As every autumn, the European Commission has presented its legislative and working programme for the following year. The 2003 programme, which we have already reported on (see EUROPE of 31 October, p.8), provides for a series of initiatives whose adoption and implementation should contribute to the achievement of three key objectives: a successful enlargement, stability and security in the EU, and making the European economy both sustainable and united. The document is published in full, except for the annexes.
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COMMISSION COMMUNICATION ON ITS LEGISLATIVE AND WORKING PROGRAMME FOR 2003
INTRODUCTION
The Commission's Legislative and Work Programme for 2003 (the “Work Programme”) is the first to be prepared following extensive preparatory dialogue with the European Parliament and the Council as part of the Commission's strategic planning and programming cycle. It marks the beginning of a more integrated and coherent political planning process for the European Union.
In February 2002, the Commission adopted its Annual Policy Strategy for 2003, in which it identified three political priorities for next year, with the corresponding objectives, key initiatives and resources:
an enlarged Europe
stability and security, and
a sustainable and inclusive economy
The Commission presented its Annual Policy Strategy to the European Parliament and to the Council in March. For the first time, a structured dialogue took place with both institutions in the months that followed on the priorities and key initiatives for 2003. Both institutions reacted positively to the political priorities identified by the Commission for 2003.
In August, the Commission adopted a stocktaking document on the follow-up to its Annual Policy Strategy for 2003, in which it took account of the views expressed by the European Parliament and the Council.
The Annual Policy Strategy, the structured dialogue with the other institutions and the resultant stocktaking document provide the foundations on which this Work Programme is built.
Based on the key initiatives identified in the Annual Policy Strategy and the stocktaking document, this Communication highlights the key initiatives that the Commission intends to take in 2003 for the three political priorities. Where these involve the adoption of legislative proposals or non-legislative acts, they can be found in the first list attached to the Work Programme.
The second list contains other proposals and acts likely to be presented by the Commission in 2003, insofar as this can be foreseen at the end of October 2002 when the Work Programme is adopted.
In addition, the Commission will continue to provide the other EU institutions with regular monthly updates of its operational planning in the form of a 3-month rolling programme and reports on proposals that have been adopted. In the interests of transparency, the Commission also makes this information available to the public on the Commission's Internet homepage.
Two other new features of this Work Programme should also be highlighted:
In June 2002, the Commission adopted a first set of initiatives to meet the commitment of the White Paper on European Governance to contribute towards a better functioning of the European Institutions. As part of this first “Better Regulation” package, which was endorsed at the Seville European Council, the Commission introduced a new mechanism to analyse the impact of major proposals in order to improve the quality of EU legislation by rendering systematic the examination of the principles of subsidiarity and proportionality and by analysing the economic, social and environmental benefits in the context of the sustainable development strategy. This impact assessment mechanism will apply in full from 2004 onwards, but a number of the proposals contained in the Work Programme for 2003 have already been selected to undergo this impact assessment.
The Seville European Council agreed to introduce better annual and multiannual programming of Council activities. In December, the General Affairs and External Relations Council will adopt the Council's first annual operating programme (for 2003), on a proposal from the incoming Greek and Italian Presidencies and taking into account the results of the dialogue with the Commission. The Work Programme provides the Commission's input to the Council's annual operating programme, both in terms of priorities and key initiatives and by way of flagging proposals already adopted by the Commission that await decision by the Council in 2003 (see section 4).
Finally, the Commission presents this Work Programme several weeks before the European Council is due to take crucial decisions about the future shape of an enlarged European Union at its meeting in Copenhagen. Implementation of the Work Programme may be affected by the nature of those decisions as well as by whether the budgetary authority grants the Commission sufficient resources to recruit 500 non-permanent staff for essential preparatory work on enlargement. In the light of these considerations, it may be necessary for the Commission to make adjustments to its Work Programme in the course of 2003 to reflect the outcome of these decisions and any other unforeseeable developments of significance on the international scene.
1. OUTLOOK AND CHALLENGES FOR 2003
The scope of the fifth enlargement in the history of the European Community goes much further than in the previous ones. First of all, it has a historical element that cannot be compared with any of the other enlargements:
This enlargement represents a fundamental political change for this continent, as it will result in its unification, an event that could not have been imagined even 20 years ago. This has far-reaching consequences, and its significance may be compared to the Treaty of Rome.
Previous enlargements never concerned more than three countries at once. This enlargement is of a totally different magnitude. Managing a Europe of (up to) 25 countries and 451 million citizens poses a major challenge. Europe started with 6 countries. Now the European Union will extend to the size of the continent. The challenge will be to manage the ensuing diversity of cultures, administrative traditions and economic structures. 2003 is a critical year for this transition to an enlarged Europe.
Political outlook
The EU faces three major challenges in 2003:
Preparing for enlargement
The imminent enlargement of the European Union will have a considerable influence on the outlook for 2003. This will involve a number of formal steps in the accession process per se, adaptation of the financial perspectives for 2004-2006, and intensive preparatory work within the Commission and the other EU institutions. The EU will have to review its major policies to see whether they need adjusting in the context of the new Europe. It will also have to consolidate certain policies, for example speeding up progress to adopt the measures needed for the area of freedom, security and justice and focusing on management of the EU's external borders, and streamlining of economic policy coordination.
Defining the future of Europe
2003 will also be a year of preparing the ground for the new Europe. The EU will have to adapt its institutions through the work of the Convention and the next Inter-Governmental Conference and re-engage citizens in the European project.
Relations with the enlarged EU's neighbours
The new Europe will have to re-assess its relations with its neighbours in the Wider Europe context, following on from the discussions begun at the Gymnich ministerial gathering in August 2002. The relaunched Euro-Mediterranean partnership must lead to a community founded on liberalisation in the free flow of goods and services, on closer exchange between the people and cultures around the Mediterranean and on security and the respect of fundamental rights. A similar approach must be adopted with non-candidate countries of Europe, such as Russia, Ukraine and Moldova. To conclude, some of the Western Balkan countries will soon become the external border of the European Union. At the same time, the Stabilisation and Association process opens perspectives for membership.
Economic prospects for the EU in 2003
Recent economic developments point to lower growth than envisaged in the Commission 2002 Spring Forecasts. The recovery needs more time than expected to gain strength. Uncertainties have also increased, partly due to increased tensions in the Middle East and Iraq, and the associated developments in oil prices. Other risks are related to the impact on household and investors' confidence of the recent correction in stock market prices, the volatility in financial markets and possible contagion effects from the economic crises in certain Latin American countries.
For the euro area, the recovery started in the first quarter of 2002, but there has been no further built-up in momentum over the summer. Domestic demand and notably private investment have remained sluggish. Exports have also weakened. Indicators continue to point to a certain acceleration in growth in the second half of 2002 but GDP growth is unlikely to exceed 1 %. This delayed recovery suggests that the growth rate for 2003 will also have to be scaled down and that the previous forecast of an average growth rate of close to 3% in 2003 now appears to be out of reach.
All in all, there is now more uncertainty as to when, and how strong, the pick-up in EU growth will be. At the same time, it should be stressed that all the conditions for this pick-up remain in place. Inflation is decelerating, monetary conditions are accommodating and interest rates are relatively low. The adjustment in inventories has probably taken place. There are no major economic imbalances. And, finally, business and consumer survey indicators remain close to their historical averages.
This economic situation makes it all the more important to complete the ongoing structural reforms and to consolidate progress towards the EU's strategic goals of developing a sustainable and inclusive, knowledge-based economy.
2. COMMISSION PRIORITIES FOR 2003
Against this background, the Commission confirms the political priorities that it identified in its Annual Policy Strategy for 2003:
an enlarged Europe
stability and security, and
a sustainable and inclusive economy
The Commission invites the other EU institutions to take account of these priorities, key initiatives, legislative proposals and non-legislative acts in their own programming for 2003. The Commission confirms its readiness to cooperate with the other EU institutions to deliver these priorities through joint programming.
2.1. An enlarged Europe
Making a success of enlargement will require an unprecedented effort. As the executive arm of the Union and as the guardian of its Treaties, the Commission will be in the front line working to pursue the policies of the Union within an enlarged framework. To this end, the Commission, like the other Institutions, has to continue to improve its management and its working methods, in particular by concentrating resources more on its essential activities.
The Commission will have to be in a position to ensure that the acquis communautaire is implemented in an enlarged Europe from day one of accession, and will need adequate resources for this task.
a) Objectives:
In the light of discussions with the institutions, and within the framework set by the Annual Policy Strategy for 2003, the Commission identifies the following key objectives for 2003:
to ensure adequate support, close monitoring and regular reporting so that the future Member States assume fully all the responsibilities arising from accession, and also to ensure a smooth phasing-in of EU policies in the new Member States and the normal functioning of the internal market after accession;
to guarantee that the Commission will fully meet its obligations from the very first day of accession, from the point of view of applying Community legislation, policies and programmes and in terms of the measures needed to receive the new Member States;
to conduct an in-depth rethinking of Community policies that reflects the qualitative dimension of the most significant enlargement in the history of European integration.
b) Key Initiatives - an enlarged Europe
Monitor the process up to signature and ratification of the Accession Treaty to enable the candidate countries with which negotiations were concluded to actually achieve membership in 2004 and participate in the European Parliament elections as members:
Closely monitor and regularly report to the Council on implementation of commitments made by acceding countries in the accession negotiations, including a comprehensive monitoring report;
Assess the implementation of commitments necessary for the programming of structural funds for the new Member States on accession;
Prepare the safeguard mechanisms necessary to forestall any setbacks to the functioning of the internal market or in the area of justice and home affairs during the first two years after enlargement.
Monitor progress with the implementation of the necessary reforms to satisfy the Copenhagen economic criteria by 2004;
Support reconciliation between the two Cypriot communities following achievement of a political agreement;
Support Member States and candidate countries in providing information to their citizens on the consequences of enlargement.
Prepare and implement a revised accession strategy for Bulgaria and Romania, and strengthen the pre-accession strategy for Turkey:
Prepare and implement the Road Maps for Bulgaria and Romania for the period up to accession;
Prepare and implement actions, including increased financial assistance, related to the strengthening of the pre-accession strategy for Turkey.
Provide guidance and financial support to assist the future Member States to strengthen their administrative and judicial capacities:
Reinforcement of the administrative and judicial capacities of the candidate countries e.g. institution-building actions, specific projects;
Measures to ensure the Community standards for food safety;
Mobilise the necessary investments in the candidate countries so that they can participate fully in the Trans-European networks and assure the strong functioning of the internal market.
Prepare the application of Community legislation, programmes and surveillance procedures and the open method of co-ordination in the new Member States, including by:
Incorporating the review of candidate countries' economic, employment and environmental policies in the Spring synthesis report of 2003 and follow up progress;
Associate candidate countries to the Community research Programmes;
Participation of Candidate countries in the e- Europe Action Plan.
Take measures to ensure common standards for nuclear safety within the European Union;
Preparation of Structural Fund programmes and of Cohesion Fund projects with the view of launching them right from the start of 2004.
Prepare the concrete application of the Common Agriculture Policy to the future Member States, notably through:
Technical adaptations of farming legislation;
Preparation of rural development programmes with a view to launching them right from the start of 2004.
Progressively set in place the structures needed to extend the Community's anti-fraud arrangements to the candidate countries, namely through:
Ensuring that the candidate countries take the actions necessary to enable them to manage the customs union;
Strengthening appropriate structures for fraud avoidance and control and extending interchanges and training on the protection of the financial interests of the European Union.
Intensify and complete administrative and linguistic preparations for enlargement by:
Completing the publication of the Treaties;
Proceeding with the consolidation of legislation and start codification in the existing languages. Publish the acquis communautaire in the new official languages;
Ensuring the administrative preparations for selection, recruitment and integration of officials into the Commission from the new Member States.
Continue implementation of the administrative reform of the Commission to ensure effective modernisation of Commission by 2004.
Continue to review the main Community policies, their procedures and their impact to provide a basis for future proposals on the main prospects for the development of policies in the enlarged Union and the future financial framework after 2006.
Contribute to the work of the Convention on the future institutional framework for an enlarged European Union.
The corresponding legislative proposals and non-legislative acts appear in the first part of the list attached to the Work Programme, identified by the key “100”.
2.2. Stability and security
The Commission will assume its role by helping to extend the European area of prosperity, peace and stability. This is based on respect for fundamental rights and freedoms. The fight against crime, in all its forms, including terrorism, will remain in the forefront.
A particular effort will also be made to develop effective external border management and to co-ordinate the various bodies responsible for border surveillance, including preparing the candidate countries, which will have to manage the largest part of the European Union's land frontiers. Effective action against illegal immigration should be balanced by genuine Community immigration and asylum policies, which recognise legal immigration as a source of cultural richness and economic force whilst offering guarantees to those in need of international protection.
Outside the EU, partnerships with neighbouring countries in Europe will be transformed into a central factor for stability and security.
Finally, the Commission will play its part in strengthening the Common Foreign and Security Policy and making it more cohesive and effective. Stability in the Balkans and a new drive to achieve peace in the Middle East will remain the two main priority objectives in 2003. However, attention should also focus on the fragile security situation in certain parts of Asia, and the Commission - as part of the international community - should contribute to furthering peace and stability in this region.
a) Objectives
In the light of discussions with the institutions, and within the framework set by the Annual Policy Strategy for 2003, the Commission identifies the following key objectives for 2003:
to make substantial progress, as provided for by the European Council in Laeken, and further defined in Seville, towards the establishment of a European area of freedom, security and justice.
to improve transport safety and security as well as security of information and communication networks and in civil protection;
to work for peace and stability at the external borders of the enlarged European Union and beyond, including gradual association to the EU where relevant;
to respond effectively to crises when peace is challenged;
to develop mechanisms to increase contact and understanding between the peoples and cultures of Europe and of other parts of the world.
b) Key Initiatives - Stability and security
Legislative and non-legislative measures towards an integrated European system of border management including measures to fight illegal immigration, in accordance with the programme agreed by the Seville European Council:
Legislative measures to revise and consolidate the rules set out in the Common Manual on external borders;
Measures to enhance the common visa policy and in particular to establish a common visa identification system;
Examination of the legal, institutional and budgetary implications concerning burden-sharing for the management of external borders and for developing joint training of border services;
Establishment of a rapid alert system of illegal immigration and trafficking in human beings.
Propose measures to tackle the financing of terrorism and to follow up the forthcoming Communication on the fight against corruption, to facilitate effective implementation of criminal sentences in the Union and to contribute to combating and preventing crime and terrorism, whilst ensuring that these measures are properly balanced with measures to protect individual rights:
Framework Decision on the freezing and confiscation of funds from entities controlled by physical persons involved in the funding of terrorist activities to ensure that legitimate business activities are not used to finance terrorism;
Framework Decision fixing common standards regarding procedural safeguards for persons accused in criminal proceedings throughout the EU.
Make further proposals for measures to consolidate common European immigration and asylum policies, including increased funding for the European Refugee Fund and greater co-operation with third countries in the field of migration:
Establishment of a Community Action Programme aimed at encouraging the integration of third country nationals who are legally resident in the Union (to be seen in conjunction with 2.3, b), 7, 4th bullet);
establishment of an instrument relating to a 'one-stop shop' for the processing of applications for asylum in the Member States.
Reinforce the application of the anti-money laundering directives, implement the measures on payment systems announced in the Fraud Prevention Action Plan and enhance co-operation between Finance Intelligence Units:
Evaluation of the existing Third Pillar measures in the fight against financial crime, and examination of the need for an instrument to create an EU-wide system to combat money laundering involving large-scale cash payments.
Follow up the Green Paper on the protection of the financial interests of the European Union and the establishment of a European Public Prosecutor, and present the main conclusions to the European Convention in view of the next Intergovernmental Conference
Ensure effective implementation of the security provisions in the Commission
Improve all Community aspects of transport, energy, public health and information and communications network security:
Establishment of common EU standards for the safety of nuclear power plants, implementation of the environmental provisions of the Euratom Treaty, as well as enhancing civil protection through legislative proposals and other initiatives and ensuring the safe transport, treatment and disposal of nuclear waste;
Proposal for a Regulation establishing a European Centre for disease control;
Implementation of a Cyber security task force.
Make a significant contribution towards resolving the conflict in the Middle East and develop the Mediterranean partnership, notably by taking forward the Barcelona process, focusing on promoting political and economic reform, economic co-operation and investments in the region and continuing to improve the effectiveness of MEDA
Develop association and stabilisation process in the Balkans and further co-operation with Russia and the Newly Independent States:
Negotiation of a Stabilisation and Association Agreement with Albania.
Provide financial and political support to the process of reconstruction led by the representative government in Afghanistan, and support peace and stability in central Asia
Reinforce the rapid reaction mechanism and make an active contribution to the Common Foreign Security Policy and to the civilian dimension of the Common Security and Defence Policy
Adopt the Erasmus World Programme to enhance quality in higher education and to promote inter-cultural understanding through co-operation with third countries (2004-2008), and also implement the TEMPUS Programme in the MEDA countries
The corresponding legislative proposals and non-legislative acts appear in the first part of the list attached to the Work Programme, identified by the key “200”.
2.3. Sustainable and inclusive economy
2003 must see firm support for resurgence in the economy and in employment, based on joint efforts on the economic, social and environmental fronts. To this end, the measures provided for in the EU's sustainable development strategy and the Lisbon Strategy will have to be adopted and put into practice. The main challenge will be to facilitate progress towards a knowledge-based economy. In addition, the EU will have to ensure that the internal market for services - financial, energy, transport, telecommunications etc. - is fully operational, and maximise the effect of introducing the euro for consumers and businesses.
Externally, the Commission's objective is to get to grips with globalisation and to ensure that the benefits are shared as widely as possible between countries and within countries. The multilateral trade negotiations that began in Doha will enter a crucial phase, not least with the WTO Ministerial in Cancun in September 2003, and we shall have to ensure that the Kyoto commitments are properly implemented. Finally, we shall have to work towards achieving a better global partnership, notably by delivering on commitments made in Monterrey and Johannesburg in the areas of trade, finance and globalisation. Increased and more effective external assistance, concrete measures to address the unsustainable debt burdens of many developing countries, enhanced regional integration including regional trade agreements, a specific attention to Africa and the least developed countries in general as well as improved conflict prevention will be essential elements in a successful fight against poverty.
a) Objectives
In the light of discussions with the institutions, and within the framework set by the Annual Policy Strategy for 2003, the Commission identifies the following key objectives for 2003:
to maintain stability-oriented macro-economic policies and accelerate implementation of the Lisbon Strategy including the promotion of a knowledge-based society, the strengthening of the internal market for services, the removal of fiscal distortions and the promotion of employment through the implementation of the revised European employment strategy;
to promote sustainable development and strengthen social and economic cohesion balancing environmental, social and economic concerns through implementation of the EU's sustainable development strategy;
to promote a genuine immigration policy which reflects the fact that successful integration of immigrants in society is both a matter of social cohesion and a prerequisite for economic efficiency. In effect, fulfilling Lisbon economic goals of economic growth and increased employment by 2010 and beyond will notably depend on the shape and dynamics of immigration;
to ensure that the positive effects of globalisation are shared evenly between and within countries; to work for a fairer distribution of resources between the North and the South respecting their cultural diversity and environmental heritage.
b) Key Initiatives - Sustainable and inclusive economy
Provide the Commission's Spring Report for the European Council, assessing progress against the ambitious decade-long programme of economic, social and environmental change launched by the European Council in Lisbon in March 2000. This will analyse progress made, particularly in the Member States, against the concrete targets established by the Lisbon and subsequent European Councils and identify priorities for the next 12 months in order to keep the Lisbon Strategy on track. It will also include follow-up to the Johannesburg World Summit on Sustainable Development.
- Economic policies
Measures to complete the internal market for services, through measures to eliminate barriers to the provision and take-up of services from which both business and consumers can benefit, and reach final agreement on the most important measures to meet the 2003 deadline for an integrated European securities market and the 2005 deadline for an integrated Financial Services market:
Communication on the main achievements of the internal market since 1992 particularly focusing on the benefits to European citizens on the occasion of the 10th anniversary of the internal market;
Implementation of the new Framework Programme 'Intelligent energy for Europe;
Adoption of the remaining actions in the Financial Services Action Plan;
Implementation and management of the new Regulatory Framework for electronic communication Services (including spectrum management);
Green paper launching a debate on our role in ensuring the wide availability of high quality services of general interest for all citizens, and in particular on the possibility to consolidate and specify principles on services of general interest in a framework directive.
Measures to enhance competitive conditions in the internal market, in particular through modernisation of competition policy instruments including state aid and tax measures:
Implementation of new measures to ensure modernisation and effective enforcement of anti-trust, merger and state aid rules, in particular regarding further liberalisation of the postal and energy sectors;
Green Paper on entrepreneurship to stimulate discussion of Europe's competitiveness;
Proposal for a Directive on fair trade;
Measures to ensure co-ordination of national fiscal systems;
Legislative and non-legislative measures that will adapt the VAT system to the modern economy, in particular to e-commerce.
Initiatives to improve economic policy co-ordination, in particular budgetary policies, to ensure that Member States achieve and sustain sound budgetary positions and to secure the smooth functioning of Economic and Monetary Union:
Reinforcement of existing coordination mechanisms and enhancement of the efficiency of policy co-ordination through a better and more clearly defined policy coordination cycle with increased focus on implementation (streamlining);
Further improve implementation of the Stability and Growth Pact, inter alia by developing the surveillance of budgetary policies and encouraging commitments by Member States on common standards to strengthen the efficiency and credibility of the Pact;
Implementation of the new streamlined economic policy-co-ordination cycle.
Initiatives to promote the knowledge-based society in particular through the development and implementation of an integrated strategy for a European knowledge area and eEurope:
Implementation of the joint Commission/Council work programme on objectives for education and training systems in Europe;
Implementation of the 'Information society for all' notably through e- EUROPE 2005;
Measures to develop good practices in life-long learning and e-learning;
Proposals for focused action to increase research investment in Europe to reach the objective of 3% of GDP set by the Barcelona Summit;
As a major contribution to the European Research Area, launching of the sixth framework programme for research and technological development, including proposals for further guidelines on bioethical principles;
Adoption of a new action programme on e-learning that will integrate new technologies in education and training.
- Other internal policies
Measures to ensure sustainability and coherence in and between a number of key internal and external policies, notably agriculture (CAP mid-term review), fisheries, environment, transport, energy, migration, cohesion policy and Structural Funds (third report on cohesion policy), food safety, communicable diseases and public finance in the context of monetary union as well as effective follow-up to the Göteborg Conclusions; improve implementation of Community-wide environmental legislation; measures to create the necessary environment for consumer confidence in cross-border transactions and to pursue the continuing expansion of trans-European transport and energy networks:
Further to the mid-term review of the CAP, the Commission will table proposals for review of other sectors. This concerns wine, sugar, olive oil, tobacco, cotton and possibly other products;
Legislative proposals and measures to implement the Fisheries reform such as setting up the first Regional Advisory Councils, establishment of a Joint Community Inspection Structure for Fisheries, establishment of multi-annual management plans for some major fisheries stocks and proposals for the necessary implementing measures for the application of the new fleet policy;
Third Cohesion Report at the end of 2003 including, as appropriate legislative proposals for the Structural Funds after 2006;
Implementation of the Regulatory Framework for Food Safety and proposal for a regulation on nutrition, functional and health claims made on food;
Preparation and implementation of the 7 thematic strategies, in particular on the sustainable use of natural resources and on the urban environment, within the 6th Environmental Action Programme;
Proposals for integrated product policy, a new chemicals strategy and finalising risk reduction measures required under existing legislation for dangerous substances;
Preparation and implementation of an action plan on clean technologies for growth and development;
Effective application of the new impact assessment tool to achieve better lawmaking and progress towards sustainable development;
Implement the new European Union Solidarity Fund to help victims of major disasters;
Cost-related measures in support of sustainable development particularly in relation to environment, energy and transport policies (in the light of reactions to a methodology paper in the case of transport).
Implement the Social Policy Agenda, combining all Community instruments (open method of co-ordination, legislation, social dialogue, and support via the Structural Funds) so as to help achieve the strategic objectives set at the Lisbon European Council:
Adoption of a Communication on the mid-term review of the Social Policy Agenda;
Effective implementation of the open method of co-ordination by the adoption of a revamped employment package, a second joint report on social inclusion and the launch of this working method in the field of pensions;
Ensure appropriate follow-up of ongoing social partners' consultation according to article 138 of the Treaty on data protection of workers, social aspects of corporate restructuring and portability of supplementary pensions;
Elaboration of a Communication on the interaction between immigration, employment and social policy, at European level, bearing in mind the situation of the national labour markets (to be seen in conjunction with 2.2, b), 3, 1st bullet).
- External dimension
Implement the Cotonou Agreement and Asia-Latin America programmes with a view to effectively reducing poverty, with special emphasis on reaching the Millennium Development Goals, in particular those relating to health and education, and by reducing the debt burden in the context of the HIPC initiative:
Finalisation of the ACP partnership agreements and implementation of programmes. Implementation of programme on communicable diseases;
Negotiation of Economic Partnership Agreements with ACP countries.
Intensify our dialogue with Africa, by supporting the African Union in its efforts to bring governance, peaceful co-existence, and sustainable development to Africa, and by making a success of the Lisbon EU-Africa Summit in April 2003
Intensify the Doha trade round negotiations, by ensuring a successful WTO ministerial in Cancun in September 2003, so as to ensure respect of the end-2004 deadline for the conclusion of the negotiations.
In the external relations context, continue bilateral negotiations with Mercosur, the African, Caribbean and Pacific States, the Gulf Co-operation Council and the Mediterranean countries. Review EU relations with South East Asia.
Ensure coherence between the European Union's internal policies and the external relations and cooperation policies in a way that ensures the right balance between our economic interests and the best developmental and environmental results, while facilitating trade with and amongst our partner countries.
The corresponding legislative proposals and non-legislative acts appear in the first part of the list attached to the Work Programme, identified by the key “300”.
3. EXTENDED IMPACT ASSESSMENT OF SELECTED PROPOSALS
In June 2002, the Commission established a new integrated procedure for impact assessment to improve the quality and coherence of the policy development process. This procedure is designed to assess the impact of proposed Commission actions, by rendering systematic the examination of the principles of subsidiarity and proportionality in operational terms and by analysing the balance between the economic, social and environmental components of sustainable development. As agreed at the European Council in Seville, the Commission would start implementation of impact assessment already in 2003.
The new procedure integrates, reinforces, streamlines and replaces all existing separate impact assessments previously used for Commission proposals. It will be applied to all major proposals adopted by the Commission in the Annual Policy Strategy and/or the Work Programme, be they regulatory proposals or other proposals that have an economic, social and environmental impact. Although the approach is new, however, the implementation of the new procedure builds on existing practices and knowledge. The procedure will be implemented gradually and become fully operational in the 2004 strategic planning and programming cycle which will start with the adoption of the Commission's 2004 Annual Policy Strategy in February 2003.
With a view to an early application of this instrument, the Commission has decided to select a certain number of proposals from the 2003 Work Programme for an extended impact assessment. These proposals are listed in Annex 2. As it has not been possible to establish a preliminary impact assessments for the first phase, the Commission has based its selection on the importance of the proposals selected in relation to the political priorities, on the feasibility for services to perform the assessment in the short-term using existing research and work already undertaken, and on the need to maintain a balance between different types of proposals and the involvement of a broad range of services. The number of impact assessments has been limited to what can be delivered during this first phase in the implementation. It is understood that the impact assessments will be carried out with the flexibility and pragmatism required, and, as appropriate, will take into account studies or analytical work already undertaken. It is also understood that the selection of the extended impact assessments listed in Annex 2 does not release the Commission services from the normal preparatory steps for legislative proposals, which include the analysis of their impacts, to be done in a proportionate fashion.
In future, a short preliminary impact assessment will be established early in the policy formulation process as a condition for inclusion of a legislative or policy proposal in the Annual Policy Strategy and, at the latest, before inclusion in the Work Programme. These preliminary impact assessments will enable the Commission to decide which proposals should undergo an extended impact assessment.
The Commission will select proposals for extended impact assessment, based among other criteria on whether the proposal will result in substantial economic, environmental and/or social impacts on one or more of the key sectors, on whether it will have a significant impact on major interested parties, and on whether it represents a major policy reform.
The purpose of the extended impact assessment is to carry out an in-depth analysis of the potential impacts as well as to consult with interested parties and relevant experts according to the Commission's minimum standards for consultation.
4. DIALOGUE WITH THE EUROPEAN PARLIAMENT AND THE COUNCIL: STOCKTAKING AND PROSPECTS
The Commission's Legislative and Work Programme represents an important contribution to the work of other EU institutions in 2003. In January this year, the Commission and the European Parliament agreed a timetable for discussion of the Annual Policy Strategy and the Legislative and Work Programme. This process has been respected. The Commission has discussed the political priorities and developed the key initiatives through a dialogue with both the European Parliament and the Council. Both institutions welcomed the priorities proposed by the Commission and took note of the key initiatives. The Commission, for its part, has reflected their observations in its Legislative and Work Programme.
The Commission therefore invites the European Parliament, the Council, the Economic and Social Committee and the Committee of the Regions to take account of the priorities, key initiatives and specific proposals presented in this Legislative and Work Programme when planning their work for 2003.
As far as the Council is concerned, as agreed at the Seville European Council, it will for the first time adopt an annual operating programme in December, taking into account the results of the dialogue with the Commission.
This Legislative and Work Programme represents the Commission's contribution to the Council's annual operating programme for 2003.
The Commission therefore invites the Council to take into account the priorities and key initiatives presented in this Work Programme and to plan discussion of the specific new proposals and non-legislative acts shown in the first list attached to this Work Programme.
When preparing its annual operating programme, the Commission also invites the Council to ensure discussion and adoption of major proposals that the Commission has already presented. These are listed in Annex 3 of this Work Programme. The Commission also looks forward in the course of 2003 to working with the Institutions and the Presidencies to elaborate the first multi-annual strategic programme of the European Council.
It should be recalled that the High Level Technical Working Group on Interinstitutional Co-operation is currently examining Parliament's request to be involved in the annual Council programming can be taken into account in the context of discussions on the Interinstitutional Agreement following the Seville European Council. The Commission fully supports the establishment of an agreement between the three institutions, which would help to develop a more integrated and coherent political planning process for the European Union.
5. CONCLUSIONS
2003 will be a crucial year for the European Union. The overarching task in 2003 will be the definition of the architecture of the enlarged Europe. In this respect, the Commission will assume its responsibilities, notably by contributing actively to the work of the Convention. Beyond this, the major challenges for the development of the Community policies are clear:
The European Union has to complete its own preparations for enlargement, the candidate countries have to be ready to assume their responsibilities, and the EU has to ensure that its policies are well adapted to the needs of an enlarged Europe.
Stability and security will remain major preoccupations for the European Union, not least because of the continued threat of terrorist activity and uncertainty about developments in the Middle East and other regions. The European Union has to play its part by ensuring peace and stability for its own citizens and working with the international community to achieve this for other regions.
The European Union will have to consolidate progress towards its strategic goal of developing a sustainable and inclusive, knowledge-based economy, meeting the ambitious targets which it has set itself and working to achieve the goals set by the international community, notably at Johannesburg, Monterrey and Doha.
The Commission is determined to play its full part in meeting these challenges, but they will, more than ever before, require coherent and integrated implementation of agreed priorities by all EU institutions.