process and players-eu legislative power

8/13/2019 Process and Players-eu Legislative Power

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Process and players

1. The documentary holdings

1.1 The treaties

1.2 International agreements

1.3 Secondary legislation

1.4 Consolidated legislation

1.5 Preparatory material

1.6 Case-law

1. Parliamentary !"estions

2. Legislative procedures

2.1 #ssent proced"re $Code #%C&

2.2 Co-decision proced"re $Code C'(&

2.3 Cooperation proced"re $Code S)*&

2.4 Cons"ltation proced"re $Code C*S&

3. Players in the Community system

3.1 The +"ropean Parliament

3.2 The Co"ncil o, the +"ropean nion

3.3 The +"ropean Commission

3.4 The Co"rt o, "stice and the Co"rt o, /irst Instance o, the +"ropean

Comm"nities

3.5 The +"ropean Co"rt o, #"ditors

3.6 The +"ropean +conomic and Social Committee

3. The Committee o, the 0egions

3. +"ropean Central an

1. The documentary holdings

The doc"mentary holdings in the +0-e system comprise more than 3

doc"ments and allow m"ltiling"al access to legal acts o, many di,,erent types7 s"ch astreaties7 secondary legislation7international agreements7preparatory acts7case-law

andparliamentary !"estions.

1.1. The treaties

1.1.1. Introduction

The treaties constit"te the +"ropean nion8s 9primary legislation87 which is

compara:le to constit"tional law at national le;el. They th"s lay down the

,"ndamental ,eat"res o, the nion7 in partic"lar the responsi:ilities o, the ;ario"sactors in the decision-maing process7 the legislati;e proced"res7"nder the
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Comm"nity system and the powers con,erred on them. The treaties themsel;es are the

s":


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1.1.". Treaty on European #nion E# Treaty!

The Treaty on +"ropean nion $+ Treaty& p"rs"es two main o: the creation

o, a monetary "nion :y laying down the principles and arrangements ,or the

introd"ction o, the e"ro and the creation o, an economic and political "nion. This is

the treaty that originated the concept o, a three-pillar str"ct"re7the ,irst pillarconsisting o, the +"ropean Comm"nity and the other two o, the common ,oreign and

sec"rity policy and police and


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1.1.'. (ther treaties and protocols

1.1..1. Treaty esta:lishing the +"ropean Coal and Steel Comm"nity

The Treaty esta:lishing the +"ropean Coal and Steel Comm"nity $+CSC Treaty& is

the oldest o, the +"ropean Comm"nity8s three ,o"nding treaties.

It was signed in Paris on 23 "ly 1A52 and epired on 23 "ly 227 as it had :een

concl"ded ,or a period o, 5 years.

The p"rpose o, the treaty was to set "p a common maret in coal and steel7 and this

,orm"la was meant to :e grad"ally etended to other areas o, the economy. The coal

and steel sectors now come "nder the ordinary regime o, the +C Treaty.

1.1..2. Single +"ropean #ct

The Single +"ropean #ct was signed on 2 /e:r"ary 1A6 and came into ,orce on 1

"ly 1A.

Its p"rpose was the completion7 :y 31 (ecem:er 1AA2 at the latest7 o, the Single

+"ropean =aret7 i.e. an area within which there were to :e no restrictions on the

mo;ement o, persons7 capital7 goods and ser;ices. #d hoc proced"res were introd"ced

into the +C Treaty to achie;e this.

1.1..3. Treaty o, #msterdam

The Treaty o, #msterdam was signed on 2 'cto:er 1AA and came into ,orce on 1=ay 1AAA.

The were two signi,icant changes>

application o, the co-decision proced"reto new areas7 together with an

increase in the cases in which the Co"ncil o, the +"ropean nion can tae

decisions :y !"ali,ied ma

modi,ication o, the decision-maing processD
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a drastic red"ction in the cases in which the Co"ncil has to tae decisions

"nanimo"slyD hence,orth the Co"ncil can reach a decision :y !"ali,ied

ma


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#greements o, this type can :e concl"ded either :y the Comm"nity or :y the

Comm"nity and the =em:er States $


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The legal instr"ments associated with the second and third pillars7 which do not7

strictly speaing7 ,orm part o, secondary legislation since they contin"e to :e

go;erned :y intergo;ernmental relations7 ha;e :een incl"ded in this category ,or

reasons o, proper doc"mentation.

1.3.2. ,egulation

#dopted :y the Co"ncil in con

an indi;id"al meas"re7 and the persons to whom it is addressed m"st :e

speci,ied indi;id"ally7 which disting"ishes a decision ,rom a reg"lation7

:inding in its entirety.

1.3.$. (ther instruments

1.3.5.1. 0ecommendation
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# recommendation allows the instit"tions to mae their ;iews nown and to s"ggest a

line o, action witho"t imposing any legal o:ligation on those to whom it is addressed

$the =em:er States7 other instit"tions7 or in certain cases the citiens o, the nion&.

1.3.5.2. 'pinion

#n opinion is an instr"ment that allows the instit"tions to mae a statement in a non-

:inding ,ashion7 in other words witho"t imposing any legal o:ligation on those to

whom it is addressed. The aim is to set o"t an instit"tion8s point o, ;iew on a

!"estion.

1.3.5.3. oint action $common ,oreign and sec"rity policy&

#


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cooperation in criminal matters and gi;es g"idance ,or the p"rs"it o, national policies

in these ,ields.

1.3.5.. International agreements $common ,oreign and sec"rity policy and

police and


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1.$.2. Preparatory act

1.5.2.1. egislati;e proposals and opinions ,rom the Commission$graphical

representation&

The Commissionhas a near-monopoly in initiating Comm"nity instr"ments$directi;es7 reg"lations7 decisions or international agreements&7 ecept where it shares

this right with the =em:er States $see=em:er States8 initiati;e& or the +"ropean

Central an. The treaties almost always re!"ire the Co"ncil to tae decisions on the

:asis o, proposals ,rom the Commission. ?owe;er7 the Co"ncil can in;ite the

Commission to draw "p a proposal7 as can the +"ropean Parliament.

#t any point in the proced"re the Commission can amend its proposal or7 i, necessary7

withdraw it.

The Commission is again in;ol;ed in a later stage o, the legislati;e proced"re. 'nce

the Commission8s proposal has :een transmitted to the +"ropean Parliament and the

Co"ncil7 point $c& o, the second s":paragraph o, #rticle 251$2& lays down that7 i,

Parliament proposes amendments to the common positionadopted :y the Co"ncil7 the

amended tet is ,orwarded to the Co"ncil and to the Commission7 which deli;ers an

opinion on those amendments. I, the Commission is not in ,a;o"r o, the amendments

proposed :y Parliament7 the Co"ncil m"st act "nanimo"slyD i, it is in ,a;o"r7 the

Co"ncil may act :y a !"ali,ied ma the doc"ments adopted:y Parliament at each stage in the proced"re are generally resol"tions and may
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contain instr"ments o, ;ario"s types7 s"ch as opinions or amendments to the

Co"ncil8s common position.egislati;e proced"res are re,erred7 depending on the

s":


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implementation o, the ,o"nding treaties. The Co"rt is assisted in its wor :y

ad;ocates-general7 who draw "p opinions.

1.&.2. udgments

The Co"rt o, "stice and the Co"rt o, /irst Instance hand down

instances d"ring the in;estigation o, a case $,or eample7 acts ordering the

preser;ation o, e;idence7 or separating7


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Parliamentary !"estions represent a way ,or =em:ers o, Parliament to eep a chec

on the acti;ities o, the Commission and the Co"ncil. +ach =em:er o, Parliament can

address to the Co"ncil and the Commission>

written !"estions $re!"esting a written reply&7

oral !"estions $ased in the cham:er& and !"estions d"ring G"estion Time $the period reser;ed ,or !"estions in each

part-session o, Parliament&.

These !"estions are a m"ch-"sed means o, eeping chec. The written !"estions and

the replies gi;en are p":lished in the ',,icial o"rnal7 C series. They are incorporated

into +0-e.

2. Legislative procedures

In contrast to the national systems7 in which the will o, the nation is epressed inParliament7 the +"ropean nion accords a ma

enhanced cooperation $#rticle 11$2&&7

speci,ic tass o, the +C $#rticle 15$6&&7

amending the Stat"te o, the +"ropean System o, Central ans $#rticle

1$5&&7

Str"ct"ral /"nds and the Cohesion /"nd $#rticle 161&7

"ni,orm proced"re ,or elections $#rticle 1A$4&&7

certain international agreements $#rticle 3$3&&7

;iolation o, h"man rights $#rticle o, the Treaty on +"ropean nion&7

accession o, new =em:er States $#rticle 4A o, the Treaty on +"ropean

nion&.
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2.2. Co0decision procedure Code C(-! graphic

representation!

The co-decision proced"re7 which was introd"ced :y the Treaty on +"ropean nion7

was concei;ed as an etension o, the cooperation proced"re. ?owe;er7 while in thelatter the Co"ncil can7 acting "nanimo"sly7 disregard the opinion o, Parliament7 in the

co-decision proced"re there is no s"ch possi:ility> in the e;ent o, disagreement7 a

conciliation committee made "p o, representati;es o, the Co"ncil and o, Parliament

has to arri;e at a tet that is accepta:le to the two instit"tions. The co-decision

proced"re now p"ts these two instit"tions on an e!"al ,ooting in the legislati;e roles.

nder this proced"re7 the Co"ncil cannot adopt a common positioni, the process o,

conciliation with Parliament ,ails. I, no agreement is reached7 the legislati;e process

is lia:le to :e :roen o,,.

Co-decision has :ecome :y ,ar the most important proced"re in legislati;e practice.

It concerns the ,ollowing areas>

non-discrimination on gro"nds o, nationality $#rticle 12&7

com:ating discrimination :ased on se7 racial or ethnic origin7 religion or

:elie,7 disa:ility7 age or se"al orientation $#rticle 13$2&&7

,reedom o, mo;ement and o, residence $#rticle 1$2&&7

,ree mo;ement o, worers $#rticle 4&7

social sec"rity ,or migrant worers $#rticle 42&7

right o, esta:lishment $#rticle 44$1&7 #rticle 46$2&7 #rticle 4$1& and $2&&7

;isas7 asyl"m7 immigration and other policies relating to the ,ree mo;ement o,persons $#rticle 6$4& and $5&&7

transport $#rticle 1$1&7 #rticle &7

the internal maret $#rticle A5&7

employment $#rticle 12A&7

c"stoms cooperation $#rticle 135&7

social policy $#rticle 13$2&&7

e!"al opport"nities and e!"al treatment $#rticle 141$3&&7

implementing decisions relating to the +"ropean Social /"nd $#rticle 14&7

ed"cation $#rticle 14A$4&&7

c"lt"re $ecept recommendations& $#rticle 151$5&&7

p":lic health $#rticle 152$4&&7 cons"mer protection $#rticle 153$4&&7

trans-+"ropean networs $#rticle 156&7

ind"stry $#rticle 15$3&&7

economic and social cohesion$#rticle 15A&7

+"ropean 0egional (e;elopment /"nd $#rticle 162&7

research and technological de;elopment $#rticle 166$1&7 #rticle 12&7

;ocational training $#rticle 15$4&&7

the en;ironment $#rticle 15$1& and $3&&7

de;elopment cooperation $#rticle 1A$1&&7

political parties at +"ropean le;el $#rticle 1A1&7 access to the instit"tions8 doc"ments $#rticle 255$2&&7
http://europa.eu.int/eur-lex/lex/en/droit_communautaire/procedure_de_codecision.gifhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/procedure_de_codecision.gifhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.1.4%231.1.4http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.1.4%231.1.4http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#2.3%232.3http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.3%231.5.2.3http://europa.eu.int/eur-lex/lex/en/droit_communautaire/procedure_de_codecision.gifhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/procedure_de_codecision.gifhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.1.4%231.1.4http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#2.3%232.3http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.3%231.5.2.3


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,ra"d $#rticle 2&7

statistics $#rticle 25&7

esta:lishing a s"per;isory :ody ,or data protection $#rticle 26&.

2.3. Cooperation procedure Code +45! graphicrepresentation!

The cooperation proced"re was introd"ced :y the Single +"ropean #ctto step "p the

role o, the +"ropean Parliament compared with the cons"ltation proced"re.

Parliament can mae amendments to a Co"ncil common position:"t7 "nlie theco-

decision proced"re7 the ,inal decision lies with the Co"ncil alone.

The cooperation proced"re applies ecl"si;ely to the ,ollowing areas>

r"les ,or the m"ltilateral s"r;eillance proced"re $#rticle AA$5&&7

prohi:ition on pri;ileged access to ,inancial instit"tions $#rticle 12$2&&7

prohi:ition on ass"ming lia:ility ,or =em:er States8 commitments $#rticle

13$2&&7

meas"res to harmonise the circ"lation o, coins $#rticle 16$2&&.

Since the entry into ,orce o, the Treaty o, #msterdam7 all other areas pre;io"sly

s":


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n"m:er o, representati;es elected in each =em:er State ;aries depending on the sie

o, the pop"lation. The =em:ers o, Parliament do not sit in national delegations :"t

,orm transnational gro"ps in line with their political a,,inities.

The =em:ers o, Parliament are di;ided "p into a n"m:er o, specialist committees

and delegations. The reports drawn "p :y Parliamentary committees are s":mitted ,oradoption :y Parliament as a whole in plenary session. G"estions to the Commission

and the Co"ncil7 emergency de:ates and Presidency statements are also dealt with in

plenary session. Plenary sittings o, Parliament are open to the p":lic.

3.1.2. Po)ers

3.1.2.1. egislati;e power

Parliament taes part to ;arying degrees in drawing "p Comm"nity legislati;e

instr"ments7 depending on the areas concerned> it can :e re!"ired to deli;er non-

:inding opinions $cons"ltation proced"re& or :inding opinions $assent proced"re&D it

can mae the Co"ncil accept amendments to Commission proposals that it has

adopted :y an a:sol"te ma


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policy and on all proposed meas"res7 with the eception o, FFwww.e"roparl.e".int&.

3.2. Council of the European #nion

3.2.1. Composition and method of operation

The Co"ncil o, the +"ropean nion is made "p o, representati;es o, the go;ernments

o, the =em:er States. Its composition ;aries depending on the s":


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it adopts7 FF"e.e".int&.

3.3. European Commission

3.3.1. Composition and method of operation

The Commission consists o, 25 mem:ers $one per =em:er State&7 chosen on the

gro"nds o, their general competence7 whose independence is :eyond do":t. The

mem:ers o, the Commission are appointed :y the Co"ncil7 a,ter appro;al :y the+"ropean Parliament7 ,or a period o, ,i;e years.

The President o, the Commission is designated :y the Co"ncil meeting at the le;el o,

?eads o, State or @o;ernmentD this designation is then appro;ed :y the +"ropean

Parliament.

The Commission8s departments are di;ided into directorates-general7 each o, which is

responsi:le ,or a partic"lar area o, acti;ity.

3.3.2. Po)ers

The +"ropean Commission has ,o"r main roles.

It has a near-monopoly in initiating legislation> the Commission is responsi:le ,or

drawing "pproposals,or new legislati;e instr"ments which it ,orwards to the

Parliament and the Co"ncil. It also plays an acti;e part in the s"ccessi;e stages o, the

legislati;e proced"res.

It p"ts policies into e,,ect and implements the :"dget o, the +"ropean nion> the

Commission is responsi:le ,or managing and carrying o"t the :"dget and p"ts into

e,,ect the policies and programmes adopted :y Parliament and the Co"ncil.

It is the g"ardian o, the treaties> the Commission ens"res that the legal pro;isions

adopted :y the Comm"nity instit"tions are applied :y indi;id"als7 :y the =em:er

States and :y the other instit"tions. In eercising its powers7 the Commission can in

partic"lar impose sanctions on indi;id"als and companies ,or in,ringements o,

Comm"nity law. It can instit"te in,ringement proceedings against =em:er States7 as

part o, which it in;ites =em:er States to recti,y the sit"ation within a speci,ied

period. astly7 the Commission can :ring actions :e,ore the Co"rt o, "stice on the

gro"nds o, in,ringements o, Comm"nity law :y the =em:er States or :y other

instit"tions.
http://ue.eu.int/cms3_fo/showPage.asp?lang=en&id=1&mode=g&name=http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.1%231.5.2.1http://ue.eu.int/cms3_fo/showPage.asp?lang=en&id=1&mode=g&name=http://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.1%231.5.2.1


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It represents the Comm"nity> on :ehal, o, the Comm"nity the Commission cond"cts

negotiations with a ;iew to concl"ding international agreements with non-mem:er

co"ntries or international organisations7 in con


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actions ,or ann"lment $o, instr"ments adopted :y the Comm"nity instit"tions&7

actions ,or ,ail"re to act $against a Comm"nity instit"tion that has ,ailed to

tae action&7

actions ,or damages $,or maing good losses ca"sed :y an illegal act or ,ail"re

to act :y a Comm"nity instit"tion&7

actions concerning contract"al lia:ility $disp"tes concerning p":lic-law orpri;ate-law contracts concl"ded :y the Comm"nity&7

sta,, actions $disp"tes :etween the Comm"nity and its o,,icials and other

ser;ants&7

re!"ests ,or preliminary r"lings $at the re!"est o, co"rts in the =em:er States7

the Co"rt o, "stice or the Co"rt o, /irst Instance gi;e r"lings on the

interpretation o, Comm"nity law or on the ;alidity o, acts adopted :y the

instit"tions or :y the +"ropean Central an&.

The Co"rt o, "stice hears actions :ro"ght :y the Comm"nity instit"tions or :y the

=em:er States against acts o, the instit"tions or wrongdoing :y the =em:er States. It

has


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The Co"rt o, #"ditors pro;ides the Co"ncil and the +"ropean Parliament ann"ally

with a statement o, ass"rance regarding the relia:ility o, the acco"nts and the legality

and reg"larity o, the "nderlying transactions. #n ann"al report presenting the Co"rt8s

o:ser;ations on the management o, Comm"nity ,inances is ,orwarded to the

Comm"nity instit"tions and p":lished in the ',,icial o"rnal. The report highlights

those areas in which impro;ements are possi:le7 and e;en desira:le. The instit"tions8replies to the Co"rt8s o:ser;ations are also p":lished in the ',,icial o"rnal.

The Co"rt o, #"ditors also has ad;isory powers. The other + instit"tions may in

certain cases as the Co"rt o, #"ditors ,or its opinion.

/inally7 the Co"rt may comment on speci,ic iss"es in the ,orm o, special reports

which are also p":lished in the ',,icial o"rnal.

/or ,"rther in,ormation7 cons"lt the Co"rt o, #"ditors8 we:site

$http>FFwww.eca.e".int&.

3.&. The European Economic and +ocial

Committee

3.&.1. Composition

The +"ropean +conomic and Social Committee comprises representati;es o, the

;ario"s social and economic aspects o, society7 in partic"lar ,armers7 transporters7

worers7 :"sinessmen and tradesmen7 the pro,essions7 cons"mers and the p":lic in

general.

The mem:ers o, the +conomic and Social Committee are proposed :y the =em:er

States and appointed :y the Co"ncil7 acting :y a !"ali,ied maFFwww.esc.e".int&.

3.'. Committee of the ,egions
http://www.eca.eu.int/index_en.htmhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.5%231.5.2.5http://www.esc.eu.int/pages/en/home.asphttp://www.eca.eu.int/index_en.htmhttp://europa.eu.int/eur-lex/lex/en/droit_communautaire/droit_communautaire.htm#1.5.2.5%231.5.2.5http://www.esc.eu.int/pages/en/home.asp


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3.'.1. Composition and organisation

The Committee o, the 0egions comprises representati;es o, regional and local

go;ernment. The mem:ers o, the Committee7 together with the same n"m:er o,

alternati;es7 are proposed :y the =em:er States and appointed :y the Co"ncil7 acting

:y a !"ali,ied ma


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process and players-eu legislative power

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