Strategic Objectives 2005 – 2009 -  Europe 2010: A Partnership for European Renewal Prosperity, Solidarity and Security - Communication from the President in agreement with Vice-President Wallström
Date: 2005-01-26
Institutions: European Commission
Subjects: European Commission, European security, area of freedom, security and justice, common security and defence policy, economic and social cohesion, enlargement of the Union, euro area

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 26.1.2005 
COM(2005) 12 final 

STRATEGIC OBJECTIVES 2005 – 2009 

Europe 2010: A Partnership for European Renewal 

Prosperity, Solidarity and Security 

Communication from the President  
in agreement with Vice-President Wallström 

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EUROPE 2010: A PARTNERSHIP FOR EUROPEAN RENEWAL  

Over the last few years, the European Union has made huge strides forward:  

•  the biggest enlargement ever, largely uniting our continent into a Europe of freedom 

•  the introduction of the Euro, consolidating a zone of financial stability 

•  the  signing  of  the  Constitution,  modernising  the  rules  of  an  enlarged  Union  resting 

uniquely on the dual legitimacy of its Member States and citizens  

•  progressing towards a common area of Justice and Security across Europe 

•  building up the first stages of a European Defence Policy  

Politically,  Europe  has  confounded  its  critics  and  shown  its  capacity  to  move  forward. 
Enlargement of our membership has enlarged the Union’s potential and added to the richness 
of our diversity: this is a source of strength, not weakness for the future. More generally, the 
development  of  the  Union  in  varying  spheres  of  action  means  that  for  citizens  in  all  our 
Member States decisions taken at European level will assume greater reach, although too few 
are aware of the scale of what Europe has achieved or the extent of its impact on their lives.  

On the other hand, significant sections of the European public are not convinced that Europe 
is  on  the  right  track.  At  European  level  we  can  only  be  effective  if  we  are  prepared  to 
recognise these concerns. Although the picture varies considerably between Member States, 
feelings of indifference to the European idea are widespread. Less than one out of two citizens 
voted in the last European elections. The reasons for this reduced confidence are complex and 
include sluggish economic growth, heightened feelings of economic and personal insecurity, 
fears of loss of identity and a more general feeling of “disconnect” between what happens in 
“Brussels”  and  in  people’s  everyday  lives.  There  is  an  urgent  need  to  demonstrate  more 
clearly the value of what the Union brings and the legitimacy of its decisions.  

Europe is therefore at a crossroad. The Union has to convey to Europeans a new sense that we 
understand the challenges of the future and that we have credible strategies in place to address 
them.  Europe  can  regain  trust  if  its  leadership  sets  out  a  clear  and  compelling  vision  of  the 
direction  in  which  the  Union  should  be  heading  in  the  second  half  of  the  decade,  and 
demonstrates it has the policies and commitments to match this vision. 

The  priority  should  be  to  bring  to  fruition  the  grand  projects  that  have  been  launched.  The 
mission of all institutions should be to take the Europe we have and make it work.  

What should be the aims for the next five years?  

•  To put Europe back on the path to long-term prosperity. The re-invigorated and refocused 
Lisbon Agenda will put Europe back on that track, with the target for new and better jobs 
being  met  through  higher  growth.  The  twin  foundations  for  a  more  competitive  and 
dynamic Europe are economic and social reforms and a thriving knowledge economy. We 
will  contribute  to  the  knowledge  economy  through  the  establishment  of  a  European 
education area and the European research area. A sound macroeconomic environment and 

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a stable currency will reinforce growth conditions and will make it financially sustainable 
in the medium and long term.  

•  To sustain and reinforce Europe’s commitment to solidarity and social justice in order to 
strengthen the cohesion of the enlarged Union as a new economic dynamism gathers pace. 
To achieve a real narrowing in economic disparities. To enable the poorest regions to catch 
up.  To  open  up  fresh  economic  opportunities  in  all  parts  of  the  Union  where,  under 
pressure from the inevitable forces of globalisation and more intense competition, jobs are 
being perceived as under threat. To have made further advances in the promotion of equal 
rights.  The  Union  will  contribute  to  the  solidarity  among  generations  by  meeting  its 
international commitments to combat climate change, reducing pollution and safeguarding 
future energy supply. 

•  To bring tangible practical benefits to the quality of life for European citizens through new 
measures  to  strengthen  their  security  which  can  only  be  achieved  by  acting  together  at 
European level to better manage and reduce risks in their daily life. For the Union to bring 
a  new  successful  dimension  to  tough  action  against  the  evils  of  terrorism,  drugs,  people 
trafficking  and  organised  crime.  To  enable  also  citizens  to  enjoy  proper  access  to  justice 
and fundamental rights throughout the Union. 

•  To give the Union a stronger voice in the world, with the proposed new Foreign Minister, 
assisted  by  a  European  External  Action  Service,  representing  the  Union’s  foreign  policy 
externally  and  bringing  greater  coherence  to  all  our  actions.  To  actively  prepare  future 
enlargements  and  bring  the  other  Western  Balkans  closer  to  membership.  To  establish 
effective partnerships with the circle of neighbouring countries that surrounds the Union. 
To  guarantee  an  extended  zone  of  stability  and  democratic  progress  beyond  the  Union 
itself.  To  play  a  key  role  in  first  securing  and  then  implementing  a  Middle  East  Peace 
settlement,  key  to  progress  in  the  wider  Middle  East.  To  implement  a  progressive  trade 
policy beyond a hopefully successful Doha Development Round. More widely, to live up 
to  our  commitment  to  meet  the  Millennium  Development  Goals,  notably  in  Africa,  and 
make  the  Union  a  leading  global  partner  for  global  justice,  sustainable  development, 
growth and prosperity. 

How will Europe meet these expectations by 2010?  

To be effective, the European Union needs to be clear about its political priorities. 

The  most  urgent  issue  facing  Europe  today  is  clear:  growth  and  jobs.  Strong  economic 
performance  and  dynamic  growth  were  the  cornerstone  on  which  the  European  model  of 
social  solidarity  and  sustainability  was  originally  built.  The  top  priority  today  is  to  restore 
sustainable  dynamic  growth  in  Europe  in  accordance  with  the  Lisbon  strategy.  Renewed 
growth is vital to prosperity, can bring back full employment and is the foundation of social 
justice and opportunity for all. It is also vital to Europe’s position in the world and Europe’s 
ability to mobilise the resources to tackle many different global challenges. 

Making growth and jobs the immediate top priority obviously does not mean devaluing other 
objectives.  Growth  is  essential  to  sustain  these  objectives:  one  only  needs  to  think  of  how 
otherwise  our  ageing  society  threatens  the  long  term  sustainability  of  our  social  model. 
Improving  competitiveness  and  re-invigorating  growth  are  means  to  an  end,  not  an  end  in 

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themselves: growth in itself will not guarantee social solidarity or sustainability. That is why 
solidarity and security must and will remain central European objectives alongside prosperity.  

Equally we should make policy choices that ensure that our various objectives are mutually 
reinforcing. Actions that promote competitiveness, growth and jobs, as well as economic and 
social  cohesion  and  a  healthy  environment  reinforce  each  other.  These  are  all  essential 
components  of  the  overarching  objective  of  sustainable  development,  on  which  we  must 
deliver.  

Without solidarity and security, prosperity will not be fully realised: the economy is there to 
serve people, not the other way round. 

For Europeans to have confidence that this vision will be realised, the Union needs to work 
with them. We need to work through a dynamic Partnership for European Renewal. European 
society – its institutions, its networks, its citizens and its Member States– must pull together 
to make our common goals a reality. 

In this context, it is essential that the European institutions work together and share a common 
programme  of  action  for  the  coming  years.  Not  only  is  this  plain  common  sense:  the 
Constitution  recognises  the  value  of  a  common  programme  to  be  shared  by  Parliament, 
Council and Commission. This is why in this case, the Commission is proposing to the other 
institutions to be inspired by the provisions of the Constitution at this juncture. The strategic 
objectives that follow are therefore proposed as a basis for a common platform of action by 
the European institutions in the next 5 years.  

The challenges facing European institutions have become so wide and so complex that they 
can only be tackled in partnership: 

•  All  levers  must  be  brought  to  bear  and  all  actors  must  work  together  –  not  just  the 
institutions, but national Parliaments, governments, social partners and civil society at all 
levels. 

•  Most importantly, individual citizens must be brought into this partnership: through clarity 

about what Europe is trying to achieve, and participation in the common effort.  

•  With  partnership  comes  responsibility.  Every  European  has  a  stake  in  the  work  of  the 
Union, and every European has a share of the responsibility to realise our common goals. 

To  bring  about  this  partnership,  the  Union  should  deliver  in  terms  of  implementation  and 
reach out to every European.  

First, the Union must work well, and be seen to work well:  

•  Failure  to  apply  European  legislation  on  the  ground  damages  the  effectiveness  of  Union 
policy and undermines the trust on which the Union depends. The perception that “we stick 
by  the  rules  but  others  don’t”,  wherever  it  occurs,  is  deeply  damaging  to  a  sense  of 
European  solidarity.  There  should  be  continuity  from  policy  development  to  policy 
delivery,  assisted  by  a  modern,  effective  and  service-minded  administration  at  all  levels. 
Prompt and adequate transposition and vigorous pursuit of infringements are critical to the 
credibility of European legislation and the effectiveness of policies.  

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•  Legislation should aim at the highest levels of quality, coherence and effectiveness. Better 
Regulation  means  that  legislation  should  be  well-prepared  and  as  simple  as  possible. 
Impact  assessment,  including  on  competitiveness,  before  initiatives  are  launched  and 
throughout the legislative process, must become second nature. Reviews of legislation in 
force  should  be  systematically  done.  Subsidiarity  and  proportionality  must  be  applied  in 
full. Better regulation should be a priority also at the Member States’ level.  

•  The adoption of the Constitution is a further critical step. The European institutions should 
work  together  with  Member  States  towards  the  successful  entry  into  force  of  the 
Constitution.  It  will  reinforce  the  Union  in  terms  of  democracy,  transparency  and 
participation, as well as effectiveness through the enhanced use of the Community method. 

•  The multi-annual budgetary framework to be laid down in the Financial Perspectives must 
provide  the  Union  with  the  adequate  means  to  deliver  on  its  commitments,  such  as 
competitiveness  and  cohesion,  as  well  as  sustainable  management  of  resources,  in  an 
enlarged Union. It must also ensure budget discipline and efficiency of public spending.  

Secondly,  European  citizens  must  also  be  made  aware  and  understand  what  the  Union  is 
doing for them, and be offered a stake in the European edifice. All European institutions must 
adopt the mindset of being at the service of the citizens:  

•  Inherent in the idea of partnership is consultation and participation. Initiatives need to have 
the benefit of the full involvement of national Parliaments, public authorities at all levels, 
social  partners,  civil  society  and  voices  of  stakeholders  throughout  the  community. 
Dialogue  must  reach  beyond  the  Brussels-based  political  debate  into  a  full-blown 
European  Public  Space,  creating  understanding  for  each  others  cultures,  identity  and 
political  thinking.  This  will  help  to  generate  a  sense  of  European  identity,  particularly 
amongst young people.  

•  The Union must be open to public scrutiny and accountable for its work. This requires a 
high level of openness and transparency. It should be clear how the Union has reached a 
decision, through analysis such as impact assessment and through maximum public access 
to  the  workings  of  the  institutions.  The  provisions  of  the  Constitution  for  the  Council  to 
legislate in public are of importance here. Accountability should be enhanced by striving 
for  a  positive  declaration  of  assurance  from  the  European  Court  of  Auditors.  In  order  to 
protect the financial  interests of the Union, fraud deterrence should be enhanced through 
more transparency and cooperation. 

•  None of this can work  if the intentions and  actions  of  the  Union  are  not  underpinned  by 
accurate  and  effective  communication.  The  cornerstones  of  the  new  Communications 
strategy  should  be  that  the  Union  not  only  advocates  its  policies  clearly,  but  is  also 
receptive;  integrates  communication  into  its  policy  formulation  from  the  very  beginning 
and focuses strongly on adapting communication to national needs. This is a responsibility 
which must involve all European institutions as well as national authorities. 

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EUROPE 2010: STRATEGIC OBJECTIVES 

1. 

PROSPERITY  

The  most  urgent  issue  facing  Europe  today  is  the  lack  of  growth  and  job  creation  that 
safeguards the standard of living and social protection Europeans have grown used to.  

The Single Market and the euro have opened the door to achieving greater efficiency through 
economies  of  scale  and  scope,  faster  innovation,  more  growth  opportunities  for  expanding 
firms – in other words for businesses in every Member State, by making the European market 
their home market, to become able to achieve competitiveness on a European scale and better 
equipped  to  meet  the  challenges  of  global  competition.  However,  until  now  Europe  has  not 
realised these opportunities to the full.  

In the last decade, Europe’s growth and productivity has failed to match its major economic 
partners. In principle, as new competition forces European businesses up the value chain and 
strength  in  the  so-called  knowledge  economy  becomes  more  and  more  important,  Europe 
should  have  important  economic  advantages  in  the  world  economy–  political  and  economic 
stability,  a  skilled  workforce,  a  tradition  of  social  partnership,  a  long  standing  and  well 
developed science base, and the stimulus of the economic catch-up from the new members of 
the Union.  

These are the challenges addressed by the Lisbon strategy agreed in 2000. However, progress 
towards its goals has fallen well short so far, calling for a decisive impulse which may put it 
back on the right track. Our objective is to turn the European economy into one of the most 
attractive to invest, to produce and to work. This requires a new impulse for reforms that lead 
to a significant improvement in the business environment; boosting research and innovation in 
key sectors; and modernizing European labour markets and social protection systems.  

1.1. 

A friendly business environment  

•  Sound macroeconomic foundations are essential to promoting sustainable growth 
and embracing change. The proper functioning of the Growth and Stability Pact is 
critical  to  a  healthy  euro  in  the  run-up  to  the  enlargement  of  the  euro-zone,  in 
particular to new Member States. To that end, it should be improved by making it 
more  effective  in  economic  upswings,  and  more  realistic  in  the  correction  of 
deficits, while avoiding negative incentives for major economic reforms. 

•  It is time to deliver a new phase in economic integration. Appropriate regulation 
must be in place to allow the productive economy to thrive. Companies should be 
able to operate inside a genuinely Europe-wide regime, with equal rights to start 
businesses,  a  common  approach  on  corporate  governance  and  intellectual 
property,  fair  corporate  taxation  rules  and  trade-promoting  customs  systems. 
Better regulation and sound competition rules should ensure the breaking down of 
barriers,  open  up  markets  for  goods  and  services  and  assist  innovation  for  the 
benefit  of  the  most  efficient  producers  and  consumers.  In  particular,  the  service 
sector  offers  huge  growth  potential.  Efficient  services  also  mean  lower  costs  for 
businesses.  By  the  end  of  the  decade,  it  should  be  as  natural  to  offer  services 

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across borders within the Union as to transport goods, preserving the special role 
recognised for services of general interest. 

•  Boosting  innovation  and  the  use  of  new  communication  and  information 
technologies  are  crucial  for  a  more  dynamic  and  competitive  economy.  Take-up 
of new technology by users and new developments from suppliers will both flow 
from a mix of actions and policies on research, training and innovation. 

•  Europe  needs  to  reduce  the  burden  of  regulation  at  all  levels  in  order  to  foster 
entrepreneurship and investment, notably for small and medium size enterprises, 
which are the engine of job creation. 

1.2. 

Investing for prosperity 

•  Prosperity and growth cannot come without investment. The drivers of growth – 
research  and  development,  modern  technology,  the  highest  skills,  efficient 
networks – come at a price. The Union budget already invests substantial sums in 
these  areas  through  its  various  funds.  The  focus  on  growth  and  jobs  should  be 
further strengthened in the next Financial Perspectives. 

•  The  Union  is  committed  to  investing  3%  of  GDP  in  research,  with  one  third 
coming  from  the  public  sector,  and  to  raising  significantly  investment  in  higher 
education. But it is just not enough to spend. Europe must become more attractive 
for  researchers  and  scientists,  with  the  fruits  of  research  used  effectively  by 
European  companies.  Pooling  resources  at  European  level  can  offer  real  added 
value: promoting and spreading excellence, offering economies of scale, creating 
new connections and new networks. Mobility in education and learning opens up 
a new dimension to developing Europe’s skill set: after the 1 million level reached 
in  2002,  3  million  university  students  should  have  participated  in  mobility 
programmes by 2011.  

•  The  European  economy  will  never  reach  full  potential  if  it  is  hamstrung  by 
bottlenecks in transport, telecom and energy networks. Targeting such weaknesses 
on a cross-border scale is the only way to connect the enlarged Europe.  

1.3. 

Embracing change 

•  Adapt  labour  markets  in  order  to  encourage  job  creation.  Europe  needs  a 
workforce  that  is  better  skilled  and  better  adapted  to  change.  Life-long  learning 
will  help  to  set  in  train  a  virtuous  circle  of  better  jobs  and  higher  growth.  The 
Partnerships for reform and change announced by the European Council in 2004 
are the best way to ensure ownership in making labour markets conducive to more 
and better jobs.  

•  Attract more people into the labour market. In addition to more effective use of an 
ageing  workforce  and  promoting  labour  mobility,  consider  the  potential  of 
immigration. The Green Paper on economic migration points to how a managed 
process of immigration targeting key skills can be part of the solution. European 
societies  are  concerned  that  the  benefits  may  be  outweighed  by  the  costs  of 

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integration:  but  a  balance  can  be  found  which  benefits  migrants  and  the  host 
societies alike. 

2. 

SOLIDARITY  

The essence of the European Union is to work for sustainable development as an overarching 
objective that aims at meeting the  needs of the present without compromising the  ability of 
future  generations  to  meet  their  own  needs.  Our  common  project  brings  with  it  a 
responsibility to offer mutual support and to protect and manage our surroundings together. A 
healthy European society depends on the effective delivery of this common project. Solidarity 
needs a concrete expression, both at present and with future generations, through: 

•  Economic and social cohesion, which will help disadvantaged areas and groups of 
population  in  the  Union  to  narrow  disparities  through  enhanced  growth  and 
competitiveness; 

•  Sustainable management and protection of our environment, our natural resources 

and safeguard of long term energy supply; 

•  Adequate reform and management of social protection systems, in order to ensure 

sustainability in the medium/long term; 

•  Preservation and strengthening of our common values. 

2.1. 

Economic and social cohesion 

•  Cohesion  policies  are  at  the  heart  of  how  the  enlarged  Union  works.  The  gap 
between  the  richest  and  the  poorest  region  in  Europe  has  trebled  since 
enlargement. Cohesion policy targets the goal of economic convergence and seeks 
to  unlock  the  latent  potential  for  high  growth.  It  is  an  essential  instrument  to 
promote growth and competitiveness. Rural communities, coastal areas and ultra-
peripheral  regions  also  face  particular  challenges  in  terms  of  economic 
development, social exclusion and depopulation. Rural development, for instance, 
is  a  way  of  reinforcing  cohesion  and  promoting  renewed  prosperity  and  growth 
for the rural areas, as well as better managing natural resources.  

•  A  tailored  response  to  the  demographic  challenges  for  Europe’s  population.  By 
the middle of this century, the ratio between the population in retirement and the 
working  age  population  will  double  from  24%  today  to  almost  50%  in  2050. 
Central  to  solidarity  is  a  response  adapted  to  the  needs  of  different  sections  of 
society, both ageing citizens and young people, for instance through an initiative 
for Youth, maximising the contribution to our society of all generations.  

•  Protect the weakest in society.  Europe  cannot compete globally  by chasing  after 
low  wages  or  poor  working  conditions.  The  social agenda  offers a level  playing 
field  of  adequate  social  standards;  and  the  European  social  model  can  act  as  a 
stimulus to growth when it acts as a safety net and a springboard for change. In 
order to safeguard the sustainability of this model the necessary reform in labour 
markets  and  social  protection  systems  should  materialise  in  a  timely  way,  while 

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economic  reform  and  sound  economic  policies  should  manage  to  significantly 
increase the potential growth rate. 

2.2. 

Solidarity with future generations 

•  Environmental protection remains a key duty we have towards future generations. 
Climate  change  presents  a  threat  which  is  growing  more  tangible  every  year.  A 
threat to our physical environment, but also to our growth and prosperity. Europe 
must  continue  to  take  a  lead  in  addressing  the  causes  by  improving  energy 
efficiency and showing that alternatives, such as rebalancing transport modes, can 
be found through market-based solutions.  Eco-innovation must be promoted and 
eco-efficiency  fostered:  with  a  long-term  knock-on  benefit  for  productivity  and 
innovation,  the  key  sector  of  environmental  technology  can  contribute  to  the 
competitiveness of the European economy. 

•  Europe  is  a  continent  rich  in  resources.  Resource  management  is  essential  to 
safeguard the long-term interest. The implementation of reform in the agricultural 
and  fisheries  sectors  will  allow  for  a  sustainable  management  of  key  assets,  and 
increased competitiveness. 

•  In view of the environmental and economic value of the oceans and the seas, there 
is  a  particular  need  for  an  all-embracing  maritime  policy  aimed  at  developing  a 
thriving  maritime  economy  and  the  full  potential  of  sea-based  activity  in  an 
environmentally  sustainable  manner.  Such  a  policy  should  be  supported  by 
excellence in marine scientific research, technology and innovation. 

2.3. 

Common responsibilities for common values 

•  The protection of fundamental rights and fight against discrimination must be put 
at the forefront of European action with new initiatives on anti-discrimination and 
establishing a European Agency of Fundamental Rights. Ensuring equal rights to 
all citizens and fighting against discrimination, including gender equality, should 
be mainstreamed into all European action. Europe should be the point of reference 
worldwide for the practical application of fundamental rights. A particular priority 
must  be  effective  protection  of  the  rights  of  children,  both  against  economic 
exploitation and all forms of abuse, with the Union acting as a beacon to the rest 
of the world. 

•  Protecting  and  promoting  cultural  diversity  in  Europe  is  at  the  heart  of  the 
Union’s values. In a world where globalisation pushes towards homogeneity, this 
cultural  richness  needs  to  be  nurtured  through  action  to  preserve  mutual  respect 
across  borders.  In  this  respect,  the  promotion  and  circulation  of  European 
audiovisual  products  is  essential.  Mobility,  language  learning,  intercultural  and 
social  dialogue  and  the  promotion  of  an  active  citizenship  are  among  the  best 
ways to build this respect. 

•  Solidarity must not end with Union citizens. A common approach concerning the 
rights  and  obligations  of  immigrants  should  be  developed,  and  migrants  from 
inside  and  outside  the  Union  require  support  with  integration  into  their  new 
societies  in  full  respect  of  human  dignity.  Such  a  migration  policy  needs  to  be 

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long-term:  ensuring  that  the  knock-on  effects  of  migration  on  society  are 
cushioned by smoother integration. 

3. 

SECURITY AND FREEDOM 

The  European  institutions  must  tackle  the  risks  faced  by  citizens  in  their  daily  life.  The 
protection  of  the  life  and  the  property  of  citizens  is  a  core  task  giving  legitimacy  to  public 
power  and  public  policies.  Freedom  can  only  be  enjoyed  within  a  framework  of  security 
provided by law. Citizens legitimately expect that threats to their health and safety will also 
be countered at European level. The Constitution will strengthen the ability of the Union to 
act. But much can already be done now.  

In the first place, there is the personal security of European citizens in the face of crime and 
terrorism. Freedom in a borderless Europe gives the Union a special responsibility. This is the 
case notably for border control, asylum and immigration, and trafficking of human beings.  

Security is also about the ability of citizens to run their daily life on a secure basis. This can 
be  put  at  risk  by  natural  disasters,  environmental  or  health  crises  and  transport  and  energy 
threats.  The  Union  has  a  role  to  play  at  all  stages:  risk  prevention,  early  warning,  crisis 
management, and acting in solidarity with the victims of disasters.  

3.1. 

Security and Justice in Europe 

•  Implementation  of  the  Hague  Programme  agreed  in  2004  is  a  coordinated 
response  to  the  risks  faced  by  citizens  in  Europe.  The  Programme  addresses  the 
full range of measures required. Prevention and preparedness measures can offer a 
real  add-on  to  the  efforts  of  Member  States  in  the  fight  against  terrorism,  with 
improved  intelligence  exchange,  effective  operational  cooperation,  and  a  better 
link  with  other  forms  of  criminality.  Terrorist  financing  must  be  targeted  more 
effectively. A strategic approach to organised crime can minimize the opportunity 
for criminals to exploit a borderless Europe.  

•  The capacity to act at European level of judicial, intelligence, police and customs 
authorities should be reinforced. The integration of Europol into the Union would 
mean  a  step  change  in  combating  human  trafficking,  drug  trafficking  and  cyber 
crime.  

•  The  integrated  management  of  external  borders  and  a  common  visa  policy  is 
essential.  The  Union  faces  the  shared  responsibility  of  managing  external  land 
borders of some 11.000km and maritime borders of 68.000km, with obvious risks 
in  terms  of  illegal  migration  and  human  trafficking.  A  coherent  European 
framework is essential for the entry and stay of third country nationals across the 
EU: and must work in tandem with tackling the root causes of human trafficking. 
A  common  asylum  policy  should  allow  the  Union  to  admit  asylum  seekers  in 
justified cases in an equitable way. 

•  Mutual recognition and free circulation of judicial decisions in civil and criminal 
matters  helps  to  ensure  that  justice  is  done,  and  strengthens  the  protection  for 
families  facing  legal  difficulties  across  borders.  The  increase  in  personal 
movement  and  cross-border  economic  activity  since  the  Single  Market  has 

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increased the urgency to ensure easy, real and non-discriminatory access to justice 
through a European Justice Space.  

3.2.  Managing risk in the modern world 

A  key  element  of  quality  of  life  for  citizens  is  a  policy  that  manages  and  reduces  the  risks 
with which they are confronted such as natural disasters, environmental or health crises and 
transport and energy threats.  

•  Environmental and health risks such as the increased threats of floods or droughts 
following  climate  change,  the  fallout  from  potential  biological,  chemical  or 
radiological  attacks  or  serious  outbreaks  of  disease  have  immediate  EU-wide 
implications.  They  must  be  tackled  in  two  ways:  by  the  ability  to  offer  early 
warning  and  immediate  response  to  a  particular  crisis,  and  by  long-term 
prevention. Information and surveillance networks need to be effective if they are 
to cope adequately with cross-border threats.  

•  Major sea accidents, the risk of terrorist attacks and the energy supply crises have 
raised public concern for transport security, particularly in air transport, as well as 
maritime and road safety. 

•  Unless  action  is  taken,  Europe’s  dependence  on  external  oil  will  rise  to  90%  by 
2030  (compared  to  70%  now).  A  greater  security  of  energy  supply  would  be 
provided  by  a  concentrated  effort  to  reduce  energy  demand,  a  reinforced 
cooperation  with  the  main  producer  and  transit  countries;  as  well  as  by  the 
vigorous promotion of renewable energies. 

4. 

EUROPE AS A WORLD PARTNER  

In the world today, we can only deliver fully on our key internal priorities if we succeed on 
the world scene. Globalisation and increasing interdependence have abolished many of the old 
distinctions between internal and external policy challenges. 

The  political  clout  of  the  Union  should  better  match  its  economic  weight.  To  address  this 
goal,  the  Union  must  achieve  greater  political  coherence  in  external  action:  coherence 
between  different  branches  of  external  policy;  coherence  between  internal  and  external 
policies; and coherence in action between that of the Union or Member States bilaterally.  

If  it  wants  to  have  a  stronger  presence  and  influence  on  the  international  scene,  it  needs  to 
speak with a single voice and promote a coherent stand. Equally, its capacity to influence also 
depends  on  its  ability  to  establish  coherent  and  effective  relations  with  key  partners,  in 
particular the transatlantic relationship. 

Europe must continue its commitment to effective multilateralism as the best way to engage 
with global partners. The architecture of international organisations needs to be strengthened 
with  a  continued  process  of  reform  and  renewal:  the  United  Nations  is  the  only  option  for 
tackling global problems needing global solutions.  

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4.1. 

A stronger actor in the world economy  

•  Europe’s  role  in  the  world  cannot  be  separated  from  its  internal  strength.  Its 
capacity  to  influence  relies  strongly  upon  the  health  of  its  economy.  The  more 
dynamic  Europe’s  own  economic  progress  and  the  more  effectively  Europe  can 
act together, the stronger will be its grasp over world events as well as its ability 
to  achieve  globalization  with  social  justice  and  sustainability.  The  external 
dimension of internal policies should be used to the full.  

•  Future enlargements of the European Union will increase its global strength, with 
the enlargement process set to move on from accession of Bulgaria and Romania 
in 2007 to prepare further enlargements, focusing on the negotiations with Croatia 
and  Turkey  and  addressing  the  application  of  the  former  Yugoslav  Republic  of 
Macedonia.  At  the  same  time,  the  other  Western  Balkans  will  also  be  brought 
closer to the membership perspective. 

•  Europe  cannot  build  prosperity  alone.  A  successful  neighbourhood  policy  will 
increase  the  reach  of  the  largest  economy  in  the  world.  Our  futures  are  closely 
intertwined and the creation of a more integrated space with our neighbours is a 
necessity: trade; immigration; networks; services are just a few examples of areas 
the need for such integrated space. These will be our priorities for relations with 
Russia,  Ukraine  and  other  neighbouring  countries.  The  economic  and  social 
progress  of  the  whole  Mediterranean  area  and  countries  that  border  it  will  be  a 
prime European concern.  

•  International  trade  is  key  in  promoting  competitiveness  and  growth.  We  benefit 
from  openness  in  helping  to  realise  our  own  competitive  potential  at  home. 
Europeans should feel confident that the challenges of globalisation can be turned 
into  Europe’s  advantage  and  help  realise  its  competitive  potential.  Trade 
liberalisation  will  guarantee  new  outlets  for  exports  and  quality  jobs  on 
competitive,  open  and  regulated  markets.  Negotiations  must  be  pursued  with 
vigour  at  all  levels:  principally  in  the  World  Trade  Organisation,  such  as  in  the 
case of the Doha round, but also with key bilateral and regional partners. Targeted 
regulatory  convergence  with  key  partners  has  also  been  shown  to  be  mutually 
beneficial, and should be pursued in particular in transatlantic relations. We need 
to  develop  much  closer  partnerships,  based  on  the  economic  interests  we  share, 
with  our  new  trading  partners  in  Asia  such  as  China  and  India,  as  well  as  with 
Brazil and Latin America more generally.  

4.2. 

Global solidarity 

•  Our  external  relations  are  also  a  way  to  promote  and  protect  our  values  outside 
our  borders.  Europe  must  promote  stable  international  growth  founded  on 
sustainable  development  and  remain  true  to  its  commitment  to  human  rights.  It 
must  also  target  effective  implementation  of  key  goals  in  the  area  of 
environmental protection. It must share the responsibility with key partners to this 
end. 

•  The Millennium Development Goals set for 2015 must be the guiding objective of 
Union development policy. Their review in 2005 offers the opportunity to make a 

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quantum  leap  with  a  new  development  policy  statement  to  promote  sustainable 
development  and  poverty  reduction  through  effective  multilateralism  and  trade 
liberalisation  facilitating  the  integration  of  developing  countries  into  the  world 
economy.  

•  The Union needs a specific response for Africa. Africa, in particular Sub-Saharan 
Africa, is falling behind. Within the framework of its external cooperation, Europe 
should draw together action to offer a step change in support to Africa in terms of 
both quantity and quality. It must target the goal of a real partnership based on a 
mature trading and political relationship.  

4.3.  Making security work worldwide  

•  Europe  cannot  survive  as  an  island  of  peace  in  a  world  of  instability.  Europe’s 
external policy needs to be adjusted to international developments including crisis 
and global security challenges. The Union has the potential to wield much more 
influence  over  the  long-term  political  and  economic  choices  determining 
prosperity and stability in Europe and the wider world. In turn, these influence the 
well-being and security of Europeans.  

•  External action is also required to tackle stability and security issues at their root 
by  strongly  promoting  sustainable  development  through  both  multilateral  and 
bilateral  channels.  They  must  be  at  the  heart  of  all  the  Union’s  external 
relationships.  A  successful  neighbourhood  policy  will  be  a  step  towards  world 
stability  and  security.  So  will  Europe’s  commitment  to  play  an  active  role  in 
searching for, and implementing on the ground a Middle East peace settlement. So 
too would be closer security cooperation with the United States in the framework 
of a re-invigorated transatlantic partnership.  

•  European  security  and  defence  capabilities  need  to  match  these  challenges  by 
providing a fully credible capability for action, through a full implementation of 
the  European  Security  Strategy  and  a  more  effective  European  Security  and 
Defence Policy.  

*** 

These  are  the  strategic  objectives  the  Commission  intends  to  pursue  for  the  duration  of  its 
mandate.  In  preparing  them,  the  Commission  has  taken  account  of  the  debates  in  the 
European Parliament in the run-up to its own nomination and in December 2004. It has also 
taken the existing multi-annual programme of the upcoming presidencies into account. Due to 
their  comprehensive  nature,  the  Commission  puts  them  forward  as  a  basis  for  a  common 
platform of the European institutions for action in the next 5 years. 

Hopefully, an agreement can be reached on them by the three institutions before the end of the 
Luxembourg Presidency. Once agreed, the strategic objectives will offer a stable framework 
for the institutions to work together in pursuit of common targets and in playing their role in 
the proposed partnership. 

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