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IN-DEPTHANALYSISEPRS|EuropeanParliamentaryResearchServiceAuthor:IrmgardAnglmayerEx-PostImpactAssessmentUnitPE536.
343-April2015(revisedversion)TheEuropeanCitizens'Initiative:theexperienceofthefirstthreeyearsEuropeanImplementationAssessmentEPRS|EuropeanParliamentaryResearchServiceTheEuropeanCitizens'Initiative:theexperienceofthefirstthreeyearsIn-depthAnalysisOn18November2014,theConstitutionalAffairs(AFCO)CommitteeoftheEuropeanParliamentdecidedtoundertakeanImplementationReportontheEuropeanCitizens'Initiative.
SuchreportsarenowroutinelyaccompaniedbyEuropeanImplementationAssessments,drawnupbytheEx-PostImpactAssessmentUnitoftheDirectorateforImpactAssessmentandEuropeanAddedValue,withintheEuropeanParliament'sDirectorate-GeneralforParliamentaryResearchServices.
ThecurrentpaperisanupdatedversionoftheanalysiswhichhadbeenpreparedfortheAFCO/PETIPublicHearingontheimplementationoftheRegulationontheEuropeanCitizens'Initiative,on26February2015,bytheEx-PostImpactAssessmentUnit.
Ittakesintoaccounttheoutcomeofthishearing,theconclusionsoftheEuropeanOmbudsman'sinquiry,andthefirstreportoftheEuropeanCommissionontheapplicationoftheECIRegulation.
AbstractTheEuropeanCitizens'Initiative(ECI)hasbeeninoperationsinceApril2012.
Observershaveidentifiedanumberofshortcomingsinitsimplementation,whichimpactnegativelyontheeffectivenessandacceptanceofthisrelativelynewinstrumentoftransnationalparticipatorydemocracy.
Againstthisbackground,stakeholdersarecallingforsimplificationandasubstantialrevisionofthecurrentECIframeworkanditsapplication,includingitsimplementationintheEUMemberStates.
On31March2015,theCommissionpresenteditsfirstreportontheapplicationoftheECIRegulation.
WhileitconcludedthatitconsideredtheECItobefullyimplemented,ithoweverlistedafewareasforimprovement.
Itiswidelyexpectedthatthisreview,togetherwiththeEuropeanOmbudsman'srecentrecommendations,willpromptarevisionofthatregulation.
ThispaperseekstoprovideasystematicoverviewofthecurrentweaknessesintheECIprocessandputsforwardconcreterecommendationsforabetterfunctioningECI.
PE536.
3432AUTHORIrmgardAnglmayer,Ex-PostImpactAssessmentUnitABOUTTHEPUBLISHERThispaperhasbeendrawnupbytheEx-PostImpactAssessmentUnitoftheDirectorateforImpactAssessmentandEuropeanAddedValue,withintheDirectorate–GeneralforParliamentaryResearchServicesoftheSecretariatoftheEuropeanParliament.
TocontacttheUnit,pleaseemailEPRS-ExPostImpactAssessment@ep.
europa.
euLANGUAGEVERSIONSOriginal:ENThisdocumentisavailableontheinternetat:www.
europarl.
europa.
eu/thinktankDISCLAIMERThecontentofthisdocumentisthesoleresponsibilityoftheauthorandanyopinionsexpressedthereindonotnecessarilyrepresenttheofficialpositionoftheEuropeanParliament.
ItisaddressedtotheMembersandstaffoftheEPfortheirparliamentarywork.
Reproductionandtranslationfornon-commercialpurposesareauthorised,providedthesourceisacknowledgedandtheEuropeanParliamentisgivenpriornoticeandsentacopy.
ManuscriptcompletedinApril2015.
BrusselsEuropeanUnion,2015.
PE536.
343ISBN:978-92-823-6604-2DOI:10.
2861/814242CAT:QA-02-15-143-EN-NPE536.
3433ExecutivesummaryTheEuropeanCitizens'Initiative(ECI)wasintroducedbytheLisbonTreatyasaninnovativeinstrumentfortransnationalparticipatorydemocracy.
Itaimstoinvolvecitizensinpoliticalagenda-settingatEUlevel,byprovidingthemwithanindirectformoftherightoflegislativeinitiative.
OperationalsinceApril2012,thetrackrecordoftheEuropeanCitizens'Initiativeappearsmixed:whileahighnumberofinitiativeshavebeenputforward,onlyafractioncompliedwiththeconditionsandrequirementssetoutintheECIRegulation.
Theregistrationcriteria,andnotablytheirrigidapplicationbytheCommission,provedtobeaparticularhurdleformanyECIs.
Sofarthreeinitiatives–of51proposed–havepassedthe1millionsignaturethreshold.
Observersconsidertheirfollow-upbytheCommissionasalitmustestforthefutureacceptanceoftheECIamongstcitizens.
Thelowpercentageofsuccessfulinitiativesraisesthequestionofhowwelltheinstrumentisfunctioning,andwhethertheobjectivessetoutintheECIRegulationhavebeenachieved.
WhilebroadlywelcomingtheECItoolasamilestonetowardsreinforcingEuropeancitizenship,ECIorganisers,NGOs,EUactorsandscholarshavevoicedseriousconcernsabouttheimplementationoftheECIbyboththeCommissionandtheMemberStates.
TheyhaveidentifiedagreatnumberofshortcomingsintheECIprocessthatimpactnegativelyontheusabilityandhencesuccessoftheinstrument;thesearediscussedindetailinthispaper.
Whatwasoriginallyintendedtobeasimpleanduser-friendlytoolforallEUcitizenshasturnedouttobecumbersomeandchallenginginitsuse.
NotablyinrespectofsupportinganECI,MemberStates'greatlyvaryingrulesledtoanover-complexsystemofmultiplesetsofnationalrequirementsforpersonaldata.
Theserulesnotonlydetercitizensfromsupportingindividualinitiatives,theyalsodisenfranchiseafewmillioncitizensfromtheirrighttoparticipate.
TheEuropeanParliamenthasbeenastrongsupporteroftheECIsincetheverybeginningofthedebateonitsestablishment.
TheParliament'sPetitionsCommitteeiscloselymonitoringtheimplementationoftheECI.
Togetherwithotherstakeholders,itcallsontheCommissionandMemberStatestosimplifytherequirementstomakethetoolbetterwork,andurgestheCommissiontoreconsideritsrigidapproachwithregardtotheadmissibilitytestforproposedECIs,whichhassofardismissednearly40percentofallproposedECIsbeforetheyevenhadachancetostimulatepublicdebate.
Stakeholdershavecomeupwithconcreterecommendationsonhowtoadjusttheinstrument,tomakeitworkmoreeffectively.
Threeyearson,on31March2015,theCommissionissueditsfirst–andratherformalistic–reportontheapplicationoftheECI,whereitconsiderstheECItobefullyimplemented.
Nonetheless,itacknowledgesanumberofchallengeswhichrequirefurtherimprovement.
ItiswidelyexpectedthatthisreviewisthefirststeptowardsarevisionoftheECIRegulation,inlinewiththeBetterLaw-Makingprincipleofseekingto'evaluatefirst'beforeamendmentsareproposedtoexistinglegislation.
PE536.
3434TableofcontentsExecutivesummary.
3Introduction.
51.
TheECI'slegalframework.
72.
Statisticaldata.
83.
IssuesofconcerninthevariousstagesoftheECIprocess.
93.
1.
Generalissues.
93.
1.
1.
PublicawarenessoftheECIinstrument.
93.
1.
2.
InformationandadviceforECIorganisers.
103.
1.
3.
Translationandfunding.
103.
1.
4.
ConflictofinterestattheCommission113.
2.
FormingaCitizens'committee(Stage1)113.
2.
1.
Legalstatusandliability.
123.
3.
Registration(Stage2)123.
3.
1.
Legaladmissibility.
123.
3.
2.
ThespecificcaseofproposalsentailingTreatyamendments.
.
.
.
.
153.
4.
Collectionofsignatures(Stage3)163.
4.
1.
Statementsofsupport:aconfusingsetofnationalrulesandpersonaldatarequirements.
163.
4.
2.
MinimumagetosupportanECI.
183.
4.
3.
Onlineversuspapercollectionofsignatures193.
4.
4.
OnlineCollectionSystems.
203.
4.
5.
Timingandtimespantocollectsignatures.
223.
5.
Verificationofsignatures(Stage4)223.
6.
SubmittingtheECItotheCommissionandfollow-up(Stage5)234.
Follow-uptothethreesuccessfulECIsRight2Water,OneofUsandStopvivisection.
244.
1.
Right2Water.
244.
2.
Oneofus.
254.
3.
Stopvivisection.
265.
TheEuropeanParliament'sroleandposition.
266.
RecommendationsforabetterfunctioningECI.
287.
Mainreferences.
308.
Annex:ListofallECIstodate.
31TheEuropeanCitizens'Initiative:theexperienceofthefirstthreeyearsPE536.
3435IntroductionTheEuropeanCitizens'Initiative(ECI)wasinstitutedbytheTreatyofLisbonasaninnovativeinstrumentoftransnationalparticipatorydemocracy.
AimedatreinforcingEuropeancitizenship,oneofthemainobjectivesoftheECIistobringEUcitizensclosertotheEU,byprovidingthemwithanindirectrightoflegislativeinitiative.
Thisisanon-bindingagenda-settingtool,bywhichcitizenscaninvitetheCommissiontoproposealegalact,withintheframeworkoftheCommission'spowers,providedtheyfind–withinaperiodoftwelvemonths–thesupportofatleastonemillionEUcitizenscomingfromatleastonequarterofallEUMemberStates.
NationalminimumthresholdsalsoapplyperMemberStatemakingupthisquarterofthetotal,whichisestablishedasthenumberofseatsintheEuropeanParliamentforthatMemberStatemultipliedby750.
Asatransnationalinstrument,theECIisdesignedtostimulateEurope-widepublicdebatesonissuesofconcerntoEUcitizens.
Afternearlythreeyears,thetrackrecordoftheECIRegulationasregardsresorttothisinitiativeismixed:ontheonehand,theECIhasshowngreatpotential.
Withatotalof51initiativespresentedtotheCommission,thetake-upoftheECIasapolicytoolbyEUcitizensappearshigh.
ManyoftheproposedECIs(seeAnnex)intendedtopromoteEuropeansolidarityandidentity,whileasmallfractioncarriedEuro-scepticobjectives.
Theinitiativesrelatedtoawiderangeofdifferentpolicyareas,interaliasocialpolicy,environment,animalwelfare,educationorconstitutionalaffairs.
InitialfearsthattradeunionsorlobbyistswoulduseandpervertthepurposeoftheECI,whichisdesignedforusebyordinarycitizens,werenotconfirmed.
Conversely,mostECIswererunbygroupsofcitizenswithlittleornopresenceinBrussels.
ConsultantJaniceThomsonbelievesthisisbecause"powerfulgroupshaveaccesstomuchcheaperandeasierwaystoinfluenceEUpolicy".
1Ontheotherhand,outofthe51initiativesproposedtodate,onlythreemanagedtoexceedtheminimumthresholdofonemillionsignatures.
Whilemanyinitiativeswereeitherwithdrawnbytheorganisersorfailedtocollectthenecessarysupport,alargeproportion–nearly40percent–wasdeclaredlegallyinadmissiblebytheCommissionatanearlystageintheprocess,namelyregistration,whichisapre-conditionforthecollectionofsignatures.
StakeholdersexpressedtheirconcernsabouthowstrictlytheCommissionappliestheadmissibilitycheck,andthisappearstobesupportedbythefactthat,todate,sixECIorganisershavechallengedtheCommission'srefusalbeforetheEuropeanCourtofJustice,correspondingto30percentofallrejections.
ThissuggeststhattheECIinstrumenthasconsiderableweaknessesorlimitationsinitscurrentdesign.
1CarstenBergandJaniceThomson(eds.
)(2014),AnECIthatworks!
LearningfromthefirsttwoyearsoftheEuropeanCitizens'Initiative/TheECICampaign,p.
73.
EuropeanImplementationAssessmentPE536.
3436ThelowpercentageofsuccessfulinitiativesraisesthequestionofhowwelltheECIinstrumentisfunctioning,andwhethertheintendedobjectivessetoutintheRegulationhavebeenachieved,notably:-thateverycitizenhastherighttoparticipateinthedemocraticlifeoftheUnionbywayofaEuropeancitizens'initiative;-thattheprocedureaffordscitizensthepossibilityofdirectlyapproachingtheCommission,invitingittosubmitaproposalforalegalactforthepurposeofimplementingtheTreaties;-thatproceduresandconditionsrequiredforthecitizens'initiativeshouldbeclear,simple,user-friendlyandproportionatetoitsnatureastoencourageparticipationbycitizens.
However,eveniftheECIwasdesignedtobeacitizen-friendlyandsimplepan-Europeaninstrument,itrequiresnonethelessstrictproceduresandconditionsthatguaranteeitssafeuseandtheprotectionofpersonaldatathroughoutallstagesofanECI.
ThisdilemmaleadstoanumberofissueswhichECIorganisersperceivedtobechallengingandcumbersomehurdlesintheprocessofrunningtheirinitiatives.
Againstthisbackground,stakeholderscallforsimplificationandasubstantialrevisionofthecurrentECIframeworkanditsapplication,includingitsimplementationintheEUMemberStates,inordertomakethisagenda-settingtoolmoreeffectiveandaccessibletoordinarycitizens.
Inresponsetocomplaints,EmilyO'Reilly,theEuropeanOmbudsman,openedanown-initiativeenquiry2intotheeffectivefunctioningoftheECIinDecember2013.
Basedonatargetedstakeholderconsultation,sheidentifiedanumberofconcreteproblematicpoints,onwhichsheaskedtheCommissionto"takeappropriateaction".
Thisinquirywasrecentlyconcluded,puttingforwardasetofrecommendationsforfurtherimprovingtheECItool.
PursuanttoArticle22oftheRegulation,bywhichtheCommissionisrequiredtoreporteverythreeyearsontheapplicationoftheRegulation,thefirstreviewwaspresentedon31March2015.
3Thisreporttakestheformofaformalisticstock-takingexercise,addressingonlysomeofthechallengesidentifiedbystakeholders,buthowevercommittingitselftofurtherimprovingtheinstrument.
Nonetheless,itiswidelyexpectedthatthisreviewwillpromptarevisionoftheECIRegulation.
TheseexpectationsareinparticularnourishedbyCommissionFirstVice-PresidentFransTimmermans'recentcommitment:"TheECIisoneofthebuildingblocksforstrengtheningtrustintheEuropeaninstitutionsandforpromotingactiveparticipationofcitizensinEUpolicy-making.
Wemustlookforinnovativewaystoencouragegreaterandmoreeffectiveuseofthetool.
Thisisanimportantinstrument,andwemustmakesureitlivesuptoitsfullpotential.
"42EuropeanOmbudsman'sown-initiativeinquiryOI/9/2013/TNintothefunctioningoftheEuropeancitizens'initiative(ECI).
3EuropeanCommission:ReportontheapplicationofRegulation(EU)No211/2011ontheCitizens'Initiative.
COM(2015)145.
InthefollowingquotedasCommissionECIreview.
4SeeRAPIDpressrelease,31March2015.
http://europa.
eu/rapid/press-release_IP-15-4729_en.
htmImplementationoftheEuropeanCitizens'InitiativePE536.
34371.
TheECI'slegalframeworkThelegalframeworkoftheECIisconstitutedbyTreatyArticle11(4)TEUandArticle24(1)TFEUinprimarylaw,andinsecondarylawbyRegulation211/2011ontheEuropeanCitizens'Initiative(basicRegulation)aswellasCommissionImplementingRegulation1179/2011layingdownthetechnicalspecificationsfortheonlinecollectionofstatementsofsupport.
ThebasicRegulationsetsoutthedetailedrequirementsandconditionsaswellastheconcreteproceduresfortheentireprocess,fromtheregisteringandrunningofanECIuptoitssubmissiontotheEuropeanCommissionandthemandatoryexaminationprocess(seeFigure1).
Itstipulatesinteraliathatpriortoinitiatingthecollectionofstatementsofsupportfromsignatories,theorganisersofanECIarerequiredtoregistertheirinitiativewiththeCommission,providinginformationonthesubjectmatterandtheobjectivesoftheproposedcitizens'initiative.
AnyamendmenttothebasicRegulation,exceptitsannexes,issubjecttotheordinarylegislativeprocedure.
TheRegulationincludesseventechnicalannexes,which–asnon-essentialelementsofalegalact–canbeamendedbymeansofCommissiondelegatedacts.
55Someofthesehavebeenamendedinthepast:AnnexIbyCommissionDelegatedRegulations268/2012and531/2014,totakethechangesinthecompositionoftheEuropeanParliamentintoaccount,andbyCouncilRegulation517/2013pursuanttoCroatia'sEUaccession;CommissionDelegatedRegulation887/2013amendedAnnexIIandIII,thelatteruponrequestfromnationalauthoritiestochangespecificpersonaldatarequirementsonthestatementofsupportform.
Moreover,on31March2015,theCommissionadoptedadelegatedregulationamendingAnnexesIII(entailingsimplificationsforLatvia,MaltaandSwedenasregardstheirpersonaldatarequirements),V(stipulatingthatECIorganisersprovidethetotalnumberofcollectedsignaturesandthenumberofMemberStateswherethethresholdhasbeenreached,beforesubmittingthestatementsofsupportforverification,andrequiringonlyoneoftheircontactpersonstosigntheforminsteadofboth)andVII.
Thisdelegatedactisnotyetinforce.
EuropeanImplementationAssessmentPE536.
3438AnnexestotheECIregulationI.
MinimumnumberofsignatoriesperMemberStateII.
Requiredinformationforregisteringaproposedcitizens'initiativeIII.
StatementofsupportformforallMemberStatesIV.
CertificatefortheconformityofanonlinecollectionsystemV.
FormforthesubmissionofstatementsofsupporttotheMemberStates'competentauthoritiesVI.
CertificatebythenationalauthorityconfirmingthenumberofvalidsignaturesVII.
FormforthesubmissionofanECItotheCommissionAsaRegulation,theECIhas,inprinciple,generalapplication:itisbindinginitsentiretyanddirectlyapplicableinallMemberStates.
However,somesignificantprovisionsoftheRegulationarenotself-applicableandthereforerequireimplementationmeasuresatMemberStatelevelinaccordancewithnationallawandpractice.
Thesearenotablyprovisionsrequiredinrespectoftheonlinecollection(art.
6)andtheverificationofthesestatementsofsupportbynationalauthorities(art.
8).
TheECIRegulationwasadoptedon15December2010bytheEuropeanParliamentbyanoverwhelmingmajority6,whichillustratesthebroadconsensusforthisinstrumentamongstitsMembers.
Thefinalactwassignedon16February2011.
TheRegulationbecameapplicableon1April2012.
Itisdueforrevieweverythreeyears,bymeansofaCommissionreportontheapplicationoftheRegulation,totheEuropeanParliamentandtheCouncil(art.
22).
2.
StatisticaldataBy1April2015atotalof51ECIswereproposedtotheCommission.
7Strictlyspeaking,thesedifferentinitiativesnumberedinfact47,sincefourhadbeenwithdrawnandweresubsequentlyresubmittedtotheCommissionforregistration,torestartthe12-monthcollectionperiod.
8In2012,citizenswerekeentotryoutthisbrandnewinstrument:duringthefirstninemonths(ApriltoDecember)ofitsexistenceasmanyas23ECIsweretabled,nineofwhichduringAprilandMay.
ThisinitialmomentumwassubsequentlylostandtheoverallnumberofECIapplicationshassteadilydeclinedeversince,toteninthecourseof2014.
Atthesametime,theproportionofECIstowhichtheCommissionrefusedregistrationhasgrownfrom30percentin2012to50percentin2014.
ThehighrejectionratemayalsoexplainthecurrentECIfatigue.
Atpresent,onlythreeECIsareopenforsignature.
96628infavour,15against,24abstentions.
7ForacomprehensivelistofallECIstodateseeAnnexI.
8Theseare:1)SingleCommunicationsTariffAct;2)Letmevote;3)EndEcocideinEurope:Acitizens'initiativetogivetheEarthrights;and4)EuropeanInitiativeforMediaPluralism.
Moreover,outofthe47differentECIs,2hadbeenrejectedbytheCommissionandweresubsequentlyresubmittedwithmodifiedobjectives(UnconditionalbasicincomeandVitel'Europesociale!
/ForasociallyfairEurope!
).
9Theseare:AnendtofrontcompaniesinordertosecureafairerEurope(openedinOctober2014);ForasociallyfairEurope!
EncouragingastrongercooperationbetweentheMemberStatestofightpovertyinEurope(openedinDecember2014);andOntheWire(openedinFebruary2015).
ImplementationoftheEuropeanCitizens'InitiativePE536.
3439ProposedECIsperyearRegisteredRejected2012(April-Dec)23167(30%)20131798(47%)20141055(50%)2015(by1April)110(0%)total513120(39%)Source:EuropeanCommissionOutofthe31successfullyregisteredinitiatives,15wereclosedhavingreceivedinsufficientsupport,withthespanofcollectedsignaturesrangingbetweenjustafewhundredandseveralhundredthousand.
10TenECIswerewithdrawnbytheirorganisersbeforetheendofthe12-monthtimespanforcollectingsignatures.
Fromaproceduralpointofview,threeECIshavebeensuccessful.
11HoweverpoliticallytheCommission'sfollow-upinthefirsttwocasesdidnotmeettheorganisers'expectations(seechapter4).
TheinitiatorsofonesuccessfulECIevenfiledalawsuitbeforetheEuropeanCourtofJustice,requestinganannulmentoftheCommission'sofficialresponse(i.
e.
thecommunicationfollowingtheECIsubmission).
123.
IssuesofconcerninthevariousstagesoftheECIprocessThischapterexaminesthemainflawsandshortcomingsthroughouttheECIprocess,asidentifiedbyECIorganisers,NGOs,academiaandotherstakeholders,includingEUactors.
3.
1.
Generalissues3.
1.
1.
PublicawarenessoftheECIinstrumentECIorganiserspointoutthatthegeneralpublic'sawarenessoftheECIislow.
Duringtheircampaigns,manyorganiserswereconfrontedwithalackofknowledgeamongcitizens,butalsoamongmediaprofessionals,abouttheinstrument.
Inthefeedbackreportsandanalyses,NGOsandECIpractitionersconsistentlycallonEUinstitutionsandthemediatobetterpromotetheECIasatoolforastrongerdirectinvolvementofcitizens.
TheyrecommendacommunicationsandawarenesscampaigninallEUMemberStates(involvingEUofficesandrepresentationsaswellasnationalauthorities)tospreadtheconceptoftheECI,andfurthermoretoprovideinformationaboutindividualongoingECIsthroughpressreleases.
ConcretesuggestionsincludeTVspots,webcommercialsor10ForECIsthatremainbelowthe1-millionthresholdnoofficialfiguresareavailable,sincethecollectedstatementsofsupportarenotsubjecttoverification.
11Theseare:Waterandsanitationareahumanright!
Waterisapublicgood,notacommodity!
,aninitiativemostlyreferredtoasRight2Water(afteritswebsite);Oneofus;andStopvivisection.
AllthreedatefromtheearlydaysoftheECI,theywereregisteredbetweenMayandJune2012.
12CaseT-561/14–OneofUsandOthersv.
EuropeanParliamentandothers(actionbroughton25July2014).
EuropeanImplementationAssessmentPE536.
34310explanatoryleafletssenttoeveryEUhouseholdtoinformcitizensabouttheirnewbottom-uprighttoinfluencetheEUagenda.
ArecentEurobarometersurveyconfirmsthishighdegreeofignoranceabouttheECI.
13Furthermore,theEuropeanOmbudsmanpickeduponthisissueinherinquiry,askingtheCommissionforconcretemeasurestoraiseawarenessoftheECI.
3.
1.
2.
InformationandadviceforECIorganisersTheCommissionisthemaincontactpointforECIorganisersiftheyneedadvice.
TheygenerallyacknowledgetheCommission'seffortsandtailoredadvice,includingitsdesignatedECIwebsite,whichguidespotentialinitiatorsthroughtheECIprocessandprovidesinformationaboutallpastandongoingECIsinatransparentmanner.
TheCommissionrecentlyissuedarevisedversionofitsGuidetotheEuropeanCitizensInitiative,andfurthermorealsooffersinformationandadviceviaitsEuropeDirectContactCentre,whichactsasthe"pointofcontact"setoutinart.
4oftheECIRegulation.
TheEuropeanEconomicandSocialCommittee(EESC),whichconsidersitsroleasalinkbetweentheEUinstitutionsandcivilsocietyorganisationswellsuitedfortheECI,alsoprovidesinformationandsupport.
Forexample,itorganises–since2012–anannual'ECIDay'tofacilitatenetworkingamongstECIcampaignersandotherstakeholders.
TheEESCisalsopro-activeinofferingsupportinfrastructureforfree,suchasmeetingrooms.
Moreover,itinvitesECIorganiserstopresenttheirinitiativesattheCommittee'splenarysessions,and–inpartnershipwithNGOECAS–maintainsabibliographicdatabasespecificallyontheECI.
ApartfromtheEUinstitutions,civilsocietyorganisations,whicharealsoactiveinthefield,maintainasupportstructureforcampaigners.
ExamplesincludeTheECICampaignorTheECISupportCentre,thelatterbeingajointinitiativeoftheEuropeanCitizenActionService(ECAS),DemocracyInternationalandthethink-tankInitiativeandReferendumInstituteEurope.
However,ECIactivistsclaimthatmoresupportisneededintermsoflaunchingandrunninganinitiative,iftheECIistoremainaninstrumentforcitizensasopposedtoorganisationsandinterestgroups.
ActivistsoftenstrugglewithdraftingtheirECIproposal,identifyingalegalbasisforit,respectingthestrictITrequirementsornationaldataprotectionrules,tociteafewexamples.
TheconsultancyMilieuLtd.
,towhomtheEuropeanParliamentcommissionedthe2014studyontheimplementationoftheECI,proposesinthisregardtoestablisha'Citizen'sInitiativeCentre',designedasaone-stop-shopforanykindofECI-relatedenquiry.
3.
1.
3.
TranslationandfundingInordertoensurethatoutreachactivitiesaresuccessfulincross-bordercampaigning,providinginformationinnationallanguagesisapre-condition.
Inthiscontext,Europe'smultilingualismcausesapracticalchallengeforECIorganisers.
Alreadyin2010,the13ThepromiseoftheEU:aggregatereport,September2014,Eurobarometerqualitativestudy,p.
52.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34311Commission'spublicconsultationfollowingtheGreenPaperhighlightedacallbyseveralrespondentsthattranslationsofECItextsintoallofficiallanguagesbeprovidedbyanEUbody.
14UnderthecurrentRegulation,thetranslationoftheECIproposalisthesoleresponsibilityoftheorganisers(Art.
4(1)).
Nonetheless,theCommissioncheckseverylinguisticversionforitsconsistencywiththeoriginalversion.
Organisersarguedthatinsteadofjustverifyingthetranslationsex-post,theCommissionshouldprovidethem.
ThisgaphasrecentlybeenfilledbytheEESC,whoselinguisticservicenowofferstranslationsofECItextsintootherEUlanguages(upto800characters,whichcorrespondstothetitle,subject-matterandobjectivesoftheECI)andhencehelpsensuringECIcampaignsaremultilingual.
Ingeneral,runninganECIisacostlyprocess.
Itentailsstaffcosts(unlesstheECIisentirelyrunbyvolunteers),IT-infrastructure(e.
g.
website),printing,postage,translation,andtelecommunicationcosts,andinsomecases,costslinkedtoadvicefromlawyersandmedia/communicationsandITprofessionals.
Typically,nosubstantialfinancialresourcesareavailableinthecaseofgrassroots-initiatedECIs,unlessthecampaignisprecededbyorconductedatthesametimeasafundraisingexercise.
Accordingly,stakeholdersarecallingforacentralisedbasicEUfundingpotforECIs.
3.
1.
4.
ConflictofinterestattheCommissionWhenlaunchinganECI,variousorganisersrecognisedtheCommission'ssupportandadviceasveryvaluableandeffective.
However,somestakeholdersseeaconflictofinterestintheCommission'sdoubleroleintheECIprocess,asitactsasaninformationsupportserviceandisinparallelresponsibleforthedecisionontheregistrationofanECIandthefollow-upofinitiatives.
TheCommissionacknowledgesthat,astheaddresseeofanECI"itisnotinapositiontoengageinadialoguewithorganisers"tohelpthemphrasetheirinitiative–astheOmbudsmanhadsuggested–15"ordiscussanymodificationofthecontentoftheproposedinitiativeatthatstage".
3.
2.
FormingaCitizens'committee(Stage1)BeforeanECIcanbelaunched,anorganisingcommittee(referredtoas'citizens'committee')firstneedstobesetup,andcomposedbyatleastsevenEUcitizensresidingindifferentMemberStates16.
ThiscommitteepreparesandrunstheECI,anditalsoactsasacontactpointfortheCommission.
PursuanttoArticle2(3)oftheRegulation,theMembersofacitizens'committeemustbenaturalpersons,althoughorganisationsareentitledtopromoteorsponsoranECI,iftheydosowithfulltransparency.
MEPsmaybepartofacitizens'committee,buttheyarenottakenintoaccountforreachingthethresholdofseven.
14SEC(2010)370,p.
4.
15EuropeanOmbudsman'sown-initiativeinquiry(OI/9/2013/TN).
LettertotheCommission,15July2014.
http://www.
ombudsman.
europa.
eu/en/cases/correspondence.
faces/en/54609/html.
bookmark16Theydonotnecessarilyneedtobeofdifferentnationality.
EuropeanImplementationAssessmentPE536.
343123.
2.
1.
LegalstatusandliabilityStakeholdersarguethatthecurrentlackofalegalstatusforthecitizens'committeeimpactsnegativelyonthepracticalaspectsofrunninganECI,suchasfundraisingoropeningabankaccount.
Moreimportantly,thecommittee'sindividualmemberscanbeheldpersonallyliablefor"anydamagetheycauseintheorganisation"ofanECI(Art.
13),relatedtobreachofdataprotectionrulesorother.
TheECIRegulationstipulatesthatorganisersmustcomplywiththeEUDirectiveondataprotection17andtheyareresponsibleforprocessingpersonaldata(Art.
12).
ThisisanissueofconcernforECIorganisers,asECIsusuallyoperatewithnumerousvolunteersthroughouttheEuropeanUnion,whosepotentialwrongdoing(e.
g.
whenhandlingandprocessingpersonaldata)ispossiblyoutsidethecontrolofthemembersofthecitizens'committee.
StakeholdersfearthattheriskslinkedtopersonalliabilitymaydeterpotentialECIorganisersfromengagingintheprocess.
InthiscontexttheorganiseroftheECIEndEcocideinEuropesuggeststoestablishanEU-wideNGOstatus.
18Theabove-mentionedstudycommissionedbytheEuropeanParliamentacknowledgesthecallsforalegalentity,butadvocatesthatitshouldbeoptional,sinceestablishingalegalstatusmayinvolveconsiderableredtape.
Itmoreoverproposestomitigatetherisksformembersofcitizens'committeesinanumberofconcretemeasures,includingsimplifiedrulesonpersonaldatagathered,acleardefinitionofthedataprotectionobligations,andacivilliabilityinsurance.
193.
3.
Registration(Stage2)3.
3.
1.
LegaladmissibilityPriortocollectingsupportamongEUcitizens,ECIorganisersarerequiredtoregistertheirinitiativewiththeCommissionthroughanonlineregister,wherebytheCommissionhastwomonthstoassessthelegaladmissibilityoftheproposedinitiative.
AssetoutinArticle4(2),afavourabledecisionofthisex-antecheckissubjecttooneformalandthreesubstantiveconditions:-thecitizens'committeemusthavebeenformed;-theproposedECImustnot"manifestlyfalloutsidetheframeworkoftheCommission'spowerstosubmitaproposalforalegalactoftheUnionforthepurposeofimplementingtheTreaties";-itmustnotbe"manifestlyabusive,frivolousorvexatious";-itmustnotbe"manifestlycontrarytothevaluesoftheUnionassetoutinArticle2TEU".
17Directive95/46/EContheprotectionofindividualswithregardtotheprocessingofpersonaldataandonthefreemovementofsuchdata.
18AnECIthatworks!
,p.
39.
19EuropeanCitizens'Initiative–firstlessonsofimplementation:study/EuropeanParliament,PolicyDepartment,2014,p16.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34313Furthermore,AnnexIItotheRegulationsetsouttherequiredelementsforregistration:inadditiontotheorganisers'contactdetails,theyneedtoindicatethetitle,subject-matterandobjectivesoftheproposedECI,aswellasthelegalbasis(Treatyprovision)theyconsiderrelevant.
Providingfurtherdetailsorevenadraftlegalactispermitted,thoughnotmandatory.
PlacinganadmissibilitytestatthisearlystageintheECIprocessisdrivenbythelogicthatcampaigningiscostlyandresource-intensive.
ThisismeanttoavoidsituationswherebytheCommissionrejectsanECIaftersignificanteffortshavebeeninvestedintoitandafterithasgainedthesupportofatleastonemillioncitizens.
Suchlaterejectionwouldleadtoconsiderablefrustration,anditcouldalsohavesubstantialnegativerepercussionsforthepublicimageofEUdemocracy.
However,incasesofrefusal,asideeffectofthecurrentearlyregistrationmechanismistoundermineacross-borderpublicdebateontheissueatstakebeforeitevenhadachancetokickoff.
Havingledtoaneffectivedrop-outrateofroughly40percent,theCommission'slegaladmissibilitycheckprovedtobearealobstacletothesuccessoftheECIasacivicagenda-settinginstrument.
Upuntilnow,all20dismissedinitiativeshavebeenrefusedregistrationonthegroundsof"fallingmanifestlyoutside"theremitoftheCommission'spowers.
ThefactthattheRegulationfailstoprovideadefinitionoftheconcretemeaningof"manifestlyfallingoutsidetheframeworkoftheCommission'spowerstosubmitaproposalforalegalactoftheUnionforthepurposeofimplementingtheTreaties",leavessomediscretiontotheCommissioninitsinterpretationandapplicationofthisprovision.
Case-by-caseexaminationsofthejustificationstheCommissionprovidesinitsrefusalletterstoECIorganisershavebeencarriedout.
20TheseCommissiondecisionsaredisclosedontheCommission'sECIwebsitefortransparencyreasons.
TheexaminationssuggestthattheCommissionappliesaratherrestrictiveinterpretation,whichappearsbroadlyguidedbythesystemofCommissioncompetencessetoutintheTreaties.
InfacttheCommission'scompetencetoproposealegalactdependsonthetypeofcompetenceconferredontheEUineachspecificpolicyarea–itcanbeexclusiveorsharedcompetence,competencetotakeactionofsupportonly,ortocoordinateMemberStates'actions,ornocompetenceatall.
Withregardtothesystemofcompetences,thepolicyareaanECIrelatestoiskey,asitwillimpactonwhethertheCommissionwillregisteraproposedECIornot.
Theabove-mentionedrequirementscanputasignificantstrainonECIorganisersiftheyhavenolegalbackground.
Tomitigatetheriskoffailureattheregistrationstage,theCommissionoffersnon-bindingadvice(includinglegaladvice)toECIorganisersviaitsEuropeDirectContactCentre,priortoregistration.
Moreover,itprovidessomeguidanceonitsECIwebsitebylistingpolicyareasinwhichtheEUiscompetenttoact,plustherelevantTreatyprovisions.
21Yetorganisersandotherstakeholders22claimthatwithoutprofessionallegaladviceitisdifficultforcitizenstoidentifyavalidlegalbasisandto20See:TheEuropeanCitizens'Initiativeregistration:fallingatthefirsthurdleAnalysisoftheregistrationrequirementsandthe"subjectmatters"oftherejectedECIs.
ECAS,December2014;andJamesOrgan:ReformECIregistrationandexpandpublicdebate:reconsideringlegaladmissibility,In:AnECIthatworks!
,p.
97-100.
21Seehttp://ec.
europa.
eu/citizens-initiative/public/competences.
22Seee.
g.
,TheEuropeanCitizens'Initiativeregistration:fallingatthefirsthurdle,p.
11.
EuropeanImplementationAssessmentPE536.
34314phrasetheirECIinawaythatitpassestheregistrationhurdle.
Forinstancetheorganiserofaneducation-relatedECI(HighQualityEuropeanEducationforAll)admitsthatshewouldhavepreferredtoinvitetheCommissiontoproposeaconcretelegislativeactorpolicychange,butinordertoaddressherissueofconcernwithintheCommission'scompetences,shewascompelledtolimitthescopeofherECIto"start[ing]adiscussionatEUlevelandset[ting]upamulti-stakeholderplatformonEuropeaneducation".
23Thiswordingmadeherinitiativemuchlesssuitedforcampaigning,asthecoremessagewashardertosell.
ThecaseoftheECIUnconditionalBasicIncome(UBI)illustratesthechallengescitizensarefacingwhentablinganECI.
Theinitialproposal,acallforanUnconditionalBasicIncome,didnotpasstheadmissibilitytest,asfalling"manifestlyoutsidetheframeworkoftheCommission'spowers".
24Theorganisersdecidedsubsequentlyonmakingasecondattempt,rephrasingtheECI'swordingandnarrowingdownitsscopeonthebasisoftheexplanationsgivenbytheCommissioninitsrefusalletter.
Asaresult,theCommissionapprovedthesecondECI.
ItnolongerrequestedtheintroductionofanUBIbyalegalact–forwhichtheEUhasnocompetence–,butlimiteditselftocallingfor"exploringapathwaytowardsemancipatorywelfareconditionsintheEU".
EventuallythisECIcollectedalmost300,000signaturesEU-wide,andeventhoughthisscorewasfarbelowtheonemillionsignaturesthreshold,theorganisersexpressedsatisfactionthattheECIhadbeensuccessfulinstimulatingthepoliticaldiscussionontheUBI.
25ECIorganisersgenerallydescribetheCommissionassupportiveandhelpfulthroughouttheECIprocess.
Nonetheless,attheregistrationstage,theCommissiontakesaratherlegalisticandpassiveapproach.
JamesOrgan,anexpertinthefieldofdirectdemocracy,maintainsthattheCommissioncouldtakeamorefacilitativestancetotheregistrationprocessandassistorganisersinidentifyingalegalbasisandinframingtheirproposal.
26HearguesthattheadmissibilitytestatthebeginningoftheECIprocessputsthelegalburdenontheorganisers,whereasifappliedattheenditwouldmorelikelyfallontheCommission.
27TheCommission'sdecisionsonregistrationorrefusalofindividualECIshaveinsomecasesprompteddoubtsabouttheirconsistency.
28Initsrecentanalysisoftheregistrationrequirements,theNGOECASblamestheCommissionofhaving,atleastinsomecases,"erredinitsdecisiontorefuseregistration".
29TheEuropeanOmbudsmancallsonthe23AnECIthatworks!
,p.
55.
24Commission'srefusalletterathttp://ec.
europa.
eu/citizens-initiative/public/documents/559.
25AnECIthatworks!
,p44.
26JamesOrgan(2014).
DecommissioningdirectdemocracyAcriticalanalysisofCommissiondecision-makingonthelegaladmissibilityofEuropeanCitizensInitiativeproposals.
InEuropeanConstitutionalLawReview,10,p.
434.
27Organ,p.
435.
28Seee.
g.
,Organ,p.
432-435,acomparisonoftheECIcasesNolegalisedprostitution,EndEcocideinEuropeandtheanti-incineratorECIPourunegestionresponsibledesdéchets,contrelesincinérateurs.
29E.
g.
,TheEuropeanCitizens'Initiativeregistration:fallingatthefirsthurdle,p.
17.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34315Commissioninthiscontextto"providereasoningforrejectingECIsthatismorerobust,consistentandcomprehensibletothecitizen".
30TheEuropeanCourtofJusticewillhelptoclarifywhethertheCommissionappliestheadmissibilitychecktoorigidly.
Sofar,organisersofsixECIshaveappealedagainsttheCommission'sdecisiontorefusethemregistration,seekingannulmentbeforetheCourtofJustice.
Allcasesarepending:-Anagnostakisv.
Commission–CaseT-450/12OneMillionSignaturesfor"AEuropeofSolidarity";dateofapplication:11/10/2012-IzsákandDabisv.
Commission–CaseT-529/13Cohesionpolicyfortheequalityoftheregionsandsustainabilityoftheregionalcultures;dateofapplication:27/09/2013-MinoritySafePack–onemillionsignaturesfordiversityinEuropeandOthersv.
Commission–CaseT-646/13;dateofapplication:25/11/2013-CostantiniandOthersv.
Commission–CaseT-44/14RighttoLifelongCare:Leadingalifeindignityandindependenceisafundamentalright!
;dateofapplication:15/01/2014-HBandOthersv.
Commission–CaseT-361/14Ethicsforanimalsandkids;dateofapplication:23/07/2014-EflerandOthersv.
Commission–CaseT-754/14STOPTTIP;dateofapplication:10/11/20143.
3.
2.
ThespecificcaseofproposalsentailingTreatyamendmentsThequestionofwhetherthescopeofanECIcouldentailaTreatyamendmentwasalreadythesubjectofadebateamongscholarsbeforetheECIenteredintoforce.
31TheCommissionhassofarappliedarigidinterpretationofArticle4(2),letterb,oftheECIRegulationof"manifestlyfall[ing]outsidetheframeworkoftheCommission'spowers"andnotablyonthesignificanceof"forthepurposeofimplementingtheTreaties".
AnumberofECIcaseswererefusedregistrationbecausetheirimplementationwouldhaverequiredaTreatyamendment.
TheCommission'sstanceonthisisunambiguous,asevidencedinitsFAQsontheECI.
32Inananswertoaparliamentarywrittenquestionfrom2012,thenCommissionVice-PresidentMaroefoviconfirmedthisstandpoint:"Indeed,theCommissioncannotregisteranECIwhichwouldproposeamendmentstotheEUtreaties.
ThisisadirectconsequenceofthewordingofArticle11(4)ofTUE,whichprovidesthataproposedECIshouldfit(…)withintheframeworkof[theCommission's]30DecisionoftheEuropeanOmbudsmanclosingherown-initiativeinquiryOI/9/2013/TNconcerningtheEuropeanCommission.
4March2015,guideline2.
31SeeMichaelDougan:WhatarewetomakeoftheCitizens'Initiative,InCommonMarketLawReview,2011,48:1807-1848,herep.
1835-1837;DorotaSzeligowskaandElitsaMincheva:TheEuropeanCitizens'Initiative–EmpoweringEuropeancitizenswithintheinstitutionaltriangle:apoliticalandlegalanalysis,In:LuisBouzaGarcíaetal.
(eds.
),TheEuropeanCitizens'Initiative-afirstassessment,2012,BrugesPoliticalResearchPapers,24:52-81,herep.
69.
Withsomereservations,Douganarguesinfavour,whereasSzeligowska/MinchevatendtoexcludeTreatyamendmentsthroughECIs,asthefocusoftheECIisonimplementingtheTreaties.
32Seehttp://ec.
europa.
eu/citizens-initiative/public/faq#q3EuropeanImplementationAssessmentPE536.
34316powers,tosubmitanyappropriateproposalonmatterswherecitizensconsiderthatalegalactoftheUnionisrequiredforthepurposeofimplementingtheTreaties.
"33TheECICampaignNGOcounters34thattheCommission'scompetencetoproposeTreatyamendmentspursuanttoarticle48(2)TEUcouldalsobeextendedtoECIsasalegalbasis.
TheCommissionexplicitlyobjectstothisview,asevidencedinitsrefusalletter35ofJanuary2013relatingtotheECIonEnforcingselfdeterminationHumanRightintheEU:"Inparticular,amendingtheTreaties,asimplicitlysuggestedbyyourreferencetoArticle48(2)TEU(ordinaryrevisionprocedure),fallsoutsidethescopeofthecitizens'initiative.
"However,theCommissionsetaprecedentagainstitsownprinciplesbygrantingregistrationtotheECIonLetmevote,whichinvitestheCommissiontoproposethatEUcitizenscanvoteinallelectionsintheMemberStatetheyreside,whichwouldalsoentailaTreatychange.
Inthiscase,theECIputforwardArticle25TFEUasalegalbasis.
363.
4.
Collectionofsignatures(Stage3)3.
4.
1.
Statementsofsupport:aconfusingsetofnationalrulesandpersonaldatarequirementsTheECIisdesignedasatransnationaltool,requiringtheEU-widesupportofEUcitizens.
ManyactivistsdescribedthecollectionofsignaturesinthedifferentEUMemberStatesasaparticularlychallengingexperience,sincethepersonaldatarequirementsforsignatoriesdifferlargelyfromMemberStatetoMemberState.
TheCommission'sinitiallegislativeproposal37hadsetoutuniformpersonaldatarequirementsforthestatementsofsupport.
However,duringthenegotiationsintheCouncil,MemberStatescouldnotagreeononeEU-wideform,andaccordingtotheirnationallawandpractices,theycameupwithawiderangeofrequirements–someofwhichincludedpersonalIDnumbers,andothersnot,someusingnationality,andothersresidenceasthedecisivecriterion.
ThecomplexityofAnnexIIIoftheRegulation,determiningthedatarequirementsonacase-by-casebasis,i.
e.
accordingtoMemberState,istheresultofthesenationalvariations.
Furthermore,theformsusedforstatementsofsupportmustcomplywiththemodelssetoutinAnnexIIIoftheRegulation,accordingtotheMemberStates.
Examplesfromacrossthespectrumhighlightsignificantdifferences:FinlandhasthesimplestformofallEUcountries,askingsignatoriesonlytoprovidetheirname,countryofpermanentresidence,nationalityanddateofbirth.
Conversely,Italy'srequirementscomprisename,placeofresidence(withfulladdressdetails),dateandplaceofbirth,nationality,andpersonalIDnumber,includingtheissuingauthority.
33AnswertowrittenquestionE-007589/2012.
http://www.
europarl.
europa.
eu/sides/getAllAnswers.
doreference=E-2012-007589&language=EN34TheECICampaign'spositiononTreatyamendments.
http://www.
citizens-initiative.
eu/position-on-treaty-amendments/35Commission'srefusalletterathttp://ec.
europa.
eu/citizens-initiative/public/documents/1236.
36Foranin-depthdiscussionofthiscaseseeOrgan,p.
436-437.
37COM(2010)0119.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34317ManyECIactivistsareconcernedthatexcessiveandunnecessarilyburdensomepersonaldatarequirementshaveadeterringeffectonpotentialsignatories,astheyraiseprivacyconcerns.
Theyreportaboutcitizens'reluctancetoprovidetheirIDnumbersforthepurposeofanECI,aproblemwhichhasbeenexacerbatedinthewakeoftheSnowdondataleakscase.
Inthatcontext,theinitiatorsoftheECIRight2WaterconfirmedtheIDcardrequirementasamajorobstaclefortheircampaigninginFrance,Italy,Austria,theCzechRepublic,Greece,Hungary,RomaniaandBulgaria–allcountriesthatprovideformandatorydetailedpersonalidentification.
Theyarguethatwithoutthislegalrequirement,theycouldhavedoubledsignatorysupportinthesecountries.
38Atpresent18MemberStatesrequiretheprovisionofapersonalIDnumber(Austria,Bulgaria,Croatia,Cyprus,CzechRepublic,France,Greece,Hungary,Italy,Latvia,Lithuania,Malta,Poland,Portugal,Romania,Slovenia,SpainandSweden),despitethefactthattheEuropeanDataProtectionSupervisor(EDPS)hadadvisedagainstit.
Hehadstated:"DifferencesexistbetweentheMemberStatesastohowtheuseofsuchuniqueidentificationnumbers,wheretheyexist,isregulated.
Inanyevent,theEDPSdoesnotseetheaddedvalueofthepersonalidentificationforthepurposeofverifyingtheauthenticityofthestatementsofsupport.
Theotherrequestedinformationcanalreadybeconsideredassufficientforreachingthatpurpose.
"39Moreover,thecomplexityofthedatarequirementsleadstoahigherrateofinvalidstatementsofsupport,assignatoriesoftenfailtocompleteallessentialfields.
Anditincreasestheliabilityriskfororganisersincaseofdamages.
Thismaydiscouragecitizensfromgettinginvolvedinacitizens'committee.
However,fromaMemberState'spointofview,tooloosedatarequirementsrendertheverificationprocessbynationalauthoritiesdifficult,ifnotimpossible,andopendoorstofraud.
AnotherparticularworryingeffectofthecomplexnationalpersonaldatarequirementsistheexclusionofspecificgroupsofEUcitizenslivingabroad,whichrunsclearlycountertheoriginalobjectiveoftheECIRegulation"thateverycitizenhastherighttoparticipateinthedemocraticlifeoftheUnionbywayofaEuropeancitizens'initiative"(Recital1).
Thisproblem,alsoknownasdisenfranchisement,isduetothefactthatsomecountriesusenationalityandothersuseresidenceasadeterminingfactorofwhocansign,whichinspecificcasesofcitizenslivingabroadleavesagap.
NotablythenationalBritishandIrishrulesdisenfranchisesomeoftheircitizenslivingabroad,eitherinanotherEUMemberStatethatdoesnotallowforforeignresidentstosign(notablyBulgaria,theCzechRepublic,France,AustriaandPortugal),orinathirdcountry.
ThisproblemhadalsoaffectedDutchnationalsresidingabroad,untilitsgovernmentrequestedamendmentstoAnnexIIIoftheRegulationinOctober2013.
TheissueofdisenfranchisementisofparticularrelevanceforECIswhosecoretargetgroupareexpatriates,e.
g.
Letmevote(whichcalledfortheEUcitizens'righttovoteinallpoliticalelectionsintheircountryofresidence)orHighqualityeducationforall(whichaimedatahigherawarenessoftheneedforamulti-lingualandmulti-culturalEuropean38AnECIthatworks!
,p.
21.
Nonetheless,despitethecomplexdatarequirements,includinganIDnumber,theECIsOneofusandStopvivisectioncollectedaparticularlyhighnumberofvalidsignaturesinItaly.
39OpinionoftheEuropeanDataProtectionSupervisorontheproposalforaRegulationoftheEuropeanParliamentandoftheCouncilonthecitizens'initiative,point10.
OJ2010/C323/01.
EuropeanImplementationAssessmentPE536.
34318schoolingmodel,includingtheEuropeanSchoolsandtheEuropeanBaccalaureate).
TheCommission,awareoftheproblem,hasstressedthatitsoriginalintentionwastocreateoneuniformsetofrulesfortheentireEU,andhascalledontheMemberStatesconcernedtoamendtheirrules.
Strictnationalregulationsalsoexcludeothergroupsofcitizensfromtakingpart,e.
g.
thehomelessincountrieswhereadetailedaddressisrequiredonthestatementofsupport,40orEUcitizenswithouta(valid)passportoridentitycardincountriesthatrequiretheprovisionofapersonalIDnumbertosignanECI,butwhichdonotforeseeageneraldutytoprovideevidenceofidentity,e.
g.
Austria.
41Tosumup,thecurrentbureaucraticandconfusingsetof28differentnationalpersonaldatarequirements,pursuanttotheRegulation'sAnnexIII,isperceivedashighlyunsatisfactoryandinsomecasesevenexcludesEUcitizenslivingabroadfromexercisingtheirright.
IfoneoftheobjectivesoftheRegulationwas"clear,simple,user-friendlyandproportionate"proceduresandconditions,to"encourageparticipationbycitizens"(Recital2),thisobjectivecannotbeachievedunderthecurrentsetofrules,whicharetoalargeextentinthehandsofMemberStates.
ThisiswhytheCommission42,theEuropeanParliament,theEuropeanOmbudsman,ECIactivistsandresearchersjointlycallforaharmonisationandsimplificationofstatementofsupportforms.
Though,fullyresolvingthisissuerequiresarevisionoftheECIRegulation,astheOmbudsmanrecentlyrecalled".
43SuchreformshouldeffectivelyempowerallEUcitizens,regardlesswheretheylive,tosupportanECI.
DuringthepublichearingontheECIintheEuropeanParliament,MemberssuggestedusinganEUdigitalsignatureasapossiblesimplificationforECIsignatories.
TheCommissionconfirmedtheso-called'advancedelectronicsignature',assetoutinart.
26ofRegulation910/2014,asaviableoption,thoughithasnotbeenusedtodate.
443.
4.
2.
MinimumagetosupportanECITheminimumageforsigninganECIhasbeendefinedas"theagetobeentitledtovoteinelectionstotheEuropeanParliament.
"(Art.
3(1))AnEU-wideagelimitof18isapplied,withthenotableexceptionofAustria,wheretheminimumageforactivevotingis16.
ThecurrentECIsystem,operatingwithtwodifferentagelimits,ishenceperceivedasconfusing(e.
g.
,whenayoungAustriansignsanECIabroad).
40SeeparliamentaryquestionE-005673-14(8July2014)byMEPSylvieGuillaumetoCommission.
41Austriarequireseitherthenumberofthepassportortheidentitycard(Personalausweis),whichexcludesAustriancitizensfromtheECItooliftheydonotpossesseitherdocument(orifthisIDcardhasexpired).
Moreover,asthereisnogeneraldutytoprovideevidenceofidentity,evenifmostcitizensdopossessapassportoridentitycard,theyusuallydonothaveeitherofthemwiththem,whichpreventsthemfromspontaneoussigninganECIonpaperinastreetcampaign.
Itiscommonpracticethatcitizenscarryonlytheirdrivinglicensewiththem.
42Seee.
g.
CommissionECIreview,p.
14,asmostrecentexample.
43DecisionoftheEuropeanOmbudsmanclosingherown-initiativeinquiryOI/9/2013/TNconcerningtheEuropeanCommission.
4March2015,point34andguideline10.
44Regulation910/2014onelectronicidentificationandtrustservicesforelectronictransactionsintheinternalmarketandrepealingDirective1999/93/EC.
SeeCommissionECIreview,p.
7.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34319Therearecallsforuniformlyloweringtheagelimitto16,toencouragethecivicparticipationoftheyoungergenerationinEUaffairs.
Thisargumentwasalreadybroughtforwardin2010bytheEuropeanParliamentCommitteeonPetitionsinitsOpiniononthereportbytheleadcommittee45,andsubsequentlybackedbyscholarVictorCuesta-López.
46MostrecentlyGermanMEPSylvia-YvonneKaufmannalsoadvocatedforthischange,arguingthatauniformEU-wideminimumageof16inthecontextoftheECIwouldsendastrongsignaloftrusttowardsyoungpeople.
47ThisargumentissupportedbyNGOsECAS48andTheECICampaign49.
ThelatterrecallsinthiscontextthatmanyECIshavetouchedontopicsofdirectconcerntoyoungpeople,suchasjobs,educationortheenvironment.
ItbelievesthatengagingyoungpeopleinEUaffairswhiletheyarestillinhighschoolhelpsfosteraEuropeanidentity.
3.
4.
3.
OnlineversuspapercollectionofsignaturesTheECIRegulationprovidesforbothonlineandpapercollectionofsignatures.
CarstenBerg,coordinatorofTheECICampaign,statisticallyanalysedtheapplicationoftheECIsduringthefirsttwoyearsofapplication.
50HeconcludedthatwhiletheECIwasoftenperceivedasane-participationtool,empiricaldatahighlightthatpaperformsplayedanimportantroleinsomecampaigns.
Accordingtohisfindings,anaverageof37%ofallsignatureswascollectedonpaper.
ECI%ofsignaturesonpaperTotalofsignaturescollected(beforeverification)Oneofus65%1.
9Mio.
Right2Water18%1.
8Mio.
StopVivisection44%1.
3Mio.
Source:Berg/GogowskiActivistsclaimthatthepapersignaturecollectionformsarenotuser-friendly,sincetoomanydatainputsarerequested.
Theyarguethatthepapercollectionwouldgreatlybenefitfromareductionandsimplificationofthepersonaldatarequirements.
Challengesfacedincludeissuesoflegibilityormissingdataonforms(e.
g.
IDnumbers),bothofwhichmayresultinahigherdropoutratethanonlinesignatures.
51Accordingtoa45ReportontheproposalforaregulationoftheEuropeanParliamentandoftheCouncilontheEuropeanCitizens'Initiative,rapporteursZitaGurmaiandAlainLamassoure,A7-0350/2010.
46VictorCuesta-López:ApreliminaryapproachtotheRegulationonEuropeanCitizens'Initiativefromcomparativeconstitutionallaw,In:LuisBouzaGarcíaetal.
(eds.
),TheEuropeanCitizens'Initiative-afirstassessment,2012,BrugesPoliticalResearchPapers,24:52-81,herep.
10.
47Sylvia-YvonneKaufmann:Trustyoungpeople,In:AnECIthatworks!
,p.
111.
48ECAS:10RecommendationstomakeasuccessofEuropeanCitizens'Initiatives,point10.
49TheECICampaign:12waystobuildaEuropeanCitizens'Initiativethatworks,point9.
http://www.
citizens-initiative.
eu/12-ways-to-build-a-european-citizens-initiative-that-works50CarstenBergandPaweGogowski:AnoverviewofthefirsttwoyearsoftheEuropeanCitizens'Initiative,In:AnECIthatworks!
,p.
17.
51However,theCommissiondoesnotconfirmthis,citingsimilardropoutratesforonlineandpapercollection.
SeeECIreview,p.
9.
NoteworthyinthiscontextisthebenefitofdoubtprincipletheCommissionadvocatesintheirguidelines:"Certainminormistakesorchangesshouldnotinvalidatethestatementsofsupport.
"EuropeanImplementationAssessmentPE536.
34320nationalverificationofficer,upto20percentofthecollectedsignaturesruntheriskofbeinginvalidatedbynationalauthoritiesintheverificationprocessduetoincompleteorinaccurateinformation.
52Moreover,papersignaturecollectionrequiresmorehumanresources(volunteers)andbearsgreaterriskswithregardtodataprotectionliability.
3.
4.
4.
OnlineCollectionSystemsArticles6and12oftheECIRegulationandCommissionImplementingRegulation1179/2011setouttheconditionsandthetechnicalspecificationsfortheonlinecollectionofsignatures.
AccordingtoArticle12(1)oftheECIRegulation,ECIorganisersandthecompetentnationalauthoritiesmustcomplywiththeEUdataprotectiondirective53anditsnationalimplementationprovisionsinprocessingpersonaldata.
Tocollectsignaturesonline,ECIorganisersneedtoavailof:1)aserver(hostinginfrastructure)tostorethedataofsignatories,and2)asoftwarethatallowsforonlinesigning.
Bothelementsareneededtosetupanonlinecollectionsystem.
Beforeorganiserscanstarttocollectsignaturesonline,theyneedtohavetheirsystemcertifiedbythecompetentnationalauthorityoftheMemberStateinwhichthedatawillbestored.
Thiscertificationprocess,whichcantakeuptoonemonth,verifiesthatthesystemmeetsthesecurityandtechnicalrequirementssetoutintheabove-mentionedRegulations.
Thefirstorganisersexperiencedsubstantialdifficultiestofindasuitableandaffordablehostingprovider,resultinginasignificantlossoftime–uptoseveralmonthsofthesignaturecollectiontime.
BeyonditsobligationundertheRegulationandinordertoassistorganisers,theCommissiontemporarilyprovidedserversofitsowninLuxembourg,atnocharge,andwhichmostECIshaveused.
Tocompensateforthedelaysthefirstorganiserswerefacing,theCommissiondecidedtoacceptstatementsofsupportcollecteduntil1November2013,forallinitiativesregisteredbefore31October2012.
IndeedstakeholderswouldwelcomesuchfreehostingofECIsonaCommission'sserverasapermanentsolution.
Inthisrespect,theCommissioncommitsitselftocontinueitsfreehostingpractice"aslongasneeded".
54Withregardtotheonlinecollectionsoftware,ECIorganisersarefreetouseanytool,eithertheirownortheopensourcesoftwaretheCommissiondevelopedpursuanttoArticle6(2)oftheECIRegulation.
Giventheresourcesandcostsinvolvedindevelopingsoftwarethatwouldmeetthestrictsecurityrequirementsindependently,mostECIorganiserssofarrefrainedfromusingtheirownsoftwareandhaveoptedinsteadtousetheoneprovidedbytheCommission.
However,indoingso,mostofthemencounterednumerousdifficulties.
Organiserscitedspecificfeaturesasproblematic,notablytheapplicationofastrong'captcha'55verificationmechanismforsigning,whichisreportedlyhardtodecipher.
Seehttp://ec.
europa.
eu/citizens-initiative/files/Guidelines-and-recommendations_130415.
doc52NationalauthoritiesintheECIprocess:firstverificationexperiencesoftheGermansignatureverificationoffice.
InterviewwithAxelMinrathandUlrichSchmitz,In:AnECIthatworks!
,p.
94.
53Directive95/46/EContheprotectionofindividualswithregardtotheprocessingofpersonaldataandonthefreemovementofsuchdata.
54CommissionECIreview,p.
16.
55"Captcha",anacronymfromCompletelyAutomatedPublicTuringtesttotellComputersandHumansApart,isachallenge-responsetypetechniqueaimedtoensurethathumanbeingsratherImplementationoftheEuropeanCitizens'InitiativePE536.
34321ECIorganisersconsidertheCommissionsoftware,asanadministrativetool,unsuitableforeffectivecampaigning,sinceitdoesnotallowforsufficientcustomisation,linkingtosocialmedia,useonmobiledevices(smartphonesortablets)orcollectingtheemailaddressesofsignatories.
Toincludesuchfeatures,whicharebasicrequirementsforcampaigning,organisersneedtofindaworkaroundandimplementitontheECI'sspecificwebsites,alinkingtowhichtheCommission'sOCSallowsfor.
TheCommissionincludedsocialmediafeaturesinthelatestreleaseofitssoftware,butobjectstotheinclusionofemailaddressinthestatementofsupportform,giventheintendeduseforinformationorcampaigning,whichisnotprovidedforbytheECIRegulation.
Overall,thewaytheonlinecollectionofsignaturesisdesignedappearstobeamajorhurdleinthecurrentECIset-up,accordingtostatementsofECIorganisers.
ApartfromthegeneralcriticismthataddressedthebasicrequirementofgettinganonlinecollectionsystemupandrunningforeachspecificECI,theyconsiderthesystemas"flawed"56or"unnecessarilycomplex"57.
CarstenBerggoesasfarastocallita"dysfunctional"system.
58AdrianoVarrica,organiseroftheECIStopVivisection,haspleadedforsimplification:"Sincemostsignatureswerecollectedonline,theOCS[onlinecollectionsystem]isacrucialaspectforthefuturedevelopmentofthisnewdemocracyinstrument.
TheofficialECIregulationpromisesthattheOCSwillbeeasilyaccessibleanduser-friendly.
However,initscurrentversion,itisneitherandthusneedstobesimplified.
"59FrustrationaboutthemalfunctioningsystemactuallypromptedagroupofITexpertstolaunchaspecificECIin2012,thepurposeofwhichwastocallontheCommissiontoproposeamodificationoftheECIlegalframeworkthatwouldallowforthecreationofaCentralpubliconlinecollectionplatformfortheEuropeanCitizens'Initiative.
Itaimedatthecreationofasinglecentralised,user-friendlyandtransparentonlineECIplatformtomakethesystembetterwork.
However,thisECIendedatanearlystage,asitlackedthenecessaryfinancialresources.
Fromtheirownexperience,ECIorganisersrecommendthattheCommissionshouldprovideapre-certifiedand"lowbarrieronlineECItoolwhichworksinstantlyandwithouttechnicalexpertise"60foreveryregisteredECI.
While–astheCommissionargues–suchachangewouldrequiretheRegulationtobeamended,ithastakenstepstoimprovetheonlinecollectionprocesswithintheboundariesoftheRegulation.
Inadditiontoofferingasolutiontothehostingissue,ithasconstantlyimproveditssoftware;sofareightreleaseshavebeenissued.
Anditkeepsstressingthatitputsalotofeffortinfacilitatingtheonlinecollection.
TheCommissionhasalsoexternalisedastudyontheECI'sonlinecollectionprocess,whichiscurrentlyongoing.
thanautomatedprogrammes("bots")arerespondinginanonlinetransaction.
Captchausesdistortedimagesofcharactersornumbersasachallenge;itiscommonine-commerceorforonlineregistrations.
56AnECIthatworks!
,p.
37,67and72.
57AnECIthatworks!
,p.
49.
58AnECIthatworks!
,p.
15.
59AnECIthatworks!
,p.
30.
60AnECIthatworks!
,p.
67.
EuropeanImplementationAssessmentPE536.
343223.
4.
5.
TimingandtimespantocollectsignaturesThemomentanECIisregisteredwiththeCommission,theclockstartstickingfora12-monthperiodtocollectsupport.
However,organisershaveoftennotfinalisedtheirpreparations,astheycanonlystartcollectingonlinesignaturesoncetheauthoritiesintheMemberStateshavecertifiedtheOnlineCollectionSystem.
ThereissignificantriskininvestingeffortandresourcestowardsthesystemiftheCommissionultimatelyrejectstheregistrationofanECI.
Bydefininga12-monthlimitinrespectofthecollectiontime,theco-legislatorsaimedtoensurethatthesubjectoftheECIremainedrelevantaslongasitwasrunning(recital17oftheRegulation).
However,Europe-widecampaigningrequirestime,duetolanguagebarriers,differentcultures,thephysicaldistance,andthecross-borderdimensionoftheproject.
HencemanyECIorganisers,supportedbyNGOs,recommendrevisingthecurrentrules,toletthecitizens'committeedecideonthestartofthecollectiontime,withinaspecifiedmarginofafewmonths,and/orbyextendingthecollectiontimeto18months.
ThisargumentwasbackedbytheEuropeanOmbudsman,whoincludedtherequestforextensioninherlettertotheCommission.
TheCommissionappearstobeopentochangesinthisrespect.
61Asstatedabove,manyECIslosttimebecausetheywerenotreadywhentheECapprovedtheinitiativeforregistration.
PriscaMerz,organiseroftheECIEndEcocideinEurope,admittedthatthereasonforwithdrawingandre-registeringherinitiativewastosecuremoretimetoprepare.
62ThreeotherECIorganisersactedinthesamemanner.
3.
5.
Verificationofsignatures(Stage4)BeforesubmittinganECItotheCommission,theorganisersneedtosendthecollectedstatementsofsupport–betheyinelectronicformatoronpaper–tothecompetentnationalauthoritiesforverificationandcertification.
Theyhavethreemonthstovalidatethesignatures(Article8).
Thechecksmaybebasedonrandomsampling.
AccordingtotheCommission,theresultsbetweenMemberStatesusingrandomsampling(17)andthosecarryingoutafullverificationdidnotshowgreaterdiscrepancies.
63Theexperienceacquiredtodatewithregardtotheverificationofsignaturesislimited,asonlythreeECIspassedthethresholdofonemillionsignatures.
However,fromthefewsuccessfulECIs,ithasemergedthatacertainproportionofsignaturesaredeclaredinvalidattheverificationstage.
InthecasesofRight2WaterandOneofusthisconcernedslightlymorethan10percent.
Tomitigatethisrisk,organisersareadvisedtostriveforasafetymarginof10-20percent.
61CommissionECIreview,p14-15.
62AnECIthatworks!
,p.
39.
63ECIreview,p9-10.
ImplementationoftheEuropeanCitizens'InitiativePE536.
343233.
6.
SubmittingtheECItotheCommissionandfollow-up(Stage5)OncecompliancewithallECIconditionssetoutintheRegulationhasbeenensured,theorganisersofsuccessfulinitiativescansubmittheirECItotheCommission,whowillthenevaluatetheobjective.
Itisuptotheorganisertodecideonthedateofsubmission,theRegulationitselfdoesnotspecifyanytime-limit.
64TheCommissionisrequiredtoreplywithinthreemonthsintheformofaCommissioncommunication(COMdocument)explainingitslegalandpoliticalconclusionsontheECI,includingtheactionitintendstotake(orthereasonsfornottakingaction).
Withinthreemonthsfollowingsubmission,theorganisersalsohavetherighttobereceivedbytheCommission"atanappropriatelevel"toexplaintheirobjectivesindetail(art.
10),andtopresenttheirECIatapublichearingoftheEuropeanParliament,atwhichtheCommissionisalsorepresented(art.
11).
Asstatedabove,andpursuanttothelegalframeworkoftheECI,theCommissionisnotobligedtogivealegalfollow-uptoasuccessfulECI.
Insuchcases,noredressmechanismisforeseen.
ThereforethewaytheCommissionisdealingwiththefirstsuccessfulECIswillpavethewayforfutureacceptanceofthisnewinstrumentofparticipatorydemocracyamongstcitizens.
PotentialorganisersoffutureECIsmaybemoreinclinedtotakeontheburdenofaninitiativeiftheyseethatitsoutcomeisworthwhile.
DouganstressesthattheCommission'sdiscretionoverhowtorespondtoanECIdoesnotprecludethefinaloutcome.
EvenifitdecidestotablealegislativeproposalinthespiritoftheECI,thismaybesubstantiallyamendedorevenfailinthecourseofthenegotiationswithCouncilandtheEuropeanParliament.
Conversely,iftheCommissiondecidesnottoactonanECI,theco-legislatorscouldstilltaketheinitiativetocallupontheCommissiontodoso.
ThisiswhatDougancalls"combiningthepressureofparticipatorywiththatofrepresentativedemocracy".
65Sofar,threeECIshavebeensubmittedtotheCommission:Right2Water;OneofUs,and,mostrecently,StopVivisection.
66Sofarneitherofthefirsttwosuccessfulinitiativeswerefollowed-upbyaconcretelegislativeproposal.
64InthecaseoftheECIStopvivisection,morethanayearelapsedbetweentheendofcollectingsupportandthesubmissiontotheCommission.
65Dougan,p.
1844.
66Right2WatersubmitteditsECIon20December2013,Oneofuson27February2014,andStopvivisectionon3March2015.
EuropeanImplementationAssessmentPE536.
343244.
Follow-uptothethreesuccessfulECIsRight2Water,OneofUsandStopvivisection4.
1.
Right2WaterTheRight2WaterECIwasoneofthefirstinitiativesever,launchedon10May2012.
ItsobjectivewastoinvitetheCommissionto"proposelegislationimplementingthehumanrighttowaterandsanitation,asrecognisedbytheUnitedNations,andpromotingtheprovisionofwaterandsanitationasessentialpublicservicesforall".
TheECIcalledfor1)EUinstitutionsandMemberStatestobeobligedtoensurethatallinhabitantsenjoytherighttowaterandsanitation;2)watersupplyandmanagementofwaterresourcesnottobesubjecttointernalmarketrules,andwaterservicestobeexcludedfromliberalisation;3)theEUtostepupitseffortstoachieveuniversalaccesstowaterandsanitation.
ThisisoneoftheveryfewECIstobestronglysupportedandpromotedbytradeunions,inparticularbytheEUumbrellaorganisationEuropeanFederationofPublicServiceUnions(EPSU),whichinvested140,000inthisECI.
TheinitiativebenefittedinparticularfrommassivesupportinGermany,whichaloneaccountedfornearly75percentofsignatures.
TheECIRight2WaterwasofficiallysubmittedtotheCommissionon20December2013,afterhavingobtained1.
659,543validatedsignatures67andhavingpassedthenationalthresholdsin13MemberStates.
AsforeseenintheRegulation,itsorganiserswerereceivedbytheCommissionathighlevel,andtheEuropeanParliamentorganisedapublichearingon17February2014.
TheCommissionputforwarditslegalandpoliticalconclusionson19March2014.
68ThisCommunicationdescribesfirsttheexistingacquisonwaterandsanitation,asabasistoidentifypotentialgaps,andlistsaseriesofspecificmeasuresenvisagedbytheCommission.
AlthoughtheseareallrelatedtothesubjectoftheECI,nonehasthecharacterofalegislativeinitiative.
TheCommissioncommitteditself,interalia,toreinforcetheimplementationofitswaterqualitylegislationbytheMemberStates;tolaunchanEU-widepublicconsultationontheDrinkingWaterDirective,notablyinviewofimprovingaccesstoqualitywaterintheEU;tocontinuetoensureEUneutralityasregardsnational,regionalandlocalchoicesfortheprovisionofwaterservices;andtoadvocateuniversalaccesstosafedrinkingwaterandsanitationasapriorityareainthepost-2015developmentframework.
67OfficialfiguresdifferdependingonwhetherornottheFrenchandDanishresultsaretakenintoaccount,bothofwhicharrivedaftertheECIwassubmitted.
WithFrance(17,247)andDenmark(3,495),thecertificatestotal1,680.
285.
Thecampaign'swebsitestates1,884.
790signatures,whichobviouslyreflectsthesupportbeforeverification.
68CommunicationfromtheCommissionontheEuropeanCitizens'Initiative"Waterandsanitationareahumanright!
Waterisapublicgood,notacommodity!
",COM(2014)177.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34325ThisCommunicationwascriticizedbytheECIorganisersaslackingambition.
69Forinstance,theCommissiondidnotmakeanylegalcommitmenttoblockEUinitiativesaimingatliberalisingwaterandsanitationservices,astheECIhadcalledfor.
Observersalsoexpresseddissatisfaction,bycallingthecommunication"remarkablyvagueandunsatisfactoryintermsofpotentialchangesinEUlaw".
70Initsopinion71,theEESCacknowledgedtheCommission'srecognitionofthespecificityandimportanceofwaterservicesanditsdecisiontoexcludewatersupplyservicesfromtheproposalforaDirectiveonPublicProcurementConcessions.
However,italsoconcludesthattheCommission'sCommunicationhas"lackedanyrealambitioninitsresponsetotheexpectationsofmorethan1.
6millionpeople".
Inthewakeofthe"Commission'svagueresponse",theEuropeanParliament'sENVICommitteehaslaunchedanown-initiativereportonthefollow-upoftheRight2WaterECI(RapporteurLynnBoylan,GUE/IE).
ThedraftreporturgestheCommissiontocomeforwardwithconcretelegislativeproposals,otherwisetheECIriskstolosecredibility.
ItcallsontheCommissionforarevisionoftheDrinkingWaterandtheWaterFrameworkDirectives,72andtoexcludewaterandsanitationservicesfrominternalmarketrulesaswellasanytradeagreements,notablytheTTIP(TransatlanticTradeandInvestmentPartnership)andtheTiSA(TradeinServicesAgreement)currentlyundernegotiation.
4.
2.
OneofusTheECIOneofuswaslaunchedon11May2012.
Thispro-lifecampaignaimedatphasingoutEUfundingofresearchinvolvinghumanembryos.
ItmetwithconsiderablesupportinpredominantlyCatholiccountriessuchasItaly,Poland,SpainandFrance.
Eventhoughthegenerallevelofmediaattentionwaslimited,bothPopeFrancisandPopeBenedictpubliclysupportedthisECI,73whicheventuallyscoredthehighestnumberofsignatories:1.
721,626EUcitizensvalidlysignedthisECI,74wherebythethresholdwaspassedin18MemberStates.
TheorganiserspresentedtheircauseinapublichearingintheEuropeanParliamenton10April2014,andtheCommissionreactedwithaCommunicationon28May2014,75explainingthatitwouldnotcomeupwithalegislativeproposal,sinceitconsiderstheexistinglegalframeworktobeadequate.
However,aswasalreadyapparentatthepublic69ECIRight2Waterpressrelease"CommissionlacksambitioninreplyingtofirstEuropeanCitizens'Initiative",19March,2014.
http://www.
right2water.
eu/news/press-release-commission-lacks-ambition-replying-first-european-citizens%E2%80%99-initiative70MEPSandrineBélier,in:AnECIthatworks!
,p.
81.
SeealsoSarahSchadendorf:VerwssertedirekteDemokratie,acriticalassessmentoftheCommunicationpublishedontheGermanlawblogjuwiss.
de.
,seehttp://www.
juwiss.
de/tag/sarah-schadendorf/71EESCown-initiativeopinion,adopted15October2014.
OJC12/33of15January2015.
72Inthemeantime,theenvisagedevaluationoftheDrinkingWaterDirective(seeCommissionWorkProgramme2015,AnnexIII,REFITactions)hasstarted,andthefourthimplementationreportontheWFDhasbeenpublished.
73AnECIthatworks!
,p.
16.
74Theorganisersquote1.
897,588statementsofsupport,beforeverification.
75CommunicationfromtheCommissionontheEuropeanCitizens'Initiative"Oneofus",COM(2014)355.
EuropeanImplementationAssessmentPE536.
34326hearing,theorganisersfeltfundamentallymisunderstoodandareseekingannulmentoftheCommunicationbeforetheEuropeanCourtofJustice.
764.
3.
StopvivisectionStopvivisection,anECIcallingforphasingoutanimaltestingandforannullingdirective2010/63ontheprotectionofanimalsusedforscientificpurposes,collected1,173.
130certifiedstatementsofsupportby1November2013.
Itpassedthethresholdin9MemberStates.
Itwasonlyrecently,on3March2015,submittedtotheCommission.
Theorganisershadlodgedacomplaint77withtheEuropeanOmbudsman,aftertheCommissionhadrefusedtofurtherextendthedeadlineforcollectingsignatures.
ThiscasewasturneddowninDecember2014.
TheCommissioniscurrentlyexaminingthisinitiative,tocomeforwardwithitsresponseby3June2015.
TheEuropeanParliament'sCommitteeonAgricultureandRuralDevelopment(AGRI)intendstoorganiseapublichearingon11May2015,withtheinvolvementofotherparliamentarycommittees(notablyPETI,ENVIandITRE).
5.
TheEuropeanParliament'sroleandpositionSincetheoriginsofthedebateontheestablishmentofacitizens'initiativeintheframeworkoftheEuropeanConvention,theEuropeanParliamenthasbeenastrongsupporteroftheECI.
TheamendmentsitputforwardduringthenegotiationsontheECIRegulationaimedatincreasingthetool'scitizen-friendliness.
SomeamendmentswererejectedbytheCouncil,e.
g.
loweringthethresholdtoonefifthofMemberStates(theoriginalCommissionproposalstipulatedonethird,whereasthecompromiseinforcestipulatesonequarter);orthattheRegulationmakesexplicitreferenceinitsRecitalstoproactivelypromotingandraisingawarenessofthenewinstrument.
Conversely,Parliamentsuccessfullypushedforanopen-sourcesoftwaresolutionfortheonlinecollectionofsignatures,whichtheCommissionhadtoprovidefreeofcharge,andforalteringthereviewclausetothreeyears(insteadoffiveintheCommissionproposal),allowingfortheidentificationandcorrectionofshortcomingsofthenewinstrumentatanearlierstage.
Furthermore,Parliamentinsistedonenshrininganappropriatefollow-uptosuccessfulECIsintotheRegulation,notablythatorganisersshouldbereceivedbytheCommissionandthatapublichearingshouldbeorganisedintheEuropeanParliament.
Since2010,thecommitteeonConstitutionalaffairs(AFCO)hasconsistentlyputforwardamendmentstothegeneraldraftbudgetoftheEuropeanUnion,aimingatallocatingresourcestosetupapropersystemoftoolsforasuccessfulimplementationoftheECIRegulation,oraimingatusingtheresourcesofotherEUcitizenshipprogrammestoprovideexhaustivecommunicationandadequatesupport.
Theseproposedamendmentshavehowevereventuallynotbeenincludedinthebudget.
76OneofUsandOthersv.
ParliamentandOthers–CaseT-561/14;dateofapplication:25/07/2014.
77Case2071/2013/EIS.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34327TheEuropeanParliament'smostvisibleroleintheECIprocesstodayistheorganisationofpublichearingsforsuccessfulinitiatives.
TheParliamentservesasaplatformfortheorganiserstopubliclypresenttheirinitiative,inordertostimulateapublicdebate.
Asmentionedabove,sofar,twohearingswereheld,ontheRight2WaterECIon17February2014,andontheOneofUsECIon10April2014,withathirdoneforthcomingon11May2015ontheStopvivisectionECI.
NeithertheECIRegulationnortheParliament'sRulesofProcedure–whichwereamendedin2012totakeaccountofParliament'sroleintheECIprocess–stipulatedetailsaboutthehearing,whetherthesubjectshouldbediscussedinabalancedmanner(prosandcons),nordotherulescoverwhomtoinvite.
Inthiscontext,theCommissionandtheEuropeanOmbudsmanadvocatetohaveexpertsandinterestedstakeholdersfrombothsidesrepresented,forandagainstaninitiative,giventhatthethreemonthperiodbetweenthesubmissionofanECIandtheCommission'sformalresponseistooshorttoundertakeastakeholderconsultation.
78Inproceduralterms,thehearingisorganisedbythecompetentcommittee,accordingtothesubjectoftheECI,withthepetitionscommittee(PETI)alwaysassociated.
PETI,whichisingeneralactivelymonitoringtheapplicationoftheECI,isinprinciplealsoopentoorganisinghearingsforunsuccessfulECIs,i.
e.
initiativesthatdidnotpassthesignatories'threshold:accordingtoRule218(2)oftheParliament'srulesofprocedure,these"maybeexaminedbythecommitteeresponsibleforpetitionsifitconsidersthatfollow-upappropriate".
Thefirstsuchhearingwasheldon26February2015,ontheECIEndEcocide.
Followingapublichearing,parliamentarycommitteescandecidetosupportECIsbymeansofown-initiativereportsormotionsforresolutions,asawaytopressuretheCommissionintotakingaction.
ThisisindeedthecaseconcerningtheRight2WaterECI.
79Moreover,aspartofastrongerfollow-uptosuccessfulECIs,itwasrepeatedlysuggestedthattheseshould,inadditiontothepublichearingincommittee,alsobedebatedandvotedinParliament'splenary.
80Inanumberofresolutions,theEuropeanParliamentvoiceditsconcernsabouttheunsatisfactoryimplementationoftheECIandcalledforimprovements:-EuropeanParliamentresolutionof12March2014ontheEUCitizenshipReport2013.
EUcitizens:yourrights,yourfuture;TA(2014)0233.
ParliamentcalledonEUgovernmentstoimplementtheECIRegulationinsuchawayastoensuretheircitizenslivingabroadcansupportaninitiative.
-EuropeanParliamentresolutionof11March2014ontheactivitiesoftheCommitteeonPetitions2013;TA(2014)0204.
78ECIreview,p.
15;andDecisionoftheEuropeanOmbudsmanclosingherown-initiativeinquiryOI/9/2013/TNconcerningtheEuropeanCommission,4March2015,seepoint22andguideline5.
79Follow-uptotheEuropeancitizens'initiativeRight2Water,RapporteurLynnBoylan(GUE,IE),2014/2239(INI).
80E.
g.
byformerAFCOchairCarloCasiniduringtheEPhearingontheECI,26February2015;bySophievonHatzfeld(DemocracyInternational)inherarticleEuropeanCitizens'Initiative:Commissionadmitsroomforimprovement,inEurActiv.
com,1April2015.
EuropeanImplementationAssessmentPE536.
34328ParliamentstressedtheneedforaregularreviewoftheECI'sfimplementation,criticisingthe"manyweaknessesandtherathercumbersomenatureoftheexistinglegalframeworkwhichdoesnotfullytranslatethespiritoftheTreatyprovision".
-EuropeanParliamentresolutionof10October2013ontheactivitiesoftheCommitteeonPetitions2012;TA(2013)042.
ParliamentcriticisedthebureaucraticburdensinthepracticalrunningoftheECIduetoalackofITsupportanddisparateuseinthenationaladministrations.
-EuropeanParliamentresolutionof4July2013ontheEuropeanParliament'sprioritiesfortheCommissionWorkProgramme2014;TA(2013)0332.
ParliamentcalledontheCommissiontoassesstheimplementationoftheregulationontheEuropeanCitizens'Initiativeandtoamendit,whereappropriate.
Basedontwooralquestions81,on18April2013,theEuropeanParliamentheldaplenarydebateonthefirstexperienceswiththepracticalimplementationoftheECI,followingaCommissionstatement.
Members'mainconcernwasthebadlyfunctioningCommissionsoftwarefortheECI,andtheestimated11million82citizensdeprivedoftheirrighttosupportanECI,duetodisenfranchisement.
Noresolutionwasadopted.
Moreover,theECIwasthesubjectofnumerousparliamentaryquestionsintheframeworkofMEPs'rightofinterpellation.
Inthecurrentlegislativeterm(sinceJuly2014)individualMembershavealreadyaddressedeightwrittenquestionstotheCommission.
ManyMEPshaveactivelysupportedindividualECIs.
6.
RecommendationsforabetterfunctioningECIAsdescribedinthispaper,someobservershavecloselymonitoredtheearlyyearsoftheECIandidentifiedanumberofshortcomingsinitsdesignandimplementation,whichimpactnegativelyontheeffectivenessandacceptanceofthisrelativelynewinstrumentoftransnationalparticipatorydemocracy.
ThecurrentECI'fatigue'isanissueofconcerntoobservers;thereseemstobeoverallconsensusthatwithoutsignificantreform,disenchantedcitizenswillrefrainfrommakinguseofthisinstrumentinthefuture.
ThepublichearingattheEuropeanParliament,theEuropeanOmbudsman'sconclusionsandnotleastCommissionVice-PresidentTimmerman'spersonalcommitmenttofurtherimprovingtheECI,areproofofavividpoliticaldebateandagenuinewilltoadjusttheECI,tomakeitmorecitizen-friendlyandsimpler.
EveniftheCommission'srecentreviewaddressesonlyafewproblematicissuesand,ingeneral,doesnotanticipateanoverhauloftheECIRegulation,itdoeshoweverstressitscommitmenttoremainingactivelyengagedinthereflectionprocess.
Inadditiontotheseinputs,numerousconstructivecontributionstoapossiblefutureECIreformhavebeenputforwardbyactorsinthefield,intheformofrecommendationson81O-000032/2013totheCouncilandO-000033/2013totheCommission.
82Itisnotclearhowaccuratethisestimatewasatthetimeoftheparliamentarydebate.
Inanycase,currentfiguresshouldbeconsiderablylower,duetopreviousamendmentstoAnnexIIIoftheECIRegulation,whichreducedthenumberofdisenfranchisedcitizens.
ImplementationoftheEuropeanCitizens'InitiativePE536.
34329howtomaketheECIbetterwork.
TheircommonaimistourgetheCommissionandtheMemberStatestodrawonthelessonslearnedandtotransformtheEuropeanCitizens'Initiativeintoacitizen-friendlytool.
Thefollowingactorshaveputforwardconcreterecommendations:MilieuLtd.
studyfortheEuropeanParliament,TheEuropeanCitizens'Initiative–firstlessonsofimplementation(2014),p.
53-56.
83TheECICampaign:12waystobuildaEuropeanCitizens'Initiativethatworks!
(2015)84ECISupportCentre/ECAS:10RecommendationstomakeasuccessofEuropeanCitizens'Initiative(2013)85ECAS'specificrecommendationsontheissueoflegaladmissibility,in:TheEuropeanCitizens'Initiativeregistration:fallingatthefirsthurdleAnalysisoftheregistrationrequirementsandthe"subjectmatters"oftherejectedECIs(2014),p.
17-18.
86DemocracyInternational(2014).
87Takingaccountofallthesedifferentcontributions,inourview,themostimportantrecommendationstomaketheECItoolfitforpurposeinclude:1.
ThelegalframeworkshouldprovideforsimpleranduniformrequirementsacrosstheEU-28,inparticularconcerningpersonaldata,tofacilitatesigningandtopreventcertaingroupsofexpatriatesfrombeingdisenfranchised.
TherequirementofsomeMemberStatestoaskforIDnumbersshouldbereconsidered.
The(optional)useofadigitalsignatureshouldbepromotedinthiscontext.
2.
AllEUinstitutions,togetherwithMemberStates,shouldengageinraisingtheawarenessoftheECIasaninstrumentforcitizens,andcontributetopromotingspecificinitiatives.
3.
DedicatedECIsupportcentresshouldbeestablishedintheEUrepresentationsintheMemberStates,providinginformationandadvicetopotentialECIorganisers,includinglegalandtechnicaladvice.
4.
TheCommissionshouldprovidemoredetailedandcomprehensibleargumentsandconsistentreasoninginitsdecisionstorefuseregistration.
Inthiscontext,theEuropeanCourtofJusticewillhelpclarifyingthearbitraryinterpretationof"fallingmanifestlyoutsidetheframeworkoftheCommission'spowers"andwhetherECIsrequiringTreatyamendmentscouldbedeclaredadmissible.
83http://www.
europarl.
europa.
eu/RegData/etudes/STUD/2014/509982/IPOL_STU(2014)509982_EN.
pdfThisexternallycommissionedstudydoesnotreflectthepositionoftheEuropeanParliament,evenifitwaspositivelyreceivedbyMembersoftheAFCOandPETIcommittees.
Itwaspresentedon24September2014beforePETI,andon6November2014intheAFCOcommittee.
84http://www.
citizens-initiative.
eu/12-ways-to-build-eci-that-works/85http://ecas.
issuelab.
org/resource/10_recommendations_to_make_a_success_of_european_citizens_initiatives86http://www.
ecas.
org/wp-content/uploads/2014/12/ECI-report_ECAS-2014_1.
pdf87http://www.
democracy-internatiRonal.
org/european-citizens-initiative-reformEuropeanImplementationAssessmentPE536.
343305.
TheCommissionshouldpermanentlyofferserverfacilitiesforECIs,atnocharge,andcontinueitseffortstomaketheOnlineCollectionSoftwaremoreuser-friendly.
6.
Apoliticallystrongfollow-upofsuccessfulinitiativesshouldbeensuredbytheCommission.
TheEuropeanParliamentshouldalsoplayastrongerrole,bydebatingandvotinginplenaryonsuccessfulECIs.
7.
An(optional)legalstatusforcitizens'committeescouldbeestablished,tomitigatetheriskofpersonalliabilityfortheirindividualmembers,andtofacilitatecampaigning.
8.
Organisersshouldbeallowedtofreelychoosethedatetostartcollectingsignatureswithinaclearlydefinedtime-limitfollowingregistration.
9.
Theminimumageofsignatoriesshouldbeloweredto16,thusdecouplingitfromtheageofentitlementtovoteinEuropeanelections.
7.
MainreferencesEuropeanCommission(2015),ReportontheapplicationofRegulation(EU)No211/2011onthecitizens'initiative.
ReportfromtheEuropeanCommissiontotheEuropeanParliamentandtheCouncil.
COM(2015)145,31March2015.
EuropeanOmbudsman(2015),DecisionoftheEuropeanOmbudsmanclosingherown-initiativeinquiryOI/9/2013/TNconcerningtheEuropeanCommission.
4March2015.
EuropeanParliament(2014),EuropeanCitizens'Initiative–firstlessonsofimplementation/PolicyDepartmentC:Citizens'rightsandconstitutionalaffairs.
78p.
CarstenBergandJaniceThomson(eds.
)(2014),AnECIthatworks!
LearningfromthefirsttwoyearsoftheEuropeanCitizens'Initiative/TheECICampaign.
122p.
LuisBouzaGarcía,JustinGreenwood(2014),TheEuropeanCitizens'Initiative:anewsphereofEUpolitics,InInterestgroups&advocacy,Vol.
3,3,pp246-267.
LuisBouzaGarcía(eds.
)(2012),TheEuropeanCitizen'Initiative-afirstassessment:paperspreparedfortheworkshoporganisedbytheEuropeanGeneralStudies'programmeoftheCollegeofEurope,Bruges,25January2011,85p.
MichaelDougan(2011),WhatarewetomakeoftheCitizens'Initiative,InCommonmarketlawreview48,pp1807-1848.
EuropeanCitizensActionService-ECAS(2014),TheEuropeanCitizens'Initiativeregistration:fallingatthefirsthurdleAnalysisoftheregistrationrequirementsandthe"subjectmatters"oftherejectedECIs.
December2014,26p.
JamesOrgan(2014),DecommissioningdirectdemocracyAcriticalanalysisofCommissiondecision-makingonthelegaladmissibilityofEuropeanCitizens'Initiativeproposals,InEuropeanconstitutionallawreview,10,pp422-443.
TheEuropeanCitizens'Initiative:theexperienceofthefirstthreeyearsPE536.
343318.
Annex:ListofallECIstodateSubjectCurrentstatusRegisteredRefusedWithdrawnClosedAnsweredbyCommission1Fraternité2020-Mobility.
Progress.
Europe.
Closed(insufficientsupport)09/05/201201/11/20132SingleCommunicationTariffAct(I)Withdrawn10/05/201203/12/20123Waterandsanitationareahumanright!
Waterisapublicgood,notacommodity!
(alsoknownas"Right2Water")AnsweredbytheCommission10/05/2012CommunicationCOM(2014)177andfollow-up4EUDirectiveonDairyCowWelfareWithdrawn10/05/201220/07/20125Oneofus**AnsweredbyCommission11/05/2012CommunicationCOM(2014)355andfollow-up6Letmevote(I)Withdrawn11/05/201229/01/20137RecommendsingingtheEuropeanAntheminEsperantoRegistrationrefused30/05/20128FortalecimientodelaparticipaciónciudadanaenlatomadedecisionessobrelasoberaníacolectivaRegistrationrefused30/05/20129MyvoiceagainstnuclearpowerRegistrationrefused30/05/201210StopvivisectionSubmittedtoCommission22/06/201201/11/2013Communicationdueby03/06/201511HighQualityEuropeanEducationforAllClosed(insufficientsupport)16/07/201201/11/201312Pourunegestionresponsabledesdéchets,contrelesincinérateursClosed(insufficientsupport)16/07/201201/11/201313AboliciónenEuropadelatauromaquiaylautilizacióndetorosenfiestasdecrueldadytorturapordiversiónRegistrationrefused19/07/201214SuspensionoftheEUClimate&EnergyPackageClosed(insufficientsupport)08/08/201201/11/201315CentralpubliconlinecollectionplatformfortheEuropeanCitizenInitiativeClosed(insufficientsupport)27/08/201201/11/201316OneMillionSignaturesfor"AEuropeofSolidarity"***Registrationrefused06/09/201217Créationd'uneBanquepubliqueeuropéenneaxéesurledéveloppementsocial,écologiqueetsolidaireRegistrationrefused06/09/201218UnconditionalBasicIncome(I)Registrationrefused06/09/201219EndEcocideinEurope:ACitizens'InitiativetogivetheEarthRights(I)Withdrawn01/10/201221/01/201320EuropeanInitiativeforMediaPluralism(I)Withdrawn05/10/201220/08/20132130km/h-makingthestreetsliveable!
Closed(insufficientsupport)13/11/201213/11/201322KündigungPersonenfreizügigkeitSchweizWithdrawn19/11/201204/02/201323SingleCommunicationTariffAct(II)Closed(insufficientsupport)03/12/201203/12/201324UnconditionalBasicIncome(UBI)-ExploringapathwaytowardsemancipatorywelfareconditionsintheEU(II)Closed(insufficientsupport)14/01/201314/01/201425EndEcocideinEurope:ACitizens'InitiativetogivetheEarthRights(II)Closed(insufficientsupport)21/01/201321/01/201426EnforcingselfdeterminationHumanRightintheEURegistrationrefused21/01/201327Letmevote(II)Closed(insufficientsupport)28/01/201328/01/2014EuropeanImplementationAssessmentPE536.
34332SubjectCurrentstatusRegisteredRefusedWithdrawnClosedAnsweredbyCommission28ACT4GrowthClosed*10/06/201310/06/201429TeachforYouth--UpgradetoErasmus2.
0Withdrawn17/06/201315/06/201430EnsemblepouruneEuropesansprostitutionlégaliséeRegistrationrefused18/07/201331Cohesionpolicyfortheequalityoftheregionsandsustainabilityoftheregionalcultures***Registrationrefused25/07/201332StopcrueltyforanimalsRegistrationrefused25/07/201333Donotcounteducationspendingaspartofthedeficit!
Educationisaninvestment!
Closed(insufficientsupport)06/08/201306/08/201434EuropeanInitiativeforMediaPluralism(II)Closed*19/08/201319/08/201435MinoritySafePack–onemillionsignaturesfordiversityinEurope***Registrationrefused13/09/201336ToholdanimmediateEUReferendumonpublicconfidenceinEuropeanGovernment's(EG)competenceRegistrationrefused29/10/201337RighttoLifelongCare:Leadingalifeofdignityandindependenceisafundamentalright!
***Registrationrefused05/11/201338OurconcernforinsufficienthelptopetandstrayanimalsintheEuropeanUnionRegistrationrefused06/11/201339WeedLiketoTalkClosed*20/11/201320/11/201440EuropeanFreeVapingInitiativeClosed(insufficientsupport)25/11/201325/11/201441TheSupremeLegislative&ExecutivePowerintheEUmustbetheEUReferendumasanexpressionofdirectdemocracyRegistrationrefused23/01/201442AnewEUlegalnorm,self-abolitionoftheEuropeanParliamentanditsstructures,mustbeimmediatelyadopted.
Registrationrefused23/01/201443TurnmeOff!
Withdrawn03/02/201422/04/201444NewDeal4Europe-foraEuropeanspecialplanforsustainabledevelopmentandemploymentWithdrawn07/03/201431/01/201545MOVEUROPEWithdrawn24/03/201426/06/201446Ethicsforanimals&kids***Registrationrefused26/03/201447Vitel'Europesociale!
Pourunnouveaucritèreeuropéencontrelapauvreté(I)Registrationrefused05/08/201448STOPTTIP***Registrationrefused10/09/201449AnendtofrontcompaniesinordertosecureafairerEuropeOpen01/10/201450ForasociallyfairEurope!
EncouragingastrongercooperationbetweenEUMemberStatestofightpovertyinEurope(II)Open19/12/201451OnthewireOpen09/02/2015*ECIsforwhichthecollectionofsignatureshasclosed,buttheyhavenotbeensubmitted.
TheCommissionstatesnottoavailofinformationwhethertheseinitiativeshavegainedsufficientsupport.
**CasependingbeforetheECJasregardstheCommissionCommunication.
***CasespendingbeforetheECJasregardstheCommission'sregistrationdecision.
ThisisapublicationoftheEx-PostImpactAssessmentUnitEPRS|EuropeanParliamentaryResearchServiceEuropeanParliamentPE536.
343ISBN:978-92-823-6604-2DOI:10.
2861/814242CAT:QA-02-15-143-EN-Nwww.
europarl.
europa.
eu/thinktank(Internet)www.
epthinktank.
eu(blog)www.
eprs.
sso.
ep.
parl.
union.
eu(Intranet)TheEuropeanCitizens'Initiative(ECI)hasbeeninoperationsinceApril2012.
Observershaveidentifiedanumberofshortcomingsinitsimplementation,whichimpactnegativelyontheeffectivenessandacceptanceofthisrelativelynewinstrumentoftransnationalparticipatorydemocracy.
Againstthisbackground,stakeholdersarecallingforsimplificationandasubstantialrevisionofthecurrentECIframeworkanditsapplication,includingitsimplementationintheEUMemberStates.
On31March2015,theCommissionpresenteditsfirstreportontheapplicationoftheECIRegulation.
WhileitconcludedthatitconsideredtheECItobefullyimplemented,ithoweverlistedafewareasforimprovement.
Itiswidelyexpectedthatthisreview,togetherwiththeEuropeanOmbudsman'srecentrecommendations,willpromptarevisionofthatregulation.
ThispaperseekstoprovideasystematicoverviewofthecurrentweaknessesintheECIprocessandputsforwardconcreterecommendationsforabetterfunctioningECI.