The European Commission.

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The European Commission

by Neill Nugent

Chapter 1        Introducing the Commission

Two distinct levels: College and the services

The College of Commissioners: 20 members (two from F, D, I, SP, UK and one from each of the other ten). College: sits at the apex of the Commission. Approval is necessary for all major initiatives and decisions in the Commission’s name. Strong tendency towards consensual decision-making. Members of the College hold policy portfolios (responsible for particular areas of policy). Commissioners = the most senior figures in the Commission.

The services: 21 000 full-time employees (small). Commission’s administration is sub-divided. Main sub-units: Directorates General (DGs). Numbers are subject of periodic change, in the recent years: 20 – 25. Other sub-units: special services.

The Commission’s multi dimensional nature: composed of many parts contains wide range of different views and interests. Commission = complex “multi-organisation” (Cram). Sometimes tension and friction between the political (College) and administrative (services) arms. College: sometimes tensions and frictions, especially in the cross-sectoral policy areas, over who is responsible for particular aspects of policy. Services: common problem is differences between DGs over policy priorities and policy methods.

 

Functions of the Commission: Commission = Position at the heart of the EU system of governance. At least some involvement with every aspect of EU affairs. Direct participant at virtually every stage of EU policy and decision-making. Central position → wide variety of functions. Article 211 (TEC) states that the Commission amongst other things shall formulate recommendations or deliver opinions.

The nature of the functions:  Main functions:

Policy initiator: Commission promotes and develops many of the policy initiatives that are launched at the EU level (“driving force behind European integration”)

Legislative functions: in several ways crucial to the making of EU legislation

1.) exclusive right to draft legislative proposals (few exceptions). 2.) alone of the EU institutions the Commission is represented at and can contribute to all legislative stages → ideally placed to undertake conciliation and brokeraging. 3.) It can employ useful power resources as proposals make their way through legislative processes. 4.) most administrative legislation is not subject to a full legislative examination but is made in the name of the Commission

● Executive functions: executive responsibilities of a number of different kinds. Most part: setting out the ground rules and monitoring and coordinating the activities of others than directly implementing policies and laws itself. Main responsibility for the implementation of EU policies and laws. Only major policy area where it carries out extensive direct implementation responsibilities: competition policy. Where it is not the direct implementer it still has executive responsibilities to perform. Two of them are especially important: 1.) Commission draws up and issues administrative legislation: detailed rules that it is not possible to incorporate in treaties or primary legislation 2.) ensure that policies are applied in a reasonably consistent manner throughout the EU, it attempts to supervise the outside agencies that are responsible for most direct implementations.

● Legal guardian: legal guardianship function in association with the European Courts: involves ensuring that the EU’s treaties and legislation are respected

● External representative and negotiator: many external responsibilities on behalf of the EU. Main point: sphere of trade

● Mediator and broker:. Commission = best placed actor to perform these functions → three reasons: 1.) obliged by the treaty to be non-partisan in its behaviour and actions,

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2.) best position to judge how a problem can be resolved, because of the Commission’s knowledge of the nature and functioning of the EU. 3.) embedded in the internal culture and thinking of the Commission are attitudes that help to underpin the exercise of these functions.

● Mobiliser: mobilise support for initiatives. Commissioners and their representatives meet with decision-makers, opinion formers and the leader of important interests.

Tensions between functions: main tension: between beeing a promoter of integration, (dynamic and innovative leadership) and a policy administrator (dependent on more routine and bureaucratic capacities). Another tension: mediating ↔ mobilising. It can ...

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