Background
8.1 The presentation by the Commission of the
European Community of its work programme for the year to come is
an annual event. In the past we have seen a single consolidated
document[19], but this year
we have before us two separate papers.
The 1997 work programme
8.2 The Commission presented its work programme
for 1997 to the European Parliament on 22 October. The documents
subject to Parliamentary Scrutiny are described below and in the
Explanatory Memorandum dated 14 November, submitted by the
Minister of State, Foreign and Commonwealth Office (Mr David
Davis).
The Commission's new legislative proposals
8.3 In this paper the Commission simply lists 16
new legislative proposals which it plans to present. It explains
that these are all new measures: adaptions or amendments of
existing legislation are not included; neither are proposals
already programmed in previous years. The Commission's list of
proposals is reproduced below.
The Commission's political priorities
8.4 In this paper, the Commission sets out its
general approach to its work programme in 1997 and lists its
political priorities under a number of headings. In the
introduction to its paper the Commission says that the 1997 work
programme is designed to bring it closer to objectives which it
identified as the main thrust of its action when its appointment
was confirmed in 1995. It identifies these as:
--the European model of society based on solidarity;
--the idea that Europe should make its presence felt more
strongly on the international scene; and
--the important events for which Europe should be
preparing.
The Commission promises a "dynamic interpretation"
of its right of initiative, and suggests that subsidiarity and
proportionality must not be used as pretext to call into question
all that the Community has already achieved, or to return to the
intergovernmental method -- which it says "is neither
efficient nor democratic". The Commission promises a
rigorous approach to its own management, to its executive role
and to greater openness and transparency. Against this background
it sets out the focus of its 1997 work programme in the four main
priority areas mentioned above: growth and employment (and the
euro); promotion of the European model of society; Europe's role
in the world and preparations for the Union's future. We
describe these in greater detail in the following paragraphs.
Growth and unemployment and the euro
8.5 Under this heading the Commission says that
it intends, in 1997, to continue with and to build on measures
associated with its "European Confidence Pact": in
particular, macro-economic policy, the single market, employment
systems and structural policies.
Sound macro-economic policy
8.6 The Commission identifies the completion of
preparations for the transition to the third stage of Economic
and Monetary Union (EMU), improving convergence and co-ordination
of economic policies, and taking an active part in determining
the new exchange rate mechanism between the euro and the
currencies of the countries not participating in EMU.
Completing the single market
8.7 Here the Commission cites stepping up pressure
on Member States to transpose directives into national law and
apply them properly. It proposes work on implementation of
competition policy and on state aids, simplification of single
market legislation and the closer co-ordination of tax policies
in Europe.
Improving the competitive environment
8.8 The Commission stresses the need to help
industry to become more competitive. Its main priority for
research and technological development will be to present the
fifth research framework programme. It also intends to complete
the regulatory framework for policy on telecommunications so that
this sector is fully open to competition by 1 January 1998.
Speeding up reform of employment systems
8.9 Here the Commission says that it will
highlight the contribution made by social policy to economic
performance. Specific work will be carried out in the areas of
equality of opportunity, social protection, the role of the
social partners, the organisation of work and workers'
information and consultation.
Adjusting structural policies
8.10 The Commission describes structural policies
as effective weapons in the fight against unemployment and in
narrowing the gap between the rich and poor. It proposes to
introduce amendments in 1997, a year in which some aspects of
structural policies are due for a mid-term review.
The European model of society
8.11 Under this heading the Commission lists its
priority policies in the areas of education and training, the
adaptation and strengthening of cohesion policy, and the removal
of remaining barriers to the free movement of persons, as well
as measures to combat drugs, terrorism and organised crime and
trafficking and sexual exploitation of the more vulnerable
members of society. The Commission describes the institutional
apparatus to meet challenges of this magnitude as inadequate, and
says that it will continue to fight for the reinforcement of the
existing mechanisms during the Inter-Governmental Conference.
Europe's presence on the international stage
8.12 While noting that external relations are by
nature unsuited to annual programming and are gradually built up
over time, the Commission says that it will endeavour to develop
relations with a number of non-member countries in 1997: in
particular, the countries of Central and Eastern Europe, the
United States of America, the countries of former Yugoslavia, the
Mediterranean countries and many others. Other activities listed
here include safeguarding the effectiveness and coherence of the
common commercial policy and concluding the negotiations on
liberalisation of telecommunications and financial services. In
the context of the future relationship between the African,
Caribbean and Pacific countries and the EU, priority in
development policy will be given to the implementation of the 8th
European Development Fund and to ways of enhancing the
effectiveness of development aid. The Commission says that it
will continue to press for respect for human rights and
democracy, and that it will continue its humanitarian activities
to meet the need of populations in distress, refugees and victims
of conflict and natural disasters.
Preparing for the future
8.13 Under this heading the Commission refers to
the outcomes which it will seek from the Inter-Governmental
Conference. It identifies three priorities. First, an
institutional system enabling an enlarged union to operate
efficiently. The Commission says that insistence on unanimity
and the complexity of the existing decision making procedures
would paralyse the Union. Second, it seeks answers to what it
describes as public concern about matters such as internal
security, employment and the environment. Third, it wants
"a genuine external policy" for the Community which,
it says, would mean adjusting the common commercial policy and
undertaking a thorough reform of the common foreign and security
policy so that the Union's identity is perceived by the rest of
the world as coherent, effective and visible. The Commission
also identifies a number of policy areas relating to enlargement
of the Community and the revision of the Community's financial
framework from the year 2000.
The Government's views
8.14 In his Explanatory Memorandum the Minister
of State makes no comments of substance on the Commission's
document. He says that the Council will continue to decide on
individual measures as and when proposals are brought forward by
the Commission.
Conclusions
8.15 We think that the Commission's work
programme raises matters of political importance. Although the
specific new legislative proposals can be dealt with as they
arise, the Commission's wider views in its paper on political
priorities deserve some separate consideration. We think the
best course is to "tag" these documents to a debate on
developments in the European Union, or a debate preceding the
forthcoming Dublin European Council.
ANNEX
1997 PROGRAMME
NEW LEGISLATIVE PROPOSALS
The measures set out below for the Commission's 1997 work
programme correspond to the new legislative proposals which it
plans to present. These are all new measures: adaptations or
amendments of existing legislation are not included. Proposals
already programmed in previous years are not reproduced here.
1. Strengthening of convergence for Member States not
participating in the third stage EMU (Art. 103(5)).
2. VAT: Broad principles of operation in line with the needs
of the single market.
3. Indirect taxation: mutual assistance for the recovery of
public, tax and customs debts.
4. Primary products in the pharmaceutical industry.
5. Compulsory third-party insurance for motorists (visiting
motorists directive).
6. Encrypted services (follow-up to Green Paper of 6.3.1995).
7. Harmonisation of copyright and related rights (follow-up to
Green Paper on copyright and related rights in the information
society).
8. Common system of taxation applicable to interest and royalty
payments made between parent companies and subsidiaries in
different Member States.
9. Fifth framework programme for research and technological
development (R&TD): European research in the service of the
citizen.
10. Environmental control of plant not covered by the
integrated pollution control Directive.
11. Training of safety advisers for the transport of dangerous
goods by road, rail and inland waterway.
12. Composition of ship crews, rest time and sailing time.
13. Framework for noise measurement and noise monitoring around
airports (CTP).
14. Issuing of air carrier certificates (transposal of JAR
OPS).
15. Harmonisation measures required for the deployment of
telematics for road transport.
16. European voluntary service for young people.
