Opinion of the Committee of the Regions on 'EU Citizenship'
Date: 2000-02-17
Institutions: European Committee of the Regions, Provisional data
Subjects: European citizenship, European integration, promotion of the European idea

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Official Journal of the European Communities

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Opinion of the Committee of the Regions on ‘EU Citizenship’

(2000/C 156/03)

THE COMMITTEE OF THE REGIONS,

having regard to the decision of its Bureau of 2 June 1999, under the fifth paragraph of Article 265 of
the Treaty establishing the European Community, to draw up an opinion on EU Citizenship and to
instruct Commission 7 — Education, Vocational Training, Culture, Youth, Sport and Citizens’ Rights to
prepare the opinion;

having regard to the draft opinion (CdR 226/99 rev.) adopted by Commission 7 on 3 December 1999
(rapporteur: Mr Möller D-PPE),

adopted the following opinion at its 32nd plenary session of 16 and 17 February 2000 (meeting of
17 February).

1.

Introduction

1.1. Bureau instructions in respect of the Committee’s own-initiative

opinion

1.1.1.
In its list of priorities, the COR Bureau attached a
high level of importance to the formulation of the blueprint
for citizenship of the Union. In point IV.4 of this document
(R/CdR 316/98 rev. Item 11), which deals with European
citizenship, it is pointed out that:

— The further development of Union citizenship, which
expresses a sense of belonging to the Union, is one of the
major challenges facing the EU, even more so in view of
the enlargement. Jean Monnet expressed the aspirational
view that ‘the purpose of European integration is to unite
men, not to build a coalition of governments’. This view is
still valid, and has a special meaning for the COR.

— We will take full advantage of the expertise of local and
regional authorities in the COR for the implementation on
the ground of European policies, as these authorities are
ideally placed to establish direct links with the citizens of
the European Union.

— The role of COR members as ‘ambassadors’ of the regions
and localities must be developed, both in the sense of
informing the European authorities of the needs and
priorities of people in the municipalities and regions, as
well as in explaining European policies to the local and
regional inhabitants.

— Thus it is hoped that a significant contribution to the
concept of European citizenship will be provided, a
concept which will be one of the most important live
issues which the COR will address.

— In the programme period,

the COR will pay special
attention to the development of European citizenship,
both in legal and in cultural terms.

levels? How can,

1.1.2.
The aim of this opinion is not to engage in a general
reflection on Union citizenship and the development of this
concept. The aim is rather to address the significance of Union
citizenship to the work of the COR and to the regions and
local areas. This prompts the following questions: how can
Union citizenship play its role as part of a modern civil society
in particular, the
embracing all political
vertical interconnection between union citizenship and citizen-
ship of
the regions and local areas be established and
consolidated? We take the view that people will gradually
become better aware of Union citizenship and the concept will
progressively be put into effect in an improved way as part of
the progress towards European integration, since growing
day-to-day experience with the many aspects of European
integration and the opportunities it provides will increase the
level of interest on the part of citizens. In this way a new
framework is created within which people become aware of
Union citizenship and recognise their interests (Max Weber).
At the same time, the concept of Union citizenship can and
must be promoted through the action of the bodies concerned
at EU level and the action of central governments, regions and
local authorities. Further measures to provide information in
the regions and local authorities would be particularly useful
in this context.

1.1.3.
The concept used below of citizenship at local and
regional level is equally not to be understood in a legal sense,
because here too there are significant conceptual differences
and divergent traditions between the Member States. For the
purpose of this paper, the meaning ranges from membership
of a social-territorial unit with rights of self-government up to
regional and local identity.

1.1.4.
This issue has become particularly topical in view of
the instruction given by the European Council in Cologne that
a Charter of Fundamental Rights be drawn up; the aim is to
give concrete expression to Article 6 of the Treaty on European
Union (as set out in the Treaty of Amsterdam). Point 44 of the
Presidency’s Conclusions in respect of the Cologne European
Council states that ‘the European Council takes the view that,
the
at

the present stage of development of

the Union,

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fundamental rights applicable at Union level should be consoli-
dated and thereby made more evident’. With this aim in view,
a conference is to be organised, comprising representatives of
the Member States and the European institutions; this confer-
ence is to draw up a draft document by the end of the year
2000.

1.1.5.
Attention is also drawn to the opinions adopted by
the Committee of the Regions on the principle of subsidiarity
and Union citizenship, the most recent of which is the opinion
entitled ‘Towards a new culture of subsidiarity — An appeal
by the Committee of the Regions’ (1).

2. Development of the concept of Union citizenship,

including the concept of the ‘Citizens’ Europe’

2.1. Phased formulation of the concept of Union citizenship

fact. However,

The preamble, setting out objectives,

2.1.1.
is the only
section of the Rome Treaties which links the integration
process with the development of European citizenship only
when setting out objectives in the preamble; this is not a
criticism, simply a statement of
the EEC
Treaty, by introducing the basic freedom of movement (and
establishment), sets out a key provision for subsequent estab-
lishment of Union citizenship. The limitation to persons in
gainful employment does, however, show that freedom of
movement was at that time seen above all from the standpoint
of labour mobility, i.e. as part of the socio-economic processes.
An important feature of this early stage was the opening-up of
the public service in the Member States to citizens of other
Member States, albeit subject to Article 45 of the EC Treaty;
this opening-up of the public service essentially derives from
judgements by the European Court of Justice.

2.1.2.
From the 1970s onwards the debate on Union
citizenship was intensified with the emergence of the concept
of the ‘Citizens’ Europe’. The aim at that time was to make the
impact of the Community felt in everyday life. An initial list of
‘special rights’ was drawn up at the 1974 summit conference.
This list included: a general right of residence; the right to vote
and stand for election (at least at local level); the right of access
to public offices; and the passport Union. The Tindemans
Report of 1975 added a number of
further provisions:
extension of the individual personal rights (recognition of
basic rights and freedoms and the granting to individuals of
the right to bring actions before the European Court of Justice
in the event of infringements of basic rights) and the extension
of freedom of movement (abolition of identity checks at
frontiers and recognition of the equivalence of diplomas).
The European Parliament, too, called for basic rights to be
incorporated into Community law (the right to vote and stand
for election, access to elected public office, right of assembly
and association and the general right of residence). The term
‘Union citizenship’ was used for the first time in the EP’s draft
document on the establishment of the European Union (1984).

(1) CDR 302/98 fin — OJ C 198, 14.7.1999, p. 73.

2.1.3.
The introduction of direct elections to the European
Parliament (the right to vote and the right to stand for election
to the EP became civil rights) was a further key step.

2.1.4.
The Adonnino Committee, established in 1984, set
out the following agenda: removal of frontier formalities;
mutual recognition of diplomas and examination certificates;
general right of residence, irrespective of whether or not the
person concerned is engaged in gainful employment; the
granting of the right to vote in local elections to citizens of
other Member States; standard voting provisions in respect of
elections to the European Parliament; the establishment of an
EP ombudsman and the right to petition the EP and complain
to the ombudsman; more cultural exchanges and exchanges
involving young people and sport.

2.2. Enshrinement of these rights in the Treaty of Maastricht and

the Treaty of Amsterdam

2.2.1. Many of the above provisions were incorporated into
primary European law by the Treaty of Maastricht. Provisions
on Union citizenship were set out in a separate part of the EC
Treaty, thereby making them one of the key aspects of EU
integration policy.

2.2.2.
The establishment of the Committee of the Regions
created an EU institution directly committed to the achieve-
ment of the objectives bound up with the concept of Union
citizenship.

The Treaty of Amsterdam brought further achieve-
2.2.3.
improvements in safeguarding the basic rights of
ments:
citizens of
the EU Treaty);
enhanced status for social policy and the inclusion in the
Treaty of responsibility for employment policy.

the Union (new Article 6 of

3. Observations and recommendations on Union citizen-
ship from the standpoint of the regions and local areas

The observations set out below address first of all the link
between Union citizenship and citizenship of the regions and
local areas. They then go on to address the question of how to
define the role and tasks of the COR and the measures to be
taken to promote Union partnership.

The term ‘citizenship’ is extremely multi-faceted as it can cover
all social, economic, political and cultural aspects of human
society. At the heart of ‘citizenship’ lie two principles: the
existence and sovereignty of a political unit, irrespective of the
spatial level involved; and the fact that this political unit is able
politically to integrate those who live within its boundaries. In
the course of the debate in Commission 7, attention was
drawn to the fact that citizenship takes on different forms in
the various Member States, depending on the particular —
especially historical — circumstances involved. The concept of
‘active citizenship’ is designed to counteract tendencies on the
part of the public to draw away from civic commitment.

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3.1. Link between union citizenship and citizenship of the regions

and local areas

Union citizenship is,

3.1.1.
to a very large extent, an
extension of citizenship of the regions and local areas, as is
immediately clear from: the general right of residence and the
right of inhabitants of other EU Member States to participate
in local elections. In the case of other aspects — such as the
right to petition the EP and complain to the ombudsman —
union citizenship does not have a regional or local dimension.

3.2. Citizenship of the regions and local areas

Citizenship is the factor on which the legal status of
3.2.1.
the regions and local authorities is built and which lies at the
heart of their perceived roles. The concept of citizenship
essentially comprises three dimensions:

— the social and spatial dimension: regions and local areas
are the spatial units in which people are grouped together,
through the intermediary of neighbourhoods and within
the framework of their diverse everyday lives. By virtue of
tradition, regional and local culture and joint modernis-
ation schemes, regions and local areas take on an identity
which is perceived both from within these areas and by
those outside these areas;

— the political dimension: citizenship embraces regional and
local democracy and its institutions. These institutions
have been set up on the basis of the civil right of self-
government, often only achieved after protracted conflicts
with central governments aspiring to a monopoly of
power;

— the development dimension: this dimension involves the
in particular essential

joint organisation of amenities,
public services and their modern development.

— Regional and local authorities require further information
on how the rights of Union citizens are put into effect in
other EU Member States and on the implementing
measures to be taken at regional and local level.

3.3. Triple definition of Union citizenship in terms of European

integration

3.3.1.
The historical development of the concept of Euro-
pean citizenship (see point 2.1 above) has brought about a
multi-faceted definition:

— Union citizenship can also be seen as that part of European
integration policy which embraces all EU policies having a
direct bearing on the individual citizen and which lays
down rights and duties over and above those set out in the
first indent.

— Finally, Union citizenship can involve those specific policy
areas — such as culture — which are particularly suited to
promoting close relations between the EU and the public.

3.3.2.
It is perfectly legitimate to use each of the three
abovementioned definitions of union citizenship. They are not
mutually exclusive but can act in synergy to form a powerful
instrument for promoting European integration.

3.3.3.
Union citizenship is thus a multi-dimensional all-
inclusive policy area involving approaches, objectives, and
means. The common thread is that each of these aspects relates
directly to the public.

The following policy areas, in particular, may be
3.3.4.
covered either wholly or in part, by the term ‘Union citizen-
ship’:

3.3.5. F r e e d o m o f m o v e m e n t a n d f r e e d o m o f

e s t a b l i s h m e n t :

— freedom of movement for workers;

— freedom of establishment;

— border checks;

— access to public offices and employment in the public

service to citizens of other EU Member States.

3.3.6. U n i o n

f o r
u n d e r t h e s e c o n d p a r t o f t h e E C T r e a t y :

c i t i z e n s h i p

p r o v i d e d

a s

— general right of residence;

— right to vote and stand for election in local elections and

elections to the European Parliament;

— diplomatic protection;

— right of petition to the EP and complain to the

Ombudsman;

— respect for basic rights;

— the outlawing of discrimination.

3.3.7. S p e c i f i c p o l i c i e s

r e l a t i n g t o h u m a n

— Under the second part of the EC Treaty, Union citizenship
comprises a series of civil rights (general right of residence,
right to vote and to stand for election in elections to the
European Parliament, right of citizens of other EU Member
States to vote and stand for election in local elections, right
to petition the EP and complain to the Ombudsman etc.).
This then is the Treaty definition of Union citizenship.

r e s o u r c e s :

— education policy;

— cultural policy;

— youth policy;

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— social policy;

— health policy;

— employment policy.

3.3.8.

I n f o r m a t i o n ,
p a r t i c i p a t i o n :

s u b s i d i a r i t y a n d p u b l i c

— transparency and public consent;

— Committee of the Regions;

— subsidiarity, citizenship and the attendant right to local
and self-government, seen as concepts which are sup-
plementary and mutually dependent.

3.4. The link between Union citizenship and citizenship of the

regions and local areas

3.4.1.
Union citizenship adds a European dimension to
local and regional citizenship. Union citizenship is becoming
more and more important with growing integration, both as a
result of the increasing number of members of the public
invoking Union citizenship and the additional political
measures adopted. The term ‘adds’ is intended to imply that
regional and local citizenship take precedence since localities
and regions are one of the basic forms of Community life
(definition coined by neighbourhood sociologists).

3.4.2.
It is also to be noted that the policy of solidarity
implemented by the European Union via the Structural Funds
has made it possible to widen the principle of solidarity which
is one of the elements of regional and local citizenship and to
give it a European dimension.

From a practical standpoint, measures which have a
3.4.3.
direct bearing on the inhabitants provide the link between
Union citizenship and regional/local citizenship. In the regions
and local areas such measures concern all the inhabitants
whereas, in the case of citizenship of the Union, it frequently
happens that only particular sectors of the population, who
may require a specific treatment, are concerned. Examples are
incomers from other EU countries (who benefit from pro-
visions such as those relating to the right of residence, the
in local elections and public service
right
employment) and groups within the indigenous population
wishing to relocate (freedom of movement and exchange
programmes). In some particular cases, Union citizenship may
involve the whole population (elections to the European
Parliament).

to take part

3.4.4.
An administrative link between the two forms of
citizenship arises as a result of the fact that — for example in
the case of the general right of residence — incomers from
other EU Member States address themselves to regional or
local authorities.

3.4.5.
The case of the right to participate in local elections
illustrates a particularly close link between the two forms of
citizenship. Every EU citizen living in a particular Member
State — irrespective of his or her nationality — has the right
to vote and stand as a candidate in local elections; the same
conditions apply in this respect to citizens of other Member
States as apply to citizens of the Member State in which the
local elections are held.

3.4.6.
A close link between the two forms of citizenship
may also arise for geographical reasons, particularly in the case
of inter-regional cooperation or local partnerships in border
regions. A number of examples of close interconnection
between the two forms of citizenship have already developed
in the Euregios, stimulated by the proximity of different
Member States.

3.4.7.
In addition to the technical link, there is also an
institutional link. There should therefore be no incompatibility
between Union citizenship and the institutional basis of
local/regional citizenship; it is above all essential that the right
of self-government — which is also a civil right — should not
be impaired.

3.5. The relevance of Union citizenship to the work of the COR

The Committee of

3.5.1.
the Regions, which keeps a
watching brief on the social, economic and cultural issues of
concern to the public — in regions and local areas ‘is well
placed to contribute to the concept of Union citizenship’. The
COR is in a position to build awareness of the legal, political
and technical interconnection between Union citizenship and
regional/local citizenship. The COR is thus able to act as an
intermediary between the EU authorities and the regional and
local authorities in the field of Union citizenship (in both the
narrow and the broad meaning of the term). This role can and
should be further expanded.

3.5.2.

The main institutional aspects of this role include:

— an analysis of the legal and political interconnection and
the administrative intermeshing of Union and regional/lo-
cal citizenship;

— attention should be paid in this context to compliance
with the principles of self-government and subsidiarity;

— Union citizenship as an important strategy for developing

a sense of belonging to the EU.

3.5.3.

The main policy aspects of this role include:

— fleshing out Union citizenship;

— public information campaigns;

— using the expertise of regional and local authorities,
deriving from their closeness to the people, to improve EU
policies.

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3.5.4.
order to enable the COR to fulfil this role:

A number of essential tasks have to be carried out in

— identification of the elements of the above-mentioned
policies which are relevant
to Union citizenship and
determination of their regional and local implications. As
far as is known, no assessments have so far been made of
the regional and local implications of Union citizenship
(in all of
this term). Such
assessments are required in order to provide an overview
of the full scope of Union citizenship and the various
implications as regards integration policy;

the various definitions of

— the link between Union and regional/local citizenship
needs to be taken into account to a greater extent in COR
opinions. The COR should demonstrate both the fact that
and the way in which Union citizenship and citizenship of
the regions and local areas are mutually dependent and
complement each other as regards their political and
democratic raison d’être and in material implementation.

3.5.5.
The COR can also help to launch an EU-wide debate
on how to revive a sense of civic commitment. Experiments
are being made with a number of instruments (such as young
people’s parliaments set up at local level, adult education and
the use of the information society) with a view to strengthening
the concepts of citizenship and regional and local democracy.

3.6. The special importance of informing the public

3.6.1.
By definition, Union citizenship can not have the
same direct impact on everyday life as regional/local citizen-
ship. European values, rights, duties and integration objectives
need to be imparted through the provision of information.

3.6.2.
A survey of the information on integration already
available to the EU public clearly indicates that what is required
at present is probably not so much new measures but rather
improvements in the way in which information is passed on
and action taken. There is no point in considering further
measures to extend Union citizenship if the EU public has not
been informed about the rights and assistance which already
exist.

3.6.4. When information is being provided, however, we
must avoid giving the impression that Union citizenship does
not go beyond the provisions of the second part of the EC
Treaty. There is a need, instead, to provide information on all
areas which have a direct impact on the EU public.

In view of the links between Union and regional/local
3.6.5.
citizenship, regional and local bodies are key contact points
for the provision of information. As these bodies implement a
large number of provisions relating to Union citizenship (right
of residence, right to participate in local elections and cross-
border assistance)
it is to them that the public turns for
information in a large number of fields.

3.6.6.
Regional and local authorities require further infor-
mation on how the rights of Union citizens are put into effect
in other EU Member States and on the implementing measures
to be taken at regional and local level.

3.6.7.
The Symbiosis Network was set up in the early
nineties at the instigation of DG X. After achieving good initial
results, the network was discontinued. This network essentially
made available handbooks and electronic media which enabled
the public to seek advice on all individual aspects of Union
citizenship. This network was very useful for both the persons
seeking information and the staff of regional and local
authorities. This approach should be taken up again and, at
the same time, the extent to which the Internet could provide
new access facilities should be examined.

3.6.8.
Consideration should be given to reviving this instru-
ment, which could now be operated much more effectively
using the technical possibilities offered by the internet. The
EU’s ‘Europe Direct’ programme is already providing a con-
siderable amount of information, including a direct advisory
service, operated via a call-centre. The EU has been very active
in promoting the goals of
‘closeness to the people’ and
transparency as part of the information society. These infor-
mation services do, however, still need to become part and
parcel of the spheres in which people live and work, i.e. they
need to be made available also in regional and local govern-
ment offices, in schools, libraries and adult education establish-
ments.

3.7. The importance of exchange programmes

3.6.3.
The COR is in a position to operate as an intermedi-
ary on behalf of the EU public. There are a number of reasons
why the COR can carry out this role effectively; one such
reason is that members of the COR are backed up by a network
of associations representing, at both national and EU level, all
the various regions and local areas. It is vital that the potential
of the regions and local areas to serve as a conduit for
information is not disregarded. Indeed, appropriate strategies
should be adopted for promoting this potential.

3.7.1.
Union citizenship gains in importance the more
members of the public (be they young people, school children,
students or people in gainful employment) stay for periods of
time in other Member States. Educational, youth and cultural
programmes are consequently highly important in the context
of Union citizenship. The COR should put forward proposals
on linking relevant EU programmes more closely with the
aims and principles of Union citizenship.

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3.7.2.
In this context, there is a need to examine how
important regional and local partnerships are to European
citizenship. These partnerships constitute the densest networks
in Europe which directly involve the public. They do much to
promote a cross-border mindset.

3.7.3.
It is essential to introduce support machinery for
regions and local areas in the accession states, in order to
enable European movement similar to that existing in the
original Member States.

The Committee of the Regions should drawn up an
3.7.4.
opinion on the role of EU culture and education policy with
respect to Union and local/regional citizenship.

3.7.5.
In view of the considerable importance of regional
and local authorities in fostering partnership in the EU, it is
proposed that a programme of study grants be introduced for
the members of their staff responsible for issues such as voting
rights in local elections, right of residence and advisory
services. By making provision for young administrative officials
to visit partner authorities to observe their working practices,
a network of direct links could be established which would
promote mutual understanding and the dissemination of best
practice.

4. Conclusions

Union citizenship constitutes both a means and an end
4.1.
for EU integration policy. This citizenship is a goal since
European integration can only be sustained if the public in the
Member States perceive and support it as a matter of common
concern. From this point of view, Union citizenship gives
legitimacy to EU integration policy. Union citizenship is
likewise an instrument of EU integration policy since it entails
rights, support measures and networks in a wide variety of
fields which serve to promote public identification with the
EU.

Brussels, 17 February 2000.

Union citizenship adds a cross-border element

4.2.
to
regional/local citizenship. This benefits nationals of a given
Member State who wish to avail themselves temporarily or
permanently of rights attendant upon Union citizenship in
connection with particular circumstances in their lives. It also
benefits EU citizens migrating to a given Member State from
other parts of the Community or third countries. There are
links between Union citizenship and regional/local
direct
citizenship when it comes to putting Union citizenship into
effect (which also presupposes that people are aware of the
rights involved); an example which particularly springs to
mind is that of the right of citizens from other Member States
to vote in local elections. There is however also a need and
scope for local action with respect to right of residence and
other measures having a bearing on Union citizenship.

Union citizenship therefore cannot and should not be
4.3.
assessed and developed in isolation from citizenship of the
other territorial units. The success of Union citizenship
depends to a large extent on how it can be incorporated into
existing citizenship and democratic structures and on the
measures adopted by regional and local authorities.

4.4.
The future draft legislation in policy areas which have
an important bearing on Union citizenship should take
account of the need for devolution in the Union. In order to
underline this principle, an appropriate article should be added
to the second part of the EC Treaty, along the lines of the one
on the environment.

4.5.
The COR should make it clear that subsidiarity,
citizenship and regional and local self-government are effective
instruments for policy on Union citizenship. The right to
regional and local self-government should be included in the
forthcoming charter of fundamental values and freedoms. In
this connection, the Committee of the Regions would recall its
desire to declare a ‘European Year of regional and local self-
government’,
in order to highlight the particular role of
regional and local self-government for EU citizenship.

The President

of the Committee of the Regions

Jos CHABERT