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The Process of Withdrawing from the European Union

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The Process of Withdrawing from the European Union XVII legislatura La Brexit, l'art. 50 del Trattato di Lisbona e i negoziati per il recesso dall'Unione luglio 2016 n. 348 SERVIZIO STUDI TEL. 066706-2451 [email protected] _______________________________________________________________________________________ I dossier del Servizio studi sono destinati alle esigenze di documentazione interna per l'attività degli organi parlamentari e dei parlamentari. I testi e i contenuti normativi ufficiali sono solo quelli risultanti dagli atti parlamentari. Il Senato della Repubblica declina ogni responsabilità per la loro eventuale utilizzazione o riproduzione per fini non consentiti dalla legge. I contenuti originali possono essere riprodotti, nel rispetto della legge, a condizione che sia citata la fonte. XVII legislatura La Brexit, l'art. 50 del Trattato di Lisbona e i negoziati per il recesso dall'Unione luglio 2016 n. 348 a cura di: L. Briasco Classificazione Teseo: Unione europea. I N D I C E NOTA INTRODUTTIVA ..................................................................................... 7 1. PREMESSA .............................................................................................. 7 2. LA REAZIONE DELLE ISTITUZIONI DELL'UNIONE E DEGLI STATI MEMBRI .......................................................................................................... 7 2.1. La dichiarazione dei tre presidenti ............................................................ 7 2.2. La risoluzione del Parlamento europeo ..................................................... 8 2.3. La Dichiarazione congiunta di Germania, Francia e Italia........................ 9 2.4. Il Consiglio europeo del 28 giugno e la Dichiarazione dei capi di Stato e di Governo .................................................................................................. 9 3. L'ARTICOLO 50 DEL TRATTATO E IL RECESSO DALL'UNIONE ................ 11 4. IL PROCESSO DI RIFLESSIONE CONDOTTO DAL PARLAMENTO BRITANNICO .................................................................................................. 13 5. IL CASO DELLA SCOZIA E DELL'IRLANDA DEL NORD ............................ 14 ALLEGATI ..................................................................................................... 17 Dichiarazione congiunta dei Presidenti di Parlamento europeo, Consiglio europeo e Commissione europea .......................................................................... 19 Risoluzione del Parlamento europeo sull'esito del referendum nel Regno Unito ................................................................................................................. 21 Dichiarazione congiunta dei Capi di Governo di Germania, Francia e Italia ...... 23 Dichiarazione dei Capi di Stato e di Governo dell'Unione a 27 ........................... 27 Nota del Parlamento europeo sull'articolo 50 del TUE ........................................ 29 Documento sulla procedura di recesso del Governo britannico ........................... 37 Rapporto della Commissione Unione europea dell'House of Lords sulla Brexit ................................................................................................................. 63 Nota dell'House of Lords sulle conseguenze della Brexit .................................... 93 Paper dell'House of Commons sulla conseguenze della Brexit .......................... 111 Dossier n. 348 NOTA INTRODUTTIVA 1. PREMESSA La consultazione referendaria sulla permanenza o meno del Regno Unito nell'Unione europea, tenutasi il 23 giugno 2016, si è conclusa con una maggioranza del 51,9% dei votanti favorevole alla Brexit. L'affluenza alle urne ha registrato una percentuale del 72,2% degli aventi diritto. Promosso con lo European Union Referendum Act del 2015 (si vedano anche le relative Explanatory Notes), il referendum aveva carattere consultivo, ma il suo esito va considerato definitivo e non controvertibile. Come evidenziato nello Executive Summary del documento prodotto dal Governo britannico in vista della consultazione, The Process for Withdrawing from the European Union, "Il Governo avrà l'obbligo democratico di dare pieno effetto alla decisione dell'elettorato. Il Primo Ministro ha chiarito, di fronte alla Camera dei Comuni, che 'se il popolo britannico voterà per lasciare l'Unione, vi sarà un unico seguito possibile: attivare l'articolo 50 del Trattato di Lisbona e dare il via al processo di uscita". Va segnalato che, non appena gli esiti del voto sono stati resi ufficiali, il premier Cameron ha annunciato le proprie dimissioni nel corso di una conferenza stampa, dichiarando che al nuovo Primo Ministro spetterà il compito di condurre il negoziato sul Brexit.1 2. LA REAZIONE DELLE ISTITUZIONI DELL'UNIONE E DEGLI STATI MEMBRI 2.1. La dichiarazione dei tre presidenti Immediata è stata anche la reazione delle istituzioni dell'Unione. I Presidenti di Commissione, Parlamento europeo e Consiglio europeo, Juncker, Schulz e Tusk, hanno rilasciato una dichiarazione congiunta, nella quale, accolta con dispiacere ma anche con il massimo rispetto la volontà espressa dal popolo britannico "attraverso un processo libero e democratico", invitano il Governo del Regno Unito "a dare effetto alla decisione del popolo britannico appena possibile, per quanto doloroso possa risultare il relativo procedimento. Ogni ritardo non farebbe che prolungare inutilmente uno stato di incertezza". Si dicono altresì pronti a "lanciare rapidamente i negoziati con il Regno Unito sui termini e le condizioni del suo ritiro dall'Unione europea", durante i quali il Regno Unito "rimarrà un membro dell'Unione, con tutti i diritti e gli obblighi che ne derivano". Ricordano come la "Nuova intesa per il Regno Unito nell'Unione europea", concordata al termine del Consiglio europeo del 18 e 19 febbraio 2016, "non 1 Il Partito conservatore ha designato come nuovo leader l'attuale Ministro degli interni Theresa May, che assumerà la carica di Primo ministro il prossimo 13 luglio. 7 Dossier n. 348 avrà effetto e cessa immediatamente di esistere"2, senza che sia prevista alcuna eventuale rinegoziazione. In conclusione, i tre Presidenti esprimono l'auspicio che il Regno Unito rimanga un partner stretto dell'Unione europea in futuro, e invitano "il Regno Unito a formulare le proprie proposte in tal senso. Qualunque accordo che dovesse essere concluso con il Regno Unito in quanto paese terzo dovrà riflettere gli interessi di ambo le parti ed essere equilibrato in termini di diritti e di obblighi". 2.2. La risoluzione del Parlamento europeo Il Parlamento europeo ha tenuto un dibattito sulla Brexit, e votato una Risoluzione (2016/2800(RSP)), nella quale: - prende a sua volta atto del desiderio dei cittadini del Regno Unito di uscire dall'UE e sottolinea come esso debba essere pienamente rispettato, "procedendo non appena possibile all'attivazione dell'articolo 50 del Trattato sull'Unione europea (TUE); - attende che il Primo ministro del Regno Unito notifichi l'esito del referendum al Consiglio europeo del 28 e 29 giugno, e auspica che tale notifica segni l'avvio della procedura di recesso; - ricorda che non si potrà decidere in merito alle eventuali nuove relazioni tra il Regno Unito e l'UE prima della conclusione dell'accordo di recesso; - invita il Consiglio a designare la Commissione quale negoziatore sull'articolo 50 del TUE; - invita il Consiglio a modificare l'ordine delle sue Presidenze onde evitare che il processo di recesso pregiudichi la gestione delle attività correnti dell'Unione. Il voto sulla risoluzione è stato preceduto da un lungo dibattito cui ha partecipato il Presidente della Commissione Juncker accompagnato dall'intero collegio dei Commissari, compreso il Commissario del Regno Unito, Hill, dimissionario. Ribadito l'invito al governo britannico - già contenuto nella Dichiarazione firmata con i Presidenti Tusk e Schulz - a trarre rapidamente le conseguenze del referendum e dei suoi esiti, anche per evitare il protrarsi di una situazione di incertezza politica, Juncker ha aggiunto di aver dato istruzione a tutta la Commissione di non iniziare alcun negoziato, anche a livello informale, con i rappresentanti della controparte ("No notification, no negotiation). Tra i capigruppo intervenuti - Weber (PPE), Pittella (S&D), Verhofstadt (ALDE) - comune è stata la valutazione del Brexit come vittoria del populismo, e l'invito contestuale a un rilancio del progetto di integrazione europea. 2 Sul Consiglio europeo di febbraio 2016 e sulla Nuova intesa per il Regno Unito nell'Unione europea, si vedano le Note su atti dell'Unione europea n. 39 e n. 43, del Servizio Studi del Senato. 8 Dossier n. 348 2.3. La Dichiarazione congiunta di Germania, Francia e Italia Lo stesso 27 giugno, in esito a un incontro trilaterale tenutosi a Berlino, il Cancelliere della Repubblica federale tedesca, Angela Merkel, il Presidente della Repubblica francese, François Hollande, e il Presidente del Consiglio dei ministri italiano, Matteo Renzi, hanno rilasciato una Dichiarazione congiunta nella quale, espresso rispetto per la decisione del popolo britannico e rincrescimento per il fatto che il Regno Unito non farà più parte dell'Unione europea, concentrano i propri sforzi sul rilancio del processo di integrazione europea, nella convinzione che l'Unione debba "rispondere alle preoccupazioni espresse dai suoi cittadini chiarendo i propri obiettivi e il proprio funzionamento". La Dichiarazione individua tre priorità fondamentali per un'azione congiunta e approfondita, basata su obiettivi concreti: - il rafforzamento della sicurezza interna ed esterna, attraverso
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