30.12.93 OfficialJournaloftheEuropeanCommunities NoC352/63
OpiniononmoredemocracyforEuropeanditsinstitutions;betterinformationforcitizens
andsocio-economic operators;roleoftheEuropeanParliament'sOmbudsman
(93/C352/15)
On25March1993theEconomicandSocialCommittee,actingunderthefourthparagraph
ofArticle20ofitsRulesofProcedure,decidedtodrawupanOpiniononmoredemocracy
forEuropeanditsinstitutions;betterinformationforcitizensandsocio-economic operators;
roleoftheEuropeanParliament'sOmbudsman .
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon30September1993.
TheRapporteurwasMrFlumandtheCo-Rapporteur MrMatteoli.
Atits309thPlenarySession(meetingof21October1993)theEconomicandSocialCommittee
adoptedthefollowingOpinionbyamajoritywithtwoabstentions .
1.Theobjective:A'Citizens'Europe'
1.1.TheOmbudsman inthecontextofa'Citizens'
Europe'legislationandinpractice.InthepresentCommunity
structure,thisrightexistsonlyinpart.Itistherefore
essentialtosetstandardsandestablishcorresponding
practiceinthisarea.
Therightofappeal—whichisatpresentlimitedto
thepossibilityofappealtotheEuropeanCourtof
Justice—mustbereinforcedbyallowingtheordinary
citizentoexercisehisorherrightswithrespecttothe
variousCommunityinstitutions .1.1.1.TheappointmentofanOmbudsmanunder
Article138eofthenewECTreatyisanimportantstep
ontheroadtowardsaCitizens'Europeandshouldbe
seenandwelcomedassuch.
2.Thedemocratization oftheCommunityinstitutions1.2.Freemovementofpersons
1.2.1.Ageneralpre-conditionforaCitizens'Europe
isthefreemovementofpersonswithintheCommunity .
Eachandeverycitizenshouldbeabletomovefreely
andlegallybetweenMemberStates,becomeestablished
inanyMemberStateandresideinanyMemberState,
onthebasisofequalopportunities ,themutualrecog­
nitionofdiplomasandotherevidenceofformalqualifi­
cations,aswellasequaltreatmentinrespectofsocial
securitycover,welfareandtraining.Thiswouldprovide
specialprotectionforcitizenswhatevertheirsituation.2.1.ThecreationofaCitizens'Europealsomakes
democratization atEuropeanlevelabsolutelynecessary.
ThecanvassingofordinarycitizensinthevariousMem­
berStates,aswellasthereferendainDenmarkand
France,indicatethatEuropeneedssuchaprocess.
2.2.Justasmoreandmoreinformationisnowcon­
centratedinthehandsofECinstitutions,soconcrete
measuresareincreasinglyneededtoputanendtothis
one-sidedsituation.CitizensoutsidetheECinstitutions
stillhaveonlyverylimitedopportunitiesofformingan
independent,unvarnishedpictureofwhatishappening
andtheirinterestsarediametricallyopposedtothe
Commission'splanstoregulateitssecrecyobligations
byclassifyingdocumentsasconfidential,secretortop
secret.Ifimplemented ,theseplanswillwidenthegulf
betweenthebodyofinformationinthehandsofEC
institutionsandthepossibilitiesavailabletoordinary
citizensforaccessingsuchinformation .1.3.Basiccivilandhumanrights
1.3.1.ACitizens'Europeisnotconfinedtofreedom
ofmovement,butisalsohallmarkedbythebasiccivil
andhumanrightsenshrinedinEuropeanconstitutions
andintheEuropeanConventionontheprotectionof
humanrightsandbasicliberties.Attheheartofthese
liesrespectforhumandignityandtheinviolabilityof
theindividualperson.Suchrightscanonlyflourishin
ademocracywhereindividualrightsareprotected.
Fundamentalindividualrightsalsoincludefreedomof
expressionandfreedomofinformation .
1.3.2.Therighttoinformation ,transparency ,con­
trolandparticipation inthedecision-making processis
oneofthepillarsofdemocraticactivity.Itmustthere­
forebeexplicitlyguaranteedinthebodyofCommunity2.3.ECdecision-making proceduresarealsosome­
timesimpenetrableforoutsiders,whohavegreatdiffi­
cultyincomprehending thepowersofECinstitutions
andappreciatingthescopeofthedecisionstheytake.
2.3.1.Thegeneralpublicisrarelyinformedbefore
proposalsaresubmitted.Thescopeofaproposal(ifit

NoC352/64 OfficialJournaloftheEuropeanCommunities 30.12.93
isadopted)anditsconsequences arerarely,ifever,
explainedbythemassmedia.TheCommissionshould
beaskedtoinformEuropeancitizensdirectlyaboutits
activitiesandtheimplicationsofitsdecisions,before
andaftertheycomeintoeffect,viaradio,television
andothermedia.
2.3.2.TheCouncilofMinistersremainsthemajor
Communitydecision-making bodyundertheMaas­
trichtTreaty.Yetthisisundoubtedlywheretherehas
beenthegreatestlackofinformationandtransparency .
TheCouncilwillhavetomakegreatereffortstoensure
thatitsdecisionsaremoretransparentandmoreclearly
justifiedtotheotherECinstitutionsandthesocio­
economicoperators.
2.3.2.1.Anotherreasonforthelackofinterestand
alienationwithregardtotheEuropeanventureisthe
failureofsomenationalgovernmentstoexplainor
justifytheirstancesonEuropeanissuestotheirparlia­
mentsortheircitizens.
Ashasbeenhighlightedinvariousanalysesofreferenda
andpublicopinionpollsonthebuildingofEurope,it
wasatnationallevelthatacertainmistrustandresist­
ancetoEuropeanintegrationfirsttookhold.3.Immediatemeasures
3.1.ThepostofOmbudsman ,asdescribedinArticle
138eofthenewECTreaty,mustbefilledwithalldue
speedsothattheappointeecanbeginworkassoonas
possible.
—Article138eofthenewECTreatystipulatesthat
thetaskoftheOmbudsman shallbetoreceive
complaintsfromanycitizenoftheUnion,orany
naturalorlegalpersonresidingorhavingitsregis­
teredofficeinaMemberState,concerninginstances
ofmaladministration intheactivitiesoftheCom­
munityinstitutionsorbodies.
—ThedutiesoftheOmbudsman shallalsoinclude
theconductingofinquiries.
—WheretheOmbudsman establishesaninstanceof
maladministration ,heshallreferthemattertothe
institutionconcerned,whichshallhaveamaximum
ofthreemonthsinwhichtoinformhimofitsviews.
—TheOmbudsmanshallthenforwardareporttothe
EuropeanParliamentandtheinstitutionconcerned,
andthepersonlodgingthecomplaintshallbeinfor­
medoftheoutcomeofsuchinquiries.
3.2.ItisimportanttorememberthattheOmbuds­
manshallbe'completelyindependent'intheperform­
anceofhisduties.Intheperformanceoftheseduties
'heshallneitherseeknortakeinstructionsfromany
body'.Thisshouldbespeltoutclearly.
3.3..Article138ealsomentionstheneedtolaydown
theregulationsandgeneralconditionsgoverningthe
performanceoftheOmbudsman'sduties.
3.4.Theprofileandtermsofreferenceofthe
Ombudsman needtobeclarified.
3.4.1.TheOmbudsmanshallbecompletelyindepen­
dentintheperformanceofhisduties.
3.4.2.TheOmbudsmanshallbearpersonalresponsi­
bilityforhiswork.Thisresponsibility shallnotbe
transferable .
3.4.3.TheOmbudsmanshouldbeaneminentperson
withadistinguishedprofile.
3.4.4.TheOmbudsmanshouldhavetherightto
proposethattheappropriateinstitutionscarryout
reforms.
3.4.5.TheOmbudsmanmustalsobegivenaccessto
confidentialinformation .
3.5.TheOmbudsmanmusthavetherighttoask
follow-upquestionsshouldtheinformationhereceives
bedeemedunsatisfactory .
3.6.TheinformationgiventotheOmbudsmanmust
besubstantiated .Inthisconnectionitisimportant
thatthepersonlodgingthecomplaintisprovidedwith
informationwhichnotonlytellshimwhetherheis2.4.Resignation,feelingsofimpotence,prejudices
andmisunderstandings ariseamongordinarycitizens
whenthedecision-making processisregardedasimpen­
etrable,whilstrealdifferencesofopiniononEuropean
integrationingeneral,oronspecificareasinparticular,
eitherpassunnoticedorarenotimmediatelyapparent
becauseofthenuancesinherentinforeignlanguages.
Whenlaymenareunabletoobtainageneralpictureof
Europeandecision-making processesandcannotident­
ifywithEuropeasordinarycitizens,thenthefeelingof
politicalremotenesswhichisalreadyendemicat
nationallevelisreinforcedatawiderEuropeanlevel.
ThisexplainsthefailureofEuropeanstoidentifymore
widelywithEurope—asituationwhichinthefinal
analysisisatoddswiththeclaimsofdemocracy .
2.5.TogeneratetrustinECinstitutionspresupposes
thatEuropeancitizensarefamiliarwiththeseinsti­
tutionsandwiththedecision-making processesatwork
intheEuropeanCommunity (includingcontroversial
issuesandspecificnationalinterests).Theyneedinfor­
mationaboutthewholeprocess,fromthedraftingstage
rightthroughtothedecision-making stageandthe
follow-up.SuchtrusthoweverisinconceivableifEuro­
peancitizensremainunconvincedthattheycanreally
influenceandbringaboutchangesinsuchdecision­
makingprocesses.

30.12.93 OfficialjournaloftheEuropeanCommunities NoC352/65
ties.AnidealmodelforEuropeancitizens'rightof
accesstoinformationmightbetheDutch'Openbaarhe­
idvanBestuur'(Lawonadministrative transparency).rightorwrongbutalsogivesthereasonsforthe
decision.Itisalsoimportantforthepersonlodging
thecomplainttolearnhowtheallegedinstanceof
maladministration cameabout.
4.2.Informationforsocio-economic operators3.7.TheOmbudsmanrequiresadequatestaffback­
up;staffinglevelsandqualificationsmustthereforebe
commensurate withthetaskstheOmbudsman isasked
toperform.Thisshouldbespeltoutclearly.
4.2.1.Aparticularlygoodopportunityrapidlyand
effectivelytosatisfytheneedforinformationaboutEC
institutionsandtheirdecision-making processeswould
betoinvolvesocio-economic operatorsascatalystsof
widesegmentsofsociety,providingthemwithmore
opportunitiesthanbeforeforobtainingandpassingon
informationabouttheEC.Indoingso,consideration
shouldbegivento:3.8.SupportfortheOmbudsman isofparamount
importance .Theinstitutionstobequestionedmustnot
onlyberequiredtoprovidefactuallycorrectdata;they
mustalsobeexpectedtoshowwillingnesstocooperate.
3.9.ThelocationoftheOmbudsmanmustbeclearly
establishedintheinterestsofordinarycitizens.The
differenttypesandlevelsofproceduresmustbesetout
simplyandclearlyandeveryeffortmustbemadeto
ensurethatallcitizenshavestraightforward ,rapid
accesstohisservices.a)wideningtherangeofECinformationsystemsavail­
abletosocio-economic operatorsbycomputerizing
notonlyofficialEClegislativeinstruments ,butalso
thesubmissions andviewsofthesocio-economic
operatorsonsuchdocuments;
4.Furthernecessarymeasures
b)extendingthescopeofECinformationsystemsby
includinginformationonprogressintransposing
EClegislationintonationallaws; 4.1.Introductionofopennessasastructuralreform
c)expandingdocumentation systemsontopicsrelat­
ingtoECinstruments ,wheretheconsultationpro­
cedurehasnotbeencompleted,byincludingMem­
berStatedocumentssettingoutthepositionsof
nationalgovernments ,parliamentsandsocio-econ­
omicoperators;
d)securingqualitativeimprovements intheaccessof
socio-economic operatorstoECinformationsys­
temsbyconcentrating moreontheirspecificinfor­
mationneedsandexpectations .Anintensivescien­
tificinvestigationshouldthereforebecarriedout
intothesespecificECinformationneedsandthe
informationshould,whereappropriate,beproces­
sedbyCommissiondepartments .Aninvestigation
shouldbecarriedoutintothesupplyofinformation ;4.1.1.WhiletheappointmentofanOmbudsman is
astepintherightdirection,itmustnotbeallowedto
remainanisolatedpoliticalinstitution .Itmustgohand
inhandwithotherdemocraticstructuralreformsof
EuropeanCommunityinstitutions .
4.1.2.ExperienceswithbothOmbudsmenforFore­
ignersandData-Protection Commissioners showthat,
evenallowingfordifferencesinthelevelsofeffective­
nessofthetwoinstitutions,theycannotsuccessfully
monitorcompliancewithlegalprovisionsand,ifnecess­
ary,enforcechangesiftheyactsolelyasexternalmoni­
toringagents.Realcontroloveradministrative and
workingpracticescannotbeachievedonsuchaper­
sonalizedbasis.Inthebestofcases,allsuchOmbuds­
mencandoisexposeinstancesofmaladministration .'
4.1.3.Theproblemoftheimpenetrability ofEC
workingmethodsanddecision-making processescan­
notbesolvedinthisway.Complaintsprocedureschan­
nelledthroughanOmbudsmanaretoonarrowtobe
aneffectiveinstrumentofcontrolsincehisworkis
limitedtodealingwithconcreteinstancesofmaladmin­
istration.
4.1.4.Opennessshouldexistnotonlyunderexcep­
tional,butalsoundernormalcircumstances .
4.1.5.WhatisneededisEC-wideaccesstoinfor­
mationpossessedbyCommunityandnationalauthori­e)publicizingavailabledatabanksmoreand
developingnewdatabanks,structuringthemby
sector.
4.3.Forabetter,citizen-friendly informationpolicy
Everycitizen—maleandfemale—hasthesamerights
ineverycountry.

NoC352/66 OfficialJournaloftheEuropeanCommunities 30.12.93
EuropebecausecitizensidentifytheEuropeanCom­
munityalmostexclusivelywithnegativeheadlinesand
badnews(e.g.destructionoffood,theCommunity's
inabilitytohelpendthewarinex-Yugoslavia ,etc.).
ToolittleissaidabouttheEuropeanCommunity's
positiveachievements .
4.3.8.Animprovedinformationpolicyisareflection
oftherecognitionofEurope'scitizens,whichmeans
tailoringinformationtothelegitimateneedsofordinary
people.
4.4.StrengtheningoftheEuropeanParliament:
thedemocratization ofEurope4.3.1.Theproblemisnottheproductionoftoolittle
informationintheEC,butthewealthofinformation
producedandhowitisdisseminatedandwritten.Much
oftheinformationfromtheEuropeanCommunity ,or
abouttheEuropeanCommunity ,failstogetacrossto
Europe'scitizens.Thisdoesnothelptostimulatetheir
interestinEurope.Quitetheopposite.
4.3.2.TherelevantECbodiesandinstitutionsand
theirnationalcounterpartsmusthelptoeliminatethis
deficiency.Whatisneededisbettercoordinationofthe
dissemination ofinformationfromdifferentsources.
4.3.3.Thewholequestionofinformationandcom­
municationintheEuropeanCommunitywasrecently
consideredindetailbyagroupofexpertschairedby
MrWillydeClerq.Thisreporthighlightedmajorand
widespreaddeficienciesinthisareaandrecommended
thataneffectiveinformationandcommunication policy
shouldbeintroducedfromthehighestlevelinthe
Communitydownwards .TheCommitteebelievesthat
therecommendation containedinthisreportshallbe
givenpositiveconsideration bytheCommissionasa
matterofurgency.
4.3.4.Euro-desksareoneexampleofhowto
improvetheprovisionofinformation .Subjecttoa
properreviewoftheirorganizationandfunctions,a
placewouldhavetobefoundforthesedesksonthe
premisesof,say,localauthoritybodies,employment
centres,socialsecurityoffices,consumerassociations
andorganizationsrepresentingdifferentsectionsof
society(employers,unions,churches,etc.).Theywould
alsohavetobequicklyandeasilyaccessible.
4.3.5.Theinformationwouldhavetocitizen-friend­
ly.Thismeansthatitmust:
—beobjective,
—beclearlywritten,
—provideasimplepictureofthecontext,
—beofpracticaluse,
—beeasytoaccess.
(Oneexample:theuncomplicated rulesonaCom­
munity-widehealthpass/internationalcertificateof
sicknesscover).Inadditiontoinformationfromthe
EC,independentinformationnetworksshouldalsobe
availableinordertomakeiteasierforEuropeancitizens
toformjudgements .Achievementofthisgoalwouldbe
facilitatedbyprovidinginformationaboutinformation .
4.3.6.Animprovedinformationpolicyisnotsuf­
ficientinitselftostimulatethecitizen'sinterestin
Europeanaffairs.Itisalsovitalforschoolsandthe
educationsystemingeneraltopromoteanawareness
ofEurope.
4.3.7.Animprovedinformationpolicyisimportant
forthedevelopmentofasocially-conscious butfree4.4.1.Thesocio-economic operatorsintheTwelve
willneedtobemoreactivelyinvolvedifthedemo­
cratizationprocessinEuropeistobestrengthened .It
ispreciselytheroleofaninstitutionsuchastheEcon­
omicandSocialCommitteetofacilitatethepartici­
pationofeconomicandsocialinterestgroupingsinthe
nationalandEuropeandecision-making process.The
ESChasalongexperienceofdemocraticdialogue,
whichisaspiredtobyagrowingnumberofEastern
Europeancountrieswhoarediscoveringthatpolitical,
economic,socialandculturaldevelopment isvitalized,
acceleratedandkeptinbalancebygenuinedemocratic
practices.
Howeversensibleandusefultheproposalstobringus
nearertoaCitizens'Europemaybeinthemselves,they
willremainpiecemealorperhapsfadeintooblivion
unlesstheEuropeanParliamentisstrengthened .The
Parliamenthasnoneofthosevitalpowersnormally
associatedwithademocratic,constitutional State:it
doesnothavegenerallegislativepowers,nordoesit
havetotalcontrolofthebudgetorthepowertoappoint
theExecutive.Thissituationhasinnowaybeen
changedbythenewECTreaty,eventhoughthelatter
hasgivenParliamentnewconsultativerightsand
powersofveto.
Inviewoftheabove,theCommitteebelievesthatin
1994,bymeansofamassiveelectoralturn-out,the
citizensofEuropewillnotonlydeclaretheirsupport
fortheEuropeanIdeabutalsounderlinethepolitical
significanceoftheEuropeanParliament.
4.4.2.TheproblemofEClegitimacywillonlybe
solvediftherearechangesintheroleoftheCouncilof
Ministersaslegislativeauthority.Whatisneededisa
clear,democraticseparationofpowers.Furthermore ,
themuch-vaunted conceptof'nearnesstothecitizen'
willremainemptyrhetoricifallitmeansisanOmbuds­
manandtherighttopetition,butwithouttherightto
effectivepoliticalinvolvementotherthanelectionof
theEuropeanParliamentbyuniversalsuffrage.
4.4.3.SomeMemberStateshaveinstitutionsalong
thelinesoftheEconomicandSocialCommittee .The

30.12.93 OfficialJournaloftheEuropeanCommunities NoC352/67
experiencegainedintheseinstitutionsshouldbeanaly­
zedandusedtoboosttheinvolvementofsocio-econ­
omicinterestgroupsintheEuropeanintegrationpro­cess.Thisexperiencemightalsobeusefulandnecessary
forfurtherdemocraticdevelopment ,interaliainEast­
ernEurope.
DoneatBrussels,21October1993.
TheChairman
oftheEconomicandSocialCommittee
SusanneTIEMANN
OpinionontheLomeIVConvention—Mid-termreview
93/C352/16)
On30June1993theEconomicandSocialCommitteedecided,inaccordancewiththefourth
paragraphofArticle20ofitsRulesofProcedure,todrawupanOpiniononLomeIV
Convention—Mid-termreview.
TheSectionforExternalRelations,TradeandDevelopmentPolicy,whichwasresponsible
forpreparingtheCommittee'sworkonthissubject,adopteditsOpinionon1October1993.
TheRapporteurwasMrStrauss.
Atits309thPlenarySession(meetingof21October1993),theEconomicandSocialCommittee
adoptedthefollowingOpinionwithnovotesagainstandthreeabstentions .
1.SummaryofRecommendations 1.5.Togivedecentralizedcooperationafillip,pro­
moteenterprisedevelopmentandencouragesocialand
economicgroupingstheConventionshould
1.1.TherealvalueoftheCommunity'sfinancial
assistanceshouldbemaintainedforthedurationofthe
secondhalfoftheConvention'stenyearperiod(para.
2.8).—earmarkfundsforenterprisedevelopment ,witha
significantproportionbeingsetasideforSMEs
(para.8.3),
—provideassistancetocommercialbanksandsaving
institutionsintheinformalsectortoencouragethem
topromoteenterprisedevelopment (paras.8.6and
8.7),1.2.ItshouldbecomepossibleundertheConvention
toreduceorsuspendaidactivitiesintheeventof
—sustainedgovernmentbreachesofhumanrights
(para.4.2);
—floutingoffreeelectionresultsortopplingfreely
electedgovernmentsbyforce(para.4.3).
—statethatgovernmentsshouldconsulttherelevant
socio-economic interestgroupsbeforeNational
IndicativePlansareagreed;andallowthemtoplay
akeyadvisoryroleinsectoraldevelopmentpro­
grammes(para.4.5),1.3.Itshouldalsobepossibletoenhanceaidin
responsetoprogressindemocratization (para.4.3).
1.4.Reducedcooperationactivitieswithgovern­
mentsshouldwheneverpossiblebeoffsetbymore
aidtonon-governmental organizations andinformal
networks(para.4.4).—providefinanceonadegressivescaleforforming
andraisingtheoperatingefficiencyofindependent
socio-economic interestgroups(para.4.5),