In a bold new experiment in multilevel collaboration, Finland’s six largest cities and the national government have joined forces in a formal alliance to shape policy, face shared challenges and build a more resilient future for the entire country.
A quiet shift with national impact
Sometimes the biggest change doesn’t come from a new policy or project, but from changing how decisions are made in the first place, which is exactly what Finland has done.
In 2023, the Finnish Government and the country’s six largest cities – Helsinki, Espoo, Tampere, Vantaa, Oulu and Turku – launched a new Strategic Alliance Model. The goal was to improve urban policy through fair partnerships between the state and cities.
Together, these cities and their regions are home to almost half of Finland’s population and drive much of its economic growth. But until now, cooperation between national and local governments often happened in silos, or after decisions had already been made. This new model changes that.
As Anu Riila, Senior Advisor, EU Affairs at Helsinki Executive Office describes, “This cooperation model aims to tackle both short-term and long-term challenges, as well as handle potential crises together.”
A seat at the table from the start
The Alliance was officially established in Spring 2024, but joint meetings between the six cities and national ministries began in Autumn 2023. From the start, the approach was intentionally inclusive.
“The chair of the Alliance is the Prime Minister and the vice-chair is the Minister of Local and Regional Government,” Maggie Keskinen, Policy Director at the City of Tampere explains. “The mayors represent their cities in the meetings. Other ministries of the government attend the meetings according to the topics on the agenda.”
This cooperation model aims to tackle both short-term and long-term challenges, as well as handle potential crises together.
To make sure the model is not just symbolic, a dedicated secretariat was created. It is chaired by the Ministry of Economic Affairs and Labour and includes representatives from all six cities and the relevant ministries. The secretariat meets regularly, multiple times per month, with additional thematic working groups preparing activities and discussions.
This structure means the conversations are not occasional. They are systematic, consistent and based on mutual respect.
“A systematic dialogue with a principle of mutual respect”
At the heart of the model is trust, and a commitment to listening.
Since mid-2023, this systematic dialogue with a principle of mutual respect has led to deepened understanding of the complexity of the challenges that cities face in their everyday work.
For example, cities raised concerns about the shortage of early childhood care teachers, while also tackling long-term issues like segregation, digitalisation and labour availability. These topics are often too complex for either cities or national government to solve alone.
“The Alliance has enabled shared priority-setting, and opened the door to more tailored, flexible and forward-looking solutions,” Keskinen notes.
From reactive to proactive
One of the most important shifts the Alliance has enabled is a move from reactive policymaking to “ex-ante influence” – meaning cities are part of shaping policies before they are drafted, not just reacting after the fact.
This is not just good for cities, it’s good for Finland as a whole.
Keskinen explains that the Alliance has improved “the ability to allocate resources available most effectively in multi-level governance.”
In practical terms, that means smarter spending, faster response to local needs and better alignment between national goals and local realities.
A systematic dialogue with a principle of mutual respect has led to deepened understanding of the complexity of the challenges that cities face.
A real-time example – the future of EU funding
To see the model in action, look no further than the future of the EU Multiannual Financial Framework (MFF) – an upcoming item on the Alliance’s agenda.
“The European Commission is getting prepared to present the Multiannual Financial Framework in July 2025, which shapes the future of Europe,” Riila explains. “The Six Cities expressed the importance of becoming better as well as engaging in dialogue earlier, when preparing for Finnish views to the future of the EU budget.”
As a result, “it was agreed that one of the Alliance meetings this spring will focus on the future EU policy and the views of cities in the MFF,” Keskinen adds.
This early engagement is exactly the kind of proactive, cross-level policy influence that the Alliance was created to enable.
Cities as partners in national growth
One of the most striking aspects of the Finnish model is its clear recognition that cities are not simply service providers but strategic partners.
The Alliance is built on a shared strategic vision of cities’ role in sustainable growth and has created space to identify common challenges and find solutions together.
These challenges include:
- Shortages in skilled labour
- Gaps in early childhood education
- Urban segregation
- The need for greater flexibility in city governance
Fair partnerships between the state and cities improve urban policy.
By addressing these issues together, Finland is creating the conditions for long-term, nationwide resilience as well as tackling urban problems.
Why it works
So what makes this work in Finland – and could it work elsewhere?
The answer lies in the clarity of purpose, the continuity of dialogue, and the cultural emphasis on respect.
According to Riila, “While every European country has its own way of governing, a dialogue between big cities and the government, along with the simple principles of flexible administration and joint problem-solving, can be a catalyst to improving communication and partnerships.”
In other words, this is not about copying Finland’s structure, but about adopting its principles of shared goals, early dialogue, clear roles and trust.
And the model is already gaining attention. The Alliance serves as a European example of functioning and active cooperation between the national government and the largest cities. This puts the principle of partnership into effect and creates meaningful impact.
Real results for citizens
What does this mean for the everyday lives of residents?
The answer is clear: “This partnership has been positive, thanks to close communication,” Keskinen and Riila both stress. They both highlight real benefits for citizens, including:
The Alliance model serves as a European example of a functioning and active model of cooperation.
- More skilled workers in growing sectors
- Better access to childcare and early education
- Stronger local economies through business-friendly coordination
- Enhanced focus on research and innovation
- Cross-cutting policies that tackle segregation and inequality
- Greater flexibility for cities to adapt to local conditions
All of these factors contribute to better services, smarter policy and more trust in public institutions.
Building on strong foundations
Finland’s six largest cities actually have a long history of collaboration, with the Strategic Alliance Model building on previous cooperation efforts, including the 6Aika Strategy funded through European Structural Funds during 2014-2020.
Riila adds that the idea of “cooperation between cities and the state has been evolving for years.” The new model simply formalises and strengthens it.
The fact that the Prime Minister chairs the group signals just how seriously the model is being taken at the highest political level.
More than just governance
At its core, the Strategic Alliance is not just a new format for meetings. It’s a culture shift in Finnish governance.
It reflects a belief that cities and the state are not rivals for power or resources, they are mutually dependent actors who must solve challenges together.
It also reflects a commitment to respect, flexibility and shared ownership, principles that have become central to Finnish political culture and that are now embedded in this new alliance model.
It was agreed that one of the Alliance meetings this spring will focus on the future EU policy and the views of cities in the MFF.
A model for a stronger Europe
Finland’s Strategic Alliance between its six largest cities and the government is not flashy. There are no ground-breaking tech pilots or billion-euro investments.
But that’s exactly why it matters.
It is a model of how real change happens – through structure, clarity, commitment and trust. And in doing so, it offers a compelling example for other countries across Europe facing the same challenge of how to align national goals with local realities, and how to put partnership at the heart of progress.
This initiative is shortlisted in the ‘Inspiring City’ initiative category at the Eurocities Awards 2025. This year, for the first time, Eurocities member cities are involved in selecting the winners of the awards. Our members can now vote to choose the best city hero and the best city initiative.
You can view the full awards shortlist here.
Results will be announced on Thursday 5 June at Eurocities 2025 Braga.
