Opinion of the Committee of the Regions on The period of reflection: the structure, subjects and context for an assessment of the debate on the European Union
Date: 2005-10-13
Institutions: European Committee of the Regions
Subjects: European Constitution, citizens' Europe, financing of the EU budget, promotion of the European idea

C 81/32

EN

Official Journal of the European Union

4.4.2006

Opinion of the Committee of the Regions on The period of reflection: the structure, subjects and
context for an assessment of the debate on the European Union

(2006/C 81/09)

THE COMMITTEE OF THE REGIONS,

HAVING REGARD TO the decision of the European Parliament of 6 September 2005 to consult it on
this matter, under the fourth paragraph of Article 265 of the Treaty establishing the European Com-
munity;

HAVING REGARD TO the decision of its President of 27 July 2005 to appoint, in accordance with
Rule 40(2) of the Rules of Procedure, Mr Franz Schausberger, Representative of Land Salzburg in the
Committee of the Regions (AT-EPP) and Cllr Lord Tope, Greater London Authority (UK/ALDE) as rappor-
teurs-general for the opinion on this matter;

HAVING REGARD TO the Treaty establishing a Constitution for Europe signed by the heads of state or
government on 29 October 2004 (CIG 87/04 rev. 1, CIG 87/04 Add 1 rev. 1, CIG 87/04 Add 2 rev. 1);

HAVING REGARD TO its opinion of 17 November 2004 on the Treaty establishing a Constitution for
Europe (CoR 354/2003 fin (1));

HAVING REGARD TO its report of 6 November 2001 on Proximity (CdR 436/2000 fin);

adopted the following opinion at its 61st plenary session, held on 12 and 13 October 2005
(meeting of 13 October):

VIEWS
COMMITTEE OF THE REGIONS

AND

RECOMMENDATIONS

OF

THE

original schedule and without serious reflection at European
level would send a negative message to Europe's citizens and
might engender further rejections in Member States;

The Committee of the Regions:

(a) Context

1.
believes that, in order to safeguard peace, freedom and
prosperity, a politically strong and democratic European Union,
strong European leadership and strong interinstitutional coop-
eration to relaunch the European project are needed;

2.
expresses concern that too long a period of reflection
would damage the EU's public image, and urges all institutions
to work to reclaim and relaunch the core European ideal and
project;

3.
considers it advisable to use this period for reflection to
examine what the public in the Member States thinks about the
European Union and to consolidate the fundamental aims,
values and principles of the EU, such as solidarity, effectiveness,
transparency and cooperation, based on the support of its citi-
zens;

4.
reiterates the importance of the fundamental rights of
the Union as enshrined in the charter included in the Constitu-
tional Treaty;

5.
believes that the European Union must take the results
of the French and Dutch referenda seriously and must be seen
to do so; considers that to proceed with the ratification
the Constitutional Treaty without altering the
process of

6.
recognises however that the reasons for those rejections
are many and varied and in some cases may not be in response
to the Treaty itself; thus considers it fundamental to concen-
trate efforts above all on the context of the debate, focusing it
on a successful agreement of the financial perspectives; reiter-
ates however that more than a half of all Member States have
already ratified the Treaty by their chosen method and the deci-
sions of these Member States must count as much as those
who voted against;

7.
reaffirms its commitment to the Constitutional Treaty
and its advances which guarantee better European governance
through its considerable improvement
in the functioning,
simplicity and transparency of the EU compared to the existing
treaties;

considers that

the debate on the
in broadening out
8.
future of the European Union its institutions should focus on
the actual and potential practical benefits that membership and
citizenship bring to its citizens;

in order to rebuild the trust of European citizens in the

9.
European project, calls on the EU institutions to:

(1) OJ C 71 2005 of 22.3.2005, p. 1

— take decisions which are pending in those areas where the

Union brings real added value to Europe's citizens;

4.4.2006

EN

Official Journal of the European Union

C 81/33

— begin functioning in a much more decentralised manner,
respecting and promoting the subsidiarity principle, which
should be applied also on subnational levels;

state and government; to this end, proposes a roadmap (2)
with a view to establishing a truly decentralised debate;

— pro-actively demonstrate that a political union will not

undermine Europe's cultural and linguistic diversity;

— show that Europe will provide its citizens with opportu-
nities to develop their personal and professional experience
at a European level;

— establish a permanent two-way dialogue with Europe's citi-

zens;

— develop a culture of enhanced transparency, especially by
making the workings of the Council more accessible, to
enable citizens to better understand the EU decision-making
process;

calls for the continuation of activities promoting the
10.
principle of subsidiarity in all areas and drawing on the advan-
tages that the greater proximity of regional and local institu-
tions can offer to citizens;

limits and long term objectives of

11.
calls upon the Member States to deepen political inte-
gration of the EU, which constitutes a fundamental basis to
develop an enlarged Union, defining the aims, potential geogra-
the integration
phical
process within the European Union; whereas EU membership
shall entail respect
for local and regional democratic self-
government within the established constitutional framework of
each country;

12.
calls on politicians at Member State, regional and local
levels to take the responsibility for their own actions in the
areas falling in their responsibility and to refrain from the
common habit of using ‘Brussels’ as scapegoat; underlines that
the European Union can only succeed if politicians at Euro-
pean, national, regional and local level divide duties responsibly
and acknowledge that
for
respect
institutional
success, as a prerequisite for good governance;

is essential

(b) Structure of the debate

13.
believes that it is necessary for the EU institutions to
engage in debate with the people and communities that they
represent, reflecting the open approach taken to the drafting of
the Treaty through a Convention that involved representatives
local and regional
of national parliaments, political parties,
government, civil society as well as social partners.
In this
debate, it is essential to make clear to the public the added poli-
tical, economic and social value of a European Union;

considers that in its capacity as institutional representa-
14.
tive of local and regional government in the European Union,
it has to play an active role in political and institutional initia-
tives during the period of reflection announced by the heads of

15.
calls on local and regional government to engage and
inform their communities on the issues that affect them in the
debate on the future of the European Union and to better
explain the processes and practical achievements of European
integration through a decentralised regional and local based
information policy, believing that a debate conducted solely at
the European level will fail to reach out to the general public,
therefore necessitating structured debates with transnational
involving its
elements led nationally, regionally and locally,
members and supported by the EU institutions;

16. moreover, reaffirms the bottom-up approach, that is its
hallmark, and commits itself, with the help of its members, to
seek out and take on board the requests of regional and local
authorities on Community policies and institutions, and to
forward their input, not least in terms of political analysis and
innovative proposals, to the European institutions;

17.
recommends that dialogue with citizens should not be
limited to one-off campaigns and should not focus on details of
institutional workings; urges therefore the Union to focus on
communicating information which is of direct practical benefit
to citizens and which allows them to take advantage of EU
opportunities available to them;

18.
calls on the European institutions, Member States and
the regional and local authorities to establish new and creative
ways of interacting with citizens at grassroots, using for the
debate modern electronic media (e.g. ‘Europe listens’ in Austria
and ‘National forum on Europe’ in Ireland), and to ensure that
the message is accessible in the native language of the citizen,
and not only in selected EU languages; furthermore there is
some responsibility on the institutions and Member States to
counter
the European
Union that citizens may be presented with, especially in the
media;

factually incorrect statements about

recognises the vital role of

19.
the local and regional
media, and in particular the local press, in this context, not
least because they can communicate to citizens in lay terms
and in their local language;

(c) Subjects for reflection

Ge ner a l scope

considers that

the provisions of

20.
the Constitutional
Treaty relating to the Union's territorial dimension and the
involvement of local and regional authorities, both institution-
ally through the CoR and more generally, constitute an impor-
tant and positive development;

(2) Appendix

C 81/34

EN

Official Journal of the European Union

4.4.2006

21.
calls upon the EU institutions to help to develop a real
‘subsidiarity culture’ within the Union, its Member States, and
its regional and local authorities, and to apply without delay
the principles of subsidiarity and proportionality provided for
in the Constitutional Treaty as a simple and effective way to
demonstrate to citizens that the Union will act only where the
added value is clear and in respect for its principle of better
lawmaking;

22.
calls for application of the concept of ‘proximity’ in the
application of EU policies and law, as this would be a visible
sign of the will to implement procedures for more transparency
as an immediate reaction to citizens' concerns; in this context
the introduction of a new legal instrument facilitating interre-
gional and cross-border cooperation, including economic and
social cooperation, could be seen, for instance, as a clear sign
towards a closer Europe of the citizens;

23.
underlines that whereas it would be desirable for these
elements to have a place in the Treaty, many of the actions and
obligations arising from these provisions can be integrated
immediately into the Community's activities, such as extending
impact assessments to include the financial and administrative
impact of new EU law on local and regional authorities;

24.
has in particular welcomed the following points in the
Treaty as articles of good governance and wishes to ensure that
their safeguard and implementation are fully considered during
the period of reflection:

— recognition of the role of local and regional authorities in

EU governance;

— better consultation prior to publication of legislative propo-

sals;

— account to be taken of the financial and administrative

burden falling on local or regional authorities;

— a broader definition of subsidiarity to incorporate local and

regional government;

to it; recalls its support for the European Commission propo-
sals for the financial perspective during 2007-13;

26.
considers that now is the appropriate time to start
reflecting on the basis for funding the EU budget in the long
the budget
term, and to reinforce democratic control of
through the European Parliament;

reminds Member States that cohesion policy is an area
27.
where the EU has long demonstrated its real added value,
whose visibility enables citizens to appreciate daily the EU's
practical and positive work, and which represents the basis of
European solidarity and thus distinguishes the European social
model from other examples of transnational integration;

28.
reiterates its support for the Partnership for Growth
and Jobs (Lisbon Strategy) as a balanced approach between the
economic goals, sustainable development and the modernisa-
tion and advancement of Europe's social model;

29.
believes that strengthening the EU's competitiveness
also requires helping Europe's citizens to develop their talents
and creativity beyond national borders; furthermore, believes
that the value of a culturally diverse Union will become much
more tangible to Europeans when they begin to experience life
in a European context; therefore, in order to strengthen compe-
titiveness and to connect citizens with the European project,
stresses the need for the EU to continue facilitating free move-
ment of people and to promoting greater mobility within the
Union;

endorses its support for the EU strategy on sustainable
30.
development and stresses
that Community
actions and funding for improving the environment should
have powerful effects at the national, regional and local levels;

in particular

— recognition of

the cultural and linguistic diversity as a
source of wealth to be preserved, alongside the fundamental
principle of cooperation and integration;

31.
recalls the unique character of European citizenship, as
an element of identity, which does not replace national citizen-
ship;

— enhancement of the role of the Committee of the Regions,
in particular introduction of the right of recourse to the
European Court of Justice in respect of its own prerogatives
or breaches of subsidiarity;

— reference to representative associations (e.g. of

local or

regional government);

32.
calls for much greater investment and collaboration in
education (including life-long learning opportunities for all citi-
zens), research and innovation at European and national level
as the best means to create more and better jobs for Europe's
citizens and to strengthen Europe's competitiveness in the
global economy;

T opi cal i ssue s for th e de ba te

25.
considers that it is vitally important that the EU has the
appropriate level of resources to undertake the tasks assigned

33.
is convinced that to better explain Europe and its poli-
cies, national, regional and local authorities should implement
educational efforts, for example via the introduction of special
courses in schools, European dimension in the school curricula,
post-school education and training for teachers;

4.4.2006

EN

Official Journal of the European Union

C 81/35

34.
is, moreover, convinced that a positive European
culture must be disseminated among regional and local public
officials, who in their daily work must deal with regulations;

(d) Assessment

36.
is conscious that during the period of reflection various
different scenarios are likely to be discussed, but is against
abandoning this Constitutional Treaty in favour of the Nice
Treaty, and calls for a consensual approach towards ratification
by 2009;

35.
invites the EU institutions and the Member States to
listen to the citizens in order to evaluate the results of the
debate during the period of reflection;

37. wishes to actively participate in the relaunching of the
constitutional process and offers to the European Parliament
support for its efforts to secure a successful outcome.

Brussels, 13 October 2005.

The President

of the Committee of the Regions

Peter STRAUB

APPENDIX

Proposed CoR roadmap for a decentralised debate during the period of reflection

Starting points

— The period of reflection should be an active and dynamic phase of the dialogue process, with European institutions
reaching out to the public in order to launch a structured, decentralised and high-quality debate on Europe, focusing
on the issues which are most relevant to ordinary Europeans.

— The debate should focus on governance rather than on the ratification mechanism; in view of the need to act at a
level as close as possible to ordinary citizens, it should be conducted in European local authorities and regions rather
than in Brussels, and the subject of the debate should be the purpose and added value of the EU, its fundamental
values and policies, rather than the Constitutional Treaty.

— Local and regional assemblies and executive bodies should become actively involved at an institutional level, and
should participate fully in the debate on the future of the EU, while shouldering their responsibilities vis-à-vis the
public.

— Possible subjects for the debate: the role and importance of fundamental rights as enshrined in the Charter included
in the Constitutional Treaty, the European social model, solidarity, subsidiarity and proportionality, the single
market, competitiveness, growth and employment, the environment, sustainable development, energy policy, public
services and how to fund them, economic aspects of economic and monetary union, the challenges of globalisation
for SMEs, rights and freedoms and the sense of belonging linked to European citizenship, the area of security,
freedom and justice, enlargement versus closer integration, policies on education, research and innovation. Moreover,
the topics covered should be adapted to particular circumstances identified at local and regional levels.

— The CoR is keen to play a proactive role, in partnership with the European Parliament; MEPs and local and regional
elected representatives will have to join forces to contribute to the political and democratic debate during the period
of reflection.

— To enable effective and appropriate implementation of the proposed measures, the CoR would like to obtain addi-

tional funding; a new budget heading could even be introduced for this purpose from 2006 onwards.

Measures envisaged for 2006-2009

— European Forums could be set up simultaneously in all the Member States to facilitate open exchange and discussion

on Europe, its values, objectives and frontiers:

— 1st phase (October 2005 — March 2006): establishment of regional committees comprising ‘ambassadors’ from
local and regional authorities and representing the network of CoR members, political parties, members of
regional and national parliaments, the local and regional media, civil society as well as social and educational
players; these would serve to raise public awareness, particularly among young people, and to raise the profile of
European policies.

C 81/36

EN

Official Journal of the European Union

4.4.2006

— 2nd phase (from January 2006 — June 2009): holding public meetings in European cities and regions, with the

participation of CoR members and MEPs, to discuss problems which have been identified:

— to identify target groups: local and regional administration, journalists, teachers, young people, etc.;

— in cooperation with the European Parliament and with the assistance of the media, to identify problems
which ordinary Europeans feel to be particularly relevant, by listening to the problems and fears expressed by
them at public meetings;

— to prepare a range of communication tools for CoR members to use;

— to communicate with local and national media;

— to use online forums for debate and create virtual regional forums;

— to publish information documents.

— 3rd phase (from January 2007): to evaluate and consolidate the results of the debate conducted in the cities

and regions of Europe.

— To hold annual conferences in Brussels for the local and regional media; these would be organised by the CoR in
cooperation with other European institutions, with financial support from the European Commission. The first of
these would be held in 2006.

— The CoR's Press & Communications Unit could collaborate with local and regional representation offices in Brussels
in drawing up a study on information activity; and links with the local and regional media. This subject could be
chosen as the central theme of the CoR's Open Days in 2006.

— To draft a targeted brochure on the added value of Community action and its relevance to ordinary Europeans; this
brochure could be presented by CoR members and widely distributed. The brochure would be based on new ideas
presented in an easy-to-understand, informative way so as to arouse public interest.

— To launch a public awareness-raising strategy targeted at young people in particular as the European citizens of the

future who will be voting for the first time in 2009.