History and Theory of European Integration

JEAN MONNET European Module

History and Theory of European Integration

Marina V. Larionova


Lecture 11

From Copenhagen Criteria (1993) to the largest enlargement (May, 2004)


Contents:

• The facts and figures on enlargement. The Copenhagen criteria, the dates and procedures of application, the pre accession strategies, the accession partnerships, the methodology and instruments of accession, compromises, schedules and aid programs.

• The budget and institutional reform, the Nice Treaty.


Readings for the lecture • Grabbe H. and Hughes K. (2000). Enlarging the EU Eastwards. The Royal

Institute of International Affairs. London;

• Kok Wim. (2003). Report to the European Commission. Enlarging the European Union: Achievement and Challenges. European University Institute;

• Nugent Neill. (2004). The EU and the 10+2 Enlargement Round: Opportunities and Challenges in “European Union Enlargement” edited by Nugent Neill. Palgrave Macmillan;

• Enlargement of the European Union: a Historic Opportunity. General overview of the enlargement process and the pre-accession strategy of the European Union. EC edition 2003.

• Шемятенков В.Г. (2003) Европейская интеграция. Москва. Международные отношения. Глава 10, глава 12.


A history of successful enlargements

1973 Denmark, Ireland and the United Kingdom

1981 Greece

1986 Portugal and Spain

1995 Austria, Finland and Sweden


Legal provisions

Maastrich Treaty Article 49

“any European State … may apply to become a member of the Union. It shall address its application to the Council, which shall act unanimously after consulting the Commission and after receiving the assent of the European Parliament, which shall act by an absolute majority of its component members.”

“… the conditions for admission and the adjustment to the Treaty necessitated thereby shall be subject of an agreement between the member States and the applicant State.”


Procedure

1. Application to the Council

2. Delivery of the Commission Opinion in consultation with the EP

3. Subject to unanimous consent of the EC negotiations proceed between the candidate and the Presidency and the Commission

4. A accession treaty is drafted by the applicant and the EU representatives

5. The assent of the European Parliament acting by an absolute majority of its component members

6. Ratification by the member states

7. Formal signature

8. Entry into force on an agreed date


Usual problems arising

Institutional and decision making – Weighting of the votes

– Representation in the EC and the EP

Political– Heterogeneous nature of enlarging EU

– More complicated consensus building

– Wider versus deeper conundrum

– Heterogeneity pushing for flexibility provisions

Economic– Cost of transposition of acquis communautaire

– CAP and structural and cohesion funds redistribution


10+2 enlargement unique challenge:

Cyprus: 03.07.1990

Malta: 16.07.1990

Hungary: 31.03.1994

Poland: 05.04.1994

Romania: 22.06.1995

Estonia: 24.11.1995

Lithuania: 08.12.1995

Bulgaria: 14.12.1995

Czech Republic: 17.01.1996

Slovakia: 27.06.1995

Latvia: 13.10.1995

Slovenia: 10.06.1996


CEECs: Scope and Diversity

• area (increase of 34%) and population (increase of 105 million)• diversity of different histories and cultures• increased internal differentiation

economic impact GDP increase by 5 percent GDP per capita drop by 18 percentGDP per head 40 percent of the EU average

• budget impact competition for CAP and structural fundsEU budget expenditure on enlargement: pre accession

– 6 767, million euro in 1990-1999 – 13 200 million euro in 2000-2003

EU budget expenditure on enlargement: post accession – about 41 billion euro in 2004-2006


The level of the EU developments

• more extensive acquis communautaire

• EMU

• overhaul of the decision making system


The geopolitical dimensions

• Redesigning Europe’ political and security architecture

• European relations with Russia

• NATO expansion to the East


The impact of enlargement on the internal political balance

• common perceptions: enhancing German power and diminishing French influence in the EU

• EU-15 preferences diversity• need to develop strategies with the new neighbors


The level of sophistication of the accession process

need to develop a coherent strategy• Overcome internal differences

• Harness resources to support the reform processes in CEES

• Set up institutional framework for accession preparation

need to develop appropriate set of instruments• Europe Agreements

• Structured dialogue launched by the December 1994 Essen Council

• The EC May 1995 White paper

• Agenda 2000 put forward by the Commission in July 1997

• Accession Partnerships and National Programmes for the Adoption of the Acquis (NPAA)

• Annual EU reports on the applicants progress


The level of sophistication of the accession process

• DG for Enlargement

• Pre-accession assistance, including

– the Phare Programme

– environment and transport investment support (ISPA Programme)

– agricultural and rural development support (SAPARD Programme)

– co-financing with the international financial institutions (IFIs)

– Opening of European Community programmes and agencies.

need to ensure democratic anchoring and closeness to the citizens

need of an effective communication policy


The degree of internal adjustment

• Pushing institutional and policy reform

• Promoting enhanced cooperation

• Building up administrative capacity


European cultural, political, economic reintegration: A historic opportunity or an overwhelming

responsibility?

• Grasping the meaning of Europe and vision for reunited Europe “Whole and free”• Promotion of stability and security• Restoring economic prosperity • Consolidation of the democratic system in the acceding states• Building a pan European internal market

– Benefits from trade liberalization– Increased business confidence– Increased investment incentives – Access to new technologies and know how– New production and market opportunities – Access to qualified workforce

• Acquiring more weight globally


Actors’ positions Central and eastern European countries

– economically weak

– politically and morally assertive

EU old members divergent in positions on speed and scope– expected economic gains: exogenous increase in cross border

trade and capital investment

– expected economic losses: high costs for EU poorer states

– geopolitical interests:

• widening and weakening – inclusive enlargement • widening and deepening – limited enlargement


EU response to CEESs’ case for membership The rapid pace of unfolding events

• Trade and cooperation agreements singed in 1988/89• PHARE launched in 1989• EBRD set up in 1991• Interim agreements• Europe agreements negotiated with Chechoslovakia, Hungary

and Poland in December 1991Establishment of the FTAAdoption of acquis communautaire on single market and

related areasLaunch of political dialogueAcknowledgement of the accession objective


June 1993

Copenhagen summit

• Confirmed enlargement commitment including the Baltic states and Bulgaria and Romania

Copenhagen Council decision to press ahead

Driven by

• Community norms and values

• Community vision of a Pan European liberal order


Copenhagen accession criteria

Membership requires that the candidate countryhas achieved:

– stability of institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities;

– the existence of a functioning market economy as well as the capacity to cope with competitive pressure and market forces within the Union;

– the ability to take on the obligations of membership including adherence to the aims of political, economic and monetary union.

has created:– the conditions for its integration through the adjustment of its

administrative structures, so that European Community legislation transposed into national legislations is implemented effectively through appropriate administrative and judicial structures.


Enlargement conditions for the EU

“The Union’ s capacity to absorb new members, while maintaining the momentum of European integration, is also an important consideration in the general interests of both the Union and the candidate counties”.


December 1994 Essen summit: Strategy of pre-accession preparations

1. Support to the candidate states

Financial and technical assistance

• PHARE – aid for restructuring of economies

• ISPA – transport and environment investment support

• SAPARD – agriculture and rural development support


Europe agreements

“aimed progressively to establish a free-trade area between the EU and the associated countries over a given period, on the basis of reciprocity but applied in an asymmetric manner (more rapid liberalization on the EU side than on the side of the associated countries)”.

trade-related issues political dialogue legal approximation other areas of cooperation, including industry, environment,

transport and customs

Regular reports on the progress towards accession + strategy papers

Country EuropeAgreement signed

Europe Agreement came into force

Official application for EU Membership

Bulgaria March 1993 February 1995 December 1995

Czech Republic October 1993 February 1995 January 1996

Estonia June 1995 February 1998 November 1995

Hungary December 1991 February 1994 March 1994

Latvia June 1995 February 1998 October 1995

Lithuania June 1995 February 1998 December 1995

Poland December 1991 February 1994 April 1994

Romania February 1993 February 1995 June 1995

Slovakia October 1993 February 1995 June 1995

Slovenia June 1996 February 1999 June 1996

Country AssociationAgreement signed

Association Agreement came into force

Official application for EU Membership

Turkey September 1963 December 1964 14 April 1987

Malta December 1970 April 1971 16 July 1990

Cyprus December 1972 June 1973 3 July 1990


2. Stiff entry requirements

• Incorporation of acquis into the national law• Capacity for EU law implementation • Unfavorable terms re CAP and structural fund• Limited number of transition measures


3. Adjusting the EU

Institutional and decision making reform agreed in Nice summit December 2000

• Number of MEPs per country – total 732• National representations in the other institutions• One Commissioner per country• Allocation of votes in the Council, the QMV and blocking minority

• Qualified majority threshold set at 321 out of the total of 237 (72,27%)• Demographic clause – 62 % of the population

• Extension of QMV to more Treaty articles• Provision for enhanced cooperation made easier• Introduction of the “Open coordination method”• Convening a new IGC

Policy reforms• CAP• Structural funds



July 1997 Agenda 2000: For a Stronger and Wider Union

December 1995 Madrid Council formal request to the Commission to produce Opinions

Commission recommendation• Enlargement to be achieved within the budgetary ceiling of 1.27

percent of the overall EU GDP• CAP and cohesion policies reform• Accession negotiations launched in 1998 with the 5+1

– The Check republic– Hungary– Poland– Estonia– Slovenia


December 1997 Luxembourg summit

5 + 1 wave endorsement

March 1998European conference in London

And

launch of the negotiations with 5+1 in Brussels


Negotiations procedure on a schedule set up by the EU

• multilateral analytical reviews of the acquis

• bilateral negotiations on the acquis chapters

– applicants presenting position papers

– Council of Ministers agreeing by unanimity

• common positions by the EU drafted by the Commission

• common positions amended by the Council

• detailed negotiations between the Council secretariat and candidate countries officials and Commission

• Formal negotiations at the Foreign Ministers level

• Round up sessions provisionally closing the chapters


March 1999 Berlin European Council

• Agreement on the Agenda 2000 measures

• Agreement on the 2000-2006 financial perspective

• Agreement on the need for CAP and Structural funds reform


December 1999 Helsinki European Council meeting

• Negotiation with the remaining applicants to launch in early 2000

• Change of strategy

• Differentiation principle

• Catching up

• Flexible framework

• Roadmaps for negotiation completion by December 2002


December 2000 Nice Summit

Treaty of Nice

Declaration on the Enlargement of the European Union and

Protocol on the Enlargement of the European Union


Commission

• One Commissioner per state• 2004-2009 – 25 Commissioners• number of Commissioners to be reduced following next

enlargement subject to a unanimous agreement– a system of equal rotation of commissioners reflecting

the demographic and geographic range


Treaty establishing a Constitution for Europe

Article I-26

5. The first Commission appointed under the provisions of the Constitution shall consist of one national of each Member State, including its President and the Union Minister for Foreign Affairs who shall be one of its Vice-Presidents.

6. As from the end of the term of office of the Commission referred to in paragraph 5, the Commission shall consist of a number of members, including its President and the Union Minister for Foreign Affairs, corresponding to two thirds of the number of Member States, unless the European Council, acting unanimously, decides to alter this number.

The members of the Commission shall be selected from among the nationals of the Member States.


European Parliament

• Total 732

• Redistribution of seats in favor of new members


Council of Ministers and the European Council

The Twenty Five

321 votes

QMV of 232 (72.3%) votes

the demographic clause providing for population per cent check

(at least 62 % of the Union population) based on the new weightings introduced by the Treaty of Nice and the Athens

Treaty on Accession


France 29 Austria 10

Italy 29 Sweden 10

The UK 29 Denmark 7

Germany 29 Finland 7

Spain 27 Ireland 7

Poland 27 Slovakia 7

The Netherlands 13 Lithuania 7

Greece 12 Latvia 4

Czech republic 12 Slovenia 4

Portugal 12 Estonia 4

Cyprus 4

Luxembourg 4

Malta 3

Total 321


QMV thresholds in the Council

EU - 15 EU -25

Votes available 87 321

Votes required 62 237

Per cent 71,26 72,27

verification - 62% of EU population


Treaty establishing a Constitution for Europe

Article I-25 Definition of qualified majority within the European Council and the Council

1. A qualified majority shall be defined as at least 55 % of the members of the Council, comprising at least fifteen of them and representing Member States comprising at least 65 % of the population of the Union.

A blocking minority must include at least four Council members, failing which the qualified majority shall be deemed attained.

2. By way of derogation from paragraph 1, when the Council does not act on a proposal from the Commission or from the Union Minister for Foreign Affairs, the qualified majority shall be defined as at least 72 % of the members of the Council, representing Member States comprising at least 65% of the population.


Enhanced Cooperation

• Must contribute to enhancing the process of integration within the Union

• Must not create a barrier to trade and distort competition• Must involve minimum eight members• May be undertaken as the last resort• Must be open to all members• Acts adopted within its framework do not form part of an

acquis• Must be consistent with EU policies and activities• Expenditure must be born by the member states involved• Must be authorized by the QMV of EC


2001 December Laeken Declaration on the Future of the Union

Deeper and wider debate on the future of the EU

• The delimitations of powers

• The Charter of the Fundamental Rights status

• The role of national parliaments

IGC to be convened in 2004


The Treaty of Nice enters into force

March 2003


Attitudes. Expectations. Assessments"It's an agreement that opens the way to enlargement"

French Prime Minister Lionel Jospin at the French Presidency's closing press conference for the IGC

“The Treaty is an insufficient base for enlargement”

Belgian foreign minister Louis Michel

The Treaty "fell short" of what had been hoped, but "the way is now open to enlargement". The result on qualified majority voting is "mixed", but "we think it will be enough to ensure functioning of the EU after enlargement"

The Commission had pushed the interests of the applicant countries in the discussion over voting rights, and was "pleased about the result for Poland" - which eventually won equal voting rights with Spain after some tense discussions during the summit

European Commission President Romano Prodi's spokesman Jonathan Faull.


Attitudes. Expectations. Assessments

"The final aim of the Nice Summit was and remains the reunification of Europe."

"The new Millennium has given us an unprecedented opportunity to bind together the countries of our continent into a wide area of peace, stability and greater economic potential. Nice is one step in this direction. As a step, it was shorter one than we had hoped to make, or indeed could have made. But we are moving in the right direction, and I would therefore ask you to lend us your support.”

“Particular tribute to Belgian Prime Minister Guy Verhofstadt, who fought to the very end for a more equitable presence for the candidate countries".

Prodi speech to European Parliament on 12 December


Attitudes. Expectations. Assessments

"The successful conclusion of the Intergovernmental Conference on institutional issues at the summit meeting in Nice means that the Union has now made the necessary internal preparations to be able to welcome new members as from the end of 2002 in accordance with the conclusions of the Helsinki summit.“ The Swedish Presidency

"I do this at a crucial moment shortly before the upcoming enlargement of the European Union, the fifth in a row. But this time, it is much more than just another enlargement. It is a real mutation of the Union. In a matter of just some years, there will be 25, 27 or even more Member States. The enlarged Union will display little resemblance with the Union in which we now live. Time has therefore come to start considering how the enlarged Union will look like. What project will it embody? On which values will it be based? What will be its objectives and competencies? How will decisions be taken? How will it be financed? What will be its institutions?"

Belgian Prime Minister Guy Verhofstadt Stepping into the Presidency


December 2002 Copenhagen European Council decision

Accession treaties to be signed in April 2003

Bulgaria and Romania projected membership date – 2007

April 2003

Assent by the EP


16 April 2003 Accession Treaty signed in Athens

May – September 2003

Ratifications in the EU-15 and acceding states completed


May 1, 2004 “Fanfare for a larger Europe”?

The accession treaty enters into force


Conceptualising Enlargement

• Neofunctionalism?

• Liberal Intergovernmentalism?

• Institutionalism?

• Multi level Governance?

• Constructivism?


Lecture 12: From Laeken (2001) to Rome (2004)

• The Laeken Presidency Conclusions.

• The Convention method, negotiations over the Draft Constitutional Treaty: institutional reform and the double majority voting.

• Issues and Outcomes.


Readings for the lecture

• The Constitutional Treaty of the EU;

• A Collection of Articles from the Economist, from Leaken to Rome, A Reader;

• Selected papers and speeches of the EU politicians;

• Ларионова М.В. (2003) «Взаимодействие институтов ЕС в процессе разработки и согласования Конституционного договора», аналитический материал для курса;

• Ларионова М.В. (2004) «Работа над проектом Договора в рамках межправительственной конференции», аналитический материал для курса.


Seminar 6 • Cost and benefits of the enlargement (viewpoint of the

Commissioner for Enlargement).

• Cost and benefits of the accession (positions of the new member states).

• Impact of the expansion on the EU-Russia relations, negotiating the Partnership and Cooperation agreement changes (position of the Russian Federation government and experts).

• Essays, presentations and debate.


Readings for the seminar

• A Reader on the Enlargement.

• “Enlargement of the EU. An historic opportunity”. Brussels. European Commission. Enlargement Directorate-General, 2003

• “Enlarging the European Union. Achievements and Challenges” Report of Wim Kok to the European Commission. European University Institute, 2003


Thank you!

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History and Theory of European Integration

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