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Impact Assessment Report COMMISSION OF THE EUROPEAN COMMUNITIES Brussels, 12.12.2006 SEC(2006) 1646 COMMISSION STAFF WORKING DOCUMENT Accompanying document to the COMMUNICATION FROM THE COMMISSION European elections 2004 Commission report on the participation of European Union citizens in the Member State of residence (Directive 93/109/EC) and on the electoral arrangements (Decision 76/787/EC as amended by Decision 2002/772/EC) IMPACT ASSESSMENT REPORT for a possible amendment of Council Directive 93/109/EC laying down detailed arrangements for exercising the right to vote and stand as a candidate in elections to the European Parliament for citizens of the Union residing in a Member State of which they are not nationals {COM(2006) 790 final} {SEC(2006) 1645} {SEC(2006) 1647} 1 SUMMARY 1 POLICY BACKGROUND AND PROBLEM DEFINITION.......................................................... 5 1.1 Introduction .............................................................................................................................. 5 1.2 Current legal provisions in the EU in relation to EU citizenship and right to vote in EP elections ................................................................................................................................... 5 1.2.1 Participating in European Parliament elections .................................................................... 6 1.2.2 Context of the Impact Assessment on a possible amendment to Directive 93/109/EC ....... 7 2 PROBLEM ASSESSMENT ........................................................................................................ 8 2.1 Introduction .............................................................................................................................. 8 2.2 Problem 1: Deficient system to prevent double voting and double candidature...................... 8 2.2.1 Scale of Problem 1 – Double voting and double candidature............................................... 9 2.2.2 (Practical) problems relating to the information exchange system and Member States’ administrative burden and costs for the system ................................................................. 16 2.3 Summary – Problem 1 ........................................................................................................... 29 2.4 Problem 2: Heavy administrative burden for non-national candidates to the EP elections... 30 2.4.1 Scale of Problem 2 – EU non-nationals standing as candidates in EP elections............... 31 2.4.2 Member States’ provisions in relation to what national authority is competent to deliver proof of entitlement to stand as a candidate....................................................................... 33 2.5 Summary – Problem 2 ........................................................................................................... 37 3 POLICY OBJECTIVES............................................................................................................. 39 3.1 Introduction ............................................................................................................................ 39 3.2 Definition of general and specific policy objectives................................................................ 39 4 POLICY OPTIONS.................................................................................................................... 40 4.1 Policy options to address Problem 1: Deficient system to prevent double voting and double candidature ............................................................................................................................ 40 4.1.1 Policy Option 1.1 – Status quo............................................................................................ 40 4.1.2 Policy Option 1.2 – Improvements to the current information exchange system (administrative and operational).......................................................................................... 40 4.1.3 Policy Option 1.3 – Abolish current system but maintain declaration of no double vote and candidature and introduce penalties .................................................................................. 41 4.1.4 Policy Option 1.4 – Establishing a European Parliament Electoral Commission and maintain declaration............................................................................................................41 4.1.5 Policy Option 1.5 – New information system ...................................................................... 42 4.1.6 Policy Option 1.6 – Declaration by voters of no double voting ........................................... 42 4.1.7 Policy Option 1.7 – Developing an EP electoral roll ........................................................... 42 4.2 Policy options to address Problem 2: heavy administrative burden for non-national candidates to the EP elections............................................................................................... 43 4.2.1 Policy Option 2.1 – Status quo............................................................................................ 43 4.2.2 Policy Option 2.2 – Refine current system.......................................................................... 43 2 4.2.3 Policy Option 2.3 – Facilitate and enhance the role of political parties in enabling candidature by non nationals .............................................................................................. 43 4.2.4 Policy Option 2.4 – Introduce a formal declaration............................................................. 43 4.2.5 Policy Option 2.5 – New information system ...................................................................... 43 4.2.6 Policy Option 2.6 – Abolish the obligation to provide a declaration.................................... 43 5 ANALYSIS OF IMPACTS......................................................................................................... 44 5.1 Introduction ............................................................................................................................ 44 5.2 Identifying and assessing impacts of each of the policy options ........................................... 44 5.2.1 Assessment of policy options to address Problem 1 .......................................................... 44 5.2.2 Assessment of policy options to address Problem 2 .......................................................... 60 6 COMPARING THE OPTIONS AND ELABORATING THE PREFERRED OPTION ............... 73 6.1 Introduction ............................................................................................................................ 73 6.2 Problem 1 – Comparison of policy options ............................................................................ 73 6.3 The preferred option to address Problem 1 ........................................................................... 77 6.4 Problem 2 – Comparison of policy options ............................................................................ 83 6.5 The preferred option to address Problem 2 ........................................................................... 87 6.6 Subsidiarity, proportionality and EU added value .................................................................. 89 7 MONITORING AND EVALUATION ......................................................................................... 91 ANNEX 1 ......................................................................................................................................... 94 ANNEX 2 ....................................................................................................................................... 100 ANNEX 3 ....................................................................................................................................... 102 ANNEX 4 ....................................................................................................................................... 102 ANNEX 5 ....................................................................................................................................... 102 ANNEX 6 ....................................................................................................................................... 115 ANNEX 7 ....................................................................................................................................... 117 ANNEX 8 ....................................................................................................................................... 118 ANNEX 9 ....................................................................................................................................... 120 ANNEX 10 ..................................................................................................................................... 126 ANNEX 11 ..................................................................................................................................... 130 ANNEX 12 ..................................................................................................................................... 132 BIBLIOGRAPHY........................................................................................................................... 136 3 Lead Directorate General: DG Justice, Freedom and Security Work Programme Reference: 2006/JLS/008 Introduction The Commission Work Programme 2006 includes a Communication to be issued under the title European elections 2004: Commission report on the participation of European 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