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The Commission's Annual Policy Strategy for 2008

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The Commission's Annual Policy Strategy for 2008 HOUSE OF LORDS European Union Committee 23rd Report of Session 2006–07 The Commission’s Annual Policy Strategy for 2008 Report with Evidence Ordered to be printed 19 June 2007 and published 4 July 2007 Published by the Authority of the House of Lords London : The Stationery Office Limited £price HL Paper 123 The European Union Committee The European Union Committee is appointed by the House of Lords “to consider European Union documents and other matters relating to the European Union”. The Committee has seven Sub-Committees which are: Economic and Financial Affairs, and International Trade (Sub-Committee A) Internal Market (Sub-Committee B) Foreign Affairs, Defence and Development Policy (Sub-Committee C) Environment and Agriculture (Sub-Committee D) Law and Institutions (Sub-Committee E) Home Affairs (Sub-Committee F) Social and Consumer Affairs (Sub-Committee G) Our Membership The Members of the European Union Committee are: Lord Blackwell Lord Maclennan of Rogart Lord Bowness Lord Marlesford Lord Brown of Eaton-under-Heywood Lord Powell of Bayswater Baroness Cohen of Pimlico Lord Roper Lord Freeman Lord Sewel Lord Geddes Baroness Symons of Vernham Dean Lord Grenfell (Chairman) Baroness Thomas of Walliswood Lord Harrison Lord Tomlinson Lord Kerr of Kinlochard Lord Wright of Richmond Information about the Committee The reports and evidence of the Committee are published by and available from The Stationery Office. For information freely available on the web, our homepage is: http://www.parliament.uk/parliamentary_committees/lords_eu_select_committee.cfm There you will find many of our publications, along with press notices, details of membership and forthcoming meetings, and other information about the ongoing work of the Committee and its Sub-Committees, each of which has its own homepage. Members’ interests are available at the Register of Interests: http://www.parliament.uk/about_lords/register_of_lords__interests.cfm Contacts for the European Union Committee Contact details for individual Sub-Committees are given on the website. General correspondence should be addressed to the Clerk of the European Union Committee, Committee Office, House of Lords, London, SW1A OPW The telephone number for general enquiries is 020 7219 5791.The Committee’s email address is [email protected] CONTENTS Paragraph Page FOREWORD—What this Report is about 5 Chapter 1: The Background to our Inquiry 1 7 Box 1: Overview of the contents of the Annual Policy Strategy for 2008 7 Chapter 2: The Commission’s Annual Policy Strategy for 2008 5 9 What is an Annual Policy Strategy for? 5 9 Towards a more strategic Strategy 10 10 The production of the Annual Policy Strategy 16 11 A well-structured dialogue? 19 12 Should the Commission juggle balls or pitch them? 26 13 Justifying action 31 15 Matching resources to ambitions 35 16 Communicating the Commission’s priorities 43 18 Better Regulation and the Annual Policy Strategy 45 18 Conclusions 54 20 Chapter 3: The Content of the APS for 2008 57 21 Points raised by our Sub-Committees 58 21 Economic and Financial Affairs, and International Trade 58 21 Internal Market 60 21 Foreign Affairs, Defence and Development Policy 64 22 Environment and Agriculture 67 22 Law and Institutions 73 23 Home Affairs 77 23 Social Policy and Consumer Affairs 79 24 Points made in written evidence submissions 85 25 General points 85 25 Written evidence regarding economic and financial affairs, and international trade 95 25 Written evidence regarding the internal market 96 26 Written evidence regarding foreign affairs, defence and development policy 99 26 Written evidence regarding environment and agriculture 102 26 Written evidence regarding home affairs 105 27 Written evidence regarding social policy and consumer affairs 110 27 Chapter 4: Our Conclusions 114 29 What is an Annual Policy Strategy for? 114 29 Towards a more Strategic Strategy 115 29 The production of the Annual Policy Strategy 119 29 A well-structured dialogue? 120 29 Should the Commission juggle balls or pitch them? 124 30 Justifying action 127 30 Matching resources to ambitions 129 30 Communicating the Commission’s priorities 133 31 Better Regulation and the Annual Policy Strategy 134 31 Conclusions 138 31 Appendix 1: List of Witnesses 140 32 Appendix 2: Recent Reports from the Select Committee 140 33 Oral Evidence Mr Timothy Kirkhope MEP and Mr James Temple-Smithson Written Evidence 1 Oral Evidence, 1 May 2007 3 Commissioner Margot Wallström, Commission Vice-President, Mr Sten Ramstedt, Member of the Cabinet and Mr Tomas Niklasson, Secretariat-General, European Commission Oral Evidence, 3 May 2007 11 Mr Klaus Welle, Head of Cabinet to the President of the European Parliament (Dr Hans-Gert Pöttering MEP) and Mr Anthony Teasdale, Head of Strategy and Political Bodies, Cabinet of the President, European Parliament Oral Evidence, 3 May 2007 21 Mr Gary Titley MEP Oral Evidence, 3 May 2007 29 Rt Hon Geoffrey Hoon MP, Minister for Europe, Mr Anthony Smith, Director of European Political Affairs and Ms Shan Morgan, Director of EU Affairs, Foreign and Commonwealth Office Oral Evidence, 8 May 2007 36 Written Evidence Centre for European Policy Studies (CEPS) 43 City of London Corporation 47 Commission for Racial Equality (CRE) 51 Equal Opportunities Commission (EOC) 52 Immigration Law Practitioners’ Association (ILPA) 54 Research Councils UK (RCUK) 57 Standing Committee on European Cooperation Organisations of the Senate of the States-General of the Netherlands 59 NOTE: References in the text of the report are as follows: (Q) refers to a question in oral evidence (p) refers to a page of written evidence FOREWORD—What this Report is about For national parliaments to influence effectively the development of EU policy, it is essential to engage with proposals as early in their development as possible. In this Report, we scrutinise one of the Commission’s principal strategic planning documents, the Annual Policy Strategy for 2008. This Report focuses on examining the Annual Policy Strategy (APS) as a strategic document. We welcome the Commission’s improvements to its Annual Policy Strategy documents, but we believe that there are flaws in the APS which prevent it from being as useful a tool as it could be. We make recommendations for its further improvement, and we present specific points regarding particular proposals in the APS for 2008. We consider that in future the APS needs to be clearer about its purpose. The Commission should provide more background to its proposals, and explain the status of each of the proposals or priorities listed. The APS needs, above all, to be more strategic. It should explain which policy areas have moved up the Commission’s agenda, and which have moved down. We also criticise the clarity of the structure of the APS. We have concerns about the way in which the APS is constructed in the Commission and scrutinised in the European Parliament: the APS should provoke a political dialogue about the ‘bigger picture’ regarding the EU’s key priorities for the coming year. We recommend that the Government should press the Council to make public its comments on the APS. The APS should be a presentation of the Commission’s strategic thinking to the other institutions. The Commission should include more explanation and justification of its priorities and proposals. It should explain the financial constraints around the APS and the relationship of the APS to the budgetary procedure should be made clear. Political priorities must be matched in budgetary terms, and we recommend that the Commission, Council and European Parliament should forge a closer link between the budgetary and legislative processes. We reiterate our support for work in the area of Better Regulation, and we encourage the Commission to create a new annual report discussing how the institutions can make further progress on this agenda. We make this Report to the House for debate. The Commission’s Annual Policy Strategy for 2008 CHAPTER 1: THE BACKGROUND TO OUR INQUIRY 1. For national parliaments to influence effectively the development of EU policy, it is essential to engage with proposals as early in their development as possible. A key to this is scrutiny of the Commission’s principal strategic planning documents, the Annual Policy Strategy and the Annual Legislative and Work Programme.1 2. Published each spring, the Annual Policy Strategy (APS) summarises the main priorities and orientations that the Commission is looking to include in its Annual Legislative and Work Programme (ALWP), which is published each autumn.2 The APS serves as a basis for consultation within the European institutions and beyond, and scrutiny of the APS therefore presents a key opportunity for influencing the Commission’s thinking on cross-cutting and strategic policy matters. BOX 1 Overview of the contents of the Annual Policy Strategy for 2008 • The APS for 2008 highlights four key challenges as the Commission’s cross- cutting priorities: tackling climate change; ensuring the availability of sustainable, secure and competitive energy; implementing the Lisbon strategy for growth and jobs; and managing migration flows to the EU. • The APS sets out the Commission’s other key actions for 2008 under the five- year strategic objectives of the Barroso Commission, which are prosperity, solidarity, security and freedom, and Europe as a world partner. • The Commission also describes its priorities regarding Better Regulation and improving communication. • Finally, the APS outlines the Commission’s general framework for human and financial resources for 2008. 3. For this, our first inquiry into the APS, we released a Call for Evidence, and held oral evidence sessions with Commissioner Margot Wallström, Vice- President for Institutional Relations and Communication Strategy; with Klaus Welle, chef de cabinet to the President of the European Parliament; with the leaders of the Labour and Conservative delegations to the European Parliament, Gary Titley MEP and Timothy Kirkhope MEP; and with the 1 The APS for 2008 is Commission document number COM (2007) 65 final, and Council document number 6788/07.
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