Towards a European Senate of the Regions

Transcription

1 Towards a European Senate of the Regions President Ramón Luis Valcárcel Siso 50 REPORT ON THE FUTURE OF THE COMMITTEE OF THE REGIONS RECOMMANDATIONS

2 Table of contents 1/ STRENGTHENING THE POLITICAL ROLE OF THE COR / INFLUENCING THE EU LEGISLATIVE PROCESS FROM ITS EARLIEST STAGE / STRENGTHENING INTER-INSTITUTIONAL RELATIONS / NEW COR TASKS AND INCREASED RESOURCES / THE COR AS A 21 st CENTURY NETWORKED INSTITUTION / Towards a EU based on multilevel governance and subsidiarity / EXTENDING THE COR S EXTERNAL ACTION / GOING LOCAL AND DECENTRALISED COMMUNICATION / COR MEMBERSHIP / TOWARDS A EUROPEAN SENATE OF THE REGIONS...24 ACKNOWLEDGMENTS...27

3 FOREWORD Twenty years ago the Committee of the Regions (CoR) held its inaugural plenary session. Thanks to the continued aspirations of regional and local political leaders, the vision of European territorial associations, broad support within the European Parliament, the sound proposal of European Commission president Jacques Delors and the political leadership of dedicated Heads of State or Government the CoR s establishment was formally enshrined in the Maastricht Treaty. From the outset, there were high hopes of this new consultative body, which assembles regional and local political representatives at European level. The challenges facing the new institutional partner were considerable. The CoR had to establish the necessary working arrangements to producing opinions in the EU s legislative process, taking account of the political nature of an Assembly composed of regional and local representatives. From its inception, the CoR has clearly given expression to the rich diversity that is a feature of the European Union. The CoR had also to find its rightful place amongst the EU institutions and the wider Brussels community and had to deliver on its tasks as spelled out in the Treaties. In addition to the policy areas where consultation of the CoR by the EU institutions is mandatory, it had to identify the other EU policies - and notably the stages of the decision-making process where it could provide the greatest added value. In other words, the CoR had to ensure it made maximum use of the prerogatives and instruments that the Treaties provide for in order to carry out its role as a political assembly and consultative body giving expression to local and regional democracy at EU level. By urging EU institutions to engage actively with regions and cities, the CoR helps to build confidence and close the delivery gap of EU policies on the ground. Since the entry into force of the Maastricht Treaty, the CoR s tasks and prerogatives have increased and it has became entrusted with the role of guardian of the subsidiarity principle, along with national parliaments. The Lisbon Treaty also widened the policy areas where consultation of the CoR is mandatory, particularly in dossiers of territorial relevance. During these 20 years of existence the Committee has strengthened its ties with EU institutions and organisations active within Europe s borders and beyond. The CoR has set up networks and platforms 3

4 to bring the expertise of local and regional authorities on key political dossiers such as the Europe 2020 strategy and to engage more closely with the EU s wider neighbourhood. Today, the Euro-Mediterranean Regional and Local Assembly (ARLEM) and the Conference of Regional and Local Authorities for the Eastern Partnership (CORLEAP) provide valuable fora spurring on dialogue and political action between CoR members on the one hand and regional and local representatives of the European neighbourhood countries on the other. Over the last few years the EU has firmly focused on promoting sustainable growth and jobs creation at all levels of governance. Certainly, the process of completing the Economic Monetary Union (EMU) has tested the resilience of public authorities at all levels, yet it is essential to gradually complete the EMU with regions and cities. In the 21 st century all levels of governance in the EU are interdependent and interconnected. As a first priority, cohesion amongst Member States needs to be reinforced and the increasing gap between the EU s richest and poorest regions needs to be reversed. Only by working together and building a European Union based on multilevel governance, will political leaders at all levels have a chance to restore and consolidate the European way of life for the future. If Europe is to succeed, every level of governance has to ensure that it does its part and acts with due regard for policy coherence and coordination, while pursuing the EU s objectives. Against this background, all key stakeholders have participated in an inclusive and broad consultation process on the occasion of the 20 th anniversary of the CoR. The aim was to draft a report on the CoR s future direction, on the basis of previous achievements. I would like to thank all who have contributed to this interesting debate on the future of the Committee. This report contains a summary of the main proposals and recommendations for the Committee s future direction. Some of them can be implemented in the short term, while others will require further debate in the context of a possible future European Convention, as is the case of the proposal for the creation of a European Senate of the Regions in a more distant future. I hope that this report will spur on political debate and that it may help us reflect on the future political and institutional role of the EU s Assembly of Regional and Local Representatives. Ramón Luis Valcárcel Siso President of the Committee of the Regions 4 Report on the Future of the Committee of the Regions

5 1/ STRENGTHENING THE POLITICAL ROLE OF THE COR There is at least one quick response to the criticism that the European Union is too remote from Europeans: that the EU institutions will step up structural engagement with regional and local representatives throughout the policy-shaping process. More than 70% of EU legislation and the bulk of its investment programmes are implemented at regional and local level. Eurobarometer surveys reveal that Europeans believe that EU policies need to take better account of the specific characteristics of their region and that regional and local politicians are well-placed to defend their interests in plain language at EU level. Increasing the involvement of regions and cities in the EU decision-making process is the way to establish a new league of more than European politicians who work on a day-to-day basis at regional or local level, close to EU citizens. Over the past decades, a clear tendency towards decentralisation can be observed both in the EU and in the world. Today, in many Member States the regional and local levels have various key competences ranging from culture, education, tourism and the integration of newcomers to hard policies such as industry, entrepreneurship, exports, innovation, and research and development. Together, local and regional authorities (LRAs) represent more than two-thirds of total public investment in Europe. 5

6 Regions and cities have a key role to play in transforming the EU into a sustainable, smart and inclusive society. Moreover, LRAs are important providers of services of general interest. In parallel to the decentralisation trend, the role of the EU institutions has been stepped up by the consecutive Treaty changes, the Open Method of Coordination and more recently the new European Semester coordination process. The impact of the sovereign debt crisis, combined with the new rules on economic and fiscal coordination, on Europe s regions and cities should not be underestimated. If Europe is to climb out of the crisis, LRAs need to be empowered to help shape EU policies and ensure the delivery of EU objectives and targets. As recognised by the Heads of State and Government and the leaders of the EU institutions on the 50 th anniversary of the Rome Treaties on 27 March 2007 in Berlin: There are many goals which we cannot achieve on our own, but only in concert. Tasks are shared between the European Union, the Member States and their regions and local authorities. This is why the role of the CoR needs to be strengthened throughout the EU policy cycle. Recommendations 1 Confirm the Committee of the Regions (CoR) as the Political Assembly of Regional and Local Representatives of the European Union. The CoR is an autonomous institutional body with its own budget and own human resources. It has its seat in Brussels. 2 The CoR needs to develop further as a political assembly, and thus needs to highlight the political role of its members and increase support for their political activities. It is essential to build on the role of the political groups in the CoR, their political networks and the interconnectivity of members activities in Europe and within their region. 3 Capitalise gradually but fully on the Cooperation Agreement between the European Parliament and the Committee of the Regions, urging greater political cooperation between the commission chairs/committee presidents, rapporteurs and political groupings of both institutions. 6 Report on the Future of the Committee of the Regions

7 4 The European Commission needs to be more accountable to the CoR on all EU legislative proposals where consultation of the CoR is mandatory. CoR members should also have a say at least in the appointment of the European Commissioner responsible for regional and urban policy. Once in office, the Commission President should present the College s working programme before the CoR plenary. Similarly individual Commissioners should do the same before the relevant CoR commission highlighting the forward planning related to their portofolio. 5 The involvement of the CoR in the European Semester process needs to be guaranteed, and contributions from LRAs should be used to ensure the success of country-specific recommendations and the sound delivery of national reform programmes. 6 Engage more with both national and regional parliaments by organising interparliamentary assembly meetings on topical EU issues of joint interest, whilst actively contributing to the joint activities of national parliaments and the European Parliament, including parliamentary activities regarding the European Semester process. 7 As part of the CoR plenary session, systematically organise a political debate on priority issues with a territorial dimension requiring EU action. Petitions and EU Citizens Initiatives with a territorial dimension could further spur on debate in that context. 8 Similar to the EU Citizens Initiative, in time provision could be made in the EU Treaties for an EU Cities or Regions Initiative. Similar threshold-ratio s as for EU Citizens Initiatives could apply to this new participatory instrument, bringing LRAs closer to the EU and vice versa. 7

8 2/ INFLUENCING THE EU LEGISLATIVE PROCESS FROM ITS EARLIEST STAGE The EU needs to have the necessary institutional architecture in place to ensure maximum cooperation between all competent authorities and policy actors who can contribute to providing solutions to the challenges faced by Europeans. The EU decision-making process needs to ensure that adequate arrangements are in place to involve the CoR throughout the policy cycle. Recommendations 9 As for the EP, the EU Treaties should give the CoR the prerogative to urge the European Commission to undertake EU (legislative) action in the pre-legislative phase. Pre-empting Treaty change, the CoR can make better use of its own-initiative opinions by providing the European Commission with strategic guidance on where EU action is required or not. 8 Report on the Future of the Committee of the Regions

9 10 During the legislative phase, the CoR should strive to participate as observer with the right to speak in trilogue meetings on priority issues. The CoR should also be allowed to take part in preparatory trilogue meetings which the CoR has been invited to attend as observer. 11 The CoR s strength lies in the political phase of decision-making. Therefore, at political level the CoR administration should be given greater guidance in order to ensure improved follow-up of newly adopted opinions. To this end, the CoR s Conference of Presidents enlarged to include the Commission presidents could oversee the follow-up of all priority CoR opinions and resolutions and provide the CoR secretariat with a mandate to negotiate on its behalf to ensure that both the European Commission and the EU legislator take account of the CoR s views. The Conference of Presidents should also regularly assess whether CoR opinions consistently call for fewer administrative burdens for LRAs and, in general, deliver added value and have an impact. 12 The CoR should focus on issues most relevant to LRAs. Clear priorities and a limited number of high quality opinions are the key to success. In order to ensure improved planning and follow-up, a new CoR opinion format (short, specific, distinctive, critical, legislative focus) could be considered. Despite improvement, there is still room for better timing, readability and sequencing of CoR opinions. Opinions must be attractive to the general public. In order to have an impact on the EU legislator, the new format of CoR opinions should allow for amendments to legislative texts to be presented in a way that is easily compatible with the European Parliament s system. Opinions and resolutions must be publicised outside Brussels. 13 A new type of CoR opinions could be envisaged highlighting the CoR s stands regarding strategic thinking and the early conceptualization of long term EU strategies. To that effect the CoR should seek participation into the European Strategy and Policy Analysis System (ESPAS). 14 Through its members, networks and contacts at LRA level, the CoR must gain a better understanding of the ex-post financial and regulatory impact of EU rules on LRAs. To that end, the CoR should organise hearings on topical EU legislation during the implementation phase, involving the European Commission and experts from LRA administrations. This would result in greater interest in the completion of the Single Market. Regions with legislative powers would be valuable partners in evaluating the impact of EU legislation and whether or not there have been instances of gold plating during the transposition of EU directives. 9

10 3/ STRENGTHENING INTER-INSTITUTIONAL RELATIONS EUROPEAN UNION Committee of the Regions In order to strengthen the political work of its members and be in a position to influence the EU decision-making process more effectively, the CoR needs to network with all EU institutions. Through the instrument of inter-institutional cooperation agreements and greater political cooperation much can still be achieved without Treaty change. Moreover, an up-to-date reading of the institutional balance principle includes the CoR within the scope of that principle. EU institutions should thus cooperate in good faith with the CoR and make all possible efforts to take account of its views. Consequently, they should also endeavour to refrain from taking any action that would go against any strong political stands taken by the CoR. In addition to European Commission consultations of the CoR, the number of consultations received from the European Parliament is rising, yet many members of the European Parliament (MEPs) are unfortunately unaware of this option. In recent years, it has also become common practice for the Council presidency to consult the CoR on a number of priority dossiers. The same principle should apply for all institutions: a consultation means a commitment to listen and exchange views. In this respect, enhanced dialogue is crucial, i.e. receiving the arguments on why certain proposals have (not) been taken into consideration. 10 Report on the Future of the Committee of the Regions

11 Recommendations 15 The implementation of the CoR-EP Cooperation Agreement should result in a closer, reciprocal working relationship with the European Parliament (joint Conference of Presidents meetings; cooperation amongst the chairs of the Commission/Committees; greater cooperation amongst rapporteurs; CoR documents forwarded to EP committees; EP to vote on CoR priority legislative amendments and to provide the CoR with obligatory feedback). 16 As for the EP, the working relationship with the Council and the European Council needs to be structured by means of a cooperation agreement (ensure the CoR can participate in ministerial meetings other than the ministerial meeting on regional policy; greater transparency/access to Council documents; step up contacts at staff level). A closer, strategic working relationship with the rotating EU presidency can be achieved through closer involvement of CoR national delegation leaders. The CoR should offer EU presidencies a single administrative contact point. 17 Pre-empting Treaty change, the CoR should aim to strengthen its working relationship with the European Commission by updating its cooperation agreement with the Commission. Both institutions should agree that CoR members will have the option of questioning the European Commission. At its Bureau meetings and/or plenary sessions a defined number of written questions could be submitted to the European Commission to which the latter would reply within a reasonable timeframe. The European Commission s replies will be published on the CoR website. The Commission could step up the analysis of regional and local aspects in impact assessments and seek to involve the CoR in the preparatory drafting stages of its proposals. The CoR could be involved as an observer in Commission networks, platforms and expert groups dealing with territorial issues. In view of its annual and multiannual programming exercise the European Commission could seek the CoR s contribution. 18 Working relationships with the European Court of Justice, the European Investment Bank and the European Court of Auditors could be structured by means of an exchange of letters between presidents. A (bi-)annual round table meeting involving the CoR Conference of Presidents and key members of each of the abovementioned institutions could be organised to discuss the territorial aspects and impact of the work of these institutions. 11

12 4/ NEW COR TASKS AND INCREASED RESOURCES Given the ever changing context in which the EU operates, the CoR s priorities necessarily evolve. As the EU s response to the sovereign debt crisis has proven, much can be done within the scope of the Treaties. As a political assembly, the CoR can adapt flexibly to the changing priorities of the EU agenda. Some new areas of political action, however, will require a deeper and more structural change to the way that the Committee of the Regions is organised. 12 Report on the Future of the Committee of the Regions

13 Recommendations 19 During an annual State of the sub-national finances of the European Union, the CoR should debate and give its opinion on the quality of public spending at LRA level. The CoR could help assess what types of investment deliver tangible and sustainable results and where financing is a problem. This annual gathering also provides an opportunity to debate the impact of the Council s country-specific recommendations on LRAs in the context of the European Semester, and to liaise with organisations with recognised expertise in this area such as the OECD and the EIB. In addition the CoR should continue providing its annual appraisal of the EU s budget and its execution, preferably in cooperation with the EP s Budgets committee and its Budgetary control committee respectively, whilst engaging in a more structural cooperation with the European Court of Auditors on these matters. 20 The CoR should hold regular political debates about prospective decentralisation processes in Europe. To that end, the CoR should continue to invest in optimising its relationships with the Council of Europe and all European territorial associations active in this field to avoid duplication of effort. Whereas the Council of Europe s Congress of Local and Regional Authorities could be invited to present relevant reports on the respect of local and regional democracy (bi)annually, the CoR could itself step up its monitor activities regarding the actual division of powers when EU policies are implemented on the ground. Also, Member States considering major institutional or public-sector reform with an impact on LRAs and/or the governance of regional and urban policy within their respective State could be invited at political level to present their proposed reforms to the CoR s plenary assembly. 21 In line with the EP-CoR cooperation agreement and its territorial impact assessment strategy, the CoR should insist upon and scrutinise territorial impact assessments by the European Commission for priority dossiers. It should also debate EP/Council amendments with an impact on LRAs. Its findings should be made public and feed into its own opinions, the work of the EU legislator and the European Commission. Over time and together with the European Parliament, the CoR could establish a joint Observatory of EU legislation application. 22 The CoR should explore possibilities with the European Commission and the Budgetary Authority for increasing its current administrative budget and ensuring adequate funding for its new operational tasks. 13

14 5/ THE COR AS A 21 st CENTURY NETWORKED INSTITUTION In addition to the political guidance its members provide, the CoR needs to be directly connected to the administrations of EU regions and cities. The valuable know-how with which these administrations provide the CoR will enrich its opinions and the political work of its members. As regards the other institutions, the CoR will be able to bring first-hand, valuable territorial know-how to the debate and inform them about the real impact of EU policies and LRAs expectations of the European Union. As a networked institution, the CoR is like a house with various different rooms giving all interested actors representing the interests of the EU s LRAs a platform from which to intervene in its debates on policy. The CoR brings all these actors together around the policy issues that unite them or on which they could cooperate more closely. In this respect, territorial associations and thematic groupings or networks of regions and cities are valuable partners for the CoR. 14 Report on the Future of the Committee of the Regions

15 Recommendations 23 The CoR should seek to establish more direct relationships with LRA leaders and experts within their home constituencies. This could be organised with the help of CoR national delegations and by initiating cooperation with territorial associations at Member State /regional level and renewing the partnership with territorial associations at EU level. The CoR should develop an outreach strategy in this respect. 24 The relevance of CoR inter-groups needs to be assessed. Where inter-groups provide added value they should be revived and seen as lively platforms in which (thematic) territorial associations at EU level could genuinely participate. CoR inter-groups should become a springboard for political dialogue and action feeding into the CoR s consultative work. The CoR should seek greater cooperation with EP inter-groups and could promote the establishment of a joint EP-CoR intergroup on urban and/or regional affairs. As a rule - and in addition to its well defined political objectives - a sunset clause should provide for the date when the inter-group in question will cease its activities. 15

16 6/ Towards a EU based on multilevel governance and subsidiarity Charter for Multilevel Governance in Europe subsidiarity NETWORK The CoR s longstanding determination has ensured that multilevel governance is no longer a mere theoretical concept based on the guiding subsidiarity and proportionality principles. Today it is a guiding principle which is binding upon Member States. However, all principles are also dynamic in nature so their application needs to be duly monitored and evaluated. The CoR is the guardian of these principles at EU level and promotes compliance with them at EU and Member-State level. If it is to be able to fulfil this important role, the CoR needs to be equipped with the necessary means and institutional prerogatives. 16 Report on the Future of the Committee of the Regions

17 Recommendations 25 Following the adoption of its Charter on Multilevel Governance for Europe, the CoR should provide signatory LRAs with the opportunity to exchange best practices on compliance with the Charter s principles. The CoR should continue to be proactive as regards promoting and monitoring the development of multilevel governance arrangements at both EU and Member-State level. In this respect CoR Vice-presidents could be entrusted with an Ambassadors for Multilevel Governance role within their Member State. 26 The EU institutions and the CoR need to work hand in hand to further strengthen compliance with the partnership and multilevel governance principles in all EU policies where consultation of the CoR is mandatory. 27 The CoR should aim to include a meaningful subsidiarity appraisal in all its opinions. It should strengthen its early warning function as regards LRAs. In this respect, the CoR should further develop cooperation with national parliaments and the European Parliament on subsidiarity tests. At the next Convention, the CoR should advocate for the right to issue a reasoned subsidiarity opinion and ask to be allotted two votes. 28 As an institutional actor, the CoR should regularly scrutinise whether its prerogatives have been upheld in the EU decision-making process. It should be prepared should urgent legal action need to be taken and ensure the necessary organisational and financial means are in place. An annual monitoring report could be issued on the respect of its prerogatives in EU decision making whilst flagging cases pending before the European Court of Justice that might have a serious impact on the (fiscal) autonomy of LRAs. 17

18 7/ EXTENDING THE COR S EXTERNAL ACTION Over time the CoR has proven to be active in shaping the EU s internal policies and plays an increasingly valuable role in terms of promoting EU values, fundamental rights and governance vis-à-vis EU accession countries, European neighbourhood countries and third countries. Since we live in an increasingly interdependent world, it is also important for the CoR to improve follow-up of decision-making at international level. Taking a bottom-up approach, LRAs and the CoR can urge international organisations and their Member States to take better account of the territorial impact of international law. Where it is not possible to achieve progress on global societal issues such as climate change at international level, it is through the political will of locally elected leaders and the active mediation of organisations such as the CoR that small, yet significant steps can be taken. What can be achieved at the regional or city level can in many cases be the first meaningful step towards peace, reconciliation, democracy and mutual trust-building. The CoR has already engaged in close relationships with various international organisations and global networks active in policy areas with a territorial dimension. Strengthening the external activities of the CoR will eventually strengthen its expertise and political know-how on the EU s internal policies. 18 Report on the Future of the Committee of the Regions

19 Recommendations 29 Continue to support the progress made on decentralisation in candidate, countries, with particular emphasis on the challenges of administrative reform and fiscal decentralisation, and increase CoR involvement in institutional capacity-building programmes for LRAs (e.g. LAF programmes). 30 Contribute to the implementation of the Eastern Partnership and the Euro-Mediterranean Dialogue through political dialogue in regional assemblies (ARLEM and CORLEAP) and secure representation at high-level meetings (e.g. the Eastern Partnership summit and the ministerial conferences of the Union for the Mediterranean). 31 The CoR can help enhance the territorial dimension of the EU s ten strategic partnerships, especially with the BRICS countries, and step up the involvement of EU local and regional authorities in the implementation of those partnerships. 32 It can complement the work of the Congress of Regional and Local Authorities of the Council of Europe and pan-european associations, as well as international bodies that set benchmarks used by the EU (UN, WTO, ILO, OECD, etc.). 33 Support political and institutional initiatives and measures that facilitate city and para diplomacy, which plays a decisive role in times of vulnerability, crisis and conflict. Develop its relations with platforms of regions and local authorities that promote regional integration and decentralised cooperation such as the West African Economic and Monetary Union (UEMOA) or the EFTA Forum of Elected Representatives of Local and Regional Authorities. 34 Conclude and implement memoranda of understanding with the relevant international organisations, with a view to stepping up institutional cooperation with the European Commission and the European Parliament, and structure cooperation with the European External Action Service through specific statements of agreement. 35 Develop systematic cooperation with EU delegations in candidate, neighbouring and third countries, especially in the EU s ten strategic partner countries, particularly the BRICS countries, and strengthen synergies with international networks of LRAs (UCLG, FOGAR, R20, nrg4sd, ICLEI, etc.). 19

20 8/ GOING LOCAL AND DECENTRALISED COMMUNICATION Through its members, the CoR can help explain and communicate about EU policies at regional and local level. Decentralised communication is increasingly important in an EU that is perceived at least by some as remote. Making full use of digital solutions, CoR members can also bring the views of people in their constituency back to Brussels, feeding directly into the CoR s political debate with the EU institutions. 20 Report on the Future of the Committee of the Regions

21 Recommendations 36 The CoR s visibility, along with public awareness of its opinions and work can be stepped up amongst key decision-takers and opinion-formers in Brussels and within the Member States. This requires smarter communication, tailored to specific audiences. A tailor-made communication strategy on CoR issues reaching out to the European press is essential. Social media should also be used for reaching a wider audience. 37 Communication managers in regional and local administrations need to be directly involved in media and communication activities regarding CoR members from their region, by means of the Europcom network of public communicators, created by the CoR. 38 The CoR should seek to cooperate closely with the European Parliament Information Offices, European Commission delegations and Europe Direct Information Centres in the Member States in order to inform interested people about its work and of the realities of implementation of EU regulation on the ground. 39 CoR members should be supported when they discuss CoR activities in their home constituency. The CoR s views should be more actively promoted when CoR members organise town hall meetings or decentralised events on EU affairs. 21

22 9/ COR MEMBERSHIP Across Europe, the role of LRA representatives in policy making is often debated. Interestingly, in a growing number of Member States regional and local politicians also have a seat in the second chamber (Senate) at national/federal level. Where such politicians are also CoR members, they could provide yet another level of political expertise. As the Assembly of Regional and Local Representatives, the CoR is expected to have good in-house knowledge of EU affairs and a good understanding of the policies conducted at the regional/local level. 22 Report on the Future of the Committee of the Regions

23 Recommendations 40 CoR members represent local and regional government and parliaments. Guidelines could be issued encouraging Member States to appoint CoR members who represent the territorial diversity of their country. Greater gender balance amongst CoR members should also be promoted. 41 The efficiency of the CoR would improve significantly if the appointment procedure of CoR members could be speeded up. Lists could be drafted of substitute members who would step in as CoR members should a member lose his/her mandate, rather than waiting to be appointed. As a rule, members who lost their CoR mandate should be replaced within six months. 42 The CoR should maintain close contact with its former members and keep them regularly informed about its key opinions and upcoming events. An informal network could be established amongst former CoR members holding a position within the EU institutions, international organisations or within their Member State of origin. 43 Staff induction/training/secondments could raise staff understanding about LRA structures, functions and challenges, as well as how the work of LRA politicians can further contribute to achieving the EU s objectives. The CoR should count more experts from LRA administrations amongst its staff and present its activities to LRA Liaison Offices in Brussels and Second Chambers composed of LRA representatives. 23

24 10/ TOWARDS A EUROPEAN SENATE OF THE REGIONS In a European Union where sustainable growth and job creation are increasingly achieved through targeted action at the regional and local level, there is a clear need for greater involvement of regional and local representatives and their EU-level institution, the Committee of the Regions, in EU decisionmaking. In order for its views to be duly taken into account, the CoR will need to focus more on direct relationships with regions and cities across Europe, and to be assigned a more prominent role in the EU s overall institutional architecture. There are a few useful prerogatives that could gradually help strengthen the CoR s role. In addition, the CoR is to be granted European institution status, without the organisation is to be being necessarily formally qualified as a third legislative chamber at the EU level. The role, prerogatives and composition of various second chambers (Senates) representing territorial interests at Member- State level certainly offer an interesting model for the development of a future European Senate of the Regions. 24 Report on the Future of the Committee of the Regions

25 Recommendations 44 If a Convention is convened to debate a change to the Treaties, the CoR must be part of it, as was the case in the past. 45 Like the EU itself, the CoR can only gain more prerogatives over time and following a stepby step approach. Whatever its future status, the objective of having a strong autonomous institution at EU level to represent regional and local diversity within the EU should be upheld. 46 In order for the CoR to be genuinely empowered to act as a credible representative of LRAs at EU level dispensing good advice and expertise to other EU institutions, the CoR should begin by requesting additional prerogatives strengthening its political and consultative role. Anyhow, the CoR should become an official Institution of the European Union pursuant the Treaties. 47 Secondly, in its role as EU institution, the CoR might gradually develop into the European Senate of the Regions. This Assembly of political representatives of the EU s LRAs would be a Reflection Chamber with semi-legislative powers, rather than a fully-fledged third legislative chamber, at EU level. However, the Senate s formal assent would be required for all legislative proposals regarding economic, social or territorial cohesion. 48 The Senate s key tasks would be to issue high-quality reflection positions or owninitiative opinions. The Senate would spur on political debate on the territorial dimension of EU policies and on long term societal changes impacting LRAs. It would actively promote and defend compliance with the principles of subsidiarity, multilevel governance and proportionality. To that end, it could urge the European Commission to propose EU action on all policy areas where consultation of the Senate is mandatory and to revise or repeal existing EU legislation. Should no action be taken by the European Commission, a reasoned comprehensive reply must be given to its request within a reasonable timeframe. In cooperation with national parliaments, the Senate would become the leading EU forum for the coordination of subsidiarity, multilevel governance and proportionality screening of proposed EU legislative proposals. It would also be a key forum for debating and following 25

26 up on the economic, social, financial, regulatory and territorial impact of EU legislation, whilst debating the policy areas in which EU action can provide for the greatest added value as seen from a LRA viewpoint. 49 As regards the EU legislator, the Senate might hold a positive injunction right for all EU policy areas where consultation of the Senate is mandatory; at the request of the Senate, an ongoing trilogue on a priority dossier would at its next meeting have to endeavour to find a solution on the vital interests flagged up by the Senate within a reasonable time and upon a Commission proposal. Consequently, the Senate s rapporteurs would have the right to participate as observers with the right to speak in formal trilogue meetings on all priority legislative acts on which consultation of the Senate was mandatory. 50 In the more distant future, Senators might wish to see the institution, in the capacity of a second Upper Chamber, become part of one of the two branches of the EU legislator. In such a scenario, the Senate should strive to keep its autonomy, distinct budget and specific prerogatives, whereas in all policy areas where consultation of the Senate is mandatory, its presidency or rapporteurs would automatically take part with the right to speak - in all meetings organised by the legislator in question throughout the policy-shaping process. 26 Report on the Future of the Committee of the Regions

27 ACKNOWLEDGMENTS I wish to thank all CoR members and particularly the members of the CoR Bureau who have actively contributed to the deliberations on the CoR s future. Your valuable contributions have helped me try to strike the right balance between different views on the CoR s remit and its political and institutional role in the future. I am also most grateful to the leaders of the CoR political groups; the heads of the CoR national delegations; the first vice-president, Mercedes Bresso; former CoR presidents Luc Van den Brande, Michel Delebarre and Jacques Blanc; Vice-president Michel Lebrun; the presidents of the European territorial associations and European Commissioner Johannes Hahn for their innovative ideas, practical proposals and forward-looking suggestions. Lastly, I wish to express my sincere thanks to the CoR s secretariat-general for its support and dedication to the Committee of the Regions. Reflection group meeting in Murcia, Spain,

28 CdR_2276/ /EN EUROPEAN UNION Committee of the Regions 25 June 2014 Rue Belliard/Belliardstraat, 101 _ 1040 Bruxelles/Brussel BELGIQUE/BELGIË Tel _ Fax Follow