shortened to BW or BaWü, is a states of Germany, German state () in Southwest Germany, east of the Rhine, which forms the southern part of Germany's western border with France. With more than 11.07 million i ...
, the number of ''Gemeinden'' or communities was reduced from 3,378 in 1968 to 1,108 in September 2007. In comparison, the number of communes in Alsace was only reduced from 946 in 1971 (just before the Marcellin law aimed at encouraging French communes to merge with each other was passed, see Current debate section below) to 904 in January 2007. Consequently, the Alsace region—despite having a land area only one-fifth the size and a total population only one-sixth of that of its neighbor Baden-Württemberg—has almost as many municipalities. The small Alsace region has more than double the number of municipalities compared to the large and populous state of
North Rhine-Westphalia North Rhine-Westphalia or North-Rhine/Westphalia, commonly shortened to NRW, is a States of Germany, state () in Old states of Germany, Western Germany. With more than 18 million inhabitants, it is the List of German states by population, most ...
(396 ''Gemeinden'' in September 2007).


Status of the communes

Despite differences in population, each of the communes of the French Republic possesses a
mayor In many countries, a mayor is the highest-ranking official in a Municipal corporation, municipal government such as that of a city or a town. Worldwide, there is a wide variance in local laws and customs regarding the powers and responsibilitie ...
(''maire'') and a
municipal council A municipal council is the legislative body of a municipality or local government area. Depending on the location and classification of the municipality it may be known as a city council, town council, town board, community council, borough cou ...
(''conseil municipal''), which jointly manage the commune from the municipal hall (''mairie''), with exactly the same powers no matter the size of the commune. This uniformity of status is a legacy of the French Revolution, which wanted to do away with the local idiosyncrasies and tremendous differences in status that existed in the kingdom of France. French law makes allowances for the vast differences in commune size in a number of areas of administrative law. The size of the municipal council, the method of electing the municipal council, the maximum allowable pay of the mayor and deputy mayors, and municipal campaign finance limits (among other features) all depend on the population echelon into which a particular commune falls. Since the PLM Law of 1982, three French communes also have a special status in that they are further divided into municipal arrondissements: these are Paris,
Marseille Marseille (; ; see #Name, below) is a city in southern France, the Prefectures in France, prefecture of the Departments of France, department of Bouches-du-Rhône and of the Provence-Alpes-Côte d'Azur Regions of France, region. Situated in the ...
, and
Lyon Lyon (Franco-Provençal: ''Liyon'') is a city in France. It is located at the confluence of the rivers Rhône and Saône, to the northwest of the French Alps, southeast of Paris, north of Marseille, southwest of Geneva, Switzerland, north ...
. The municipal arrondissement is the only administrative unit below the commune in the French Republic but exists only in these three communes. These municipal arrondissements are not to be confused with the arrondissements that are subdivisions of French ''départements'': French communes are considered legal entities, whereas municipal arrondissements, by contrast, have no official capacity and no budget of their own. The rights and obligations of communes are governed by the ''Code général des collectivités territoriales (CGCT)'' which replaced the ''Code des communes'' (except for personnel matters) with the passage of the law of 21 February 1996 for legislation and decree number 2000-318 of 7 April 2000 for regulations. From 1794 to 1977 — except for a few months in 1848 and 1870-1871 — Paris had no mayor and was thus directly controlled by the departmental prefect. This meant that Paris had less autonomy than certain towns or villages. Even after Paris regained the right to elect its own mayor in 1977, the central government retained control of the Paris police. In all other French communes, the municipal police are under the mayor's supervision.


History

French communes were created at the beginning of the French Revolution in 1789–1790.


Kingdom of France


Parishes

Before the revolution, France's lowest level of administrative division was the parish (''paroisse''), and there were up to 60,000 of them in the kingdom. A parish was essentially a church, the houses around it (known as the village), and the cultivated land around the village. France was the most populous country in Europe at this time, with a population of approximately 25 million inhabitants in the late 18th century (
England England is a Countries of the United Kingdom, country that is part of the United Kingdom. It is located on the island of Great Britain, of which it covers about 62%, and List of islands of England, more than 100 smaller adjacent islands. It ...
in contrast had only 6 million inhabitants), which accounts for the large number of parishes. French kings often prided themselves on ruling over a "realm of 100,000 steeples". Parishes lacked the municipal structures of post-Revolution communes. Usually, one contained only a building committee ('' conseil de fabrique''), made up of villagers, which managed the buildings of the parish church, the churchyard, and the other numerous church estates and properties, and sometimes also provided help for the poor, or even administered parish hospitals or schools. Since the Ordinance of Villers-Cotterêts of 1539 by Francis I, the priest in charge of the parish was also required to record baptisms, marriages, and burials. Except for these tasks, villages were left to handle other issues as they pleased. Typically, villagers would gather to decide over a special issue regarding the community, such as agricultural land usage, but there existed no permanent municipal body. In many places, the local feudal lord (''seigneur'') still had a major influence in the village's affairs, collecting taxes from tenant-villagers and ordering them to work the corvée, controlling which fields were to be used and when, and how much of the harvest should be given to him.


Chartered cities

Additionally, some cities had obtained
charter A charter is the grant of authority or rights, stating that the granter formally recognizes the prerogative of the recipient to exercise the rights specified. It is implicit that the granter retains superiority (or sovereignty), and that the ...
s during the Middle Ages, either from the king himself or from local counts or dukes (such as the city of
Toulouse Toulouse (, ; ; ) is a city in southern France, the Prefectures in France, prefecture of the Haute-Garonne department and of the Occitania (administrative region), Occitania region. The city is on the banks of the Garonne, River Garonne, from ...
chartered by the counts of Toulouse). These cities were made up of several parishes (up to 50 parishes in the case of Paris), and they were usually enclosed by a defensive wall. They had been emancipated from the power of feudal lords in the 12th and 13th centuries, had municipal bodies which administered the city, and bore some resemblance with the communes that the French Revolution would establish except for two key points: * these municipal bodies were not democratic; they were usually in the hands of some rich bourgeois families upon whom, over time, nobility had been conferred, so they can be better labeled as
oligarchies Oligarchy (; ) is a form of government in which power rests with a small number of people. Members of this group, called oligarchs, generally hold usually hard, but sometimes soft power through nobility, fame, wealth, or education; or thr ...
rather than municipal democracies. * there was no uniform status for these chartered cities, each one having its own status and specific organization. In the north, cities tended to be administered by ''échevins'' (from an old Germanic word meaning judge), while in the south, cities tended to be administered by ''consuls'' (in a clear reference to Roman antiquity), but
Bordeaux Bordeaux ( ; ; Gascon language, Gascon ; ) is a city on the river Garonne in the Gironde Departments of France, department, southwestern France. A port city, it is the capital of the Nouvelle-Aquitaine region, as well as the Prefectures in F ...
was administered by '' jurats'' (etymologically meaning "sworn men") and Toulouse by ''capitouls'' ("men of the chapter"). Usually, there was no mayor in the modern sense; all the ''échevins'' or ''consuls'' were on equal footing, and rendered decisions collegially. However, for certain purposes, there was one ''échevin'' or ''consul'' ranking above the others, a sort of mayor, although not with the same authority and executive powers as a modern mayor. This "mayor" was called provost of the merchants (''prévôt des marchands'') in Paris and Lyon; ''maire'' in Marseille, Bordeaux,
Rouen Rouen (, ; or ) is a city on the River Seine, in northwestern France. It is in the prefecture of Regions of France, region of Normandy (administrative region), Normandy and the Departments of France, department of Seine-Maritime. Formerly one ...
,
Orléans Orléans (,"Orleans"
(US) and
Bayonne Bayonne () is a city in southwestern France near the France–Spain border, Spanish border. It is a communes of France, commune and one of two subprefectures in France, subprefectures in the Pyrénées-Atlantiques departments of France, departm ...
and many other cities and towns; ''mayeur'' in
Lille Lille (, ; ; ; ; ) is a city in the northern part of France, within French Flanders. Positioned along the Deûle river, near France's border with Belgium, it is the capital of the Hauts-de-France Regions of France, region, the Prefectures in F ...
; ''premier capitoul'' in Toulouse; ''viguier'' in
Montpellier Montpellier (; ) is a city in southern France near the Mediterranean Sea. One of the largest urban centres in the region of Occitania (administrative region), Occitania, Montpellier is the prefecture of the Departments of France, department of ...
; ''premier consul'' in many towns of southern France; ''prêteur royal'' in
Strasbourg Strasbourg ( , ; ; ) is the Prefectures in France, prefecture and largest city of the Grand Est Regions of France, region of Geography of France, eastern France, in the historic region of Alsace. It is the prefecture of the Bas-Rhin Departmen ...
; ''maître échevin'' in
Metz Metz ( , , , then ) is a city in northeast France located at the confluence of the Moselle (river), Moselle and the Seille (Moselle), Seille rivers. Metz is the Prefectures in France, prefecture of the Moselle (department), Moselle Departments ...
; ''maire royal'' in Nancy; or ''prévôt'' in Valenciennes.


French Revolution

On 14 July 1789, at the end of the afternoon, following the storming of the Bastille, the provost of the merchants of Paris, Jacques de Flesselles was shot by the crowd on the steps of Paris City Hall. Although in the Middle Ages the provosts of the merchants symbolized the independence of Paris and even had openly rebelled against King Charles V, their office had been suppressed by the king, then reinstated but with strict control from the king, and so they had ended up being viewed by the people as yet another representative of the king, no longer the embodiment of a free municipality. Following that event, a "commune" of Paris was immediately set up to replace the old medieval chartered city of Paris, and a municipal guard was established to protect Paris against any attempt made by King
Louis XVI Louis XVI (Louis-Auguste; ; 23 August 1754 – 21 January 1793) was the last king of France before the fall of the monarchy during the French Revolution. The son of Louis, Dauphin of France (1729–1765), Louis, Dauphin of France (son and heir- ...
to quell the ongoing revolution. Several other cities of France quickly followed suit, and communes arose everywhere, each with their municipal guard. On 14 December 1789, the
National Assembly In politics, a national assembly is either a unicameral legislature, the lower house of a bicameral legislature, or both houses of a bicameral legislature together. In the English language it generally means "an assembly composed of the repr ...
(''Assemblée Nationale'') passed a law creating the commune, designed to be the lowest level of administrative division in France, thus endorsing these independently created communes, but also creating communes of its own. In this area as in many others, the work of the National Assembly was, properly speaking, revolutionary: not content with transforming all the chartered cities and towns into communes, the National Assembly also decided to turn all the village parishes into full-status communes. The Revolutionaries were inspired by Cartesian ideas as well as by the philosophy of the Enlightenment. They wanted to do away with all the peculiarities of the past and establish a perfect society, in which all and everything should be equal and set up according to reason, rather than by tradition or conservatism. Thus, they set out to establish administrative divisions that would be uniform across the country: the whole of France would be divided into ''départements'', themselves divided into arrondissements, themselves divided into cantons, themselves divided into communes, no exceptions. All of these communes would have equal status, they would all have a mayor at their head and a municipal council elected by the inhabitants of the commune. This was a real revolution for the thousands of villages that never had experienced organized municipal life before. A communal house had to be built in each of these villages, which would house the meetings of the municipal council as well as the administration of the commune. Some in the National Assembly were opposed to such a fragmentation of France into thousands of communes, but eventually Mirabeau and his ideas of one commune for each parish prevailed. On 20 September 1792, the recording of births, marriages, and deaths also was withdrawn as a responsibility of the priests of the parishes and handed to the mayors. Civil marriages were established and started to be performed in the ''mairie'' with a ceremony not unlike the traditional one, with the mayor replacing the priest, and the name of the law replacing the name of God ("''Au nom de la loi, je vous déclare unis par les liens du mariage.''" – "In the name of the law, I declare you united by the bonds of marriage."). Priests were forced to surrender their centuries-old baptism, marriage, and burial books, which were deposited in the ''mairies''. These abrupt changes profoundly alienated devout Catholics, and France soon was plunged into the throes of
civil war A civil war is a war between organized groups within the same Sovereign state, state (or country). The aim of one side may be to take control of the country or a region, to achieve independence for a region, or to change government policies.J ...
, with the fervently religious regions of western France at its center. It would take Napoleon I to re-establish peace in France, stabilize the new administrative system, and make it generally accepted by the population. Napoleon also abolished the election of the municipal councils, which now were chosen by the
prefect Prefect (from the Latin ''praefectus'', substantive adjectival form of ''praeficere'': "put in front", meaning in charge) is a magisterial title of varying definition, but essentially refers to the leader of an administrative area. A prefect' ...
, the local representative of the central government.


Trends after the French Revolution

Today, French communes are still very much the same in their general principles as those that were established at the beginning of the Revolution. The biggest changes occurred in 1831, when the French Parliament re-established the principle of the election of municipal councils, and in 1837 when French communes were given legal "personality", being now considered legal entities with legal capacity. The Jacobin revolutionaries were afraid of independent local powers, which they saw as conservative and opposed to the revolution, and so they favored a powerful central state. Therefore, when they created the communes, they deprived them of any legal "personality" (as they did with the ''départements''), with only the central state having legal "personality." By 1837 that situation was judged impractical, as mayors and municipal councils could not be parties in courts. The consequence of the change, however, was that tens of thousands of villages which had never had legal "personality" (contrary to the chartered cities) suddenly became legal entities for the first time in their history. This is still the case today. During the revolution, approximately 41,000 communes were created, on territory corresponding to the limits of modern-day France (the 41,000 figure includes the communes of the departments of Savoie, Haute-Savoie and Alpes-Maritimes which were annexed in 1795, but does not include the departments of modern-day
Belgium Belgium, officially the Kingdom of Belgium, is a country in Northwestern Europe. Situated in a coastal lowland region known as the Low Countries, it is bordered by the Netherlands to the north, Germany to the east, Luxembourg to the southeas ...
and
Germany Germany, officially the Federal Republic of Germany, is a country in Central Europe. It lies between the Baltic Sea and the North Sea to the north and the Alps to the south. Its sixteen States of Germany, constituent states have a total popu ...
west of the
Rhine The Rhine ( ) is one of the List of rivers of Europe, major rivers in Europe. The river begins in the Swiss canton of Graubünden in the southeastern Swiss Alps. It forms part of the Swiss-Liechtenstein border, then part of the Austria–Swit ...
, which were part of France between 1795 and 1815). This was fewer than the 60,000 parishes that existed before the revolution (in cities and towns, parishes were merged into one single commune; in the countryside, some very small parishes were merged with bigger ones), but 41,000 was still a considerable number, without any comparison in the world at the time, except in the empire of
China China, officially the People's Republic of China (PRC), is a country in East Asia. With population of China, a population exceeding 1.4 billion, it is the list of countries by population (United Nations), second-most populous country after ...
(but there, only county level and above had any permanent administration). Since then, tremendous changes have affected France, as they have the rest of Europe: the
Industrial Revolution The Industrial Revolution, sometimes divided into the First Industrial Revolution and Second Industrial Revolution, was a transitional period of the global economy toward more widespread, efficient and stable manufacturing processes, succee ...
, two
world war A world war is an international War, conflict that involves most or all of the world's major powers. Conventionally, the term is reserved for two major international conflicts that occurred during the first half of the 20th century, World War I ...
s, and the rural exodus have all depopulated the countryside and increased the size of cities. French administrative divisions, however, have remained extremely rigid and unchanged. Today about 90 percent of communes and departments are exactly the same as those designed at the time of the French Revolution more than 200 years ago, with the same limits. Countless rural communes that had hundreds of inhabitants at the time of the French Revolution now have only a hundred inhabitants or fewer. On the other hand, cities and towns have grown so much that their urbanized area is now extending far beyond the limits of their commune which were set at the time of the revolution. The most extreme example of this is Paris, where the urbanized area sprawls over 396 communes. Paris in fact was one of the very few communes of France whose limits were extended to take into account the expansion of the urbanized area. The new, larger, commune of Paris was set up under the oversight of Emperor Napoléon III in 1859, but after 1859 the limits of Paris rigidified. Unlike most other European countries, which stringently merged their communes to better reflect modern-day densities of population (such as Germany and Italy around 1970), dramatically decreasing the number of communes in the processthe ''Gemeinden'' of
West Germany West Germany was the common English name for the Federal Republic of Germany (FRG) from its formation on 23 May 1949 until German reunification, its reunification with East Germany on 3 October 1990. It is sometimes known as the Bonn Republi ...
were decreased from 24,400 to 8,400 in the space of a few yearsFrance only carried out mergers at the margin, and those were mostly carried out during the 19th century. From 41,000 communes at the time of the French Revolution, the number decreased to 37,963 in 1921, to 36,569 in 2008 (in metropolitan France). Thus, in Europe, only Switzerland has as high a density of communes as France, and even there an extensive merger movement has started in the last 10 years. To better grasp the staggering number of communes in France, two comparisons can be made: First, of the original 15 member states of the
European Union The European Union (EU) is a supranational union, supranational political union, political and economic union of Member state of the European Union, member states that are Geography of the European Union, located primarily in Europe. The u ...
there are approximately 75,000 communes; France alone, which comprises 16 percent of the population of the EU-15, had nearly half of its communes. Second, the
United States The United States of America (USA), also known as the United States (U.S.) or America, is a country primarily located in North America. It is a federal republic of 50 U.S. state, states and a federal capital district, Washington, D.C. The 48 ...
, with a territory fourteen times larger than that of the French Republic, and nearly five times its population, had 35,937 incorporated
municipalities A municipality is usually a single administrative division having municipal corporation, corporate status and powers of self-government or jurisdiction as granted by national and regional laws to which it is subordinate. The term ''municipality' ...
and townships at the 2002 Census of Governments, fewer than that of the French Republic. The number of
barangay The barangay (; abbreviated as Brgy. or Bgy.), historically referred to as ''barrio'', is the smallest Administrative divisions of the Philippines, administrative division in the Philippines. Named after the Precolonial barangay, precolonial po ...
s in the Philippines, villages of Indonesia, and muban in Thailand also have a higher number than the French communes.


Communes nouvelles

There have long been calls in France for a massive merger of communes, including by such distinguished voices as the president of the Cour des Comptes (the central auditing administrative body in France). In 1971 the Marcellin law offered support and money from the government to entice the communes to merge freely with each other, but the law had only a limited effect (only about 1,300 communes agreed to merge with others). Many rural communes with few residents struggle to maintain and manage basic services such as running water, garbage collection, or properly paved communal roads. Mergers, however, are not easy to achieve. One problem is that mergers reduce the number of available elected positions, and thus are not popular with local politicians. Moreover, citizens from one village may be unwilling to have their local services run by an executive located in another village, whom they may consider unaware of or inattentive to their local needs. In December 2010 the law n° 2010-1563 regarding reform of territorial collectivities was adopted, which created the legal framework for the ''communes nouvelles'' (lit. "new communes"). A ''commune nouvelle'' can be created by merger of a number of communes at the request of the municipal councils of all the communes or at the initiative of the state representative in the department (the
prefect Prefect (from the Latin ''praefectus'', substantive adjectival form of ''praeficere'': "put in front", meaning in charge) is a magisterial title of varying definition, but essentially refers to the leader of an administrative area. A prefect' ...
). The municipal council of the new commune can decide to create ''communes déléguées'' (lit. "delegated communes") in the place of the former communes, which are represented by a delegated mayor and a delegated council. Between 2012 and 2021, about 820 ''communes nouvelles'' have been established, replacing about 2,550 old communes.


Intercommunality

The expression "intercommunality" (''intercommunalité'') denotes several forms of cooperation between communes. Such cooperation first made its appearance at the end of the 19th century in the form of a law on 22 March 1890, which provided for the establishment of single-purpose intercommunal associations. French lawmakers having long been aware of the inadequacy of the communal structure inherited from the French Revolution for dealing with a number of practical matters, the so-called Chevènement law of 12 July 1999 is the most recent and most thoroughgoing measure aimed at strengthening and simplifying this principle. In recent years it has become increasingly common for communes to band together in intercommunal consortia for the provision of such services as refuse collection and water supply. Suburban communes often team up with the city at the core of their urban area to form a community charged with managing public transport or even administering the collection of local taxes. The Chevènement law tidied up all these practices, abolishing some structures and creating new ones. In addition, it offered central government finance aimed at encouraging further communes to join in intercommunal structures. Unlike the only partially successful statute enacted in 1966 and enabling urban communes to form urban communities or the more marked failure of the Marcellin law of 1971, the Chevènement law met with a large measure of success, so that a majority of French communes are now involved in intercommunal structures. There are two types of these structures: * Those without fiscal power, the loosest form of intercommunality. Mainly in this category are the traditional syndicates of communes. Communes gather and contribute financially to the syndicate, but the syndicate cannot levy its own taxes. Communes can leave the syndicate at any time. Syndicates can be set up for a particular purpose or to deal with several simultaneous matters. These structures have been left untouched by the Chevènement law, and they are on the decline. * Structures with fiscal power. This is what the Chevènement law was concerned with, and it distinguished three structures with fiscal power: ** the community of communes (), aimed primarily at rural communes; ** the community of agglomeration (), aimed at towns and middle-sized cities and their suburbs; ** the urban community (''
communauté urbaine (; French for "urban community") is the second most integrated form of intercommunality in France, after the ''Metropolis'' (). A is composed of a city ( commune) and its independent suburbs (independent communes). The first communautés urba ...
''), aimed at larger cities and their suburbs. ** the metropolis (''
métropole A (; French for "metropolis") is an administrative entity in France, in which several communes cooperate, and which has the right to levy local tax, an ''établissement public de coopération intercommunale à fiscalité propre''. It is the mo ...
''), established in 2014, aimed at the largest cities and their suburbs. :These three structures are given varying levels of fiscal power, with the community of agglomeration and the urban community having the most fiscal power, levying the local tax on corporations (''taxe professionnelle'') in their own name instead of those of the communes, and with the same level of taxation across the communes of the community. The communities must also manage some services previously performed by the communes, such as garbage collection or transport, but the law also makes it mandatory for the communities to manage other areas such as economic planning and development, housing projects, or environment protection. Communities of communes are required to manage the fewest areas, leaving the communes more autonomous, while urban communities are required to manage most matters, leaving the communes within them with less autonomy.


Allocation of government money

In exchange for the creation of a community, the government allocates money to them based on their population, thus providing an incentive for communes to team up and form communities. Communities of communes are given the least money per inhabitant, whereas urban communities are given the most money per inhabitant, thus pushing communes to form more integrated communities where they have fewer powers, which they might otherwise have been loath to do if it were not for government money. The Chevènement law has been extremely successful in the sense that a majority of French communes now have joined the new intercommunal structures. On 1 January 2007, there were 2,573 such communities in metropolitan France (including five syndicats d'agglomération nouvelle, a category currently being phased out), made up of 33,327 communes (91.1 percent of all the communes of metropolitan France), and 52.86 million inhabitants, i.e., 86.7 percent of the population of metropolitan France. These impressive results however may hide a murkier reality. In rural areas, many communes have entered a community of communes only to benefit from government funds. Often the local syndicate has been turned officially into a community of communes, the new community of communes in fact managing only the services previously managed by the syndicate, contrary to the spirit of the law which has established the new intercommunal structures to carry out a much broader range of activities than that undertaken by the old syndicates. Some say that, should government money transfers be stopped, many of these communities of communes would revert to their former status of syndicate, or simply completely disappear in places where there were no syndicates prior to the law. In urban areas, the new intercommunal structures are much more a reality, being created by local decision-makers out of genuine belief in the worth of working together. However, in many places, local feuds have arisen, and it was not possible to set up an intercommunal structure for the whole of the urban area: some communes refusing to take part in it, or even creating their own structure. In some urban areas like Marseille there exist four distinct intercommunal structures! In many areas, rich communes have joined with other rich communes and have refused to let in poorer communes, for fear that their citizens would be overtaxed to the benefit of poorer suburbs. Moreover, intercommunal structures in many urban areas are still new, and fragile: Tensions exist between communes; the city at the center of the urban area often is suspected of wishing to dominate the suburban communes; communes from opposing political sides also may be suspicious of each other. Two famous examples of this are Toulouse and Paris. In Toulouse, on top of there being six intercommunal structures, the main community of Toulouse and its suburbs is only a community of agglomeration, although Toulouse is large enough to create an Urban Community according to the law. This is because the suburban communes refused an urban community for fear of losing too much power, and opted for a community of agglomeration, despite the fact that a community of agglomeration receives less government funds than an urban community. As for Paris, no intercommunal structure has emerged there, the suburbs of Paris fearing the concept of a "Greater Paris", and so disunity still is the rule in the metropolitan area, with the suburbs of Paris creating many different intercommunal structures all without the city. One major often raised problem with intercommunality, is the fact that the intercommunal structures are not subject to direct election by the people, so it is the representatives of each individual commune that sit in the new structure. As a consequence, civil servants and bureaucrats are the ones setting up the agenda and implementing it, with the elected representatives of the communes only endorsing key decisions.


Classification

INSEE ''(Institut National de la Statistique et des Études Économiques)'' gives numerical indexing codes to various entities in France, notably the communes (which do not coincide with
postcode A postal code (also known locally in various English-speaking countries throughout the world as a postcode, post code, PIN or ZIP Code) is a series of letters or numerical digit, digits or both, sometimes including spaces or punctuation, inclu ...
s). The complete code has eight digits and three spaces within, but there is a popular simplified code with five digits and no space within: *Two digits ( department) and three digits (commune) for the 96 departments of metropolitan France. *Three digits (department or collectivity) and two digits (commune) for the Overseas departments,
Overseas collectivities The France, French overseas collectivities ( abbreviated as COM) are first-order administrative divisions of France, like the regions of France, French regions, but have a semi-autonomous status. The COMs include some former French Overseas ter ...
and Overseas countries.


Administration

The whole territory of the French Republic is divided into communes; even uninhabited mountains or rain forests are dependent on a commune for their administration. This is unlike some other countries, such as the United States, where
unincorporated area An unincorporated area is a parcel of land that is not governed by a local general-purpose municipal corporation. (At p. 178.) They may be governed or serviced by an encompassing unit (such as a county) or another branch of the state (such as th ...
s directly governed by a county or a higher authority can be found. There are only a few exceptions: *COM (''collectivité d'outre-mer'', i.e.,
overseas collectivity The French overseas collectivities ( abbreviated as COM) are first-order administrative divisions of France, like the French regions, but have a semi-autonomous status. The COMs include some former French overseas colonies and other French ...
) of Saint-Martin (33,102 inhabitants). It was previously a commune inside the
Guadeloupe Guadeloupe is an Overseas departments and regions of France, overseas department and region of France in the Caribbean. It consists of six inhabited islands—Basse-Terre Island, Basse-Terre, Grande-Terre, Guadeloupe, Grande-Terre, Marie-Galant ...
. The commune structure was abolished when Saint-Martin became an overseas collectivity on 22 February 2007. *COM of Wallis and Futuna (14,944 inhabitants), which still is divided according to the three traditional chiefdoms. *COM of
Saint Barthélemy Saint Barthélemy, officially the Collectivité territoriale de Saint-Barthélemy, also known as St. Barts (English) or St. Barth (French), is an overseas collectivity of France in the Caribbean. The island lies about southeast of the island ...
(6,852 inhabitants). It was previously a commune inside the Guadeloupe region. The commune structure was abolished when Saint-Barthélemy became an overseas collectivity on 22 February 2007. Furthermore, two regions without permanent habitation have no communes: *TOM (''territoire d'outre-mer'', i.e., overseas territory) of the French Southern and Antarctic Lands (no permanent population, about 200 resident scientists, soldiers, and meteorologists) * Clipperton Island in the Pacific Ocean (uninhabited) Each commune has a
municipal council A municipal council is the legislative body of a municipality or local government area. Depending on the location and classification of the municipality it may be known as a city council, town council, town board, community council, borough cou ...
(''conseil municipal'') composed of municipal councilors (''conseillers municipaux''). The municipal council is the legislative and deliberative organ of the commune. The municipal councilors are elected by the inhabitants of the commune for a 6-year term. Each commune is governed by a
mayor In many countries, a mayor is the highest-ranking official in a Municipal corporation, municipal government such as that of a city or a town. Worldwide, there is a wide variance in local laws and customs regarding the powers and responsibilitie ...
(''maire'') elected for a 6-year term.


Miscellaneous facts


Most and least populous communes

*
Paris Paris () is the Capital city, capital and List of communes in France with over 20,000 inhabitants, largest city of France. With an estimated population of 2,048,472 residents in January 2025 in an area of more than , Paris is the List of ci ...
is the most populous commune of France with 2,187,526 residents as of 2017.Téléchargement du fichier d'ensemble des populations légales en 2017
, INSEE
*Six of the French villages destroyed in the First World War have never been rebuilt. All are found in the ''département'' of
Meuse The Meuse or Maas is a major European river, rising in France and flowing through Belgium and the Netherlands before draining into the North Sea from the Rhine–Meuse–Scheldt delta. It has a total length of . History From 1301, the upper ...
and were destroyed during the
Battle of Verdun The Battle of Verdun ( ; ) was fought from 21 February to 18 December 1916 on the Western Front (World War I), Western Front in French Third Republic, France. The battle was the longest of the First World War and took place on the hills north ...
in 1916. After the war, it was decided that the land previously occupied by the destroyed villages would not be incorporated into other communes, as a testament to these villages which had "died for France", as they were declared, and to preserve their memory. The following communes are entirely unpopulated and are managed by a council of three members, appointed by the
prefect Prefect (from the Latin ''praefectus'', substantive adjectival form of ''praeficere'': "put in front", meaning in charge) is a magisterial title of varying definition, but essentially refers to the leader of an administrative area. A prefect' ...
of Meuse: ** Beaumont-en-Verdunois ** Bezonvaux ** Cumières-le-Mort-Homme **
Fleury-devant-Douaumont Fleury-devant-Douaumont (, literally ''Fleury before Douaumont'') is a commune in the Meuse department in Grand Est in north-eastern France. During the Battle of Verdun in 1916 it was captured and recaptured by the Germans and French 16 times ...
** Haumont-près-Samogneux ** Louvemont-Côte-du-Poivre *Apart from the above cases, the communes with the fewest inhabitants in the French Republic are: **commune of Rochefourchat ( Drôme), in southeastern France, one inhabitant as of 2021. **commune of Leménil-Mitry ( Meurthe-et-Moselle), in eastern France, two inhabitants as of 2021. **commune of La Bâtie-des-Fonds (Drôme), three inhabitants as of 2021.


Most and least subdivided communes

*
Pas-de-Calais The Pas-de-Calais (, ' strait of Calais'; ; ) is a department in northern France named after the French designation of the Strait of Dover, which it borders. It has the most communes of all the departments of France, with 890, and is the ...
is the department in
France France, officially the French Republic, is a country located primarily in Western Europe. Overseas France, Its overseas regions and territories include French Guiana in South America, Saint Pierre and Miquelon in the Atlantic Ocean#North Atlan ...
with the most communes, with 890. *
Paris Paris () is the Capital city, capital and List of communes in France with over 20,000 inhabitants, largest city of France. With an estimated population of 2,048,472 residents in January 2025 in an area of more than , Paris is the List of ci ...
is the department in France with the fewest communes, with only single commune of an
arrondissement An arrondissement (, , ) is any of various administrative divisions of France, Belgium, Haiti, and certain other Francophone countries, as well as the Netherlands. Europe France The 101 French departments are divided into 342 ''arrondissem ...
and the department itself.


Largest and smallest commune territories

*The largest commune of the French Republic is Maripasoula (with 3,710 inhabitants) in the ''département'' of French Guiana: . *The smallest commune of the French Republic is Castelmoron-d'Albret (53 inhabitants) near
Bordeaux Bordeaux ( ; ; Gascon language, Gascon ; ) is a city on the river Garonne in the Gironde Departments of France, department, southwestern France. A port city, it is the capital of the Nouvelle-Aquitaine region, as well as the Prefectures in F ...
: . *In metropolitan France the largest commune is the commune of
Arles Arles ( , , ; ; Classical ) is a coastal city and Communes of France, commune in the South of France, a Subprefectures in France, subprefecture in the Bouches-du-Rhône Departments of France, department of the Provence-Alpes-Côte d'Azur Reg ...
(50,513 inhabitants) near Marseille, the territory of which encompasses most of the Camargue (the
delta Delta commonly refers to: * Delta (letter) (Δ or δ), the fourth letter of the Greek alphabet * D (NATO phonetic alphabet: "Delta"), the fourth letter in the Latin alphabet * River delta, at a river mouth * Delta Air Lines, a major US carrier ...
of the
Rhône The Rhône ( , ; Occitan language, Occitan: ''Ròse''; Franco-Provençal, Arpitan: ''Rôno'') is a major river in France and Switzerland, rising in the Alps and flowing west and south through Lake Geneva and Southeastern France before dischargi ...
): 8.7 times the area of the city of Paris (excluding the outlying parks of Bois de Boulogne and Bois de Vincennes) at .


Communes farthest away from the capital city of France

*The commune of the French Republic farthest away from Paris is the commune of
L'Île-des-Pins L'Île-des-Pins () is a commune in France, commune in the South Province, New Caledonia, South Province of New Caledonia, an overseas territory of France in the Pacific Ocean. L'Île-des-Pins is made up of the Isle of Pines, New Caledonia, Isle of ...
(1,840 inhabitants) in
New Caledonia New Caledonia ( ; ) is a group of islands in the southwest Pacific Ocean, southwest of Vanuatu and east of Australia. Located from Metropolitan France, it forms a Overseas France#Sui generis collectivity, ''sui generis'' collectivity of t ...
: 16,841 km (10,465 miles) from the center of Paris. *In continental France (i.e., European France excluding
Corsica Corsica ( , , ; ; ) is an island in the Mediterranean Sea and one of the Regions of France, 18 regions of France. It is the List of islands in the Mediterranean#By area, fourth-largest island in the Mediterranean and lies southeast of the Metro ...
), the communes farthest away from Paris are Coustouges (93 inhabitants) and Lamanère (52 inhabitants) at the Spanish border: both at from the center of Paris.


Shortest and longest commune names

*The commune of the French Republic with the shortest name is the commune of Y in Somme (91 inhabitants). *The two communes in the French Republic with the longest names (38 letters): ** Saint-Remy-en-Bouzemont-Saint-Genest-et-Isson in Marne (517 inhabitants) ** Beaujeu-Saint-Vallier-Pierrejux-et-Quitteur in Haute-Saône (937 inhabitants)


Communes with non-French names

In areas where languages other than French are or were spoken, most place-names have been translated into a French spelling and pronunciation, such as Dunkerque (''Duinkerke'' in Dutch), Toulouse (''Tolosa'' in Occitan),
Strasbourg Strasbourg ( , ; ; ) is the Prefectures in France, prefecture and largest city of the Grand Est Regions of France, region of Geography of France, eastern France, in the historic region of Alsace. It is the prefecture of the Bas-Rhin Departmen ...
(''Straßburg'' in German), Perpignan (''Perpinyà'' in Catalan), and many place names derived from
Gaulish Gaulish is an extinct Celtic languages, Celtic language spoken in parts of Continental Europe before and during the period of the Roman Empire. In the narrow sense, Gaulish was the language of the Celts of Gaul (now France, Luxembourg, Belgium, ...
or
Latin Latin ( or ) is a classical language belonging to the Italic languages, Italic branch of the Indo-European languages. Latin was originally spoken by the Latins (Italic tribe), Latins in Latium (now known as Lazio), the lower Tiber area aroun ...
. However, many smaller communes have retained their native name. Other examples of retained names in the languages once spoken, or still spoken, on French territory: * Alsatian: the commune of Mittelhausbergen (1,680 inhabitants) * Amerindian: the commune of Kourou (19,107 inhabitants) * Arpitan: the commune of Chamonix (9,514 inhabitants) * Austronesian: the commune of Kouaoua (1,586 inhabitants) *
Basque Basque may refer to: * Basques, an ethnic group of Spain and France * Basque language, their language Places * Basque Country (greater region), the homeland of the Basque people with parts in both Spain and France * Basque Country (autonomous co ...
: the commune of Ainhoa (683 inhabitants) * Breton: the commune of Brest (141,315 inhabitants) * Catalan: the commune of Banyuls-dels-Aspres (1,007 inhabitants) * Comorian: the commune of M’Tsangamouji (5,028 inhabitants) * Corsican: the commune of Calvi (5,377 inhabitants) * Dutch: the commune of Steenvoorde (4,024 inhabitants) * Italian: the commune of Bocognano (372 inhabitants) * Occitan: the commune of
Alès Alès () is a Communes of France, commune and Subprefectures in France, subprefecture in the Gard Departments of France, department in the Occitania (administrative region), Occitania Regions of France, region in Southern France. Until 1926, i ...
(41,205 inhabitants) * Polynesian: the commune of Hitiaa O Te Ra (8,683 inhabitants)


See also

* Lists of communes of France *
Comune A (; : , ) is an administrative division of Italy, roughly equivalent to a township or municipality. It is the third-level administrative division of Italy, after regions () and provinces (). The can also have the City status in Italy, titl ...
(Italy) * Urban areas France * National Powder Factory of Ripault * Châteliers oppidum


References


Citations


Sources

* ''
La Documentation française LA most frequently refers to Los Angeles, the second most populous city in the United States of America. La, LA, or L.A. may also refer to: Arts and entertainment Music * La (musical note), or A, the sixth note *"L.A.", a song by Elliott Smi ...
''
Le développement de l'intercommunalité: la révolution discrète
'' *
Les villes et communes de France
'' lescommunes.com: contacts, offices du tourisme et maire, Hall and Tourist Office, statistiques, photographies. * Maryvonne Bonnard, ''Les collectivités territoriales en France'', 2005, ''La Documentation française'', *


External links

*
Complete lists of cities and municipalities in France
{{Articles on fourth-level administrative divisions of countries France 4 Communes, France Subdivisions of France Local government in France
France France, officially the French Republic, is a country located primarily in Western Europe. Overseas France, Its overseas regions and territories include French Guiana in South America, Saint Pierre and Miquelon in the Atlantic Ocean#North Atlan ...