Communication from the Commission to the European Council - A citizens’ agenda - Delivering results for Europe
Date: 2006-05-10
Institutions: European Commission
Subjects: European Union, European citizenship, citizens' Europe, economic and social cohesion, the EU's international role

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 10.5.2006 
COM(2006) 211 final 

COMMUNICATION FROM THE COMMISSION  
TO THE EUROPEAN COUNCIL 

A CITIZENS’ AGENDA 

DELIVERING RESULTS FOR EUROPE 

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COMMUNICATION FROM THE COMMISSION  
TO THE EUROPEAN COUNCIL 

A CITIZENS’ AGENDA 

DELIVERING RESULTS FOR EUROPE 

INTRODUCTION 

In  a  globalised  world,  the  European  Union  has  never  been  more  needed  but  rarely  more 
questioned.  That  is  the  paradox  to  which  all  leaders  in  Europe,  both  in  the  EU’s  Member 
States and its institutions, must respond.  

The  development  of  the  European  Union  is  an  extraordinary  success  story,  delivering 
unprecedented  peace,  prosperity  and  stability  whilst  acting,  for  its  citizens,  as  a  shock 
absorber to external change. The principles and values of the EU have not changed – freedom, 
democracy,  the  rule  of  law,  tolerance,  solidarity  and  making  progress  through  peaceful  co-
operation are as valid today as when the Treaty of Rome was signed. So is the central role of 
cultural wealth and diversity in Europe’s identity. But over 50 years Europe, and the world, 
have  changed.  The  EU  needs  to  promote  and  advocate  its  values  against  a  background  of 
growing diversity and change. The Hampton Court meeting last October showed the political 
consensus about the nature of these challenges and the essential role of the EU in responding 
to them through modernisation and reform. The agenda agreed at Hampton Court, including 
the development of a knowledge-based economy, is central to the creation of growth and jobs. 

Citizens’ expectations of the EU have grown over 50 years. That is both a recognition of the 
EU’s increased relevance and a challenge to all Europe’s leaders. EU citizens want a greater 
understanding  of,  and  say  in,  what  the  EU  does  and  how  it  does  it.  They  see  the  EU  as 
important, but remote. 

The  Constitutional  Treaty  is  intended  to  help  bridge  the  gap.  The  Commission  continues  to 
endorse its principles and values, and the improvements it would bring in the effectiveness, 
openness and accountability of the EU. Fifteen Member States have ratified the Constitutional 
Treaty  and  more  may  do  so  in  the  coming  months.  The  electorates  of  two  Member  States 
voted “no” to it in referenda. As yet, there is not yet consensus on the next steps. 

But  citizens  want  the  EU  to  function  effectively,  now.  The  debates  held  under  Plan  D  (for 
democracy, dialogue and debate) show a strong wish by Europe’s citizens for more EU action 
in  many  areas:  on  creating  jobs,  managing  globalisation,  fighting  terrorism  and  organised 
crime, promoting sustainable development and solidarity. 

To  respond  to  these  demands,  and  despite  the  absence  of  agreement  on  the  Constitutional 
Treaty,  the  EU  has  taken  a  number  of  significant  steps  forward:  agreement  to  a  seven  year 
financial  framework,  a  reinvigorated  agenda  for  growth  and  jobs  under  the  revised  Lisbon 
Strategy,  a  new  social  agenda,  a  reformed  Stability  and  Growth  Pact,  an  Action  Plan  to 
strengthen  the  EU  area  of  freedom,  security  and  justice,  a  doubling  of  official  development 
aid by 2010, as well as political agreement on sensitive issues such as legislation on services 
and chemicals, and agreement to the outline of a new energy policy. The EU must now turn 

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these achievements into concrete benefits. 

But  the  Union  needs  to  go  further,  through  a  policy  driven  agenda  which  addresses  the 
expectations  of  EU  citizens  and  reinvigorates  their  support  for  the  European  project.  That 
agenda must be rooted in the established priorities of prosperity, solidarity and security, and 
the  drive  for  growth  and  jobs.  These  are  essential  for  the  renewal  of  confidence  in  Europe. 
That  support  can  also  be  mobilised  by  projects  such  as  Erasmus,  Galileo,  or  the  European 
Institute  for  Technology  or  a  European  civil  protection  capability.  But  both  policies  and 
projects need to be embedded into a coherent political agenda. So they must be accompanied 
by a step by step approach to resolving the current difficulties over the Constitutional Treaty. 
The aim of this twin track approach is to lead, over time, to an institutional settlement which 
strengthens the overall political ambition of consolidating a “projet de vie en commun”. 

More than anything, this approach requires political will across Europe, in the Member States 
and the regions. Effective institutions are essential for the functioning of the EU, and embody 
the  political  nature  of  the  European  project.  But  the  EU  institutions  cannot  reinvigorate 
Europe on their own. Nor should they in a Europe which is, and must be, democratic rather 
than  just  administrative.  Common  ownership  is  essential.  That  is  why  the  first  institutional 
step forward could be the adoption next year, 50 years after the Treaty of Rome, of a political 
declaration  by  the  Member  States,  the  Commission  and  the  European  Parliament  which  not 
only sets out Europe’s values and ambitions, but also contains a shared undertaking to deliver 
them:  an  “obligation  d’engagement”.  The  purpose  and  style  of  the  document  should  be 
inspired  by  the  Messina  declaration,  which  was  both  a  response  to  an  institutional  setback, 
and a precursor to a Treaty, in that case the Treaty of Rome. 

THE POLICY AGENDA: A EUROPE OF RESULTS 

A  new  Citizens’  Agenda  for  Europe  must  deliver  peace,  prosperity  and  solidarity  in  a  new 
context,  globalisation.  It  should  deliver  an  open  and  fully  functioning  single  market  and 
effectively  turn  the  four  freedoms  into  reality;  promote  solidarity,  opportunity,  access  and 
sustainability;  and  increase  security.  It  is  an  agenda  for  the  benefit  of  all  Europe’s  citizens, 
building on achievements to date, and following the course set already, with a particular focus 
on growth and jobs. 

Deeper economic integration; a single market for the 21st century 

The European economy faces new challenges and opportunities in the 21st century. The single 
market,  alongside  effective  competition  policy,  has  brought  huge  benefits  to  Europe’s 
citizens,  securing  choice  and  opportunity  for  Europeans  including  in  areas  such  as 
telecommunications and air travel, which were once perceived as closed sectors. It has paved 
the way for the creation of the euro, which has in turn reinforced the dynamism of the single 
market  and  strengthened  financial  and  economic  integration,  making  the  EU  stronger 
globally.  Finally,  the  revised  Lisbon  strategy  has  set  the  base  for  modernisation  of  our 
economies in order to deliver growth and jobs for all citizens. 

It  is  time  to  take  stock  of  economic  integration,  and  in  particular  the  single  market,  and  to 
look to the future, by addressing the following questions. 

(cid:190)  How can we build on what has already been achieved? 

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(cid:190)  Where are the remaining gaps? The Single Market is not yet complete, with a need 
for better integration of energy and financial markets, removing obstacles to the free 
movement  of  labour.  These  are  issues  which  have  direct  effects  on  citizens;  for 
example,  on  energy  prices,  on  roaming  charges  for  mobile  phone  users,  on  banking 
charges.  In  other  areas,  the  full  benefits  for  consumers  are  far  from  realised:  for 
example,  why  is  it  still  so  difficult  for  a  European  in  one  Member  State  to  obtain 
insurance in another? How do we take forward the Community patent? 

(cid:190)  How can we meet the challenges of the future? EU economic policy has to boost the 
integration  and  convergence  of  European  economies.  The  EU  needs  to  pursue  the 
Lisbon  agenda;  promote  the  completion  and  smooth  functioning  of  Economic  and 
Monetary Union and complete the Single Market. EU economic policy has to take full 
account  of  external  pressures,  for  example  on  competitiveness,  as  well  as  the 
opportunities  which  globalisation  offers  in  terms  of  investment  and  exports.  The 
building of the single market must be a dynamic process, not a one-off achievement.   
A strong, open, competitive single market can be a major part of Europe’s response to 
the challenge of globalisation. 

(cid:190)  Do we have the most effective mechanisms for delivering the single market? The 
means to boost economic integration have evolved over the last twenty years and there 
are new ways to stimulate entrepreneurship and innovation. The Commission is ready 
to  work  in  a  renewed  spirit  of  partnership  with  Member  States  and  their 
administrations,  including  through  the  use  of  new  technologies,  to  make  the  system 
work and to assist them in taking ownership and responsibility. 

The Commission commits itself to removing the remaining barriers to a single market, to 
enable European citizens and entrepreneurs to enjoy the full benefits of the EU. To that end it 
proposes to launch a fundamental review of the single market to look at what more needs to 
be done and how. It will present a report – the single market in the 21st century - to the 
Council and European Parliament next year, including with concrete proposals for future 
action. The Commission will also pursue vigorously the Lisbon strategy and the completion 
and good functioning of Economic and Monetary Union. 

Opportunity, access and solidarity 

The drive for a deeper and wider economic integration should go hand in hand with further 
support for one of Europe’s most unifying and fundamental values: solidarity. 

To sustain publicly funded healthcare, social protection and pensions, against a backdrop of 
demographic change, and to enable EU citizens to successfully adjust to change, policies must 
adapt  to  a  new  world  of  work:  Europeans  are  living  longer  lives,  facing  unprecedented 
changes in traditional family patterns, improving gender equality, adjusting to new patterns of 
migration  and  diversity,  and  yet  still  experience  persistent  poverty  among  disadvantaged 
groups. The European Union needs to analyse the radical changes under way in our societies 
and to support sustainable responses at all levels to match the work on the reform challenges 
facing the European economy. 

The promotion of rights and guarantees in the workplace must be combined with job creation. 
It is therefore essential that Member States put the emphasis on active labour market policies 
to  fight  Europe’s  unemployment,  and  especially  its  youth  unemployment,  which  remains 

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unacceptably  high  in  many  Member  States.  As  the  European  Council  said  in  setting  up  the 
Lisbon Strategy, “the best safeguard against social exclusion is a job”. 

European  solidarity  policies  and  programmes  must  promote  a  higher  quality  of  life,  social 
cohesion  and  increase  opportunities  for  the  Union’s  citizens,  working  with  the  national, 
regional  and  other  authorities  on  the  ground  as  well  as  with  the  social  partners,  promoting 
social  dialogue  and  engaging  with  civil  society.  This  means  that  our  policies  to  sustain 
solidarity must be matched by a more effective means of ensuring citizens’ existing rights of 
access  to  employment,  education,  social  services,  health  care  and  other  forms  of  social 
protection across Europe. 

Solidarity  must  extend  to  future  generations,  through  an  effective  EU  response,  not  just  to 
demographic but also to environmental change. The Union should continue to take the lead in 
the  fight  against  climate  change  and  against  the  loss  of  biodiversity  through  steps  to 
implement  the  Kyoto  commitments  in  a  cost-effective  manner,  global  action  for  further 
emissions  reductions  in  the  post-2012  period,  and  a  plan  of  action  to  meet  the  2010 
biodiversity targets. 

The Commission will take comprehensive stock of the reality of European society, and launch 
an agenda for access and solidarity, a social dimension in parallel and close coordination 
with the single market review, next year. It will explore the possibility of developing an 
“entitlement” card which would enable every European citizen to be aware of and enjoy full 
access to their existing rights. It will continue to drive forward its sustainable development 
agenda. 

Freedom, Security and Justice  

The EU must give European citizens confidence that measures are in place to make Europe a 
fair  and  safe  place  to  live  in,  where  security  is  guaranteed  in  parallel  with  liberty  and  the 
exercise of individual freedoms which Europeans hold dear. 

The EU must act further. For example, it needs  

(cid:190)  to  focus  on  respect  and  promotion  of  fundamental  rights  for  all  people  and  to 

develop the concept of EU citizenship; 

(cid:190)  a stronger anti-terrorism policy, stepping up cooperation between law enforcement 
and  judicial  authorities  by  removing  barriers  to  accessing  and  sharing  information 
while fully respecting privacy and data protection; 

(cid:190)  better  external  border  protection,  with  a  more  integrated  external  border 
management  system,  including,  over  time,  border  guards  operating  under  common 
European rules and procedures; 

(cid:190)  a  more  effective  common  European  asylum  system  by  2010  with  greater 

harmonisation of criteria and procedures; 

(cid:190)  a  more  coordinated  common  migration  policy,  which  recognises  the  benefits  of 
integrating migrants better while tackling illegal immigration and trafficking gangs, in 
partnership with third countries; 

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(cid:190)  more police and judicial cooperation based on mutual recognition to make national 
judgments and decisions enforceable throughout the EU for all those who move, live 
and work across the EU; 

(cid:190)  to make full use of existing mechanisms to tackle threats to citizens’ security in a 

whole range of areas including food, health and bioterrorism; 

(cid:190)  more cooperation on consular affairs to better protect EU citizens in third countries. 

Action and accountability in some areas of policy making are hindered by the current decision 
making  arrangements,  which  lead  to  deadlock  and  lack  of  proper  democratic  scrutiny. 
Existing  Treaty  provisions  (Articles  42  of  the  Treaty  on  European  Union  and  67(2)  of  the 
Treaty  establishing  the  European  Community)  allow  for  changes  to  these  arrangements, 
which would improve decision taking in the Council and allow proper democratic scrutiny by 
the European Parliament; and the enhancement of the role of the Court of Justice. 

The Commission will present an initiative to improve decision taking and accountability in 
areas such as police and judicial cooperation and legal migration, using the possibilities 
under the existing Treaties. 

Enlargement 

Successive  enlargements  of  the  EU  have  made  it  what  it  is  today  –  a  powerful  force  for 
promoting  the  spread  of  peace,  democracy  and  prosperity  and  for  projecting  Europe’s 
interests, values and influence in the world. It is through enlargement that the European Union 
has  underpinned  the  transformation  of  former  dictatorships,  to  the  benefit  of  all  Member 
States. At every enlargement, there have been doubts: but each time the Union has proved it 
has the institutional, financial and political capacity to integrate new members. 

The most recent enlargement in 2004 had first and foremost the historic political and strategic 
dimension  of  reunifying  Europe.  But  it  has  also  been  an  economic  success,  spurring 
dynamism  in  the  European  economy,  increasing  growth  and  creating  jobs  through  greater 
investment and trade1. 

However,  while  a  majority  continues  to  welcome  enlargement,  many  citizens  question  its 
pace and scope. The Union must honour existing commitments. At the same time, there is a 
need for an informed debate on the future enlargements and what they mean for the Union as 
a whole. 

The issue of how the EU can adapt to taking in new members while continuing to deliver on 
its  main  objectives  is  not  new:  the  1993  Copenhagen  European  Council  already  spoke  of 
absorption  capacity,  and  “Agenda  2000”  proposed  the  package  of  institutional,  policy  and 
budget reform which paved the way for the successful accessions of May 2004. 

The EU has shown it can take in new members and remain effective. To show that it can do 
this again, it must ensure that enlargement will further Europe’s common project.  

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The Commission will take forward the debate on the value added of enlargement and the 
Union’s capacity to absorb new members. It will report on the EU’s enlargement strategy 
later this year, ahead of the European Council in December. 

The EU in the world 

The  need  for  an  effective  Europe  on  the  global  stage  is  stronger  than  ever.  Global 
interdependence  gives  new  opportunities  to  project  European  values  and  interests,  and  has 
sharpened Europeans’ support for common external action. 

The  absence  of  an  institutional  settlement  should  not  prevent  the  development  of  the  EU’s 
global role. We need to get the most out of our substantial collective capacities, for example 
in  defence,  mobilising  operational  resources,  research  and  procurement.  The  Commission 
stands ready to support Member States’ efforts in this direction. 

For Europe to become more than the sum of its parts as a global player, Member States and 
institutions should work together to deliver on the following areas: 

(cid:190)  Focus  and  impact.  As  the  EU's  external  tasks  and  partners  multiply,  it  needs  to  be 
clear on its priorities and transmit a clear message about what it is trying to achieve. 
Greater priority should be given to developing the European Neighbourhood Policy as 
a means of promoting stability and prosperity in the countries surrounding the EU. 

(cid:190)  Coherence.  The  EU  has  a  unique  range  of  tools  for  external  policy  which  go  far 
beyond  traditional  “foreign”  policy,  including  trade,  development  cooperation, 
humanitarian  aid,  and  political  dialogue.  In  addition,  our  objectives  in  areas  like  the 
environment, transport, energy, migration and security can only be delivered in full by 
working  beyond  Europe’s  boundaries.  Internal  and  external  policy  coherence  is 
essential.  Later  this  year,  the  Commission  will  propose  a  new  approach  to  external 
competitiveness, looking at issues such as improved access to markets overseas, new 
priorities  in  trade  relations,  promotion  of  investment  opportunities  and  protection  of 
intellectual  property.  In  this  context,  the  Union  should  continue  to  promote  high 
competition, social and environmental standards worldwide. 

(cid:190)  Coordination.  The  Member  States  and  the  institutions,  and  the  institutions 
themselves,  must  work  together  better  for  a  more  effective  and  efficient  external 
action. External policy necessarily involves many actors. They must all focus on what 
they  are  trying  to  achieve  together  rather  than  on  who  does  what;  for  example  in 
delivering effective assistance and civil protection in external crisis situations. 

Following  the  discussion  of  Europe’s  role  in  the  world  at  the  Hampton  Court  meeting,  the 
Commission  will  present  a  Concept  Paper  on  external  relations  with  concrete  ideas  to 
address these challenges within the framework of the present Treaties, in particular on how to 
improve  coherence  and  coordination  of  the  Commission’s  action  with  that  of  the  other 
European institutions and that of the Member States. 

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THE BUDGET TO DELIVER THE AGENDA 

The budget is one of the most important practical expressions of the Union’s political goals. A 
reformed  budget,  both  on  the  expenditure  and  the  resources  side,  is  essential  to  realise  a 
citizens’ agenda. Several important steps were taken in the recent agreement on the Financial 
Framework,  for  example  the  increase  of  expenditure  to  new  policies  such  as  security, 
innovation and research and the reform of EU cohesion policy to follow the growth and jobs 
agenda, while preserving its central role in delivering solidarity across the Union. 

But more remains to be done. Decisions on the resources and expenditure of the Union must 
be grounded in a consensus about the future political direction of the Union and the allocation 
of tasks between the Union and national levels, as well as on the overall level and sources of 
funding to meet the Union’s priorities. That is why the Commission will return in 2008/9 with 
ideas  for  a  comprehensive  reform  of  the  budget  in  a  way  which  will  support  prosperity, 
solidarity and security through a new policy agenda. 

A PARTNERSHIP EUROPE: SUBSIDIARITY, BETTER REGULATION, OPENNESS 

Delivering  a  new  policy  agenda  needs  a  new  partnership.  The  EU  is  a  complex,  unique 
organisation  pursuing  a  wide  range  of  goals.  It  can  only  work  by  sharing  both  power  and 
responsibility,  and  sticking  to  a  set  of  key  democratic  principles  –  accountability, 
transparency, and trust. The EU must: 

(cid:190)  Respect  the  principle  of  subsidiarity,  acting  at  the  European  level  only  when 
appropriate. The Commission is committed to working with Member States and their 
national  parliaments  regions,  city  and  local  governments,  social  partners  and  civil 
society to ensure that the fruits of prosperity reach everyone. 

(cid:190)  Minimise  bureaucracy.  The  Commission  has  led  the  way  by  simplifying  existing 
legislation and by increasing the use of impact assessment. But this must be a common 
endeavour, and all institutions, as well as national and regional authorities, should do 
more to simplify life for business and the citizen. Later in 2006, the Commission will 
come forward with a further set of proposals to make better regulation a reality across 
the EU. 

(cid:190)  Improve openness and accountability. Both the Commission and Council are taking 
important  steps  to  improve  transparency.  Further  action  is  needed  across  all 
institutions. The Commission will build on the European Transparency Initiative and, 
for example, accelerate work on access to documents. 

Partnership means that the EU institutions must work effectively together – the dividing lines 
between their tasks must never be seen as more important than the fact that all are pursuing 
shared  goals.  They  must  also  reach  out  to  the  citizen  –  a  key  objective  of  the  new 
communication policy2. 

But  the  European  institutions  must  also  work  more  closely  with  key  partners.  National 
governments  have  a  particular  responsibility  for  making  the  EU  work  well.  Indeed  at  every 

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stage  –  consultation  before  policies  are  fixed,  discussion  on  concrete  proposals,  and 
implementation – EU policy cannot work unless all actors are fully engaged. 

In particular, national parliaments must be more closely involved with the development and 
execution  of  European  policy.  The  increased  involvement  of  national  parliaments  can  help 
make  European  policies  more  attuned  to  diverse  circumstances  and  more  effectively 
implemented. 

The Commission wishes to transmit directly all new proposals and consultation papers to 
national parliaments, inviting them to react so as to improve the process of policy 
formulation. 

TOWARDS AN INSTITUTIONAL SETTLEMENT 

The  EU  must  ensure  that  its  institutions  can  deliver  this  new  policy  agenda  for  European 
citizens. 

The Laeken declaration in 2001 called for a clear, open, effective, democratically controlled 
Community  approach  developing  a  Europe  which  points  the  way  ahead  for  the  world.  That 
was  the  basis  for  the  subsequent  work  by  the  Convention  and  the  Intergovernmental 
Conference  to  agree  the  Constitutional  Treaty.  Five  years  on,  the  objectives  in  the  Laeken 
declaration are even more valid. 

In June 2005, the Heads of State and government agreed to make an overall assessment of the 
national debates in the first half of 2006 and agree on how to proceed. In the Communication 
on  Plan  D  and  the  period  of  reflection3,  the  Commission  analyses  the  issues  raised  in  the 
debates. In summary, citizens recognise that the issues faced both inside and outside Europe 
need  to  be  tackled  Europe-wide.  They  are  concerned  about  employment  and  security,  and 
want a European response to globalisation. They would like a clearer vision of where Europe 
is  heading,  for  example,  on  enlargement.  There  is  a  sense  that  Europe’s  energies  could 
usefully be concentrated on policy delivery. 

More  generally,  several  different  ways  forward  on  the  Constitutional  Treaty  have  been 
floated.  The  ongoing  ratifications  are  proof  of  Member  States’  commitment  to  the 
Constitutional Treaty. In line with the declaration annexed to the Constitutional Treaty, if four 
fifths  of  the  Member  States  have  ratified  it,  the  matter  will  be  referred  to  the  European 
Council. But no consensus exists at this stage on the way forward. 

Rebuilding  a  climate  of  confidence  and  trust,  and  reconnecting  citizens  with  the  Union  by 
proving through concrete results that the Union is able to address their needs and aspirations, 
will pave the way for a positive outcome. 

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The Commission therefore proposes that 

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It is time to move forward, to use our reflection to improve delivery. The EU's focus 
should now shift to a new policy agenda for citizens, drawing on continued dialogue, 
including through the implementation of plan D. 

The  EU  should  use  existing  Treaties  more  effectively,  as  described  in  this  paper, 
without pre-empting the Constitutional Treaty. 

In  parallel,  the  European  Council  should  decide  in  June  to  adopt  a  step  by  step 
approach,  to  be  taken  forward  by  future  Presidencies,  designed  to  create  the 
conditions for a future institutional settlement. 

As the next major step towards an institutional settlement, EU leaders should adopt a 
political declaration which not only sets out Europe’s values and ambitions, but also 
under which leaders make a shared undertaking to deliver them. This could take place 
next  year,  fifty  years  after  the  signing  of  the  Treaty  of  Rome.  The  European 
Parliament and the Commission should also sign this declaration. 

As a further step, the solemn declaration should serve as the basis for decisions by the 
European Council next year to launch a  process designed to lead to an institutional 
settlement  to  be  developed  by  future  Presidencies.  The  Commission  stands  ready  to 
assist as necessary. 

CONCLUSION 

The EU has delivered peace, prosperity and security in a way which was unimaginable at the 
time  of  its  creation.  It  can,  and  must,  continue  to  meet  the  needs  and  wishes  of  new 
generations of Europeans. 

Therefore  the  EU  must  pick  up  momentum  in  creating  a  new  citizens’  agenda.  This  should 
include  proposals  to  deliver  further  benefits  for  citizens  by  relaunching  the  drive  to  bring 
Europeans  the  opportunities  and  safeguards  of  Europe  based  on  openness  and  solidarity.  It 
must provide further guarantees of security and liberty. It must be linked to a more effective 
global EU presence. 

In carrying through this agenda, the EU must work in partnership. The scale of the challenge 
requires a full commitment not only from the EU institutions, but from everyone with a stake 
in  Europe’s  success.  Building  a  new  confidence  in  the  European  Union  as  a  force  for 
prosperity, solidarity and security in Europe and the wider world will create the right context 
for an institutional settlement. 

"There is no future for the peoples of Europe other than in union." 

Jean Monnet 

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