Opinion of the European Economic and Social Committee on the Commission Communication: Communicating Europe in Partnership COM(2007) 568 and Annex COM(2007) 569
Date: 2008-04-22
Institutions: European Economic and Social Committee
Subjects: Council of the European Union, European Commission, European Parliament, communications policy, cooperation policy, interinstitutional agreement

C 211/90

EN

Official Journal of the European Union

19.8.2008

Opinion of the European Economic and Social Committee on the ‘Commission Communication:
“Communicating Europe in Partnership”’

COM(2007) 568 and Annex COM(2007) 569

(2008/C 211/22)

On 3 October 2007, the European Commission decided to consult the European Economic and Social
Committee, under Article 262 of the Treaty establishing the European Community, on the

Commission Communication: ‘Communicating Europe in Partnership’.

The European Economic and Social Committee, acting under Rule 20 of the Rules of Procedure, appointed
Ms van Turnhout as rapporteur general.

At its 444th plenary session held on 22 and 23 April 2008 (meeting of 22 April 2008), the European
Economic and Social Committee adopted the following opinion by 92 votes to 12 with 26 abstentions.

1. Conclusions and recommendations

1.1
The Committee reiterates its call for the Commission to
address face-on the problem of the absence of a legal basis for
communication policy. However, recognising the legal and poli-
tical obstacles, the Committee does not oppose an Inter Institu-
tional Agreement
the European
Parliament and the Commission. The Committee will — as far
as possible — follow the intentions outlined in such an IIA.

(IIA) between the Council,

lack of

The Committee again draws attention to a twin resource
1.2
problem:
funds and a discouragingly complicated
bureaucratic procedure for their disbursement. The Committee
calls for the Commission to streamline procedures for providing
Grants and it calls for the Commission to include the advisory
bodies, such as the EESC, in future Framework Contracts; for
example, Audiovisual services, EBS and Opinion Polling.

1.3
The Committee applauds the idea of Communicating in
Partnership in a coherent and integrated way, by empowering
European citizens and develop a European Public Sphere. In
order to reach citizens, we need (i) a clear, simple and attractive
set of messages; a clear vision which citizens accept as their
vision; and (ii) an appropriate design and instruments for
communication. The setting-up of an annual work plan around
selected EU communication priorities can contribute to that.
The EESC, given the right resources,
is ready and willing to
work together with the other institutions on this, recognising
that the EU is not only Brussels, and that the EU has to ‘go
local’.

1.4
The EESC attaches great importance to its representation
in the Inter-institutional Group on Information (IGI). The post-
White Paper addendum to the protocol of cooperation between
the European Commission and the European Economic and
Social Committee signed on 31 May 2007, provides an excellent
framework for the European Commission (EC) and European
Parliament (EP) European Houses in Member States to involve
actively the 344 EESC members in national and regional activ-
ities. The Commission, when communicating with Civil Society,
is encouraged to recognise the role that the Committee can play

as the bridge between the EU institutions and organised Civil
Society. The Committee could also see a value in its Members
taking an active part in the proposed web-based Pilot Informa-
tion Network (PINs). The Committee will be happy to train and
maintain contacts with proposed Civil Society Contact Points in
the Commission departments and other relevant networks, such
as the EESC Contact Points, at EC Representations and the
Europe Direct Centres. As such the Committee encourage the
Commission to look at how to increase the support for their
networks, such as Europe Direct and the Team Europe Speakers.

2. Explanatory statement

The

European

Commission

2.1
Communication
(COM 2007/568) on ‘Communicating Europe in Partnership’
It represented the fourth
was adopted on 3 October 2007.
document adopted on communications issues by the European
Commission. The other three were: i) the European Commis-
sion's White Paper on a European Communication Policy
ii) an
(COM(2006) 35 final), adopted on 1 February 2006;
internal Action Plan (SEC(2005) 985 final), adopted on 20 July
2005; and iii) its Communication ‘Reflection and beyond: Plan D
for Democracy, Dialogue and Debate’ (COM(2005) 494 final),
adopted on 13 October 2005.

2.2
‘Communicating Europe in Partnership’ highlights the
crucial importance of inter-institutional cooperation in commu-
nicating on EU issues and sets out the preconditions for a
successful communication policy based on a partnership with
major political, economic and social actors at all levels. On the
same day,
the Commission also adopted — as outlined in
item 1.2, and according to the European Parliament resolution
on a European Communication Policy — a proposal for an
Inter-institutional Agreement (COM 2007/569) on ‘Communi-
cating Europe in Partnership’. This was in order to reinforce the
commitment of all EU institutions to a number of EU commu-
nication priorities each year and with the involvement of inter-
ested Member States. While recognising the autonomy and
different responsibilities of each EU institution, the Inter-institu-
tional Agreement highlights the need for, and the added value

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of, better coordination in the way they communicate on EU
issues. To this end, it also provides a coherent framework for
action. Considering the particular importance of the year 2008
for the Lisbon Reform Treaty ratification process in Member
States and in preparation for the European elections in 2009,
the Commission invites the European Economic and Social
Committee to formulate its views on the Communication.

— the Committee's participation in the six Commission co-fi-

nanced ‘Plan-D’ projects;

— the conclusions from the EESC stakeholder conference, ‘Your
Europe, Your Say’ organised in Dublin on 18 October 2007;
and

For

its part,

the European Economic

2.3
and Social
Committee has adopted three recent opinions in the communi-
cations field,
the first on ‘The Reflection Period: structure,
themes and framework for an evaluation of the debate on the
European Union’ (CESE 1249/2005 (1)), adopted on 26 October
2005, and addressed to the European Parliament; the second
being the opinion on the Commission's ‘Plan D’ Communica-
tion (CESE 1499/2005 (2)), adopted on 14 December 2005.
Both of these opinions proposed a series of operational recom-
mendations.
to
the White Paper on a European communication policy
(CESE 972/2006 (3)), adopted on 6 July 2006. This latest
opinion calls for the Commission to address the problem of the
absence of a legal basis for communication policy and supports
increased inter-institutional cooperation putting focus on a
decentralised approach.

EESC opinion was

linked

third

The

2.4
The current opinion on the Communication ‘Communi-
cating Europe in Partnership’ should not, therefore, deal with
areas which the Committee has already covered and is still
covering. Rather, it should seek to respond to the three basic
areas identified in the Communication. These are:

— empowering citizens,

— developing a European Public Sphere, and

— reinforcing the partnership approach (Including the proposal
for an Inter-Institutional Agreement (IIA) on communica-
tion).

— the conclusions from the EESC Press Officers seminar,
‘Communicating Europe: What role does civil society wish
to play?’, organised in Brussels on 12 November 2007.

This Opinion on the Communication,

2.6
‘Communicating
Europe in Partnership’ is divided into three sections, matching
the three issues identified in the Commission's document, and is
restricted to addressing just a few, key questions,
in each
section.

3. General comments

3.1 Empowering citizens

3.1.1
In the specific field of communicating Europe, the role
of Civil Society is essential. The renewed Plan D framework
wants to involve many partners in the development of
the
European Union, including NGOs, professional associations and
the increasing number of enterprises that want to learn more
about Europe, its policies, programmes and processes. The EESC
supports the Rome Youth Declarations call for the EU to guar-
antee an increased budget for funding NGOs as primary provi-
ders of non-formal education and the promoters of civic partici-
pation, human rights and democracy.

In addition to the Committee's three opinions cited
2.5
above and the Commission's Communication,
‘Communicating
Europe in Partnership’, this Opinion is based on several addi-
tional sources of input:

3.1.2
The Committee fully supports a multilingual approach
to communication. Not only will the Communication be made
in the appropriate number of languages, but plain language will
also be used. This was clearly stated in the EESC seminar for
Press Officers debate, November 2007.

— the summary records of

the debates held in the EESC's

plenary sessions since June 2005;

— the summary records of the various discussions held in the

EESC Communication Group;

— the Committee's Resolution made as a contribution to the
European Council of 21 and 22 June 2007 — Roadmap for
the constitutional process, as adopted on 30 May 2007
(CESE 640/2007);

— the recommendations arising from the Rome Youth Declara-
tion of 25 March 2007, celebrating the 50th anniversary of
the Treaty of Rome;

(1) OJ C 28, 3.2.2006, p. 42-46.
(2) OJ C 65, 17.3.2006, p. 92-93.
(3) OJ C 309, 16.12.2006, p. 115-119.

The EESC has often stated that the EU is not only
3.1.3
Brussels. As such, the EESC has with its actions supported the
concept of ‘going local’. The Committee warmly welcomes the
Commission's initiative to appoint EESC contact points at all EC
Representations. This was a logical follow-up to the signature of
the addendum to the protocol of cooperation between the two
institutions. The addendum that will serve as the basis for
continued development of the inter-institutional working rela-
tions. The EESC has 344 members spread over all the 27 EU
member states. These members are based in different national
organisations
the
the
Committee. These members have both national and regional
knowledge, as well as a European view from their work in the
Committee. The EC Representations and EP Information offices
should make use of these valuable resources. An interesting first
challenge would be for the appointed Contact Points to take
initiatives with EESC members
in celebrating the EESC
50th anniversary on May 2008.

representing

groupings

three

of

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appropriate. The

3.1.4
The numerous networks established throughout Europe
are important elements, in this context, in the effort to commu-
nicate Europe locally. The Europe Direct Centres, for example,
should communicate European Policy by looking to all EU insti-
tutions. The EESC will be willing to contribute knowledge at
these networks, by providing relevant information material and
training where
limited financial
support to these networks should be revised by the Commis-
sion. With more resources and a more differentiated approach
from the side of the Commission, the centres could in a more
efficient way support the ambition of ‘going local’. Furthermore,
the Commission and the European Parliament should consider
how to involve the network of European Agencies, spread all
over Europe, in the EU Communication effort. Lastly, the EESC
has also learned from experience that initiatives in the cultural
arena stir interest among citizens and serve as important vehi-
cles for promoting European ideas.

relative

3.1.5
The Commission consultation on the white paper
showed a strong demand from civil society actors for closer
involvement in the European process. The EESC wants to high-
light the conclusions reached at its November Press Officers
seminar in Brussels, November 2007, calling for the need to use
existing structures and networks for consultation, rather than
going back to square one every time. The EESC, representing
European organised Civil Society, has a very important role to
play here, and other European Union institutions must recognise
this.

3.1.6
The EESC agrees with the Commission that education
and training for active citizenship is the responsibility of the
Member States. The EESC notes the fact that the rights and
duties of European citizens feature in less than half of the EU
Member States school curricula. The EESC Dublin Youth Forum
of October 2007 confirmed that citizens will engage in discus-
sion on European issues if they are given the opportunity to do
so. An important element is education and putting EU on the
school agenda. The seminar called for enhanced Youth Participa-
tion in the decision-making process. It is entirely possible for
the EU to promote better voluntary activities and exchange
programmes without losing national identity. The EESC calls for
specific initiatives to be taken in this area.

The EESC welcomes initiatives such as ‘Spring Day
3.1.7
Europe’ and ‘Back to School’. The Committee encourage the
Commission to look at how to involve better existing regional
and local networks in these efforts. These efforts should include
all School levels, including primary level.

3.2 Developing a European public sphere

3.2.1
The Commission stresses the importance of delivering
on its policies as the best way of ensuring public support for
the European Project. Limited communication surrounding the

ratification of the Lisbon Reform Treaty seems to run contrary
to the idea of a European Public Sphere. In its May 2007 resolu-
tion to the European Council June 2007, the EESC called for
in
recognition of the importance of participatory democracy,
particular by requiring the European institutions to maintain a
transparent and regular dialogue with civil society organisations
and EU citizens.

3.2.2
The EESC shares the Commission and the European
Parliament ambition of increasing the level of participation in
the 2009 European Parliament elections. This can be enhanced
by implementing the ideas, put forward by the Commission, on
setting agreed common Communication priorities. The EESC is
willing to work on such common objectives. The EU needs a
real project and content with which citizens can identify. Any
objective for Europe also needs to include the social sector and
employment, and the EESC is ideally placed here. Good commu-
nication must always be based on a clear, well-defined plan, and
providing value to European Citizens. On a smaller scale, the
EESC members should be invited to assist in the Commission's
online Pilot Information Networks (PINs) initiative.

3.2.3
Audiovisual media is the strongest communication tool
and the bigger institutions, such as the Commission and the
European Parliament, have access to such tools. Clearly, broad-
caster independence will be ensured when making contracts
with those offering services from EBS (Europe by Satellite) or
on-line services via the internet. When establishing such
contacts, the Commission will be encouraged to consider how
to open the doors for other institutions and EU bodies as well,
to ensure balanced communication — also bearing in mind that
the administrative processes
for establishing contracts are
burdensome for the advisory bodies and other EU bodies. The
Commission could also ensure that the appropriate synergies
are created. This may also be the case when identifying areas in
which to measure public opinion.

3.3 Reinforcing the partnership approach

3.3.1
The EESC fully supports the partnership approach as
promoted by the European Commission. This includes not only
the EU institutions, but also Member States and national and
regional politicians and decision-makers who must take owner-
ship of
the EU decisions they make. The EESC welcomes
networking with national communication directors and calls for
enhanced synergy with civil society organisations and their
communication resources. The EESC has such a platform via its
Press Officers network. It should also be noted that most EU
member states have national Economic and Social Councils and
that EESC members have good links with the host organisations
in their respective member states. This is a powerful network,
and one in which the EESC as an institution can be a strong
partner to the other institutions.

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3.3.2
The Committee is fully engaged in the work of the
Inter-Institutional Group on Information (IGI), in which it has a
role as observer. The EESC wants to highlight the importance, at
a technical level, of good preparation for these meetings. The
EESC also has a practical problem with participation, as the IGI
meetings are always organised in Strasbourg and are parallel to
the EESC Bureau and plenary meetings in Brussels. The EESC
would like to see IGI meetings moved to allow EESC participa-
tion at the highest possible level. The EESC also welcomes the
open-door policy to the Council Working Group on Informa-
tion and expresses a hope for that door to remain open,
allowing EESC participation in shaping the EU Communication
policy.

3.3.3
Although the EESC at earlier locations has promoted
the idea of establishing a proper legal basis for communication,
the EESC takes note of the proposal for establishing an inter-
agreement on communication between the
institutional
Commission, the European Parliament and the Council. For its
part, the Committee continues to update and implement its stra-
tegic communication plan. This includes continuous review of
its communication tools and their use, and the exploration of
innovative methods. In its Communication priorities, the EESC

takes into consideration the communication objectives put
forward by the Commission. The EESC calls for the objectives
to be clear, focussed, relevant to citizens and limited in number.

3.3.4
The EESC supports the grants provided via the Plan D
initiative and continues to underline the importance of trans-
parent and less bureaucratic administrative procedures allowing
all Civil Society organisations to engage in the projects. The
EESC looks forward to the follow-up to the Plan D exercise,
called ‘Debate Europe’, as announced by the Commission.

4. Recalling the Committee's previous recommendations

The Committee recalls its previous recommendations to
4.1
the Commission (in the context of communication): those set
out in the annex to its October 2005 opinion on ‘The Reflec-
tion Period: structure, themes and framework for an evaluation
of the debate on the European Union’ (CESE 1249/2005); its
December 2005 opinion on the Commission's contribution to
the reflection and beyond: Plan D for Democracy, Dialogue
and Debate (CESE 1499/2005); and its July 2006 opinion on
the White Paper on a European communication policy
(CESE 972/2006).

Brussels, 22 April 2008

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS