1. Implementing the Single Act
Follow-up to the Copenhagen European Council
1.1.1. The Copenhagen European Council on 4 and 5 December achieved some substantial progress in the preparation of a full agreement on the three reforms proposed by the Commission (of the common agricultural policy, the structural Funds and the Community budget). [Footnote 1: Bull. EC 7/8–1987, point 1.1.1 et seq.] However, since total agreement could not be reached, it was thought preferable not to issue any conclusions and to meet again in Brussels on 11 and 12 February rather than undermine the logic of the Commission's series of proposals. It did, however, adopt declarations on East-West relations, Afghanistan and the Middle East (&arrow;point 2.4.1).
Schlüter and Delors report to Parliament
1.1.2. Mr Poul Schlüter, President of the Council, and Mr Jacques Delors, President of the Commission, reported on the work of the European Council to the December part-session of Parliament. [Footnote 2: For Parliament's opinions on the Commission's proposals, see Bull. EC 11–1987, point 1.1.1 et seq.]
Extracts from Mr Schlüter's speech
1.1.3. ‘… The meeting of the European Council on 4 and 5 December 1987 was a disappointment … The fact of the matter is that there has to be a decision on the future financing of the Community…
There is no way around it. Which is why both the Community and the Member States had been determined that a decision should be reached on this occasion. This would have resolved the current problems of Community financing. This would have provided a financial framework for the development of the Community. This would have laid the foundation for a renewed cooperation centred on economic and social interdependence and the establishment of new common policies.
At the meeting of the European Council the Danish Presidency made extensive and wide-ranging proposals which followed the main lines and basic ideas of the Commission's memorandum on long-term financial reform which was to provide the framework for the Community's development for the next five to six years …
The Danish Presidency's memorandum to the meeting contains proposals for resolving all the main aspects of relevance to the matter of the Community's future financing.
Agricultural policy
… There is a need to reintroduce pricing as an instrument and make agricultural policy more market-oriented. Such a step must be accompanied by increased use of set-aside arrangements as well as other means available for agricultural policy.
The vital sector is cereals and also oilseeds and protein products, and it was in this sector that the Presidency tried to obtain a breakthrough in the negotiations on the basis of the model I have just outlined.
It was not a success. Some Member States thought that the Presidency's memorandum went too far; others, that it did not go far enough. Strictly speaking this should have led to the natural conclusion that the Presidency's memorandum was therefore the only possible basis for a compromise, but the delegations maintained their standpoints…
We [Danes] are ourselves agricultural producers. It was therefore not easy for us to put forward proposals which will undoubtedly be painful for the agricultural sector and in our own country as well. We dit it none the less, because it was necessary …
Budgetary discipline
Budgetary discipline must be an accompaniment, a complement or – if you wish – a safety net for the actual reform of the agricultural policy itself.
It was our intention in this way to preserve the common policy and ensure, by adjusting the common agricultural policy, that it remains under control.
This was our principal objective. A reform of the policy itself with budgetary discipline as a supporting factor …
As far as non-compulsory expenditure is concerned, the Presidency proposed a solution which [end p1] would make it possible to realize the objectives of the Single European Act and enlarge the Community by establishing new common policies. The Presidency was anxious that the European Parliament's powers as regards the budget should be respected, and this point was included in its draft conclusions.
The Community's three structural Funds
… The Danish Presidency had hoped that it would be possible at the meeting in Copenhagen to take a decision on starting the process which has become necessary following enlargement to include these three Member States (Greece, Spain and Portugal) and which will inevitably hinge on the question of the appropriations to be allocated to the Community's three structural Funds.
Adjustment of financing arrangements
The European Council agreed at its meeting in Brussels that the financing arrangements should take greater account of the relative prosperity of the Member States.
This question was also included in the Danish Presidency's draft conclusions based on the fundamental idea of determining additional financial resources for the Community according to the Member States' respective shares in the Community's overall gross national income.
Financing framework
The Danish Presidency agreed with the Commission on the need for a substantial increase in the overall financing framework.
There would not otherwise be any basis for developing the Community for another five or six years.
Budgetary distortions
It may be regrettable, but it is a political reality that it is necessary to find a solution to the problem of budgetary distortions. The Danish Presidency was prepared to solve this problem in the same way as the other problems.
I feel the overall approach would have constituted a reasonable compromise between the various interests prevailing in the Community.
The failure to achieve a result was not the fault of one or more Member States or of any particular factor. It occurred because certain Member States did not wish to cut the Gordian knot and take the necessary political decisions at this time. Member States apparently needed time to think about the consequences of agreement and to work out the economic and financial implications. This was something which could not be done within the period of time available for a single meeting of the European Council. The negotiations must therefore be resumed at a further meeting of the European Council under the German Presidency …
It was disappointing that there was not the necessary political will at the European Council to solve the fundamental problems of the Community. On the other hand, it was gratifying to see that political cooperation between the 12 Member States has now progressed enough to make it possible even in the present situation to reach agreement on a number of major declarations on fundamental international questions which are of immediate importance to the Twelve (&arrow;point 2.4.1).
But it is an art to persuade a whole series of independent nations to cooperate. It is highly appropriate to speak of the art of cooperation.
That art is much needed now. No one can get his own way if the Community's current problems are to be solved. We must all show flexibility and a will to negotiate …
The Community cannot stand still. It must develop. It must have the dynamic driving force that makes it possible to adopt new policies and find new solutions.’
Extracts from Mr Delors' speech
1.1.4. ‘… This Community of Twelve is only two years old but has already reached the moment of truth … Where does that leave us after what I might call the “unfinished Copenhagen summit”? What is the state of discussions on the Commission's proposals? …
There has undeniably been progress on agriculture. The three fundamental thrusts of the common agricultural policy have been … agreed. Namely the need to match production to internal and external demand, defence of the rural milieu and of family farms … the success of a firm and resolute policy towards non-member countries.
But, faced with the problem of cereals, … the Council ascertained that there had been no convergence of positions on the guarantee threshold, the respective roles of prices, co-responsibility levy and intervention. A number of Member States, furthermore, were denying the Commission the administrative powers with which, under the [end p2] supervision of the Council of Ministers, it could have enforced budgetary discipline in the agricultural sector.
As for the areas of disagreement, these were concerned largely with the new structure of own resources and financing of the related policies and thus with the total amount of funds which should be made available to the Community between now and 1992 …
But there was also a lack of understanding at this European summit … all the more hard to comprehend in that the Commission's proposals were known seven months beforehand …
There was silence in response to Parliament's offer of an interinstitutional agreement consistent with the spirit and broad lines of the Commission's proposal. … The Commission brought it to the attention of the European summit, but Lord Plumb did so before me and spoke most eloquently of the political importance and innovative character of your initiative …
There are lessons to be learned about the Community's methods of work. Let me quote here … the limits placed by the governments on the work of Coreper …, the solitary course pursued by certain ministers, the inflexibility of attitudes during the meetings … All this meant that all the issues were left to the European summit despite … the efforts which the Danish Presidency made to reduce the number of options to be discussed by the Heads of Government. … Turning now to matters of substance, I have to say that the Commission has heard nothing which might lead it, in the interests of making the next summit a success, to change the essential thinking behind its proposals or their substance. No Member State has … come up with a coherent counter-proposal …
The final compromise has to be centred on the document “The Single Act: A new frontier for Europe” and … on the joined position adopted by Parliament and the Commission. But it is a dynamic compromise which provides the Community with every chance to achieve the five objectives of this new frontier by 1992 … the large single market without frontiers, economic and social cohesion, substantially strengthened monetary cooperation, common policy on research and technology, the European social area …
If [the governments] are at all willing to remember that they have signed the Single Act, if they are at all willing to be broad and enlightened in their outlook, success is still possible.’
1.1.5. In view of the failure of the efforts of the Danish Presidency, which the Commission had itself backed, to achieve a compromise and the lack of any alternative comprehensive proposal, the Commission decided to uphold its package of proposals for giving effect to the Single Act, [Footnote 1: Bull. EC 7/8–1987, point 1.1.1 et seq.] while regarding the accepted achievements of the Copenhagen European Council as a basis for the work which could ultimately bear fruit in February.
1.1.6. Since the Council of Budget Ministers concluded on 9 December that it was unable to draw up a draft budget for 1988, the Commission, like Parliament, [Footnote 2: OJ C 20, 26.1.1988.] asked the Council to act [Footnote 3: Bull. 10–1987, point 2.4.5.] and then in December referred the matter to the Court of Justice under Article 175 of the EEC Treaty. Since there was no decision on the budget, the provisional-twelfths system came into operation on 1 January.
[end p3]4. Political and institutional matters
European political cooperation
2.4.1. At its meeting in Copenhagen on 4 and 5 December the European Council adopted three statements in the field of political cooperation:
Declaration on East-West relations
‘1. The European Council welcomes the important prospects of an improvement in East-West relations and acknowledges that the forthcoming Summit in Washington will mark a significant step forward in these relations.
2. The agreement on global elimination of United States and Soviet land-based intermediate-range nuclear missiles will be a milestone, eliminating for the first time an entire class of weapons. The Twelve hope that this agreement will enter into force soon.
They consider it essential that this achievement in nuclear arms control should give further impetus to substantive progress in the whole range of present and future bilateral US/Soviet and multilateral negotiations on arms control and disarmament.
3. The Twelve will continue to seek through the CSCE process more secure and more cooperative relations between the participating states. All the undertakings made in Helsinki and Madrid should be fully implemented.
Respect for human rights and freedom is a prerequisite for confidence, understanding and cooperation. The Twelve are determined that the Vienna meeting should benefit all individuals in the 35 countries involved.
The Twelve wish to build upon the achievements of the Stockholm Conference (CDE) and will contribute to the elaboration of a further set of confidence- and security-building measures. They will work resolutely towards a stable and secure balance of conventional forces in Europe at a lower level.
4. In all this, the Twelve will cooperate closely with other countries which share their ideals, values and objectives.’
Declaration on the Middle East
‘1. The European Council deplores the continuing absence of resolution of the crises in the Middle East.
[end p4]2. The Twelve reaffirm their willingness to develop their political dialogue with all States in the Middle East. They also wish economic cooperation to progress and in particular the current negotiations on an agreement between the European Community and the countries of the Gulf Cooperation Council to be completed rapidly.
3. The European Council expresses its profound concern about the continuation of the war between Iraq and Iran and reiterates its firm and whole-hearted support for Security Council resolution 598 as the means to bring an end to this armed conflict. The Twelve continue to give their unreserved and strong support to the efforts of the United Nations Security Council and the Secretary-General to obtain the immediate and full implementation of this resolution. Continued noncompliance with this mandatory resolution is not acceptable to the world community and the appropriate action should now be taken to enforce its implementation by means of a follow-up resolution.
4. The Twelve confirm their desire for a negotiated solution to the Arab-Israeli conflict which would bring to the region a just, comprehensive and lasting peace in accordance with the principles set out in the Venice Declaration, and reiterate their support for an International Peace Conference under the auspices of the United Nations. They welcome the endorsement given to such a conference by the Arab League Summit in Amman under the chairmanship of King Hussein of Jordan. They call for renewed efforts by all concerned to reach agreement on arrangements for the conference to be held as soon as possible.
The Twelve reiterate their preoccupation about human rights and living conditions in the Occupied Territories. Without prejudging future political solutions they will continue to contribute to the economic and social development of those territories.
5. The European Council remains deeply concerned about the situation in Lebanon. It calls for a peaceful solution to the Lebanese crisis which should be based on the independence, unity, sovereignty, territorial integrity and national reconciliation of that country. The Twelve reaffirm their support for Unifil and call on all concerned to support the force and to allow it to fulfil its mandate unobstructed. They reiterate their condemnation of the continuing detention of hostages and victims of kidnapping in Lebanon, and call for their immediate release.’
Declaration on Afghanistan
‘The European Council examined the situation in Afghanistan, which remains an important source of international tension eight years after the invasion by Soviet troops. The Twelve pay tribute to the Afghan people's spirit of independence. They also acknowledge the courage of the people of Pakistan, which has suffered so much as a result of this conflict, and the generous assistance provided by that country to more than 3 million Afghan refugees.
The Twelve support the persistent efforts by the UN Secretary-General and his personal representative to find a negotiated solution which would put an end to the tragic human suffering and the continuing violations of human rights in Afghanistan, allow the refugees to return and restore Afghanistan as a genuinely independent and nonaligned country. The principles which must underlie a settlement have once more been overwhelmingly endorsed at this year's UN General Assembly.
The Twelve take note that Soviet leaders have announced their intention to find a political solution in Afghanistan. They believe there should now be an urgent new impetus in the peace negotiations and call on the Soviet Union to:
(i) withdraw all its troops by a date in 1988 according to a fixed timetable;
(ii) agree to the establishment of a transitional government, whose independence could not be contested, to make preparations for a new constitution and a genuine act of self-determination;
(iii) recognize that the participation of the Afghan resistance is essential to a comprehensive political settlement.
The Twelve remain ready to contribute constructively towards the achievement of an acceptable settlement, which would bring about a significant improvement in international relations.’
2.4.2. On 8 December the Presidency published the following statement by the Twelve on Haiti:
‘The Twelve have publicly expressed their hope that, after many years of dictatorship, the elections in Haiti scheduled for 29 November 1987 would finally allow the Haitian people to choose their representatives freely. They are deeply concerned by the bloodshed which led to the suspension of the electoral process.
The Twelve strongly condemn the acts of violence, which are the responsibility of the adherents of the former dictatorship. If they are not met by firmness on the part of the security forces, they will undermine hopes of a return to democracy.
The Twelve hope that free elections, respecting the procedures laid down in the Constitution, can be held in the very near future. To this end, they [end p5] urge all those involved to support a genuinely democratic election to be organized and held in an atmosphere of peace and stability.’
2.4.3. On 14 December the Presidency sent the following message of congratulations to the summit meeting of the Association of South East Asian Nations on behalf of the Twelve:
‘On the occasion of the 20th anniversary of the foundation of the Association of South East Asian Nations and its third summit conference the 12 Member States of the European Community send their warmest congratulations to the Presidency of Asean and convey their best wishes for success to the Heads of State and Government assembled in Manila.
Twenty years of Asean means 20 years of peace and solidarity among its Member States, 20 years of increasing political and economic influence for Asean both regionally and worldwide, and 20 years of cooperation and prosperity.
The Twelve are confident that the proceedings of the summit conference will contribute to further progress and stability in South-East Asia and foster fruitful regional and international relations. They hope the summit will succeed in its endeavours to add impetus to the economic cooperation within Asean.
They welcome the increasingly intensive dialogue which has developed between the European Community and Asean. They are looking forward to their next ministerial meeting in May 1988 in Düsseldorf, which they are convinced will further intensify the political and economic cooperation between the two regional organizations.’
2.4.4. On 18 December the ‘Troika’ (representing the last, present and next Council Presidents) approached the Israeli authorities in connection with the situation in the occupied territories. The Presidency then published the following statement to the press:
‘On instruction by the Governments of the 12 Member States of the European Community, the Danish Ambassador in Tel Aviv, accompanied by his Belgian and German colleagues and the representative of the Commission, today expressed to the Israeli Government the deep concern of the Twelve about the rapidly and seriously deteriorating situation on the West Bank and in the Gaza Strip.
The Twelve urgently called upon the Israeli authorities to assure the immediate protection of the inhabitants of the occupied territories, in compliance with international law and human rights standards.’
2.4.5. On 18 December the Presidency published the following declaration by the Twelve on Ethiopia:
‘In their declaration of 13 November the Twelve expressed their concern over the obstacles facing the distribution of food aid in Ethiopia. While welcoming the recent establishment of the emergency air-lift, they recognize that the smooth and uninterrupted movement of humanitarian supplies by land remains essential. In this context and in the light of renewed attacks on food convoys, they appeal to all concerned to take the necessary actions to secure free passage for international relief in the drought-affected areas of Ethiopia, in order to feed those most seriously affected as close as possible to their homes and to avoid the creation of refugee flows. The Twelve also reiterate their call, in the Foreign Ministers' statement of 21 July 1986, for further steps to be taken by the governments concerned in the Horn of Africa to achieve the peaceful settlement of internal conflicts and the full respect of human rights.’
2.4.6. On 19 December the Presidency sent the following statement by the Twelve on the presidential election in Korea to the Korean authorities. The statement was then published.
‘On the occasion of the presidential election in the Republic of Korea on 16 December the 12 Member States of the European Community convey their congratulations to the President designate, Mr Roh Tae Woo.
The Twelve see the presidential election with universal suffrage as a further step forward in the process of democratization of Korean society. They welcome the progress made in this respect since last summer.
They expect that as President, Mr Roh will work relentlessly to fulfil the aspirations of his countrymen for genuine democracy and respect of human rights when he assumes responsibility next February.’
2.4.7. At its December part-session Parliament passed a number of resolutions on political cooperation and the defence of human rights (&arrow; point 2.4.21). [Footnote 1: OJ C 13, 18.1.1988.]