Introduction to the European Institutions
Contents
1.
Commission
- Overview
- Organization
- Roles
- Legislative initiative
- Guardian of the treaties
- Manager and negotiator
- Links with the other institutions
2.
European Parliament
- Overview
- Composition
- Powers
- Legislative power
- Budgetary powers
- Supervision of the executive
- Working procedures
3.
The Council
- Overview
- Role
- Decision-making in the Council
- The Presidency
- The European Council
4.
Other institutions
- Court of Justice
- Court of Auditors
- European Central Bank
- Economic and Social Committee
- Committee of the Regions
- European Investment Bank
1. The European
Commission
Overview
The European Commission embodies and upholds
the general interest of the Union.
The Commission was created as an independent
body to represent the European interest common to all Member States of
the Union. It is the driving force in the legislative process, proposing
the legislation on which the European Parliament and the Council have
to take a decision.
The Commission is responsible for implementing
common policies (like the common agricultural policy), ad-ministering
the budget and managing the Community programmes. For the day-to-day running
of Community policies and programmes, the Commission relies heavily on
national administrations.
In external affairs, the Commission represents
the Community and conducts international negotiations (for example in
the World Trade Organisation).
Finally the Commission monitors compliance
with the Treaty and the decisions taken by the Community in-stitutions,
for example in the field of competition.
The Commission is collectively accountable
to the European Parliament.
Organization
It is the 20 members of the Commission,
also called Commissioners who provide its political leadership and direction.
Since its inception, the Commission has always consisted of two nationals
of the most heavily-populated Member States and one national of each of
the others. They bring a powerful mix of experience to their tasks, having
been members of their national parliaments or of the European Parliament
and, in many cases, after having held senior ministerial offices in their
home countries. They are obliged to be completely independent of their
national governments and act only in the interests of the European Union.
The Commission meets once a week to conduct
its business, which may involve adopting proposals, finalizing policy
papers and discussing the evolution of its priority policies. Its decisions
are taken by simple majority.
The President of the Commission is appointed
by common accord of the governments of the Member States, subject to approval
by the European Parliament.
The Commission is divided into Directorates-General
(DG's). Each one is headed by a director-general, re-porting to a Commissioner,
who has political and operational responsibility for its work. With its
staff of 16 000, the Commission is the largest of the Union's institutions.
Roles
The European Commission has three distinct
functions:
- It can initiate legislative proposals
- It is the guardian of the Treaties
- It is the manager and executor of EU
policies and of international trade relations.
Legislative initiative
The legislative process begins with Commission
proposals as the Commission has a monopoly on the initiative in Community
decision-making (except in two areas: common foreign and security policy
and cooperation on justice and home affairs).
In devising its proposals, the Commission
has three core objectives: to identify the¹ European interest¹, to consult
as widely as necessary and to respect the principle of subsidiarity.
The European interest means that
a legislative proposal reflects the Commission's judgment of what is best
for the Union and its citizens as a whole, rather than for sectoral interests
or individual countries.
Consultation is essential in the
preparation of a proposal. The Commission listens to submissions from
government, industry, trade unions, special interest groups and technical
experts before completing its final draft.
Subsidiarity is enshrined in the
Treaty on European Union and is applied by the Commission in such way
as to ensure that the Union takes action only when it will be more effective
than if left to individual Member States.
Once the Commission has formally sent a
proposal for legislation to the Council and the Parliament, the Union's
law-making process is dependent on effective cooperation between three
institutions - the Council, the Commission and the European Parliament.
Guardian of the Treaties
A major responsibility of the Commission
is to ensure that EU law is applied correctly by the Member States. If
they breach their Treaty obligation, they will face Commission action.
Proceedings are initiated mainly through the 'failure to act' procedure
requiring the State concerned to submit its observations. If these do
not satisfy the Commission, a reasoned opinion is delivered, requiring
the matter to be sorted out by a specific date. After that, Commission
action in this respect may also include legal proceedings before the Court
of Justice. Under certain circumstances, the Commission can fine individuals,
firms and organisations for infringing Treaty law, subject to their right
to appeal to the Court of Justice.
Manager and negotiator
The Commission manages the Union's annual
budget with responsibility for public expenditure and for ad-ministering
the four major Community funds. Of these the European Agricultural Guidance
and Guarantee Fund and the Structural Funds account for a considerable
proportion of the budget and are designed to even out the economic disparities
between the richer and the poorer areas.
The Commission has the following major
executive responsibilities:
- It delegates powers to make rules covering
the details of Council legislation
- It can introduce preventive measures
for a limited period to protect the Community market from dumping by
third countries
- It enforces the Treaty's competition
rules and regulates mergers and acquisitions above a certain size
- The Commission negotiates international
trade and cooperation agreements with third countries, or groups of
countries, which are then put to the Council for conclusion. The Commission
has important responsibilities for aid and development programmes in
third countries.
Links with the
other institutions
The Commission has special links with each
of the other institutions. It works most intensively with the Council
of Ministers and the European Parliament drafting EU legislation and attends
Council and Parliament meetings. In addition, the President of the Commission
participates alongside the Heads of State and/or Government of the Member
States at the twice-yearly meetings of the European Council. The President
also participates as a representative of the Union as a whole at the annual
economic summits of the Group of Eight (G-8) leading industrialised nations.
The Commission is answerable to the European
Parliament, which has the power to dismiss it by a vote of censure or
no confidence. The Commission attends all sessions of the European Parliament
and must explain and justify its policies if so requested by members of
the house. It must reply to written or oral questions put by MEPs.
The Commission's functions regularly involve
the European Court of Justice, which is the final arbiter of European
law. The Commission refers cases to the Court where directives or regulations
are not being re-spected by governments or companies. The Court can also
be consulted by the Member States and enterprises when, for instance,
they want to appeal against fines imposed by the Commission.
The Commission's management of the EU budget
is scrutinized by the Court of Auditors which is responsible for examining
the legality and regularity of revenue and expenditure and for ensuring
the sound financial management of the EU budget. The common goal of both
institutions is to eliminate fraud and wastage. On the basis of the Court
of Auditors' reports, it is the European Parliament which gives the Commission
final discharge for the execution of the annual budget.
Finally, the Commission works closely with
the Union's two consultative bodies, the Economic and Social Committee
and the Committee of the Regions, and consults them on most items
of draft legislation.
2. The European
Parliament
Overview
The European Parliament (EP) is the institution
that represents the citizens of the Member States. In many areas, the
Parliament acts as co-legislator with the Council.The
Parliament and Council jointly constitute the budgetary authority. The
Parliament also exercises democratic supervision over all Community activities.
The Parliament sees itself as the guardian
of the European interests and the defender of the citizens' rights.
Individually, or as a group, European citizens have the right to petition
the Parliament and can seek redress of their grievances on matters that
fall within the European Union's sphere of responsibility. The Parliament
has also appointed an ombudsman to investigate allegations of maladministration
brought by citizens.
The European Parliament attaches high priority
to maintaining links with the national parliaments through regular meetings
between speakers and chairpersons and between parliamentary committees.
Composition
The President represents Parliament on official
occasions and in international relations, presides over its plenary sittings
and chairs meetings of the Bureau and the Conference of Presidents.
The Bureau is the regulatory body
that is responsible for Parliament's budget and for administrative, organisational
and staff matters. In addition to the President and fourteen vice-presidents,
it includes five quaestors who deal in a consultative capacity with administrative
and financial matters relating to Members and their statute. The members
of the Bureau are elected for a term of two-and-a-half years.
The Conference of Presidents is the
political governing body of Parliament. It draws up the agenda for plenary
sessions, fixes the timetable for the work of parliamentary bodies and
establishes the terms of reference and size of parliamentary committees
and delegations. It comprises the President of Parliament and the political
group chairs.
Preparation of the work for Parliament's
plenary sessions is conducted in its committees covering all areas of
the Union's activities, ranging from agriculture to common foreign and
security policy, from legal affairs and citizen's rights to overseas cooperation
and development.
Parliament's work is organized by a secretariat,
headed by a Secretary-General with a permanent staff of about 3500, in
addition to which there are political group staff and Members' assistants.
Parliament's 11 working languages mean that one third of the staff work
in the language service (translation and interpretation). However, despite
the constraints of multilingualism and three places of work, Parliament's
operating budget is only 1 percent of the EU budget, or one and a half
Euros a year for each person living in the Union.
The EP is currently made up of 626 representatives
of the peoples of the Member States of the Community. Members of the European
Parliament, who have been directly elected since 1979, sit in political
groups, not in national delegations.
Powers
The most important mandates of the European
Parliament are the following:
- Legislative power
- Budgetary powers
- Supervision of the executive
Legislative Power
Originally, the Treaty of Rome (1957) gave
the EP a consultative role only, whereas the Commission was entitled to
propose and the Council of Ministers to decide legislation. Subsequent
Treaties have extended the EP's influence from a purely advisory role
to full involvement in the Community's legislative process. The EP is
now empowered to amend and even adopt legislation. Thus, in a large number
of areas the power of decision is shared by the Council and the EP. Depending
on the individual legal basis, the EP takes part, to varying degrees,
in the drafting of Community legislation. The different legal bases and
associated procedures defined in the Treaties are as follows.
The co-decision procedure shares
decision-making power equally between the Parliament and the Council.
It strengthens the role of the EP as co-legislator, applies to a wide
range of issues, such as the free movement of workers, creation of the
internal market, research and technological development, the environment,
consumer protection, education, culture and health.
The consultation procedure requires
an opinion from the EP before the Council can adopt a legislative proposal
from the Commission. Neither the Commission nor the Council is obliged
to accept the amendments listed in the opinion of the EP. Once the EP
has given its opinion, the Council can adopt the proposal without amendments
or adopt it in an amended form. However, the EP can refuse to give an
opinion. The consultation procedure applies notably to agriculture (price
review) and taxation.
The cooperation procedure allows
the Parliament to improve proposed legislation by amendment. This requires
an opinion and involves two readings by the EP, giving its members ample
opportunity to review and amend the Commission's proposal and the Council's
preliminary position. The Treaty of Amsterdam has simplified the various
legislative procedures by significantly extending the codecision procedure,
which is in practice almost replacing the cooperation procedure. As a
consequence, the cooperation procedure applies to very few cases.
The assent procedure applies to
those legislative areas in which the Council acts by unanimous decision,
limited, since the Amsterdam Treaty, to the organization and objectives
of the Structural and Cohesion Funds. The EP's assent is also required
for important international agreements concluded between the Union and
a non-member country or group of countries, such as the accession of new
Member States and association agreements with third countries (absolute
majority of the EP's total membership required). Since the Maastricht
Treaty, the EP has had a limited right of legislative initiative
in that it has the possibility of asking the Commission to put forward
a proposal.
Budgetary powers
As one of the two arms of the budgetary
authority, the EP is involved in the budgetary procedure from the preparation
stage, notably in laying down the general guidelines and the type of spending.
Parliament has the final say on 'non-mandatory
EC expenditure', i.e. expenditure not specifically provided for under
Community rules: the institutions' administrative expenses (especially
the 'operational expenditure' on the structural funds), research policy,
energy policy, transport policy or environmental protection. This expenditure
accounts for almost half the EC budget.
The other half of the EC budget consists
of 'compulsory expenditure', i.e. expenditure which is mandatory
under Community rules (which basically means expenditure on the common
agricultural policy). Parliament may propose amendments relating to this
expenditure.
Finally, the Parliament is also entitled
to reject the entire budget, and is responsible for granting formal
discharge for the Commission's budget management for the previous year.
Monitoring of expenditure is the continuous
work of the Parliament's Committee on Budgetary Control.
Supervision of the executive
Parliament exercises democratic supervision
over all Community activities. This power, which was originally applied
to the activities of the Commission only, has been extended to the Council
of Ministers, the European Council and the political cooperation bodies
which are accountable to Parliament.
The EP exercises democratic supervision
over the Commission. The Commission must answer parliamentary questions,
defend its proposals before Parliament and present it with an annual report
on the activities of the communities for debate. Parliament approves the
nomination of Commissioners and it can, by a two-thirds majority of its
members, pass a motion of censure and thereby compel the Commission to
resign as a body.
Parliament's expanded budgetary and legislative
powers have increased its influence over the Council. The codecision procedure
in particular has helped to create a balance of legislative power between
the Council and the EP.
The European Central Bank is accountable
to the European Parliament. After committee hearings, the nominees for
Presidency of the European Central Bank have to be approved by Parliament
before they can be appointed by the Council.
Working procedures
The basic rules governing the workings
of Parliament are set out in its Rules of Procedure.
The MEPs form political groups and given
Parliament's status as a Community institution, these are Community-wide
party-political groupings that cut across national lines.
Parliament also has 17 standing committees.
The members of the Commission or their representatives must appear before
the relevant committee for their area of responsibility in order to provide
clarification about Commission decisions, documents for the Council and
the position adopted by the Commission in the Council. The committees
are also responsible for preparing Parliament's opinions on proposals
from the Commission, Parliament's proposed amendments to any 'common position'
drawn up by the Council, and Parliament's resolutions drawn up on its
own initiative.
Parliament holds its week-long plenary
sessions in Strasbourg once every month, except in August. Shorter emergency
sessions (lasting one or two days) may be held in Brussels to deal with
current major issues, enabling Parliament to set out its position on matters
of importance (such as Community affairs, international affairs, violations
of human rights, etc.). All plenary sessions are open to the public.
3. The Council
Overview
The Council is the EU institution in which
the governments of the Member States are represented. Together with the
European Parliament it acts as Community legislator and budgetary authority.
It is the lead institution for decision-making on the common foreign and
security policy and on police and judicial cooperation in criminal matters.
The Council consists of one representative
of each Member State at ministerial level (e.g. the Ministers for Agriculture
when the Council takes decisions on the common agricultural policy). Council
members are politically accountable to their national parliaments.
The President of the Council is the Minister
of the Member State currently holding the Presidency of the European Union.
Each Member State holds the Presidency for a six-month term according
to an agreed rota (Spain and Denmark in 2002).
Role
Under the Treaty establishing the European
Community, the main responsibilities of the Council are the following:
- The Council is the Community's legislative
body: for a wide range of Community issues, it exercises that legislative
power in co-decision with the European Parliament
- The Council coordinates the general economic
policies of the Member States
- The Council concludes, on behalf of the
Community, international agreements between the latter and one or more
States or international organisations
- The Council and the European Parliament
constitute the budgetary authority that adopts the Community's budget.
Under the Treaty on the European Union,
the Council:
- Takes the decisions necessary for defining
and implementing the common foreign and security policy, on the basis
of general guidelines established by the European Council
- Coordinates the activities of Member
States and adopts measures in the field of police and judicial cooperation
in criminal matters
Decision-making
in the Council
The Treaties specify whether the Council
is to take its decisions by unanimous agreement of all members, by qualified
majority or by simple majority, in the case of procedural matters.
A unanimous decision, which follows from
the agreement or abstention of all Member States, is required in several
areas of importance to the development of the Union, such as the common
foreign and security policy, police and judicial cooperation in criminal
matters, asylum and immigration policy, economic and social cohesion policy
and taxation. In other words, each Member State has a veto on European
measures in these sectors.
In the case of qualified-majority voting,
which has become the rule for decision-making on the most important EU
policies (such as the completion of the internal market), each Member
State has a number of votes, weighted to reflect the fact that the Member
States are equal as members of the Union but different in terms of population.
In the framework of the Treaty establishing
the European Community, Council acts may take the form of regulations,
directives, decisions, recommendations or opinions. The Council may also
adopt conclusions of a political nature or other types of acts such as
declarations or resolutions.
The Presidency
The European Council is hosted by and takes
place in the Member State holding the Presidency of the Council, and punctuates
the political life and development of the European Union by meeting at
least twice a year (generally in June and December). It is an important
event: the presence in a European city of fifteen representatives with
unimpeachable democratic credentials, accompanied by other Ministers and
close collaborators, has for twenty-five years been an eagerly awaited
political event. The Presidency, assisted by the Secretary-General (currently
Javier Solana) of the Council, who acts as High Representative for the
Common Foreign and Security Policy, also represents the Union for matters
covered by that policy.
The decisions taken at the European Council
meetings are a major impetus in defining the general political guidelines
of the European Union. The Presidency Conclusions are made public at the
closing of a European Council meeting.
The European
Council
The European Council brings together the
Heads of State or Government of the fifteen Member States of the European
Union and the President of the European Commission. (It should not be
confused with the Council of Europe (which is an international organization)
or with the Council of the European Union!)
The principal role of the European Council
is described as follows in Article 4 of the common provisions of the Treaty
on European Union: "The European Council shall provide the Union with
the necessary impetus for its development and shall define the general
political guidelines thereof." The European Council is not legally
an institution of the European Union. Nevertheless it plays a vital role
in all European Union fields of activity whether it be by giving impetus
to the Union or defining general political guidelines, or by coordinating,
arbitrating or disentangling difficult questions.
4. Other Institutions
Court of Justice
This is the institution responsible for
enforcing Community law. It has jurisdiction in disputes between Member
States, between the Union and its Member States, between institutions
and between private individuals and the Union. It can also answer questions
about the interpretation of Community law raised by national courts in
the course of a dispute being heard in such courts. This power to issue
preliminary rulings is essential to ensure a uniform interpretation of
Community law throughout the Union.
The court may be called upon to decide cases
brought by the Member States, by the Community institutions and by individuals
and companies. It ensures uniform interpretation of Community law throughout
the Community by close cooperation with national courts and tribunals
through the preliminary ruling procedure.
The Court of Justice worked alone until
01 September 2023 when the Council attached to it a Court of First Instance
in order to improve the judicial protection of individual interests and
to enable the Court of Justice to concentrate its activities on its fundamental
task of ensuring uniform interpretation of Community law.
The Court of First Instance now has jurisdiction
to deal with all actions brought by individuals and companies against
decisions of the Community institutions and agencies. Its judgements may
be subject to an appeal brought before the Court of Justice but only on
a point of law.
Court of Auditors
The European Court of Auditors is the taxpayers'
representative responsible for checking that the European Union spends
its money according to its budgetary rules and regulations and for the
purposes for which it is intended.
Some see the Court as the 'financial conscience'
of the Union, others as a 'watchdog' over its money. In either case, it's
a guarantor that certain moral, administrative and accounting principles
will be respected. The Court's reports are a rich source of information
on the management of the Union's finances, and a source of pressure on
the institutions and others with administrative responsibility to manage
them soundly.
The Court's function, performed with complete
independence, is a vital contribution to transparency in the Union. Objective
scrutiny reassures the taxpayer that the Union's money is being managed
responsibly - a reassurance which is all the more necessary given the
growth of expenditure in recent years over a widening range of policies.
The EU budget is approximately 90 thousand
million euro.
European Central
Bank
The European Central Bank is at the heart
of the economic and monetary union. Its task is to maintain the stability
of the European Currency, the Euro and control the amount of currency
in circulation.
In order to carry out its task, the ECB's
independence is guaranteed by numerous legal provisions. When exercising
their powers or carrying out their tasks or duties, neither the ECB, nor
a national central bank, may take instruction from Community institutions,
governments of Members States or any other body.
The ECB consists of a Governing Council
and an Executive Board. The Governing Council comprises the governors
of the national central bank and the members of the Executive Board of
the ECB. The Executive Board, which is made up of the President, Vice
President and four other members, is effectively in charge of running
the ECB. Its President and members are appointed from among persons of
recognised standing and experience in monetary or banking matters by common
accord of the governments of the Member States, on a recommendation from
the Council after it has consulted the European Parliament.
The European System of Central Banks (ESCB)
is composed of the ECB and of the central banks of the Member States.
It has the task of defining and implementing the monetary policy of the
Community, and has the exclusive right to authorise the issue of banknotes
and coins within the Community. It also holds and manages the official
foreign reserves of the Member States and promotes the smooth operation
of payments systems.
Economic and
Social Committee
The European ESC is made up of representatives
of Europe's organised civil society, i.e. the EU's economic and social
interest groups (including employers, employees, farmers carriers, businessmen,
craftsmen, the professions and managers of small and medium-sized businesses).
It also provides a forum for consumers, environmental groups and associations.
Its members serve in a non- party-political capacity which gives them
a great degree of independence as well as expertise rooted in their work
in employers' organisations, trade unions and other groups.
The European ESC is thus a bridge between
organised civil society and the EU institutions and a vital platform for
consultation, bringing greater understanding of, and transparency to,
EU policies - without any party-political slant. Consultative bodies have
a key role to play; their work should be clearly visible as a necessary
component of our democracies.
The ESC has three main tasks:
- A consultative role vis-à-vis the three
large institutions (European Parliament; Council; Commission)
- Enabling the organizations of civil society
to be more closely involved in and to make a greater contribution to
the European enterprise; embodying and promoting a Europe which is close
to its citizens
- Strengthening the role of civil society
in non-Community countries (or groups of countries) by promoting dialogue
with their representatives and creating similar structures in the CEEC,
Turkey; the Euromed Countries; the ACP; Mercosur etc.
In pursuit of these tasks; the ESC can
issue three types of opinion:
- Opinions on matters referred by the
Commission, the Council and the European Parliament
- Own-initiative opinions, which enable
the Committee to express its views whenever it deems it appropriate
- Exploratory opinions in cases where the
Commission and the European Parliament have asked it to consider a matter
and make specific suggestions which might ultimately lead to a proposal
for EU rules.
The Committee can also instruct one of its
sections to draw up an information report with a view to exploring a topic
of general or current interest.
Committee of
the Regions
The Committee of the Regions was created
by the Maastricht Treaty in 1991. Europe's leaders were afraid that the
EU was steaming ahead and leaving the public behind, and that is why they
decided to set up a Committee to represent the local and regional authorities.
It is certainly no coincidence that the
Committee of the Regions and the concept of subsidiarity were conceived
at the same time, in the same place.
The Maastricht Treaty (1991) states that
the Committee of the Regions must be consulted as a matter of course on
all areas likely to have repercussions at local or regional level. To
begin with, its responsibilities were limited to five areas: economic
and social cohesion, trans-European infrastructure networks, health, education
and culture. The Commission and the Council were obliged to consult the
Committee before taking measures in those areas.
The Treaty of Amsterdam (1999) gave the
Committee of the Regions another five areas for compulsory consultation
(employment policy, social policy, the environment, vocational training
and transport), and gave the European Parliament the right to consult
the Committee, in addition to the Commission and the Council. The Committee
of the Regions also has the right to issue own-initiative opinions.
European Investment
Bank
The European Investment Bank (EIB), the
financing institution of the European Union, was created by the Treaty
of Rome. The members of the EIB are the Member States of the European
Union, who have all subscribed to the Bank's capital.
The EIB enjoys its own legal personality
and financial autonomy within the Community system. The EIB's mission
is to further the objectives of the European Union by providing long-term
finance for specific capital projects in keeping with strict banking practice.
It thereby contributes towards building
a closer-knit Europe, particularly in terms of economic integration and
greater economic and social cohesion.
As an institution of the Union,
the EIB continuously adapts its activity to developments in Community
policies.
As a Bank, it works in close collaboration
with the banking community both when borrowing on the capital markets
and when financing capital projects.
The EIB grants loans mainly from the proceeds
of its borrowings, which, together with "own funds" (paid-in capital and
reserves), constitute its "own resources".
Outside the European Union, EIB financing
operations are conducted principally from the Bank's own resources but
also, under mandate, from Union or Member States' budgetary resources.
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