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Challenge Europe Cover ChallengeDefDJ 24/01/07 12:29 Page 1 Mission Statement The European Policy Centre (EPC) is an independent, not-for-profit think tank, committed to making European integration work. The EPC works at the ‘cutting edge’ of European and global policy-making providing its members and the wider public with rapid, high-quality information and analysis on the EU and global policy agenda. It aims to CHALLENGE EUROPE promote a balanced dialogue between the different Europe@50: back to the future constituencies of its membership, spanning all aspects of economic and social life. Graham Avery Jean-Luc Dehaene Renaud Dehousse Andrew Duff Guillaume Durand Paul Gillespie Alain Lamassoure Anand Menon Yves Mény Antonio Missiroli Kalypso Nicolaïdis John Palmer Renato Ruggiero Philippe de Schoutheete Richard Sinnott Rafal Trzaskowski Antonio Vitorino February 2007 European Policy Centre Résidence Palace 155 Rue de la Loi 1040 Brussels Tel: 32 (0)2 231 03 40 Fax: 32 (0)2 231 07 04 Email: [email protected] www.epc.eu In strategic partnership with the King Baudouin Foundation and the Compagnia di San Paolo With the support of the European Commission CHALLENGE EUROPE Issue 16 Europe@50: back to the future Graham Avery Jean-Luc Dehaene Renaud Dehousse Andrew Duff Guillaume Durand Paul Gillespie Alain Lamassoure Anand Menon Yves Mény Antonio Missiroli Kalypso Nicolaïdis John Palmer Renato Ruggiero Philippe de Schoutheete Richard Sinnott Rafal Trzaskowski Antonio Vitorino Articles in this publication represent the views of the authors and not necessarily those of the EPC. February 2007 ISSN-1783-2462 Table of contents About the authors 4 Foreword 6 by Jacki Davis I. HOW DID THE EU GET THIS FAR? Challenge Europe – February 2007 Challenge Europe – February Introduction 8 by Antonio Missiroli Would today’s leaders still sign the Treaty of Rome? 11 by Paul Gillespie An ‘institutional’ triangle with only two poles 18 by Yves Mény The evolution of intergovernmental cooperation in the European process 26 by Philippe de Schoutheete Was the European Convention’s work in vain? 34 by Jean-Luc Dehaene II. HOW CAN THE DEADLOCK OVER THE CONSTITUTIONAL TREATY BE BROKEN? Introduction 40 by Guillaume Durand Can the Council function on the basis of the Nice Treaty? 43 by Rafal Trzaskowski Relaunching Europe after the constitutional setback 50 by Alain Lamassoure Operation Pandora 55 by Andrew Duff 2 Can the European institutions still be reformed? 63 by Renaud Dehousse III. WHERE IS THE EU GOING? Introduction 71 by Antonio Vitorino Europe@50: doing less, better, together 74 by Anand Menon and Kalypso Nicolaïdis 2007 Challenge Europe – February EU referenda: selective veto or inclusive consultation 82 by Richard Sinnott Globalisation demands a more political and more democratic Europe 93 by John Palmer An ever-wider Europe? Where will the EU’s borders end? 101 by Graham Avery Afterword 110 by Renato Ruggiero 3 About the authors Graham Avery is an EPC Senior Adviser and a former European Commission official. Jean-Luc Dehaene MEP was Vice-Chairman of the Convention on the Future of Europe and is a former Prime Minister of Belgium. Challenge Europe – February 2007 Challenge Europe – February Renaud Dehousse is Jean Monnet Professor of Law and Politics, and Director, Centre for European Studies, Sciences Po, Paris. Andrew Duff MEP is a Liberal Democrat Member of the European Parliament and constitutional affairs spokesman for the ALDE Group. He was Vice-President of the European Parliament Delegation to the Convention. Guillaume Durand is a Policy Analyst at the European Policy Centre. Paul Gillespie is Foreign Policy Editor of The Irish Times, and teaches in the School of Politics and International Relations at University College Dublin. Alain Lamassoure MEP is National Secretary for European Affairs for the Union pour un Mouvement Populaire (UMP). He is a former Minister with special responsibility for Europe and was a member of the Convention. Anand Menon is Director of the European Research Institute and Professor of West European Politics at Birmingham University. Yves Mény is President of the European University Institute, Florence. Antonio Missiroli is Chief Policy Analyst at the European Policy Centre. Kalypso Nicolaïdis is Director of the European Studies Centre and Lecturer in International Relations, University of Oxford. John Palmer is a member of the Governing Board of the European Policy Centre. He is also Deputy Chairman of the EPC’s Political Europe programme. Renato Ruggiero is Counsellor of the Italian Prime Minister for the Declaration on the 50th Anniversary of the Treaty of Rome. He is a former Director-General of the World Trade Organization and a former Italian Foreign Minister. 4 Philippe de Schoutheete is Director of the European Programme at the Royal Institute for International Affairs, Brussels. He was Belgium’s Permanent Representative to the European Union from 1987 to 1997. Richard Sinnott is Professor of Political Science in the School of Politics and International Relations at University College Dublin, and Director of the Public Opinion & Political Behaviour Research Programme at the UCD Geary Institute. Rafal Trzaskowski is a Research Fellow at the Natolin European Centre and a Lecturer at the Collegium Civitas, Warsaw, Poland. Challenge Europe – February 2007 Challenge Europe – February Antonio Vitorino is Chairman of the EPC’s Governing Board and Chair of its Political Europe programme. He is a former European Commissioner for Justice and Home Affairs, and former Deputy Prime Minister of Portugal. 5 Foreword by Jacki Davis As the European Union prepares to celebrate its 50th birthday, the storm clouds which gathered following the French and Dutch referenda votes against the Constitutional Treaty appear to be slowly lifting. But the skies over Europe are still dull and grey, and the mood is likely to be Challenge Europe – February 2007 Challenge Europe – February equally sombre when EU leaders meet to commemorate the anniversary, given the major challenges facing the EU in the coming months and years and the lack of consensus on the way forward. It will, however, provide an ideal opportunity to highlight the astonishing progress which has been made over the past 50 years in the building of Europe – progress which many now take for granted, but which was never by any means inevitable. It is also an appropriate moment to consider both how the EU can break the current deadlock over what to do about the Constitutional Treaty and respond to the longer-term challenges it faces. In this issue of Challenge Europe, a host of leading politicians, academics and commentators address all of these issues in a range of thought-provoking articles on the EU’s past, present and future. Journalists are perhaps overly fond of resorting to clichés such as ‘at a crossroads’ to describe key moments in the EU’s history, but it is no exaggeration to say that the rejection of the Constitution in two founding Member States was a genuine turning point. It underlined what has been increasingly evident for some time; namely, that the construction of Europe can no longer be driven solely by political elites, as in the early days, but requires the consent and support of the general public. How that consent can be obtained in an ever-expanding EU is a question to which answers need to be found not only for the short term, as EU leaders wrestle with the dilemma over what to do about the Constitutional Treaty, but also for the longer term as they contemplate the future development of the Union. The European Policy Centre has long been – and will, of course, remain – closely involved in the debate over how to build on the progress made by the EU over 6 the past 50 years and confront the challenges it faces now and will face in the future. This publication is intended as a contribution to that debate at this critical moment in the Union’s history. Jacki Davis is Head of Communications at the European Policy Centre and Editor of Challenge Europe. Challenge Europe – February 2007 Challenge Europe – February 7 I. HOW DID THE EU GET THIS FAR? Introduction by Antonio Missiroli In its first 50 years, the process of European integration has not followed one single pattern of development. Many competing explanations for the astonishing progress made to date have been put forward and tested, but none of these fully Challenge Europe – February 2007 Challenge Europe – February grasps the originality and complexity of this unique phenomenon. For one, the ‘realist’ approach (whereby decisions are still driven primarily by the essential national interests of the Member States) does not account for many of the developments of the past 50 years – most notably, Germany’s determination under Chancellor Helmut Kohl to pursue monetary union. Similarly, there are many events and developments which do not fit the ‘functionalist’ approach (whereby integration has been driven by a constant spill-over effect) either. Energy policy, to give one example, was at the root of the whole process (the European Coal and Steel Community and Euratom), but gradually disappeared from the EU screen later on, only to resurface now in a completely different context. The federalist vision of an unstoppable transfer of sovereignty from the nation state to an “ever closer” Union also fails to describe the process adequately. It is, for example, a myth that such a transfer is a zero-sum game, as implied by the traditional federalists (but also by the Eurosceptics who oppose it). It is, rather, a positive-sum game in which not only does the EU acquire new competences, but every individual country also retains some degree of control over any new common policy (as Professor Alan Milward has shown) by pooling sovereignty rather than trying to preserve its residues. Thus it evolves, in the words of Professor Alberta Sbragia, “from Nation State to Member State”.
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