REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Relations with the Principality of Andorra, the Principality of Monaco and the Republic of San Marino: Options for their participation in the Internal Market
Date: 2013-11-18
Institutions: European Commission
Subjects: Andorra, EU market, European Economic Area, Monaco, San Marino, association agreement (EU), single market













EUR-Lex - 52013DC0793 - EN











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52013DC0793

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Relations with the Principality of Andorra, the Principality of Monaco and the Republic of San Marino: Options for their participation in the Internal Market /* COM/2013/0793 final */









REPORT FROM THE COMMISSION TO THE
EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE
AND THE COMMITTEE OF THE REGIONS
EU Relations with the Principality of
Andorra, the Principality of Monaco and the Republic of San Marino: Options for
their participation in the Internal Market

TABLE OF CONTENTS
1........... INTRODUCTION........................................................................................................ 3
2........... ANALYSIS OF THE OPTIONS.................................................................................. 4
2.1........ Option One: Participation in the
EEA.............................................................................. 4
2.1.1..... Assessment.................................................................................................................... 4
2.1.2..... Small-sized country positions.......................................................................................... 4
2.2........ Option Two: One or Several
Framework Association Agreement(s)................................ 4
2.2.1..... Assessment.................................................................................................................... 4
2.2.2..... Small-sized country positions.......................................................................................... 5
2.2.3..... One or several agreement(s)?.......................................................................................... 5
2.2.4..... Horizontal and institutional
issues..................................................................................... 5
3........... ALIGNMENT TO THE ACQUIS
AND ADMINISTRATIVE CAPACITY.................. 6
4........... ECONOMIC ASSESSMENT....................................................................................... 7
5........... CONCLUSIONS AND RECOMMENDATIONS....................................................... 9
5.1........ Next steps...................................................................................................................... 9
5.2........ Key principles................................................................................................................ 9
5.2.1..... Shared values................................................................................................................. 9
5.2.2..... Internal market principles.............................................................................................. 10
5.2.3..... Specificities.................................................................................................................. 10
5.2.4..... Current developments................................................................................................... 10
1.           INTRODUCTION
On 20 November 2012, the Commission adopted
a Communication[1]
on enhancing the EU’s relations with the Principality of Andorra, the
Principality of Monaco and the Republic of San Marino, and its accompanying
Commission Staff Working Paper[2]
on obstacles to these countries’ access to the EU’s internal market and
cooperation in other areas. The Communication described the current close
relations between the EU and these small-sized European countries. Its assessment
was that there was significant potential to develop relations further for
mutual benefit. 
In particular, in the context of the current
economic and financial crisis, it highlighted the contribution that closer
economic ties could make to achieving sustained economic recovery in Europe and the EU’s 2020 Strategy, including greater employment, trade and investment
activity in EU regions neighbouring these countries. Importantly, it concluded
by setting out five options for the small-sized countries’ participation in the
internal market.
In its
conclusions[3]
of 20 December 2012, the Council welcomed the Communication and selected two of
the options as most viable: 
i)
participation of these small-sized countries in the European Economic Area
(EEA); and 
ii) the
negotiation of one or more Framework Association Agreement(s) with them, ‘with
a view to giving them access to the EU’s internal market, its flanking measures
and horizontal policies, and including institutional mechanisms following the
model of the Agreement on the European Economic Area’. 
Moreover, the
Council referred to the need to ‘ensure the homogeneity and the good
functioning of the internal market, while taking into account the specificities
of the three countries, as well as […] the importance of developing a coherent
approach for all three countries’.
Therefore, the Council invited the
Commission and the High Representative (as appropriate) to continue their
analysis of these two options and in particular:
–              
‘to hold consultations with the Governments of
Andorra, Monaco and San Marino and other relevant parties, starting in the
first semester 2013, with a view to identifying the feasibility of and the
degree of support for these two options, taking into account, in particular,
the institutional conditions referred to in the Communication’; and
–              
‘to submit to the Council, before the end of 2013,
a report, including an analysis of the impact and of the main institutional,
political and economic implications of these options, as well as
recommendations regarding further steps’.
This report responds to the Council’s
invitation. It has been prepared on the basis of consultations with the
small-sized countries and the EEA-EFTA states[4].
It incorporates information gathered during visits by the European External
Action Service (EEAS) and Commission services to Andorra, Monaco and San Marino in March 2013, complemented by the countries’ responses to a detailed
questionnaire on their legislation and administrative capacity.
2.           ANALYSIS
OF THE OPTIONS
2.1.        Option
One: Participation in the EEA
2.1.1.     Assessment
This option would entail the participation
of the small-sized countries in the European Economic Area (EEA) on the same
basis as the current European Free Trade Association (EFTA) members of the EEA[5]. The EEA's main strength is
that it is based on a proven treaty and institutional framework, including the
EEA-EFTA institutions (Secretariat, Surveillance Authority and Court). However,
the small-sized countries would first need to become members of the European Free
Trade Area (EFTA) — requiring the unanimous support of its members[6] — to accede to the EEA Agreement[7] subsequently. To date, the
small-sized countries have not applied for membership of EFTA. The EFTA states
have, therefore, not given formal consideration to such a possibility.
This option may entail some additional drawbacks,
given that the EEA-EFTA states act on the basis of a common position in the
joint EEA institutions[8].
If the small-sized countries were to participate in the EEA, reaching such a
position might become more complicated due to the need to reconcile the
positions of six states rather than the current three. This could exacerbate
the challenges that the EU and its EEA-EFTA partners already face in ensuring
timely EEA decision-making. Moreover, the small-sized countries would need to
accede to EFTA trade agreements with third countries.
2.1.2.     Small-sized
country positions
Andorra has
expressed openness to considering participation in the EEA, provided it is
based on a stable institutional framework and takes into account Andorra’s specific situation. San Marino is also open to considering this option. Monaco has ruled it out because it cannot easily be adapted to the country’s specific
circumstances.
2.2.        Option
Two: One or Several Framework Association Agreement(s)
2.2.1.     Assessment
The negotiation of one or several
Association Agreements between the EU and the small-sized countries is the
second option. This would provide for the participation of the small-sized
countries in the internal market, but could also cover cooperation in other areas
as appropriate, such as justice and home affairs, agriculture, fisheries, regional
policy, and foreign policy. Unlike the first option, it would be separate from
the EEA and would not require the support of the EEA-EFTA states. Flexibility
is another advantage of this option, as Association Agreements could be
tailored to the specific needs of the EU and the small-sized countries.
Finally, it would be perfectly possible to draw up an appropriate institutional
framework to underpin such Agreements (see below).
2.2.2.     Small-sized
country positions
Andorra has
expressed openness to considering an Association Agreement, provided it is
based on a stable institutional framework and fully takes into account Andorra’s specific situation. Monaco and San Marino are also open to this option, provided
their particularities are fully taken into account. Andorra and San Marino are open to considering a multilateral Association Agreement involving all three
small-sized countries. Monaco has not ruled out this possibility, but would
prefer a bilateral agreement with the EU that is tailored to its specific
situation and takes into account its close links with France.
2.2.3.     One
or several agreement(s)?
The Commission’s initial assessment is that
a single multilateral Association Agreement between the EU and all three
small-sized countries would probably be preferable to three separate
agreements, as the latter scenario risks opening the door to complexity and
unnecessary differentiation. A multilateral agreement could include a common
framework consisting of key principles and institutional provisions, but should
nevertheless be sufficiently flexible to take into account each country’s
unique circumstances. This could be achieved by including separate provisions
for each country, either within the main text of the agreement or in the form
of protocols. A single agreement could also cover the countries’ mutual
relations, if they so wished. Nevertheless, this issue would need to be
discussed further with the governments of the small-sized countries with a view
to identifying the right solution.
2.2.4.     Horizontal
and institutional issues
The aforementioned Communication referred
to a number of horizontal and institutional issues with a view to ensuring the
homogeneity of the internal market and legal certainty for economic operators
and citizens. Any agreement(s) with the small-sized countries would therefore need
to address:
(a)                   
the dynamic adaptation of the agreement(s) to
the evolving acquis;
(b)                   
the homogeneous interpretation of the agreement(s);
(c)                   
independent surveillance and judicial
enforcement;
(d)                   
dispute settlement.
As regards dynamic adaptation (a), an
Association Agreement could follow the EEA model[9],
such that, in general, the small-sized countries would accept an obligation to
apply the acquis in areas falling within the scope of the Agreement.
This would be subject to sovereignty safeguards, taking into account their
respective constitutional procedures. Decision-making in joint institutions
should be as efficient as possible to allow for the prompt adaptation of the Agreement
to the acquis. A mechanism would need to be established to inform the
small-sized countries of developments, especially proposed changes to the acquis,
 and to allow them to make their views known on draft legal acts that
particularly concerned them. However, they would not be granted any formal
decision-making rights (often referred to as ‘decision-shaping’ in the EEA
context).
In the EEA context, the EFTA Secretariat
plays an important role in assessing new EU legal acts for their EEA relevance
and compiling lists of possible acts to be incorporated into the EEA Agreement.
It would be worth exploring the possibility of information-sharing between the
Secretariat and Andorra, Monaco and San Marino in this respect, rather than
creating a new institution. This would require consultations with the EEA-EFTA
states, the small-sized countries and the EFTA secretariat itself.
Concerning the homogeneous interpretation
of the agreements (b) and independent surveillance and judicial enforcement (c),
solutions would need to be found to guarantee the homogeneity and good
functioning of the internal market. One solution would be to allocate these
roles to the Commission and the EU Court of Justice, respectively, thus
obviating the need to establish new institutions. The involvement of a
designated EU Member State to assist the Commission in surveillance could also
be envisaged if there were support from all parties concerned.
An efficient, fair dispute settlement
system (d) would need to be designed. Finally, the Agreement would also need to
define the extent to which and under what conditions decisions by EU agencies
with executive competences would be directly applicable in the small-sized
countries.
3.           ALIGNMENT
TO THE ACQUIS AND ADMINISTRATIVE CAPACITY
As non-members
of the EU, the small-sized countries currently have no obligation to align
their legal framework and administrative capacity to the acquis, except
where these requirements are part of agreements they have concluded with the
EU. For example, the Monetary Agreements that all three countries have signed
with the EU on the use of the Euro as their official currency provide for the taking
on of large segments of the acquis in the areas of financial services,
anti-money laundering and anti-counterfeiting, among others.
Nevertheless,
the small-sized countries’ alignment to the relevant acquis and adequate
capacity to implement and enforce it are essential pre-requisites for their
participation in the internal market. In this regard, the Council conclusions of
20 December 2012 noted ‘efforts made by Andorra, Monaco and San Marino’. The Council further encouraged them to ‘pursue their efforts in order to
further increase the convergence of their legislation with EU internal market acquis
and strengthen their administrative capacity in view of facilitating the
implementation of further relevant EU acquis’[10].
In general, the small-sized countries’
alignment ranges from partial to limited, except for a small number of
sub-sectors in which they are fully or mostly aligned. The areas in which —
broadly speaking — their respective legal frameworks are partly aligned include
the free movement of goods and financial services. There is limited-to-partial
alignment in a number of areas, including the free movement of capital and
public procurement, and only limited alignment regarding intellectual property
rights, competition policy and information society and media, among others.
Their alignment in the field of environment and climate change is very limited.
The small-sized countries have functioning
public administrations that deal with most of the areas covered by the internal
market. However, they would need to invest in their respective administrative
capacity in a number of areas to meet the criteria for participation in the
internal market. Andorra, with a population of about 76 000, has
approximately 5 800 public administration employees. Monaco, whose resident population numbers around 36 300, has about 3 500
employees active in the state administration. In San Marino, whose population
is around 32 400, the public sector has about 4 065 employees,
including 2 297 working in public administration and 1 048 for the
Social Security Institute. These numbers provide a general indication of the
human resources available to the three countries. However, administrative
capacity in relation to the implementation of the acquis must also be
judged against other criteria, such as organisational effectiveness, technical
competence, and human and financial resources attributed to monitoring and
enforcement tasks.
4.           ECONOMIC
ASSESSMENT
From a macroeconomic perspective, the
potential economic impact of the three small-sized countries participating in
the EU internal market would be, for the EU as a whole, very limited. With a
combined population of approximately 145 000 and a combined GDP of EUR 8
billion, they represent 0.03 % of the EU’s total population (508 million)
and 0.07 % of its GDP (EUR 13 trillion). Such a huge difference of volume
and scale shows how difficult it is to extrapolate a measurable economic
impact. The analysis below focuses on the EU side. If these countries were to participate
in the internal market, the impact would likely be relatively more significant
on their economies than on the economy of the EU.
Generally speaking, the economies of the small-sized
countries are characterised by strong interdependence with their neighbouring
countries, with which they have traditionally had, and currently still have, the
closest relationships. There are significant economic differences between the
three states. 
Andorra’s economy
relies on tourism as well as financial and retail services (estimated 9 million
visitors per year, representing approximately 80 % of GDP). In San Marino, the share of tourism is lower and the economy is more diversified (e.g.
industry represents about 40 % of GDP). Monaco’s economy is mainly based
on services (including financial services and tourism) and high value-added
light industry (8 % of GDP, 9 % of employment).
Financial services represent, respectively,
16 % of GDP in Andorra, 15 % in Monaco and 11 % in San Marino. This sector thus plays a significant role in their national economies without,
however, being dominant. Supervision is carried out by the national supervisors
in Andorra (INAF), and San Marino (its Central Bank), whereas in Monaco this task is devolved to the French Autorité de Contrôle Prudentiel (ACP). The
Monetary Agreements that all three countries have signed with the EU commit
them gradually to take over, in the period up to 2017, the EU acquis on
banking and anti-money laundering. 
However, the small-sized countries are not
active in all areas of financial services. For example, there are no securities
markets in any of the three states. Another specificity is that in San Marino, there are no foreign-owned banks. In Andorra, out of six banks, one is a
subsidiary of an EU company. In Monaco, all banks are branches or subsidiaries
of foreign groups (mostly from the EU or Switzerland).
The economic situation in Andorra and San Marino has deteriorated significantly since the onset of the economic crisis. San Marino’s GDP fell by 25 % between 2008 and 2011. In Andorra, the equivalent decline
was 15.2 %. In Monaco, after a decline of 11.2 % in 2009, GDP grew
again by 3.2 % in 2010 and 8.0 % in 2011 to recover almost to the
level of 2008. The crisis is one factor that has spurred Andorra — as well as, to a lesser extent, San Marino and Monaco — to adapt and/or reconsider their
respective economic models. As a result, they are now more open to seeking
closer economic relations with the EU.
Despite the economic crisis, unemployment
is still remarkably low in all three countries (San Marino has the highest
level of unemployment of the three, with 5.3 %). This can be explained by
two factors. 
In all three countries, there is a
considerable ‘buffer’ of incoming seasonal/temporary workers and border
commuters (living in neighbouring regions in surrounding countries) who do not
appear in the national unemployment figures when they lose their jobs. 
The other explanation is the existence of a
heavily protected job market in all three states, which gives preference to
nationals or residents, and requires authorisations from the authorities for
many activities and/or establishment.
When the three economies are in good health,
the beneficial effects of the small-sized countries’ employment offer is felt
well beyond their borders in neighbouring EU Member States. Out of Monaco’s 50 000
workers, almost 40 000 live in neighbouring France or Italy; in Andorra, 1 600
workers (out of 36 000) commute daily from neighbouring Spain or France; and
San Marino’s companies employ 5 500 border commuters from Italy (out of a
total workforce of 20 500).
The approximate proportion of foreign
residents — mostly EU citizens — in the three countries is 18.5 % in San Marino (of the order of 6 000 out of 32 400), 55 % in Andorra (of the order of 42 000
out of 76 000) and 80 % in Monaco (of the order of 29 000 out of
36 300).
It can be assumed that many of the new jobs
created in the three countries if they were to participate in the internal market
would be filled by non-nationals (mainly EU citizens), as the local pool of
labour available to employers is limited. The possible effect on the EU in
terms of job creation could thus be measured in terms of ‘overspill’ to
neighbouring regions, as well as on jobs created in the country, from which EU
citizens could benefit. 
The biggest of the three states in terms of
population, Andorra, is surrounded by structurally poorer areas, so this
benefit could be measurable in the neighbouring Spanish province Lérida, or the
French départements Pyrénées-Orientales and Ariège. However, at this
stage, it is impossible to quantify this effect with any degree of precision.
Since 2007, the EU has run a trade surplus
with San Marino (EUR 183 million in 2011). In 2011, total EU imports and
exports to San Marino amounted to EUR 325.5 million. In the same period, the EU
also ran a trade surplus with Andorra (EUR 1 105 million in 2011). In
2011, total imports and exports to Andorra were EUR 1 158 million. EU
trade with Monaco is more difficult to assess, as it is mostly conducted
through France (and is therefore not quantified separately). Currently, 95 %
of San Marino’s exports go to Italy, whereas a majority of Andorra’s exports go to Spain. It is not expected that EU exports to the three countries would rise
substantially if the three countries participated in the internal market, given,
amongst other factors, the existing customs unions between the EU and,
respectively, Andorra and San Marino on the one hand, and Monaco being part of the EU customs territory on the other hand.
In sum, given the population and GDP of the
three countries concerned, stronger economic links would have only a marginal impact
on the EU’s economy as a whole. At regional and local levels, however,
especially in EU regions neighbouring these countries, the beneficial effect,
especially on the labour market and the resulting positive knock-on effects,
might be more pronounced.
5.           CONCLUSIONS
AND RECOMMENDATIONS
5.1.        Next
steps
The Commission stands ready to build a
closer relationship with the Principality of Andorra, the Principality of
Monaco and the Republic of San Marino, in particular through their
participation in the EU’s internal market. As outlined in its Communication of
November 2012, such participation could bring benefits to both sides, including
by breaking down barriers to cross-border economic activity. The Commission has
assessed the two options retained by the Council in its December 2012
conclusions — i) participation of these countries in the EEA; and ii) the
negotiation of one or several Framework Association Agreements with these
countries — with a view to identifying solutions that would grant these countries
access to the EU’s internal market, while meeting the criteria laid down in the
Communication.
Considering the principles outlined above,
the Commission considers that the negotiation of (one or several) Association
Agreement(s) is the more viable of the two options. Importantly, the scope and
content of such (an) Agreement(s) could be adapted to suit EU requirements,  as
well as the specificities and unique circumstances of each of the small-sized countries.
If there were mutual interest, the scope of such (an) Agreement(s) could also
cover areas beyond the internal market. Moreover, the Agreement should also
establish its relationship with existing agreements such as the customs union
agreement with Andorra, the customs and cooperation agreement with San Marino and the agreements on the taxation of savings income between the EU and the
three small-sized countries (amendments to the latter are currently under
negotiation). In contrast, the participation of the small-sized countries in
the EEA is not judged to be a viable option at present due to the political and
institutional reasons discussed in section 2.1.
The Commission recommends that the
Framework Association Agreement option be the basis for the strengthening of
the EU's relations with Andorra, Monaco and San Marino, taking into account the
principles set out below. The Agreement(s) would need to include — as
appropriate — relevant provisions tailored to the specific situation of each
country, either in the main body of the text or in accompanying Protocols.
5.2.        Key
principles
The following principles should underpin
the negotiation of the Association Agreement(s).
5.2.1.     Shared
values
In line with the EU’s general practice in
its relations with third countries, any Agreement with the small-sized countries
should make reference to the values shared by the parties and their commitment
to uphold them. In particular, the Agreement(s) could make reference to Article
2 of the Treaty on European Union (TEU) [11].
5.2.2.     Internal
market principles
As set out in the aforementioned
Communication, common rules and thorough enforcement are essential to the
correct functioning of the internal market. The Council, in its conclusions of
20 December 2012, also underscored the need to ensure the homogeneity and good
functioning of the internal market.
5.2.3.     Specificities
The Council conclusions of December 2012
state that the Commission’s analysis of the two options should take account of
the small-sized countries’ specificities. These include their small territorial
dimensions and populations, their close links with their neighbour(s) and their
political and economic characteristics. It is also important to recall that
Article 8 of the Treaty on European Union states that the EU ‘shall develop a
special relationship with neighbouring countries, aiming to establish an area
of prosperity and good neighbourliness, founded on the values of the Union and
characterised by close and peaceful relations based on cooperation’.
Declaration No 3 on Article 8 states that ‘the Union will take into
account the particular situation of small-sized countries which maintain
specific relations of proximity with it’.
5.2.4.     Current
developments
It is important that the EU maintains a
coherent approach to its relations with partners in its neighbourhood. Any
agreement(s) with the small-sized countries should take into account relevant
developments in these relations. In particular, given the positive impact on
the good functioning of the internal market of cooperation in the field of
customs and taxation, the EU would need to consider whether its approach to the
horizontal and institutional issues, as outlined above, should be extended to
the agreements in this field, including the protocol(s) resulting from the
current negotiations on amendments to the EU's agreements on savings taxation
with the small-sized countries.
[1]               Commission Communication on EU relations with the
Principality of Andorra, the Principality of Monaco and the Republic of San Marino — Options for closer integration with the EU (COM(2012) 680 final/2), Brussels 20.11.2012.
[2]               Commission Staff Working Paper Accompanying the Commission
Communication on EU relations with the Principality of Andorra, the
Principality of Monaco and the Republic of San Marino — Obstacles by Andorra,
Monaco and San Marino to the EU’s Internal Market and Cooperation in Other
Areas (SWD(2012) 388 final), Brussels 20.11.2012.
[3]               Council Conclusions on EU relations with the
Principality of Andorra, the Republic of San Marino and the Principality of
Monaco, 20.12.2012, adopted at the 3213th Transport,
Telecommunications and Energy Council meeting.
[4]               Norway, Iceland and Liechtenstein.
[5]               Norway, Iceland and Liechtenstein.
[6]               Switzerland, Norway, Iceland and Liechtenstein.
[7]               Article 128 of the EEA Agreement.
[8]               EEA Agreement, Articles 90 & 93.
[9]               Article 102 of the EEA Agreement.
[10]             Council Conclusions on EU relations with the
Principality of Andorra, the Republic of San Marino and the Principality of
Monaco, 20.12.2012, adopted at the 3213th Transport, Telecommunications
and Energy Council meeting.
[11]             ‘The Union is founded on the values of respect for
human dignity, freedom, democracy, equality, the rule of law and respect for
human rights, including the rights of persons belonging to minorities. These
values are common to the Member States in a society in which pluralism,
non-discrimination, tolerance, justice, solidarity and equality between women
and men prevail’.