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Sul Programma Della Presidenza Semestrale Tedesca Del Consiglio Dell'unione Europea

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Sul Programma Della Presidenza Semestrale Tedesca Del Consiglio Dell'unione Europea ISSN 1826-3534 EDITORIALE – 8 LUGLIO 2020 Sul programma della presidenza semestrale tedesca del Consiglio dell’Unione europea di Carlo Curti Gialdino Professore ordinario di Diritto dell’Unione europea Sapienza – Università di Roma Sul programma della presidenza semestrale tedesca del Consiglio dell’Unione europea * di Carlo Curti Gialdino Professore ordinario di Diritto dell’Unione europea Sapienza – Università di Roma Abstract [It]: Il lavoro esamina il programma della presidenza semestrale tedesca e quello del trio di presidenze tra il 1° luglio 2020 ed il 31 dicembre 2021, inquadrandoli nel complessivo percorso dell’integrazione europea, letto alla luce del contributo apportato da Angela Merkel. Abstract [En]: This study examines the program of the German six-monthly presidency and that of the trio of presidencies between 1 July 2020 and 31 December 2021, framing them in the overall path of European integration, read in the light of the contribution made by Angela Merkel. Sommario: 1. Il contesto del semestre di presidenza della Germania. 2. Il programma della presidenza tedesca. 3. Il programma del Trio di presidenze (Germania, Portogallo e Slovenia) per il periodo 1° luglio 2020-31 dicembre 2021. 4. Valutazioni conclusive: a proposito del contributo di Angela Merkel al processo d’integrazione europea. 1. Il contesto del semestre di presidenza della Germania Come è ben noto ai lettori di Federalismi, il 1° luglio 2020 è iniziato il semestre di presidenza tedesca del Consiglio dell’Unione europea, che terminerà il prossimo 31 dicembre: si tratta della tredicesima volta, dall’entrata in vigore dei trattati di Roma del 1957, che la Germania esercita la presidenza semestrale1. Contemporaneamente, ha avuto inizio anche il nuovo Trio di presidenze semestrali (Germania, Portogallo e Slovenia), che accompagnerà l’Unione europea nei prossimi diciotto mesi, fino al 1° gennaio 20222, quando la presidenza a rotazione toccherà alla Francia, quasi in una ideale staffetta a distanza di * L’A. è grato alla dott.ssa Roberta Lucchini per le utili integrazioni e l’abituale prezioso editing. 1 La prima presidenza tedesca del Consiglio risale al secondo semestre del 1958 e presidente di turno fu il cancelliere Konrad Adenauer, che guidò anche il secondo semestre del 1961. Successivamente, Ludwig Erhard presiedette il secondo semestre del 1964, Kurt Georg Kiesinger il secondo semestre del 1967, Willy Brandt il secondo semestre del 1970, Walter Scheel (come cancelliere ad interim, per una sola settimana) e, poi, Helmut Schmidt il primo semestre del 1974 e, quest’ultimo, anche il secondo semestre del 1978. Quindi fu la volta di Helmut Kohl, presidente di turno nel primo semestre del 1983, di nuovo nel primo semestre del 1988 e, ancora, dopo l’unificazione della Germania, nel secondo semestre del 1994. In seguito, Gerard Schröder presiedette il primo semestre del 1999. L’ultima presidenza del Consiglio a guida tedesca è stata quella di Angela Merkel, nel primo semestre del 2007. 2 L’ordine in cui gli Stati membri dell’Unione europea sono chiamati ad esercitare la presidenza del Consiglio, nonché la divisione di tale ordine delle presidenze in gruppi di tre Stati membri, figurano nell’allegato I della decisione del Consiglio 1° dicembre 2009, n. 2009/908/UE, che stabilisce le modalità di applicazione della decisione del Consiglio europeo sull’esercizio delle presidenze del Consiglio e sulla presidenza degli organi preparatori del Consiglio (G.U.U.E., 9 dicembre 2009, L322, p. 28). Il detto allegato I è stato sostituito dall’art. 1, par. 3 della decisione (UE) del Consiglio 26 luglio 2016/1316 (G.U.U.E., 2 agosto 2016, L208, p. 48), la quale ha tenuto conto, per un verso, dell’adesione della Croazia all’Unione dal 1° luglio 2013 e, per altro verso, della richiesta del Regno Unito che, considerati gli impegni conseguenti al risultato del referendum del 23 giugno 2016 sul recesso dall’Unione, ha preferito essere espunta dall’ordine delle presidenze, ove figurava nel periodo luglio-dicembre 2017. Ciò ha comportato, da un lato, l’anticipazione di ciascun iv federalismi.it - ISSN 1826-3534 |n. 21/2020 un anno e mezzo tra i due Stati membri, la cui stretta collaborazione ha segnato talune delle fasi più importanti del processo di integrazione e che, all’evidenza, ha conosciuto un nuovo impulso dopo la firma ad Aquisgrana, il 22 gennaio 2019, del trattato di cooperazione franco-tedesco3. Non a caso, appena due giorni prima dell’inizio del semestre, la sera del 29 giugno 2020, i leader dei due Paesi, la cancelliera Angela Merkel4 ed il presidente Emmanuel Macron, si sono riuniti per un’ultima sessione di lavoro nello Schloss Meseberg5. L’occasione, ovviamente, era stata appositamente studiata per dimostrare che, pure in un momento di stallo, se non di crisi, dell’ancora non compiuto progetto europeo, ed in piena “Fase 2” del contrasto e contenimento del virus COVID-19, i due leader si incontravano in presenza, volendo trasmettere la loro volontà di rilanciare il processo d’integrazione. Il luogo prescelto, infatti, non poteva non evocare quello dell’incontro che, il 19 giugno 2018, aveva riunito i due leader per un vertice interministeriale in esito al quale venne diffusa la “Meseberg Declaration Renewing Europe’s promises of security and prosperity” 6, insieme alla “French German roadmap for the Euro Area”7. semestre di presidenza per quanto riguarda gli Stati membri, il cui turno sarebbe iniziato il 1° gennaio 2018 e, dall’altro, l’inserimento, nel periodo gennaio-giugno 2020, della presidenza spettante alla Croazia. V. al riguardo, R. ADAM, Un anticipo di Brexit: il nuovo ordine di rotazione della presidenza statale del Consiglio, in Il Diritto dell’Unione europea, dicembre 2016, pp. 1-6. 3 G. ALLEGRI, A. DE PETRIS, Il Trattato franco-tedesco di Aquisgrana: pericolo o opportunità per il futuro dell’integrazione europea? in Federalismi.it, n. 3, 2019, pp. 1-13 (https://www.federalismi.it/ApplOpenFilePDF.cfm?artid=38027&dpath=document&dfile=06022019181836.pdf&co ntent=Il%2BTrattato%2Bfranco%2Dtedesco%2Bdi%2BAquisgrana%3A%2Bpericolo%2Bo%2Bopportunit%C3%A 0%2Bper%2Bil%2Bfuturo%2Bdell%27integrazione%2Beuropea%3F%2B%2D%2Bstato%2B%2D%2Bdottrina%2B %2D%2B). 4 A titolo di curiosità ricordo che Angela Merkel, nata Kasner, ha acquisito il cognome del primo marito Ulrich Merkel, sposato nel 1977 e lo ha mantenuto nonostante il divorzio avvenuto nel 1981. 5 Si tratta del castello barocco, costruito agli inizi del Settecento dalla famiglia Wartensleben, che il governo di Berlino nel 2004 ha preso in locazione dalla Fondazione Messerschmitt per vent’anni, al canone simbolico di un euro l’anno, per farne, dopo una importante ristrutturazione, una delle residenze del capo del governo, normalmente utilizzata per ospitare eventi internazionali. Per una sintetica descrizione della storia del castello v. Schloss Meseberg, dall’amore proibito del principe ai vertici della Merkel, in AGI, Agenzia Italia, 30 giugno 2020 (https://www.agi.it/cultura/news/2020-06- 30/schloss-meseberg-castello-merkel-che-principe-heinrich-amante-goering-9020483/). 6 La Dichiarazione di Meseberg del 19 giugno 2018 ha sancito il faticoso compromesso politico raggiunto per l’edificazione di un’Europa più democratica, sovrana, unita e competitiva, fondata su una politica estera, di sicurezza e difesa comune, più coesa e integrata; una politica migratoria più efficace e basata, soprattutto, su un sistema comune europeo di asilo e su una polizia di frontiera europea; un’unione economica e monetaria parzialmente rinnovata attraverso una limitata revisione del ruolo e delle funzioni del Meccanismo europeo di stabilità e la istituzione di un bilancio dell’eurozona volto a promuovere la competitività, la convergenza e la stabilizzazione nell’area euro a partire dal 2021. Il testo in lingua inglese è riprodotto nel comunicato stampa n. 214 del 2018 diffuso dal Presse- und Informationsamt Der Bundesregierung (https://archiv.bundesregierung.de/archiv-de/meta/startseite/meseberg-declaration- 1140806); una traduzione in lingua italiana figura su Il Foglio, 20 giugno 2018 ( https://www.ilfoglio.it/esteri/2018/06/20/news/patto-francia-germania-dichiarazione-meseberg-completa-tradotta- merkel-macron-201482/). 7 Sui documenti adottati a Meseberg v. P. BRIANÇON, Three fudges and a funeral for eurozone reform. The Franco-German reform plan now is in the hands of other members of the single currency bloc, in Politico.eu, 20 June 2018 (https://www.politico.eu/article/three-fudges-and-a-funeral-for-eurozone-reform-emmanuel-macron-angela-merkel- franco-german/); H. ENDERLEIN, L. GUTTENBERG, Why Meseberg matters – A short explainer of the Franco-German position on euro area reform, Jacques Delors Institut Berlin, Blog Post 22.06.2018, pp. 1-6 (https://hertieschool- v federalismi.it - ISSN 1826-3534 |n. 21/2020 Giova rammentare che la precedente presidenza tedesca del Consiglio dell’Unione aveva avuto luogo tredici anni fa, nel primo semestre del 2007, in un quadro politico-istituzionale certamente assai diverso8. Infatti, da un lato, sul piano politico, l’Unione europea era nell’impasse dopo la bocciatura referendaria da parte dei popoli di Paesi Bassi e Francia del trattato che adotta una Costituzione per l’Europa, firmato a Roma il 29 ottobre 2004 e, pertanto, era necessario riprogrammare sia il rilancio delle istituzioni europee attorno ad un progetto condiviso sia l’esercizio intergovernativo di riforma dei trattati. Queste attività si concretizzarono, in un primo tempo, nella dichiarazione adottata in occasione del 50° anniversario della firma del trattato di Roma9, che venne siglata a Berlino il 25 marzo 2007 dai presidenti delle istituzioni politiche dell’Unione, il tedesco Hans-Gert Pöttering per il Parlamento europeo, Angela Merkel per il Consiglio dell’Unione e il portoghese José Manuel Durão Barroso per la Commissione europea. Successivamente, la presidenza tedesca guidò risolutamente la conferenza intergovernativa per la riforma dei trattati, che si concluse, sotto presidenza portoghese, con la firma del trattato di Lisbona del 13 dicembre 2007.
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