1 A Citizens' Agenda
— Delivering results for Europe
| (27496)
9390/06
COM(06) 211
| Commission Communication: A Citizens' Agenda — Delivering results for Europe
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| Legal base | — |
| Document originated | 10 May 2006
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| Deposited in Parliament | 16 May 2006
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| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 26 May 2006
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| Previous Committee Report | None
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| To be discussed in Council | 15-16 June European Council and subsequent Councils
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| Committee's assessment | Politically important
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| Committee's decision | For debate on the Floor of the House
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Background
1.1 The Communication begins with a rhetorical flourish:
"In a globalised world, the European Union has never
been more needed but rarely more questioned. That is the paradox
to which all leaders in Europe, both in the EU's Member States
and its institutions, must respond."
and ends with the words of Jean Monnet: "There is no future
for the peoples of Europe other than in union." In between,
it set out its vision as to what the Union needs to do, and how
it needs to do it, in order to "deliver a policy driven agenda
which addresses the expectations of EU citizens and reinvigorates
their support for the European project".
1.2 Those expectations are explored in detail in a related Communication,
which we consider elsewhere in this Report,[1]
on "The period of reflection and Plan D", which assesses
the mood in the EU during the year-long period of reflection called
for by the European Council last June, after the negative votes
in France and the Netherlands on the draft Constitutional Treaty,
and the outcome of the Commission's earlier Communication on its
contribution thereto, "Plan-D for Democracy, Dialogue and
Debate".
The Commission Communication
1.3 Against that background, the Commission sets out "The
Policy Agenda: A Europe of Results":
"A new Citizens' Agenda for Europe must deliver peace,
prosperity and solidarity in a new context, globalisation. It
should deliver an open and fully functioning single market and
effectively turn the four freedoms into reality; promote solidarity,
opportunity, access and sustainability; and increase security.
It is an agenda for the benefit of all Europe's citizens, building
on achievements to date, and following the course set already,
with a particular focus on growth and jobs."
1.4 It then examines this agenda in more detail and puts forward
a number of proposals:
DEEPER ECONOMIC INTEGRATION; A SINGLE MARKET FOR THE 21ST
CENTURY
The Commission says it is time to "take stock
of economic integration, and in particular the single market,
and to look to the future, by addressing the following questions":
— How
can we build on what has already been achieved?
— Where are the remaining gaps?
— How can we meet the challenges of the
future?
— Do we have the most effective mechanisms
for delivering the single market?
The Commission says that EU economic policy "has
to take full account of external pressures, for example on competitiveness,
as well as the opportunities which globalisation offers in terms
of investment and exports". The building of the single market
"must be a dynamic process, not a one-off achievement. A
strong, open, competitive single market can be a major part of
Europe's response to the challenge of globalisation." To
these ends, the Commission says that, as well as vigorously pursuing
the Lisbon Agenda and "good functioning" of EMU, it
will launch "a fundamental review" of the single market
to look at what more needs to be done and how, and present a report
— "the single market in the 21st century" —
to the Council and European Parliament next year, with concrete
proposals for future action.
OPPORTUNITY, ACCESS AND SOLIDARITY
The Commission says that "the drive for a deeper
and wider economic integration should go hand in hand with further
support for one of Europe's most unifying and fundamental values:
solidarity". The Union "needs to analyse the radical
changes under way in our societies and to support sustainable
responses at all levels". Member States need to put the emphasis
on active labour market policies to fight unemployment, and especially
youth unemployment. The Commission will "take comprehensive
stock of the reality of European society, and launch an agenda
for access and solidarity" next year, including the possible
development of an "entitlement" card to "enable
every European citizen to be aware of and enjoy full access to
their existing rights".
FREEDOM, SECURITY AND JUSTICE
"The EU must give European citizens confidence
that measures are in place to make Europe a fair and safe place
to live in, where security is guaranteed in parallel with liberty
and the exercise of individual freedoms which Europeans hold dear."
The EU must act further and needs:
— to
focus on respect and promotion of fundamental rights and develop
the concept of EU citizenship;
— a stronger anti-terrorism policy, stepping
up co-operation between law enforcement and judicial authorities
by removing barriers to accessing and sharing information while
fully respecting privacy and data protection;
— better external border protection, with
a more integrated external border management system, including,
over time, border guards operating under common European rules
and procedures;
— a more effective common European asylum
system by 2010 with greater harmonisation of criteria and procedures;
— a more coordinated common migration policy,
which recognises the benefits of integrating migrants better while
tackling illegal immigration and trafficking gangs, in partnership
with third countries;
— more police and judicial co-operation
based on mutual recognition to make national judgments and decisions
enforceable throughout the EU;
— to make full use of existing mechanisms
to tackle threats to citizens' security in a whole range of areas
including food, health and bio-terrorism;
— more co-operation on consular affairs.
Because "action and accountability in some areas
of policy making are hindered by the current decision making arrangements,
which lead to deadlock and lack of proper democratic scrutiny"
and Articles 42 TEU and 67(2) TEC "allow for changes to these
arrangements, which would improve decision taking in the Council
and allow proper democratic scrutiny by the European Parliament;
and the enhancement of the role of the Court of Justice",
the Commission will "present an initiative to improve decision
taking and accountability in areas such as police and judicial
cooperation and legal migration, using the possibilities under
the existing Treaties".
ENLARGEMENT
The EU has shown it can take in new members and remain
effective. It has also been an economic success.[2]
However, while a majority continues to welcome enlargement, many
citizens question its pace and scope. The Union must honour existing
commitments. At the same time, there is a need for an informed
debate on the future enlargements and what they mean for the Union.
The Commission will "take forward the debate on the value
added of enlargement and the Union's capacity to absorb new members"
and report on the EU's enlargement strategy later this year, ahead
of the December European Council.
THE EU IN THE WORLD
"Global interdependence gives new opportunities
to project European values and interests, and has sharpened Europeans'
support for common external action." The absence of an institutional
settlement should not prevent the development of the EU's global
role. The EU needs to get the most out of its collective capacities
in defence, mobilising operational resources, research and procurement.
The Commission stands ready to support Member States' efforts.
Member States and institutions should work together to deliver
clear priorities and a clear message about what the EU is trying
to achieve. Greater priority should be given to the European Neighbourhood
Policy. With the EU's "unique range of tools for external
policy" (trade, development co-operation, humanitarian aid,
political dialogue and objectives (the environment, transport,
energy, migration security) that can only be delivered in full
by working beyond Europe's boundaries, internal and external policy
coherence is essential. Later this year, the Commission will propose
a new approach to external competitiveness, looking at improved
access to markets overseas, new priorities in trade relations,
promotion of investment opportunities and protection of intellectual
property. Member States and the institutions, and the institutions
themselves, must work together better for a more effective and
efficient external action, for example in delivering effective
assistance and civil protection in external crisis situations.
The Commission will present a Concept Paper on external relations
with concrete ideas to address these challenges within the framework
of the present Treaties, in particular on how to improve coherence
and coordination of the Commission's action with that of the other
European institutions and of Member States.
1.5 The Commission then looks at modalities, under
three main headings:
THE BUDGET TO DELIVER THE AGENDA
The Commission says that "reformed budget, both
on the expenditure and the resources side, is essential to realise
a citizens' agenda". Decisions on resources and expenditure
"must be grounded in a consensus about the future political
direction of the Union and the allocation of tasks between the
Union and national levels, as well as on the overall level and
sources of funding to meet the Union's priorities". So the
Commission will return in 2008-09 with "ideas for a comprehensive
reform of the budget in a way which will support prosperity, solidarity
and security through a new policy agenda".
A PARTNERSHIP EUROPE: SUBSIDIARITY, BETTER REGULATION,
OPENNESS
"Delivering a new policy agenda needs a new
partnership", based on sharing power and responsibility,
and sticking to key democratic principles — accountability,
transparency, and trust. The EU must respect the principle of
subsidiarity, acting at the European level only when appropriate;
minimise bureaucracy (the Commission will put forward further
proposals "to make better regulation a reality across the
EU") and improve openness and accountability. As well as
working effectively, the EU institutions "must also reach
out to the citizen". National parliaments must be more closely
involved with the development and execution of European policy.
TOWARDS AN INSTITUTIONAL SETTLEMENT
Five years on, the objectives in the 2001 Laeken
Declaration — "a clear, open, effective, democratically
controlled Community approach developing a Europe which points
the way ahead for the world" — are even more valid.
The period of reflection has shown that "citizens recognise
that the issues faced both inside and outside Europe need to be
tackled Europe-wide. They are concerned about employment and security,
and want a European response to globalisation. They would like
a clearer vision of where Europe is heading … There is a
sense that Europe's energies could usefully be concentrated on
policy delivery." Several different ways forward on the Constitutional
Treaty have been floated, but no consensus exists on the way forward.
The Commission therefore proposes that:
— the
EU's focus should now shift to a new policy agenda for citizens;
— the EU should use existing Treaties more
effectively, without pre-empting the Constitutional Treaty;
— the June European Council should adopt
a step-by-step approach, to be taken forward by future Presidencies,
designed to create the conditions for a future institutional settlement;
and
— next year, fifty years after the signing
of the Treaty of Rome, EU leaders should adopt (and the European
Parliament and the Commission should sign) "a political declaration
which not only sets out Europe's values and ambitions, but also
under which leaders make a shared undertaking to deliver them",
which would be the basis for decisions by the European Council
next year to launch a process designed to lead to an institutional
settlement to be developed by future Presidencies, in which process
the Commission stands ready to assist as necessary.
The Government's view
1.6 In his 26 May 2006 Explanatory Memorandum, the
Minister for Europe (Mr Geoffrey Hoon) says that the Government
welcomes the Commission's commitment to take forward the Hampton
Court agenda, which should be the EU policy focus for the immediate
future. He agrees that more needs to be done to complete the Single
Market and looks forward to specific Commission proposals.
1.7 He welcomes the Commission's recognition that
getting more people in to work is the best way to maintain sustainable,
high quality social protection systems and that a job is the best
protection against social exclusion. "We can also see the
benefits of Commission action to raise the visibility of people's
existing rights as EU citizens. An entitlement card may be one
possible way of doing this. We would need to examine any detailed
proposals carefully."
1.8 Within the field of Justice and Home Affairs,
the Minister supports greater practical co-operation with other
Member States across the board, "in particular in anti-terrorism
policy, protection of the EU's external borders and in the context
of the common European asylum system". He looks to improve
implementation of current legislation in these fields, in line
with established work programmes. He agrees that progress within
certain fields is slow and open to further discussion, including
consideration of the Commission's initiative on improving decision-making
under the current Treaties, but it is not clear from this whether
the Minister supports or rejects the Commission's proposals for
using Article 42 EU to move police and judicial co-operation in
criminal matters to the First Pillar, where unanimity in the Council
would not apply.
1.9 The Minister agrees that enlargement has been
a powerful force for promoting the spread of peace, democracy
and prosperity and that the EU has shown it can take in new members
and remain effective. He looks forward to the promised enlargement
strategy report.
1.10 He fully agrees that the Member States and the
EU institutions must do more to ensure that external policies
are better coordinated, welcomes the idea of a Commission concept
paper on external coherence, and wants to see concrete examples
within the framework of existing treaties identified.
1.11 He agrees that fundamental reform of the EU
budget is necessary "in order to deliver a modern, effective
budget fit for the 21st century and that the 2008/9 review of
the budget will provide an important opportunity to take the reform
process forward. The Government will therefore continue to argue
for an ambitious approach to the review by the Commission and
other EU partners."
1.12 He strongly supports the Commission's commitment
to respecting the principle of subsidiarity, and would like to
see a greater role for national parliaments in the application
of subsidiarity. He welcomes Commission President Barroso's 9
May 2006 announcement that legislation will be sent direct to
national parliaments rather than via Member State governments.
1.13 Finally, on the notion of "Towards an institutional
settlement", the Minister notes that the Commission recognises
that there is as yet no consensus on the Constitutional Treaty
and underlines the need to concentrate on delivery. "The
Government is open to the idea of a political declaration setting
out Europe's values and ambitions, and believes that the real
challenge ahead for the next year is delivering on the policy
agenda."
Conclusion
1.14 Perhaps the most significant finding in the
related Commission Communication on "The period of reflection
and Plan-D" is that institutional questions were seen by
EU citizens as abstract and complex, that they were more interested
in concrete policies affecting daily life and perceived the way
the Union works as often getting in the way of policy delivery.
"A Citizens' Agenda — Delivering results for Europe"
purports to address this view. It also describes itself as "new".
In our estimation, it ignores the first part of this view and
makes few, if any, new proposals.
1.15 For example, the Hague Programme of November
2004 on strengthening freedom security and justice in the EU includes
proposals for a common European asylum system and a more coordinated
policy on migration; for action to prevent and fight terrorism;
for measures to strengthen the control of the EU's external borders;
and for the use of Article 67(2) of the EC Treaty to make measures
on visas, asylum and immigration subject to QMV and co-decision
by the Council and the European Parliament.[3]
1.16 Indeed, the Communication includes a proposal
— for the creation of a Corps of European Border Guards
— to which the Government and the previous Committee objected
when the Commission proposed it in June 2004.[4]
1.17 Nor is the completion of the internal market
a novel aim. Yet the commitment to it seems less than wholehearted
— "a strong, open, competitive single market can be
a major part of Europe's response to the challenge of globalisation".
Should it not be central, and essential? Is this not instead an
unwelcome endorsement of those who favour economic patriotism
as the response to globalisation?
1.18 Moreover, we doubt that documents such as
this one can hope to win the interest and support of the public
if they are not written in plain words. For example, we do not
know what the public would make of the following paragraph on
page 3 of the Communication:
"But the Union needs to go further, through
a policy driven agenda which addresses the expectations of EU
citizens and reinvigorates their support for the European project.
That agenda must be rooted in the established priorities of prosperity,
solidarity and security, and the drive for growth and jobs. These
are essential for the renewal of confidence in Europe. That support
can also be mobilised by projects such as Erasmus, Galileo, or
the European Institute for Technology or a European civil protection
capability. But both policies and projects need to be embedded
into a coherent political agenda. So they must be accompanied
by a step by step approach to resolving the current difficulties
over the Constitutional Treaty. The aim of this twin track approach
is to lead, over time, to an institutional settlement which strengthens
the overall political ambition of consolidating a 'projet de
vie en commun'."
1.19 We believe that the Communication prompts
major questions, such as :
— since
the proposed agenda is not new, why should it be effective in
bridging the present gap between the EU and the public?;
— Is a public that is turned off by
institutional issues, and with whom the Union is anxious to reconnect,
not likely to see yet another political declaration on "Europe's
values and ambitions" as platitudinous and reinforcing its
sense of detachment and alienation?; and
— Is it right or prudent to invite
the European Council to endorse the Commission's approach on 15-16
June without first asking the public if it shares the Commission's
diagnosis of what is wrong and if it agrees with its prescription
for a remedy?
1.20 We doubt that this Communication provides
a new vision for the future of the European Union. But what that
future should be is of great importance to everyone in the United
Kingdom. We recommend, therefore, that the Communication, together
with a statement from the Government on the outcome of the European
Council's discussion of it, should be debated on the Floor of
the House.
1 See paragraph 30 of this Report. Back
2
COM(2006) 200; see paragraph 29 of this Report. Back
3
See (25730) 10249/04: HC 38-iv (2004-05), para 17 (19 January
2005). Back
4
See (25730) 10249/04: HC 42-xxviii (2003-04), 14 July 2004. Back
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