How France is using ‘citizen councils’ to improve Covid vaccine uptake

Alarmed by early polls that suggested up to 60 percent of French people could refused to take the Covid vaccine, the government in January set up a 'citizen's council' to provide advice. Eve Hebron examines how it is working.

How France is using 'citizen councils' to improve Covid vaccine uptake
Photo: Thomas Samson/AFP

What is a citizen’s council?

A citizen’s council – un collectif citoyen – is a group of ordinary people who are selected to represent the voice of the French people (rather than French politicians) on important issues.

There are a number of these groups linked to various social causes, from climate change to vaccine scepticism.

What’s the purpose of the group?

The group aims to speak up for the average person, providing a voice for the public for politicians to listen to.

It began in 2019, when the groups known as Démocratie ouverte (Open Democracy) and Gilets Citoyen (Citizen Vests) called for the creation of a citizens’ assembly.

This was when the ‘yellow vest’ protests were at their height – one of the major complaints of the movement was that French governments do not listen to ordinary citizens, so citizen councils aimed to give the average person the right to speak and be heard, without having to take to the streets.

Since then, there have been several citizen collectives working on sharing, developing, and exploring the ideas of normal people on a variety of issues.

In late 2019, the Convention citoyenne pour le climat (Citizens Convention for Climate), was created – a group of 150 people living throughout France, who, over the period of a few months, were asked to find ways in which France can reduce its carbon emissions by 40 percent (compared to those of 1900) by 2030 – all in the “spirit of social justice” as described by the president.

By mid June 2020, the CCC were able to present their proposals at the Élysée Palace and many of them were adopted and are now working their way through parliament.

What about the vaccine council?

In January, thirty-one people were picked at random to become members of a new citizen council – this time with the hope of representing the country’s mixed feelings in relation to the Covid-19 vaccination and its rollout.

Similarly to previous groups, this current citizen collective is representative of the French population according to age, gender, housing situation, and qualification level.

Additionally, members are of mixed opinion as to whether they are for or against receiving the vaccine, thus reflecting the balance of opinion that has been evident within French society over the past few months – although more recent polling has seen a fall in the numbers of people who are vaccine hesitant.

READ ALSO How worried does France need to be about its vaccine sceptics?

According to Le Parisien, the group is working well. “Thirty-one brains in a loop, listening, speaking …” one group member, Phillipe Hartmann told the newspaper, “that inevitably provokes ideas!”.

“The more we ask citizens for advice on social issues, the more we get things done. The proposals are coming together, we must take advantage of them.”

Over the next few days, the Philippe, a 59-year-old coach driver, from Gap in south east France, will discuss their ideas further, before reporting to Alain Fischer, the immunology professor in charge of France’s vaccine rollout and popularly known as Monsieur Vaccin. 

Some of the proposals being discussed include using social security numbers to make appointments at vaccine centres – to deter people from not turning up – and trying to turn the national conversation from the risks of vaccines to the benefits, such as allowing bars to reopen.

“Rather than talking about it with a six-foot-long face, let’s point out the restaurants that will be able to reopen, the family reunions without masks. Being positive changes everything,” added Philippe. 

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EXPLAINED: Why are French energy prices capped?

As energy prices soar around Europe, France is the notable exception where most people have seen no significant rise in their gas or electricity bills - so what lies behind this policy? (Hint - it's not just that the French would riot if their bills exploded).

EXPLAINED: Why are French energy prices capped?

On most international comparisons of rising energy prices, France is the outlier – but the government control of energy prices is not in fact a new policy and was in place well before the Russian invasion of Ukraine sent gas and electricity prices soaring.

At present prices for domestic gas are frozen at 2021 levels and electricity prices can only increase four percent per year. According to economy minister Bruno Le Maire, without these measures French bills would have risen by 60 percent for gas and 45 percent for electricity.

Both these measures – collectively known as the bouclier tarifaire (tariff shield) – are in place until at least the end of 2022, and could be extended into 2023.

The extension of the price shield was confirmed by parliament earlier in August – part of a €65 billion package of measures aimed at tackling the cost-of-living crisis – but had been in place for much longer.

Tariff shield

The reason that gas prices are frozen at 2021 levels is that the freeze came into effect on November 1st 2021 – well before Russia’s February 2022 invasion of Ukraine.

The measure was initially put in place to help people deal with the economic after-effects of the pandemic, but was extended in the spring of 2022, when electricity prices were also capped at four percent.

Price regulation

But although prolonged price freezes are unusual, the French government involvement in price-setting is completely normal and during non-freeze periods, a rate is set each month.

If you read French media (or The Local), you’ll notice regular articles on ‘what changes next month’ which include gas and electricity prices, usually expressed as a month-on-month percentage rise or fall. This refers to the maximum rate that utility companies are allowed to increase their charges per month.

The government-set rate refers to the basic price plan from EDF. Some people are on special deals or time-limited tariffs, so if their deal or payment plan ends and they go back onto the basic rate, they can see a rise above the government rate.

Around 85 percent of households in France get their electricity from EDF. 

READ MORE: Reader Question: Why did my French electricity bill increase by more than 4%

State-owned utilities

So, why is the government involved? Well, it’s the majority stakeholder in EDF, the country’s largest electricity supplier, and owns Gaz de France (Engie). 

At present EDF isn’t completely state owned – although there are plans to fully nationalise it – but it owns 84 percent.

The French state owns a lot of service and utility companies including the country’s rail provider SNCF, postal service La Poste and France Télévisions. One notable exception is the country’s autoroutes, which are run by private companies, although the government sets limits on toll charges. 


France is less exposed to energy shocks than some other European countries because of its nuclear sector.

It is unusual among European nations in the size of its nuclear industry – around 70 percent of electricity comes from its own domestic nuclear power plants, although during the heatwave several plants have had to lower output as rivers have become too hot to effectively cool the reactors. There are also ongoing technical issues that have seen some of the older plants shut down or forced to lower output.

READ ALSO Why is France so obsessed with nuclear?

France is usually a net exporter of electricity, but at peak times it has to import electricity, usually via the high-priced international spot market.

It does, however, import its gas, mostly via pipeline – in 2020 its biggest supplier was Norway, followed by Russia.

The French government has launched a sobriété energetique (energy sobriety) plan to cut its total energy consumption by 10 percent this year, which it hopes will allow it to get through the winter without Russian gas. 


Even before the recent €65 billion aid package, the French government was taking a pro-active role in helping people deal with rising prices – from the price shield to fuel rebates for drivers, €100 grants for low-income households and financial aid for industries such as agriculture and logistics so they could avoid passing prices on the consumers.

Cynics say this happened for two reasons – because there were elections in April and June and because the French would riot if their utility bills suddenly doubled.

There’s a kernel of truth in both – cost of living became a major issue in the April presidential elections and one that far-right leader Marine Le Pen very much made her own from early in the campaign, leaving Emmanuel Macron slightly on the back foot, although in truth his government had already introduced several measures to ease the burden on ordinary voters.

It’s also true that the French have a robust approach to holding their government to account, and high living costs have previously inspired noisy and sometime violent protests – the ‘yellow vest’ movement of 2018 and 19 began as a protest over living costs.

But it’s also true that the French State is generally quite involved in people’s everyday lives – as evidenced by those monthly gas and electricity price rates – and taking a laissez-faire approach such as that seen in the UK would be unusual for any French government, even outside of election season.