REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS UNDER ARTICLE 25 TFEU On progress towards effective EU Citizenship 2011-2013
Date: 2013-05-08
Institutions: European Commission
Subjects: European Ombudsman, European citizenship, consulate, public hearing, residential mobility, right to stand for election, right to vote

EUROPEAN 
COMMISSION 

Brussels, 8.5.2013  
COM(2013) 270 final 

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE 
COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

UNDER ARTICLE 25 TFEU 

On progress towards effective EU Citizenship 2011-2013 

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   EN 

 
 
 
 
  
 
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE 
COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

UNDER ARTICLE 25 TFEU 

On progress towards effective EU Citizenship 2011-2013 

1. 

INTRODUCTION 

In the framework of the European Year of Citizens 2013 and in accordance with Article 25 of 
the Treaty on the Functioning of the European Union (TFEU), the present report covers major 
developments in the field of EU citizenship between 1 January 2011 and 31 March 2013. 
Following  the  entry  into  force  of  the  Lisbon  Treaty,  it  also  refers  to  the  European  Citizens' 
Initiative and the prohibition of discrimination on grounds of nationality1. 

On  discrimination  on  other  grounds  (Article  19  TFEU),  the  Commission  will,  in  November 
2013,  publish  a  report  on  the  implementation  of  the  Racial  Equality  Directive2  and  the 
Employment Equality Directive3 which will look into discrimination on grounds of racial or 
ethnic origin, religion or belief, disability, age and sexual orientation in a consistent manner. 
The  Commission  will  also  publish  a  report  on  the  application  of  the  Directive  on  equal 
opportunities and equal treatment of men and women4. 

The Lisbon Treaty gave full legal effect to the Charter of Fundamental Rights of the European 
Union, which enshrines EU citizens’ rights in its Title V (Articles 39-46). The three Annual 
Reports  on  the  application  of  the  Charter  of  Fundamental  Rights,  adopted  in  March  20115, 
April 20126 and May 20137, hence also include a record of progress on Union citizens’ rights.  

2. 

DEVELOPMENTS IN THE FIELD OF EU CITIZENSHIP RIGHTS 

2.1. 

Recent case-law developments on EU citizenship 

In  a  number  of  key  rulings,  the  Court  of  Justice  of  the  European  Union  has  fleshed  out  its 
consistent  affirmation  that  "citizenship  of  the  Union  is  intended  to  be  the  fundamental 
status of nationals of the Member States"8. 

In the Zambrano9 judgment, the Court held that Article 20 TFEU precludes national measures 
which could deprive Union citizens of the genuine enjoyment of the substance of their rights 
as Union citizens. Applying this criterion in that particular case, it concluded that an irregular 
migrant in a Member State whose minor dependent children are nationals of that country must 

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4 

5 
6 
7 
8 
9 

Articles  18  and  24  TFEU  were  integrated  by  the  Lisbon  Treaty  in  Part  Two  of  the  TFEU  "Non-
discrimination and Citizenship of the Union". 
Directive  2000/43/EC  implementing  the  principle  of  equal  treatment  between  persons  irrespective  of 
racial or ethnic origin. 
Directive 2000/78/EC establishing a general framework for equal treatment in employment, occupation 
and vocational training. 
Directive 2006/54/EC on the implementation of the principle of equal opportunities and equal treatment 
of men and women in matters of employment and occupation. 
COM(2011) 160 - http://ec.europa.eu/justice/fundamental-rights/files/annual_report_2010_en.pdf. 
COM(2012) 169 - http://ec.europa.eu/justice/fundamental-rights/files/charter-brochure-report_en.pdf. 
COM(2013) 271- http://ec.europa.eu/justice/fundamental-rights/files/charter_report_2012_en.pdf. 
See, for instance Case C-184/99 Grzelczyk. 
Case C-34/09, Ruiz Zambrano. 

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be allowed  to  reside and  work there. The Court explained that a refusal to grant this parent 
such a right would deprive the children from the genuine enjoyment of the substance of their 
rights as Union citizens as it would force them to leave the territory of the European Union. 
The  Court  further  specified  that  this  applies  even  where  the  children  have  never  exercised 
their right to free movement within the EU.  

In  another  case,  Dereci10,  the  Court  highlighted  the  specific  and  exceptional  nature  of  the 
situations in which this criterion can apply. The criterion only applies to situations where the 
EU  citizen  would  be  forced  to  leave  the  territory  of  the  Union  as  a  whole  (not  only  the 
territory of the Member State of which he/she is a national). Moreover, it relates to situations 
in which a right of residence may not be refused to a third country national who is a family 
member of a national of a Member State, as the effectiveness of the Union citizenship enjoyed 
by  that  national  would  otherwise  be  undermined.  However,  the  fact  that  the  Union  citizen 
wishes  to  reside  together  with  a  third-country  national  family  member  is  not  sufficient  to 
accept  that  he/she  would  be  forced  to  leave  the  EU  if  the  family  member  is  not  granted  a 
residence right.  

The  Court  further  indicated  that  national  authorities  or  courts  should  assess  in  every  case 
whether a refusal to grant a residence right would undermine the right to protection of family 
life  in  the  light  of  Article  7  of  the  Charter  of  Fundamental  Rights  in  situations  covered  by 
Union law and of Article 8 of the European Convention on Human Rights where Union law is 
not applicable.  

More  recently,  in  O,  S11,  the  Court  confirmed  that  the  principles  stated  in  the  Zambrano 
judgment apply only in exceptional circumstances, but specified that their application is not 
confined  to  situations  in  which  there  is  a  blood  relationship,  underlining  that  the  relevant 
factor is the relationship of dependency (legal, financial or emotional). 

2.2. 

Acquisition and loss of EU citizenship  

According to EU law, every person holding the nationality of a Member State is a citizen of 
the Union. It is for the Member States to decide who their nationals are and to lay down the 
conditions for the acquisition and loss of their nationality, having due regard to EU law12.  

Over the reporting period, the Commission replied to approximately 62 individual queries, 29 
European Parliament questions and six petitions on such matters.  

The Commission received questions from Members of the European Parliament on situations 
where Member States decided to grant nationality to groups of people such as those belonging 
to ethnic minorities in other countries or who deposit certain amounts in a domestic bank. The 
authors  questioned  whether  Member  States  are  free  to  lay  down  the  conditions  for  the 
acquisition of their nationality, notably in the light of the Court of Justice case law that, in 
the exercise of their competence in this respect, Member States "must have due regard to EU 
law". 
Interpreting  this  proviso  in  the  Rottmann  Case13,  the  Court  did  not  challenge  the  exclusive 
competence of Member States to determine who may become their national and thus a Union 
citizen.  Rather,  it  imposed  limits  on  their  power  to  deprive  Union  citizens  of  the  rights 
attached to their Union citizenship status. In particular, it affirmed that, in respect of citizens 

10 
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13 

Case C-256/11, Dereci and others. 
Joined Cases C-356/11 and C 357/11, O, S. 
See for instance Case C-369/90 Micheletti and others. 
Case C-135/08. 

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of the Union, the exercise of Member States’ power to lay down rules for the acquisition and 
loss of nationality, in so far as it affects rights conferred and protected by the legal order of 
the Union, as is the case with a decision withdrawing naturalisation, is amenable to judicial 
review carried out in the light of EU law. The situations described in the questions received 
by  the  Commission  concerned  decisions  for  granting  the  nationality  of  a  Member  State, 
which did not affect rights conferred and protected by the legal order of the Union. 

2.3. 

Free movement and residence of EU citizens (Directive 2004/38/EC) 

2.3.1.  Measures  to  ensure  the  correct  transposition  and  application  of  Directive 

2004/38/EC14 

The right of EU citizens to move and reside freely within the territory of the Member States is 
one of the pillars of EU integration.  

Over the reporting period, the Commission pursued a rigorous enforcement policy aimed at 
ensuring the full and effective transposition of the Directive by all Member States. As a result, 
the vast majority of Member States amended their laws, or committed themselves to doing so, 
so  as  to  ensure  compliance  with  the  rules  on  free  movement.  The  Commission  is  closely 
monitoring  delivery  on  these  commitments  and  has  been  working  with  the  Member  States 
concerned to tackle outstanding issues. 
In 2011, the Commission took action against twelve Member States15. In 2012 - beginning of 
2013,  it  sent  reasoned  opinions  in  seven  of  these  twelve  cases16.  As  a  result,  so  far,  five 
Member  States  have  amended  their  legislation  or  committed  themselves  to  doing  so17.  The 
main issues raised in the infringement proceedings concern the rights of entry and residence 
for  family  members  of  Union  citizens,  including  same-sex  spouses  or  partners18,  the 
conditions for issuing visas and residence cards to non-EU family members and the material 
and procedural safeguards against the expulsion of EU citizens.  
The  Your  Europe  web  portal19  informs  EU  citizens  about  their  rights.  A  specific  section  is 
devoted to free movement rights. The Commission is also publishing an updated version of its 
guide for EU citizens on freedom to move and live in Europe20. 

2.3.2.  Enquiries and complaints handled 

Over  the  reporting  period,  1566  individual  queries  on  free  movement  and  residence  issues 
were submitted to the Commission, of which 581 were registered as formal complaints. The 
Commission also replied to 147 European Parliament questions and 137 petitions. 

In 2011, there were 2 413 enquiries on free movement issues submitted to the Europe Direct 
Contact Centres and 3 787 in 2012 (representing 3.9 % of EDCC annual volume).  

Free  movement  and  residence-related  issues  are  among  the  top  three  areas  in  terms  of 
numbers  of  SOLVIT  enquiries  (922  enquiries)  and  cases  (481  cases  handled  and  closed  by 
SOLVIT in the reporting period, 88% of which were solved). 

14 
15 

16 

17 
18 
19 
20 

LT 

(http://europa.eu/rapid/press-release_IP-12-75_en.htm?locale=en), 

OJ L 158, p 77. 
AT,  BE,  DE,  CY,  CZ,  ES,  IT,  LT,  MT,  PL,  SE,  UK.  (http://europa.eu/rapid/press-release_IP-11-
981_en.htm?locale=en). 
CZ, 
(http://europa.eu/rapid/press-release_IP-12-417_en.htm?locale=en) 
(http://europa.eu/rapid/press-release_IP-12-646_en.htm?locale=en) 
(http://europa.eu/rapid/press-release_MEMO-13-122_en.htm). 
MT amended its legislation. ES, IT, PL and SE committed themselves to doing so by spring 2013. 
See also the Report on the application of the Charter of Fundamental Rights, COM(2013) 271. 
http://ec.europa.eu/youreurope/index.htm. 
http://ec.europa.eu/justice/citizen/files/guide_free_movement_en.pdf. 

DE 
and 

UK 
SE 
BE 

AT, 

and 

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2.3.3.  Examples of issues addressed 

National authorities have the right to expel EU citizens from their territory only under certain 
strict material and procedural safeguards established by EU law. To ensure legal certainty for 
EU  citizens,  it  is  essential  that  these  safeguards  are  fully  and  correctly  transposed  by  all 
Member States. 

In 2010, the French authorities issued the occupants of unauthorised camps, mostly Romanian 
and  Bulgarian  Roma,  with  expulsion  orders  and  orders  to  leave  the  French  territory.  The 
Commission  conducted  a  dialogue  with  the  French  authorities  which  led  to  the  full 
incorporation  in  the  French  legislation  of  the  safeguards  established  by  EU  law.  The  new 
legislation entered into force in June 2011. 

Denmark adopted new expulsion rules which entered into force in July 2011 and also applied 
to  EU  citizens,  raising  serious  concerns  about  their  compatibility  with  EU  free  movement 
rules. Following the Commission’s intervention and contacts with the Danish government, the 
Aliens Act was amended in June 2012. 

These examples show that dialogue with Member States can be an effective means to solve 
issues to the benefit of EU citizens.  

Another  example  of  the  Commission’s  action  to  ensure  EU  citizens’  rights  to  non-
discrimination  and  dismantle  obstacles  to  free  movement  are  the  cases  relating  to  the 
registration of foreign double names. Following the Commission’s action in 2010, Sweden 
amended  its  legislation  in  2012  to  allow  for  the  registration  of  foreign  double  surnames  for 
Swedish nationals. Also, the Commission took Belgium to court to enforce this same right for 
children born in Belgium of one Belgian parent and one parent from another Member State. 

2.3.4.  Future priorities 

Following its action to ensure transposition, the Commission will focus on the application of 
the EU free movement rules on the ground. It is carrying out two studies on the application 
of Directive 2004/38/EC. The first, launched at the end of 2012, will examine how the right to 
free movement and residence is affected by formalities and procedures relating to the issuing 
of residence documents. The second, launched in early 2013, will evaluate the situation and 
the impact of mobility of EU citizens at local level.  

The  results  will  feed  into  further  actions  as  announced  in  the  2013  EU  Citizenship  Report, 
such  as  simplifying  formalities  for  EU  citizens and  promoting  the  efficient  handling  of  free 
movement cases at local level. 

Further,  full  enforcement  of  the  EU  rules  on  free  movement  remains  a  priority  for  the 
Commission.  A  report  on  the  application  of  these  rules  will  be  produced  once  this 
enforcement effort and the subsequent overall assessment of the impact of the free movement 
policy have been completed. 

The Commission continues to call on Member States to share information and best practice, 
including on fighting abuse and fraud in relation to free movement. 

2.4. 

Electoral rights 

EU citizens living in a Member State other than that of which they are nationals have the right 
to  participate  (as  voters  and  candidates)  in  municipal  and  European  Parliament  elections  in 
that country under the same conditions as its nationals. 

During the reporting period, the Commission replied to approximately 100 individual queries, 
50 European Parliament questions and 9 petitions on EU citizens’ electoral rights. 

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In five instances, the Commission pursued dialogues with Member States on issues regarding 
the  transposition  of  Directive  94/80/EC  (right  of  EU  citizens  to  participate  in  municipal 
elections) and in ten instances regarding the transposition of Directive 93/109/EC (right of EU 
citizens to participate in European elections). As a result, the Member States amended their 
legislation or announced amendments to comply with EU law21. The Commission is finalising 
its  assessment  and  will  closely  monitor  delivery  on  their  commitments  and  the  full 
compliance of national laws.  

In addition, the Commission contacted eleven Member States that did not allow non-national 
EU citizens to found or become members of political parties, which is contrary to Article 22 
TFEU. In two cases, the situation was clarified, in one case national legislation was adopted in 
line with EU law and in another case amendments were announced. Action was taken against 
the seven remaining Member States22.  
In  its  report  on  municipal  elections23  issued  on  9  March  2012,  the  Commission  assessed 
how  EU  citizens’  electoral  rights  are  implemented  at  local  level  and  suggested  that  the 
Member  States  should  adopt  targeted  measures  to  stimulate  citizens’  participation  and 
increase turnout.  

On  12  March  2013,  the  Commission  presented  a  Communication  on  "Preparing  for  the 
2014  European  elections:  further  enhancing  their  democratic  and  efficient  conduct"  and  a 
Recommendation "on enhancing the democratic and efficient conduct of the elections to the 
European  Parliament",  aimed  at  strengthening  the  European  dimension  of  the  European 
elections. By increasing efficiency and reducing administrative burden, the Recommendation 
will also improve the functioning of the mechanism to prevent double voting provided for by 
Directive 93/109/EC. 

On 20 December 2012, the Council adopted Directive 2013/1/EU24, which makes it easier 
for EU citizens to stand as candidates in the 2014 European Parliament elections, as they 
will only need to produce an identity document and a declaration that they fulfil the eligibility 
conditions.  

Finally, as announced in the 2010 EU Citizenship Report, the Commission launched a debate 
with  those  Member  States  who  deprive  their  nationals  of  the  right  to  participate  in  national 
elections when they exercise their free movement and residence rights and leave their country 
of origin (disenfranchisement). Following a focused debate that took place in the joint hearing 
organised  with  the  European  Parliament  on  EU  citizenship  on  19  February  2013,  the 
Commission is announcing concrete actions in its 2013 EU Citizenship Report. 

2.5. 

Consular protection 

EU  citizens  travelling  to  or  living  in  a  non-EU  country  where  their  Member  State  is  not 
represented have the right to enjoy the protection of the diplomatic and consular authorities of 
any Member State under the same conditions as the nationals of that State. 

21 

22 
23 

24 

CY, PL and RO adopted new legislation; CZ, SI and SK announced amendments of their legislation in 
time for the 2014 EP elections. EE and LV provided satisfactory explanations, while BG, HU, LT and 
MT recently adopted legislation which is under consideration. 
CZ, ES, GR, LT, LV, PL and SK. 
Report  on  the  application  of  Directive  94/80/EC  on  the  right  to  vote  and  to  stand  as  a  candidate  in 
municipal elections by citizens of the Union residing in a Member State of which they are not nationals, 
COM(2012) 99. 
Council Directive 2013/1/EU amending Directive 93/109/EC as regards certain detailed arrangements 
for the exercise of the right to stand as a candidate in elections to the European Parliament for citizens 
of the Union residing in a Member State of which they are not nationals (OJ L 26, p. 28). 

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On  23  March  2011,  as  a  follow-up  to  the  2010  EU  Citizenship  Report,  the  Commission 
presented a Communication on Consular protection for EU citizens in third countries: State 
of play and way forward25 and launched a dedicated website26.  

On  14  December  2011,  the  Commission  adopted  a  proposal  for  a  Directive  on  consular 
protection for Union citizens abroad, which aims to establish clear and legally binding rules 
on cooperation and coordination between Member States’ consular authorities to ensure that 
unrepresented  EU  citizens have non-discriminatory access to protection from other Member 
States’ diplomatic or consular representations in a third country. 

2.6. 

The right to petition the European Parliament 

EU citizens have the right to petition the European Parliament on Union matters which affect 
them  directly.  In  2012,  the  European  Parliament’s  Committee  on  Petitions  received  1964 
submissions, as compared with 2091 in 2011 and 1746 in 2010. 

Between January and September 2012, 1010 petitions were declared admissible out of a total 
1400  petitions  registered  (72%),  as  compared  with  998  petitions  in  2011  (71%)  and  989  in 
2010 (60%). The admissible petitions were either referred to an institution or body or closed 
with a direct reply to the petitioner. 

As  in  previous  years,  the  most  common  subject  matters  for  petitions  in  2012  were 
fundamental rights/justice, the environment and the internal market.  

2.7. 

The right to complain to the European Ombudsman 

EU citizens have the right to complain to the European Ombudsman about maladministration 
in the activities of the EU institutions, bodies, offices and agencies, with the exception of the 
Court of Justice acting in its judicial role. 

Over  the  reporting  period,  the  Ombudsman  registered  around  2500  complaints  a  year.  The 
number of complaints outside his mandate fell from 1983 in 2010 and 1846 in 2011 to 1720 
complaints  in  2012.  This  decrease  is  mainly  thanks  to  the  Ombudsman's  interactive  guide 
which  directs  complainants  to  the  competent  authority.  In  2012,  19  281  citizens  used  the 
guide to obtain advice. 

The number of opened inquiries based on complaints increased from 323 inquiries in 2010 to 
450 in 2012. This increase stems from the Ombudsman’s success in reaching out to potential 
complainants. 

The  most  common  focus  of  enquiries  is  lack  of  transparency  in  the  EU  administration.  In 
2012, 21.5% of cases were transparency-related, as compared with 33% in 2010 and 25% in 
2011. In 20% of all inquiries closed in 2012 (80 cases), the Ombudsman was able to secure a 
positive outcome. 

2.8. 

European Citizens’ Initiative 

Under the European Citizens’ Initiative, the Commission can be invited to propose legislation 
in  areas  in  which  it  has  the  powers  to  do  so  if  the  initiative  has  the  support  of  one  million 
citizens. 

Regulation  (EU)  No  211/2011,  which  applies  since  1  April  2012,  sets  out  the  rules  and 
procedures for such initiatives. 

Between  April  2012  and  February  2013,  the  Commission  received  27  requests  to  register 
proposed initiatives. Issues range from unconditional basic income and high-quality education 

25 
26 

COM(2011) 149. 
http://ec.europa.eu/consularprotection. 

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for all to media pluralism and voting rights. A first initiative has, according to its organisers, 
gathered  the  required  number  of  statements  of  support27,  but  has  not  yet  been  formally 
submitted to the Commission. 

In 2011, the Commission established a group of Member States’ experts to exchange views, 
know-how  and  best  practice  on  the  tasks  to  be  carried  out  by  the  Member  States  in  the 
citizens’ initiative procedure. 

2.9. 

Statistical data on EU citizens who have exercised their right to free movement 
and residence 

As of 1 January 2012, there were approximately 13.6 million EU citizens residing (for at least 
12  months)  in  a  Member  State  of  which  they  were  not  nationals.  There  are  however  many 
more  EU  citizens  exercising  their  right  to  free  movement  and  residence.  In  2011  over  180 
million  trips  were  made  for  private  reasons  in  the  EU  and  almost  30  million  for  business 
reasons. 

3. 

DEVELOPMENTS  AS  REGARDS  THE  PRINCIPLE  OF  NON-DISCRIMINATION  ON 
GROUNDS OF NATIONALITY  

Article  18  TFEU  and  Article  21(2)  of  the  Charter  of  Fundamental  Rights  prohibit 
discrimination  on  grounds  of  nationality  within  the  scope  of  application  of  the  Treaties 
without prejudice to special provisions contained therein.  

Given that this principle applies with regard to any matter falling under the material scope of 
EU law, upholding this principle is an integral part of the Commission’s role in ensuring the 
correct  application  of  EU  law  in  the  various  policy  areas,  as  illustrated  by  some  indicative 
examples below from the reporting period. 

In a series of actions brought against six Member States (Austria, Belgium, France, Germany, 
Greece and Luxembourg), the Commission contested national provisions reserving access to 
the  notary  profession  to  nationals  of  the  Member  State  concerned.  In  its  judgments  of  24 
May 2011, the Court of Justice agreed that such provisions were discriminatory on grounds of 
nationality and thus in breach of the Treaty28. 

In  2011,  in  another  example  of  enforcement  action,  the  Commission  took  Austria  to  court 
because of a national rule granting reduced fares on public transport only to students whose 
parents were in receipt of Austrian family allowances. In its judgment of 4 October 2012, the 
Court  supported  the  Commission’s  position,  upholding  the  principle  that  EU  students 
studying elsewhere in the EU have the same right to some benefits as local students29. 

In 2012,  the Commission took action  on problems encountered by non-Maltese  EU citizens 
residing  in  Malta  in  accessing  reduced  water  and  electricity  tariffs  under  the  same 
conditions as those available to Maltese citizens. 

The Commission also took targeted policy action in areas where specific problems relating to 
discrimination on grounds of nationality were identified.  

A number of complaints and calls for legal clarity from stakeholders pointed to the existence 
of  questionable  nationality  restrictions  on  access  to  sporting  activities  and/or  sports 

27 
28 
29 

http://europa.eu/rapid/press-release_IP-13-107_en.htm. 
Cases C-53/08, C-47/08, C-50/08, C-54/08, C-61/08 and C-51/08. 
Case C-75/11. 

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competitions  in  some  Member  States.  To  address  these,  the  Commission  adopted  a 
Communication30 in January 2011 on the development of the European Dimension in Sports 
that provides guidance to Member States on how to ensure practices that do not discriminate 
on grounds of nationality on access to sporting activities and/or sports competitions. 

In December 2011, the Commission provided guidance to Member States on how to ensure 
that cross-border inheritance tax rules do not discriminate on grounds of nationality31. This 
action  was  followed  up  through  a  horizontal  enforcement  exercise  tackling  national 
inheritance tax rules that were contrary to the EU Treaties.  

At  the  end  of  2012,  the  Commission  launched  a  study  in  order  to  carry  out  a  thorough 
assessment  of  national  direct  tax  legislation  to  determine  whether  they  create  unfair 
disadvantages  for  workers  and  persons  that  move  to  another  Member  State.  This  initiative 
follows a previous one launched in 2010 to scrutinise Member States' direct tax legislation to 
ensure  that  they  do  not  discriminate  against  cross-border  workers.  On  this  basis,  the 
Commission is taking the appropriate action and will follow the same approach regarding the 
above mentioned 2012 study. 
In  May  2012,  the  Commission  issued  guidelines  to  Member  States32  for  non-discriminatory 
vignette systems for passenger cars and motorcycles. 

In  June  2012,  as  part  of  its  efforts  to  boost  growth  through  better  implementation  of  the 
Services Directive (Directive 2006/123/EC), the Commission announced33 measures to ensure 
proper  enforcement  of  the  principle  of  non-discrimination  based  on  the  nationality  of 
recipients of services, also issuing specific guidance to Member States on the application of 
this principle34.  

Acknowledging  that  access  to payment accounts and other banking services has become 
essential for citizens’ participation in economic and social life, and as announced in the Single 
Market Act II35 of October 2012, the Commission is adopting on the same day as that of the 
present report an initiative aimed inter alia at overcoming nationality discrimination relating 
to such accounts and banking services36.  
At the end of 2012, the Commission launched a study37 to evaluate how the principle of non-
discrimination  on  the  grounds  of  nationality  is  implemented  in  national  laws  in  the  area  of 
access to higher education, including financial aid.  

Finally,  on  26  April  2013,  the  Commission  proposed  a  Directive  facilitating  the  effective 
exercise  of  the  right  to  free  movement  of  workers  in  the  EU38,  which  aims,  inter  alia,  to 
prevent discrimination on the basis of nationality of mobile EU workers. 

30 
31 
32 
33 
34 
35 
36  

37 

38 

SEC(2011) 66/2. 
COM(2011) 864. 
COM(2012) 199. 
COM(2012) 261. 
SWD(2012) 146. 
COM(2012) 573. 
Proposal  for  a  Directive  of  the  European  Parliament  and  the  Council  on  the  comparability  of  fees 
related  to  payment  accounts,  payment  account  switching  and  access  to  payment  accounts  with  basic 
features, COM (2013)266. 
'Evaluation of EU rules on free movement of EU citizens and their family members and their practical 
implementation'. 
Proposal  for  a  Directive  of  the  European  Parliament  and  of  the  Council  on  measures  facilitating  the 
exercise  of  rights  conferred  on  workers  in  the  context  of  freedom  of  movement  for  workers, 
COM(2013) 236. 

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4. 

CONCLUSION 

This report outlines the main developments and actions at EU level on EU citizenship since 
2011. It complements and accompanies the 2013 EU Citizenship Report.  

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