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Vol. 1985/0 230 
  
 
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Conformém ent au règlement (CEE, Euratom) n° 354/83 du Conseil du 1er février 1983 
concernant l'ouverture au public des archives historiques de la Communauté économique 
européenne et de la Communauté européenne de l'énergie atomique (JO L 43 du 15.2.1983, 
p. 1), tel que modifié par le règlement (CE, Euratom) n° 1700/2003 du 22 septembre 2003 
(JO L 243 du 27.9.2003, p. 1), ce dossier est ouvert au public. Le cas échéant, les documents 
classifiés présents dans ce dossier ont été déclassifiés conformément à l'article 5 dudit 
règlem ent. 
In accordance with Council Regulation (EEC, Euratom) No 354/83 of 1 February 1983 
concerning the openi ng to the public of the historical archives of the European Econom ic 
Community and the European Atomic Energy Communit y (OJ L 43, 15.2.1983, p. 1), as 
amended by Regulation (EC, Euratom) No 1700/2003 of 22 September 2003 (OJ L 243, 
27.9.2003, p. 1), this f ile is open to the public. Where necessary, classified documents in this 
file have been declassified in conformity with Article 5 of the aforementioned regulation.  
In Übereinstimmung mit der Verordnung (EWG, Euratom) Nr. 354/83 des Rates vom  1. 
Februar 198 3 über die Freigabe der historischen Archive der Europäischen  
Wirtschaftsgemeinschaft und der Europäischen Atomgem einschaft (ABI. L 43 vom  15.2.1983,  
S. 1), geändert durch die Verordnung (EG, Euratom) Nr. 1700/2003 vom 22. Septem ber 2003  
(ABI. L 243 vom 27 .9.2003, S. 1), ist diese Datei der Öffentlichkeit zugänglich. Soweit  
erforderlich, wurden die Verschlusssachen in dieser Datei in Übereinstimmung mit Artikel 5  
der genannten Verordnung freigegeben.  
COMMISSION OF THE EUROPEAN COMMUNITIES
COM(85) 6*tO final.
Brussels, 19 November 1985.
COMMUNICATION FROM THE COMMISSION TO THE COUNCIL
ON A PEOPLE'S EUROPE
COM(85) 6*+0 final.

1
C O M M I S S I O N  C Q M M U N I C A T I  O N  
T O  T H E  C O U N C I L  O N  A  P E O P L E 'S  E U R O P E
In  .'June 1984  the E uropean C ouncil expressed a  w ish  to give 
E uropean integration a  dim ension that w a s  closer to people's 
preoccupations a n d  interests.
T h e  establishment o f the a d  h o c  C om m ittee a n d  the backing 
w h ich  the E uropean C ouncil g a v e  to its proposals created a  
m o o d  of public expectancy, w h ich  is reflected in  
Parliament's discussions o n  a  People's E urope.
H o w e v er, eight m onths after the first report a n d  five m o n th s 
after the second, achievements are lagging behind 
objectives. Particularly worrying is the fact that n o n e  o f 
the more symbolic measures relating to free movement and  
cin em a a n d  television coproduction h as b ee n  adopted.
T h e  C om m issio n  therefore feels that follow-up to the w o rk  o f 
the a d  h o c  C om m ittee h as b ee n  unsatistactory.  me situation 
reveals o n ce again the divide betw een m ajor political 
decisions a n d  their implementation.
T h e  C om m issio n  w o u ld  therefore lik e  the E uropean C ouncil to 
b e  m a d e  aw are o f its assessment  of the results. It w o u ld  
also lik e  to see procedural arrangements approved to ensure 
that the C ouncil approves proposals em b o d y in g  s o m e  progress 
towards a  E u ro p e w h ich  is closer to its inhabitants in the 
first three m o n th s o f 1 9 8 6 . T hese proposals relate to the 
easing o f frontier checks o n  travellers, right of residence 
a n d  support for cin em a a n d  television coproductions.
T his com m unication begins b y  reviewing the co m m itm ents 
entered into a n d  g o es o n  to give a  progress report o n  (a) 
discussions within the C ouncil o n  proposals w h ich  w ere o n  
the table before the M i l a n  E uropean C ouncil a n d  (b ) action 
taken b y  the C om m issio n  in response to the E uropean 
Council's g u i deli nes.
I. B A C K G R O U N D
T h e  E uropean C ouncil h as b e e n  sent tw o  reports b y  the a d  h o c  
C om m ittee set u p  at its Fontainebleau m eeting in  June 1 9 8 4 .

2
- T h e  first report, dated M a rc h  1 9 8 5 , m a d e  proposals 
relating to free m o v e m e n t a n d  the right of establishment.
- T h e  second report, dated June 1 9 8 5 , dealt w ith education, 
youth, health, culture, special rights a n d  C o m m u n ity  
sym bo1 s.
A t  its m eeting in  M ilan o n  2 8  a n d  2 9  June the E uropean 
C ouncil expressed concern at the delay in im plem enting the 
proposals m a d e  in  the first report inviting the Council, the 
M e m b e r  States a n d  the C om m ission, each to take o n  board 
their responsabi1i t i e s a n d  take the necessary decisions to 
rem ed y  this situation a s quickly a s  possible. T h e  E uropean 
C ouncil approved the proposals in the second report (see 
Annex).
O n  procedures, the E uropean C ouncil "instructed the C ouncil 
to report to it at its D e c e m b e r meeting o n  the progress 
achieved". T h e  a d  h o c  C om m ittee, w h ich  h a d  itself advocated 
s o m e  procedure h a d  already asked the C o m m issio n  to give its 
assessment of the progress m a d e  in im plem enting the tw o  
reports.
T h e  present com m unication h as at the sa m e  tim e the objective 
of revealing Council's responsabi1it i e s w ith regard to the 
d e l a y s pointed out b y  the E uropean C ouncil a n d  to state the 
m easures taken b y  the C om m issio n  o n  the grounds of its o w n  
com petences a s  w ell a s its w orking p ro g ram m e.
II. S T A T E  O F  P L A V  W I T H I N  T H E  C O U N C I L  
(a) Implementation o f first report
A lthough it h as adopted Directives o n  the right o f 
establishment for pharmacists a n d  architects 1), a  decision 
o n  the comparabi1ity of vocational training quaiifications 
2 )  a n d  another updating tax exem ptions 3), the C ouncil h as 
still to d eal w ith s o m e  m ajor proposals honouring 
co m m itm ents given b y  the E uropean Council.
(1 ) T h e  a d  h o c  C om m ittee advocated m easures to simplify 
checks o n  persons crossing frontiers b y  introducing n e w  
facilities at internal borders a n d  at seaports a n d  airports.
1 )  Council's Directives 85/432 a n d  85/433 o n  the right o f 
establishment for pharmacists ( O J  L  2 5 3 , 24.9.1985), 
Directive 85/384 o n  the right of establishment for 
architects ( O J  L  22 3 , 21,8.1985)
2 )  Council's Directive 85/368 ( O J  L  1 9 9 , 31.7.1985)
3 )  Council's Directive 85/348 ( O J  L  1 8 3 , 16.7.1985)

3
- In  January 1 9 8 5  the C o m m issio n  presented a  proposal for a  
directive designed to abolish systematic checks at internal  
borders except in special circumstances. This proposal, 
w h ich  w a s  w a rm ly  w e lc o m e d  b y  Parliament, h as b ee n  discussed 
m o re  than o n ce at C ouncil meetings devoted to the internal 
m arket a n d  foreign affairs.
- T h e  co m p ro m ise reached b y  the C ouncil confirms existing 
bilateral agreem ents a n d  maintains the discretionary nature 
o f checks, notably current practice at seaports a n d  
airports, including the regular sea links betw een M e m b e r  
States. This m in im u m  co m p ro m ise is being blocked b y  o n e  
delegation, w h ich  is opposed to a  directive that represents 
n o  real progress.
- A lthough it is unable to block a  unanim ous C ouncil 
decision, the C om m issio n  cannot accept this com prom ise. In  
the event of a  decision along these lines being taken, the 
C o m m issio n  is determined to present a  further proposal to 
rem ed y  its shortcomings.
(2 ) O n  the question o f opportunities for em p lo y m en t a n d  
residence, the a d  h o c  C om m ittee asked for classification o f 
the tax situation of frontier workers, urged a  broader 
approach to right of establishment a n d  advocated recognition 
of generalized right of residence for all C o m m u n ity  
nationals.
Several proposals presented following the a d  h o c  Committee's 
recom m endations are pending before the Council:
- the proposal o n  generalized right of residence 1 ), w h ich  
h as b een  discussed several times at C ouncil level. In  
approving the first report the E uropean C ouncil took a  
political decision o f principle o n  generalized right o f 
residence for all C o m m u n ity  citizens. It w a s  to p av e the 
w a y  for a  legal decision w h ich  h as still n o t materialized.
Discussions are running into difficulties; o n e  delegation is 
opposed to a  directive being used to extend the right o f 
residence to non-active persons.
- T h e  proposal for a  directive o n  the tax treatment o f 
frontier w orkers a n d  the avoidance of double taxation. 3.) 
Progress is being hindered b y  m a n y  reservations.
1 )  C O M (79)215, C O M (80)358, C0M (80)649, C 0M (85)292 
A )  C O M (79) 7 3 7

-  T h e  proposal o n  the right o f establishment for 
engineers. 1 )
(3 ) O n  the question ot tax exem ptions the a d  h o c  C om m ittee 
noted that "administrative hassle, delays a n d  taxes levied 
o n  new spapers a n d  b o oks sent (b y  traders) to individuals ... 
should receive d u e  attention fro m  the Council" (point 13.4)
- A  proposal that seeks to introduce a n  exem ption of 2  2  E C U ,  
w h ich  corresponds to the average value of a  b o o k  has b ee n  
before the C ouncil since 1 9 8 3 . A n  exem ption o f this order 
w o u ld  h av e a  limited im pact o n  budget revenue, if only 
because of the deterrent effect of the transport elem ent.
It w o u ld , how ever, contribute towards the creation o f a  
c o m m o n  cultural area a n d  m o re  importantly d o  a w a y  w ith 
antiquated formalities w h ich  cost m o re  to administer than 
they bring in.
- Despite the Council's undertaking to act before the e n d  o f 
the year, it h as proved unable to d o  so  because m o st 
delegations are opposed to the idea, given the com m ercial 
nature o f these consignments.
(b ) Implementation o f the second report
(1 ) U n ifo rm  electoral system  a n d  the right to vote at 
E  uropean electi o n s
- Parliament has presented a  proposal for a n  electoral 
system  to the C ouncil under Article 1 3 8  o f the E E C  Treaty. 
T h e  a d  h o c  C om m ittee called for a  decision "as soon a s  
possible before the next election in 1989".
- If this objective is to b e  m et, the C ouncil m u st act 
before 1 9 8 7 . Discussions m u st therefore resum e without 
delay: otherwise the M e m b e r  States will h av e to take 
appropriate steps to ensure that all C o m m u n ity  nationals 
h a v e  the right to vote.
(2 ) Support for cinem a a n d  television coproductions. T h e  
Com m ission's proposal for a  Regulation, w h ich  aim s to help 
the E uropean industry co p e w ith increased d e m a n d  a n d  
withstand foreign competition, is to b e  considered b y  the 
Ministers for Cultural Affairs o n  2 0  D ecem b er. A t present 
tw o  delegations are opposed to it o n  principle.
1 )  C 0M  (  6 9  )  3 3 4

5
(3 ) H ealth m easures. Three proposals are currently pending 
before the Council: these seek to introduce a  health card, 
to ensure continuity of dialysis treatment for kidney 
patients m o v in g  fro m  o n e  M e m b e r  State to another, a n d  to 
develop a  toxicology p ro g ram m e. A ll three regarded a s  
important b y  the a d  h o c  C om m ittee, are still awaiting a  
C ouncil decision although the progress o f discussions gives 
reason to h o p e  that a  decision m a y  b e  taken at the next 
C ouncil m eeting o f Health Ministers.
III. I M P L E M E N T A T I O N  O F  T H E  R E P O R T S  1 3 V  T H E  C O M M I S S I O N
O n  the basis o f the tw o  reports a n d  their endorsem ent b y  the 
E uropean Council, the C o m m issio n  h as already taken the first 
steps a n d  h as produced a  priority w o rk  p ro g ra m m e  for the 
c o m i  n g  months.
(a) T h e  C o m m issio n  h as taken action o n  the reports in the 
following areas :
- general recognition o f diplom as 1 ): a  proposal based o n  
the conclusions o f the Fontainebleau E uropean C ouncil a n d  
directly inspired b y  ideas developed b y  the C om m ittee. This 
is being considered b y  Parliament under a n  expedited 
procedure a n d  the C ouncil h a s just b eg u n  to discuss it. T h e  
C o m m issio n  expects it to b e  adopted in  1 9 8 6 .
-  people living in  frontier areas 2  )  :  a  com m unication
indicating the general lines to b e  followed in  this field 
a n d  outlining a  w o rk  p ro g ra m m e  w h ich  could serve a s  a  basis 
for action b y  M e m b e r  States a n d  border authorities.
- changes to signboards at borders 3): the C o m m issio n  is 
seeking im m ediate consideration o f its proposal for a  
resolution b y  the Council.
T h e  C o m m issio n  is also involved in discussions w ith national 
postal administrations w ith a  v iew  to organizing 
co m m em o rativ e issues of stam ps w ith a  c o m m o n  design. It is 
asking individual governm ents to encourage their postal 
administrations to im plem ent the a d  h o c  Com m ittee's 
proposals.
(b ) T hese C om m issio n  initiatives fo rm  part o f a  priority 
w o rk  p ro g ra m m e based o n  the tw o  reports w h ich  identifies the 
m easures m o st likely to h a v e  a n  im pact o n  public opinion.
1) COM(85) 355
2) C0M(85 )  529
3) COM(85) 462

6
T h e  C o m m issio n  intends to im plem ent the p ro g ra m m e  before the 
e n d  o f June 1 9 6 6 . It includes:
- m easures to facilitate free m o v e m e n t of persons b y  
abolishing tax controls relating to passenger transport a n d  
simplifying formalities for removals a n d  tem porary im port o f 
vehicles. M o r e  generally, the C o m m ission intends to see to 
itthat the general b a n  o n  double taxation arising out o f 
the Treaty is observed a s  defined b y  the C ourt in  matters o f 
U A T  in case o f trade betw een M e m b e r  States. T o  this en d , it 
intends to publish a  com m unication o n  the possibilities o p en  
to individuals under C o m m u n ity  la w  a s interpreted b y  the 
C ourt of Justice in tw o  recent judgm ents.
-  introduction of the right to vote in local elections for 
all C o m m u n ity  nationals, assum ing this issue is not resolved 
b y  the Intergovernmental Conference.
- creation of a  television broadcasting area: the C o m m issio n  
will propose m easures to allow  freedom  of access to national 
television services o n  the basis o f the guidelines contained 
in the G reen  Paper o n  television without frontiers. It will 
support initiatives for a  multilingual E uropean channel, 
produced jointly b y  various E uropean television 
corporations, In  1 9 6 6  it will begin preparations for 
E uropean C in e m a  a n d  Television Y ear.
- health m easures: a s w ell a s im proving the system  for 
reimbursement of m edical expenses, the C om m issio n  intends to 
give top priority to the E uropean Council's guidelines o n  
com bating cancer through both prevention a n d  treatment. A  
proposal along these lines h as just b een  transmitted to the 
Council.
-  strengthening of the C om m unity's role in  com bating drugs 
trafficking in conjunction w ith the proposals contained in 
the W h ite Paper o n  the internal m arket a n d  the current 
discussions within the Intergovernmental Conference.
-  m easures in the field of education a n d  youth exchanges: 
the C o m m ission will take specific steps to prom ote language­
teaching, strengthen university cooperation a n d  introduce a  
E uropean dim ension into education o n  the basis of the 
guidelines adopted b y  the C ouncil o n  4  June last.
- strengthening o f the C om m unity's im ag e a n d  identity, 
notably b y  im plementing the a d  h o c  Committee's specific 
proposals regarding a  flag, a n  e m b le m  a n d  a n  anthem .

7
C O N C L U S I O N S
A  co m m itm en t o n  the part o f the C o m m u n ity  institutions to a  
People's E u ro p e will clearly n ot b e  e n o u g h  in  itself. T h e  
a d  h o c  C om m ittee is right, in  its second report, to call for 
action b y  M e m b e r  States, private bodies a n d  the C ouncil o f 
Europe.
H o w e v er, the C o m m ission intends to act a s both driving force 
a n d  catalyst to ensure consistent action.
T h e  Council, for its part, cannot escape its 
responsibilities, since it will h av e to take the m o st 
important sym bolic decisions o n  the free m o v e m e n t of persons 
a n d  the audio-visual m edia. D elays to date are harm ful to 
the C om m unity's public im ag e.
W ith  this in  m in d , the C o m m issio n  urges the E uropean C ouncil 
to provide specific guidelines for bringing w o rk  to a  swift 
conclusion a n d  ensuring that outstanding difficulties o n  the 
priority proposals are resolved b y  the C ouncil in the first 
quarter of 19Q 6.

A N N E X
A  P E O P L E 'S  E U R O P E
T h e  E uropean C ouncil thanked the a d  h o c  C om m ittee o n  a  
People's E urope for its initial report a n d  for its final 
report submitted in M ilan, both o f w hich contained n u m ero u s 
concrete measures aim ed  at involving the citizens o f E u ro p e 
m o re  determinedly in the construction of the C o m m u n ity .
W ith  regard to the latter report, the E uropean C ouncil 
approved the proposals w hich it contained. T h o se proposals 
concerned inter alia citizens rights, culture, youth, 
education a n d  sport. T h e  E uropean C ouncil instructed the 
C om m ission a n d  the M e m b e r  States, acting within their 
respective pow ers, to take the necessary im plem enting 
measures, a n d  instructed the C ouncil to report to it at its 
D e c e m b e r m eeting o n  the progress achieved,
T h e  E uropean C ouncil accepted the suggestions along the s a m e  
lines contained in the French m e m o ra n d u m  o n  a  People's 
E u ro p e a n d  em phasized in particular the sections of that 
d o cu m en t concerning y o u n g  people, culture a n d  health. I n  
this context, the European C ouncil em phasized the value o f 
launching a  European action p ro g ram m e against cancer.
W ith  regard to the m easures contained in  the initial report 
a n d  approved b y  the E uropean C ouncil in M a rc h  1 9 8 5 , the 
E uropean C ouncil expressed its concern at the delay in  
im plem enting th em  a n d  asked the Council, the M e m b e r  States 
a n d  the C om m ission, each acting within its o w n  pow ers, to 
take the necessary decisions to rem edy this situation a s  
soon a s possi ble .