ional al Uniunii Uniunii Europ Europene ene Sistemul Instituţional
Cuprins:
1. Scurt istoric..........................................................................................................................3-4
2. Sistemul Sistemul institu instituţional al Uniunii Uniunii Europene Europene............................................................4 2.1. Consiliul de miniş tri.............................................................................................4-5 2.2 Comisia Europeană.......................................................................5 -6 2.3. Parlamentul European..................................................................................................6-7
2.4. 2.4. Curtea Curtea de de Justi Justiţie........................................................................ 8-10 Tribunal nalul ul de primă instan instanţă..........................................................10 2.5. Tribu 2.6. Curtea de Conturi.....................................................................................................10-11 Bibliografie. Bibliografie.................... ...................................... ....................................... ....................................... ........................................ ........................................ ............................12 .........12
Cuprins:
1. Scurt istoric..........................................................................................................................3-4
2. Sistemul Sistemul institu instituţional al Uniunii Uniunii Europene Europene............................................................4 2.1. Consiliul de miniş tri.............................................................................................4-5 2.2 Comisia Europeană.......................................................................5 -6 2.3. Parlamentul European..................................................................................................6-7
2.4. 2.4. Curtea Curtea de de Justi Justiţie........................................................................ 8-10 Tribunal nalul ul de primă instan instanţă..........................................................10 2.5. Tribu 2.6. Curtea de Conturi.....................................................................................................10-11 Bibliografie. Bibliografie.................... ...................................... ....................................... ....................................... ........................................ ........................................ ............................12 .........12
a. S c u rt is to ri c
nite stau stau dou două orga organi niza zaţii importante: Consili ul Europei ca La baza Europei Unite orga organi nism sm politi politicc şi Co Comu munit nitate atea a Econ Econom omic ică Europ Europea ean nă ca organi organism sm econom economic ic.. În cele ce le ce ce urmeaz urmează este este prezen prezentat tată pe scurt o ist istor orie ie a înfi înfiin inţării ac aces esto torr dou două organisme. Putem să spunem că ideea de de Eu Europă unită a fo fost la lansată de Wi Winston Chur Church chil ill, l, ca care re în dece decemb mbrie rie 1946 1946 a înfii înfiin nţat în Mare Marea a Brit Britan anie ie,, Unit United ed Euro Europe pe Movem Movement ent.. Tot în aceeaşi aceeaşi perioa perioad dă Raul Raul Dautry Dautry a creat Consili Consiliul ul Francez Francez pentr pentru u Unitatea Europei şi tot în decembrie1946 Henri Brugmans prezida deja Uniunea Federalişt liştilo ilor. r. La începu începutul tul anului anului 1947 1947 exista exista o mişcar mişcare e Social Socialist istă Europeană a Federa pentru pentru Statele Statele Unite ale Europei Europei sub preşede preşeden nţia lui Bob Edwars. Edwars. În final final toate toate ace ac este ste m miş işccări şi şi aso asociaţii, la iniţiativa iativa contelui contelui Richard de Candenhove Candenhove-Kaler -Kalergi gi au dat naştere Uniuni Parlementare Europene, iar primul preşedinte a fost Georges Bohy. mul congres congres al al Europei Europei s-a s-a desfăşurat şurat în mai mai 1948 1948 sub preşed preşeden enţ ia lui Primul Winston Winston Churchill. Churchill. Congresul Congresul a lansat “mesajul “mesajul europenilor”, europenilor”, un act rezoluţ ie care a influen influenţat nemijloc nemijlocit it crearea crearea institu instituţiilor europene. europene. iniţiati iativa va guve guverne rnelo lorr franc francez ez şi belgi belgian an s-a s-a consi consitu tuit it În iuli iuliee 1948 1948,, din din ini Adun Adunar are ea Co Cons nsul ulta tati tiv vă Euro Europe pean ană, cons consti titu tuit ită din din repe reperz rzen enta tan nţi ai Parla Parlam mente entelo lorr naţionale.La ionale.La costituirea costituirea Adunarii Adunarii Consultat Consultative ive Europene Europene au existat existat diverge divergen nţe între Fran Franţa ,Bel ,Belgi gia a de o part parte e şi Ang Angli lia a de ce ceal alal alttă part parte. e. Fa Faţă de idee ideea a fran franco co-b -bel elgi gian ană ,
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care pleda pentru o adunare desemnată de parlamentele naţionale şi investită cu autoritate, Anglia vedea in aceasta o ”comisie de studiu” atent controlată. Rezultatul compromisului acestor idei a fost ca Consiliului Europei să fie constituit din două instituţii: - Adunarea Consultativ ă, compusă din “reprezentanţii fiecărei ţări
membre”. -Comitetul de miniştri (al Afacerilor externe), organism al
reprezentanţilor guvernelor, împuternicit cu luarea deciziilor. Tratatul Constitutiv al Consiliului Europei a fost semnat la 5 mai 1949 de 10 ţări: Franţa, Marea Britanie, Danemarca, Irlanda, Italia, Belgia, Olanda, Luxemburg, Novergia şi Suedia. La sfârşitul celui de al doilea razboi mondial situaţia economică a Europei era dezastruoasă. Prin planul „Marshall” SUA a intervenit decisiv, cu un ajutor economic masiv la reconstrucţia statelor din vestul Europei, profund afectate de razboi. Pentru gestionarea acestui a jutor economic şi pentru a crea legături
economice puternice î nte statele europene la 16 aprilie 1948 a fost creată Organizaţia Europeană de Cooperare Economică. După o activitate de nouă ani în cadrul OECE, formula integrării a devenit foarte atractivă pentru Franţa, Italia, Benelux şi Germania, care î n martie 1957 prin tratatul de la Roma înfiinţează Comunitatea Economică Europeană. Marea Britanie, Austria, Danemarca, Norvegia, Portugalia, Suedia şi Elveţia
folosind o formulă de asociere, în ianuarie 1960, prin Convenţ ia de la Stockholm crează Asociaţia Europeană a Liberului Schimb. CEE s-a dovedit în timp o instituţie viabila şi numărul membrilor ei a crescut continuu înglobând în timp şi tarile din AELS.
2. Sistemul Instituţional al Uniunii Europene. 2.1. Consiliul de miniştri
Este dificil de realizat o prezentare sintetică a atribuţiilor Consiliului, asta
pentru faptul că ele rezultă dintr-o multitudine de dispoziţii dispersate în trei tratate (articolele: 26 C.E.C.A., 145 C.E.E şi 115 C.E.E.A) toate acestea fiind, în esenţă, dispoziţii de trimitere, cât mai ales pentru că evoluţia fundamentală a modelului instituţional între Tratatul de la Paris şi Tratatele de la Roma a constat în deplasarea centrului de greutate al sistemului în favoarea Consiliului al cărui rol auxiliar, a
devenit dominat. Încercând totuşi o sistematizare a acestora le reţinem pe următoarele: -se ocupă (in conformitate cu prevederile tratatelor iniţiale) cu coordonarea generală a acţ iunilor comunitare cu acţ iunile statelor membre, având în vedere faptul că politicile economice naţionale nu sunt de competenţă exclusiv naţională; -în economia Tratatului de la Maarstricht cooperarea tinde să îmbrace şi un caracter politic, vorbindu-se, din ce în ce mai insistent, despre realizarea Uniunii europene, uniune care întruchipează trecerea de la stadiul economic către cel politic; Al doilea mare grup de atribuţii ale Consiliului vizează aspectul competenţei normative de principiu şi anume: -Consiliul este veritabilul suprem legislativ comunitar (iar nu
Parlamentul, aşa cum ar fi posibil să se inţeleagă la prima vedere), cel puţin în spiritul prevederilor tratatelor, elaborând regulamente şi directive; - unele atribuţii, în materie normativă au fost delegate de către Consiliul Europei, prin procedura delegării de putere, procedură acceptată prin Actul Unic European.
2.2 Comisia Europeană
Este cel de-al doilea organ instituţional comunitar care s-a numit, la
origine, “Înalta Autoritate” (în cadrul Tratului C.E.C.A.). Scopul său pricipal este acela de asigura fiecărei Comunităţi – parte a
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Uniunii Europene – identitatea sa proprie. Comisia reprezintă elementul executiv al Uniunii Europene şi este compusă din 20 de memebri care au un statut de independenţă faţă de guvernele naţionale, deşi sunt numiţi de acestea. Comisia funcţionează reunindu-se odată pe săptămână şi ori de câte ori este necesar. Şedinţele Comisiei nu sunt publice. Tratatele comunitare atribuie Comisiei ca rol principal acela de a exprima interesul comunitar şi de asigura realizarea acestui interes.
Comisia are şi un important rol politic, ea fiind r ăspunzătoare din acest punct de vedere, în faţa Parlamentului European. Un atribut esenţial ce revine Comisiei, este acela de a controla aplicarea tratatelor comunitare atât de către Consiliu, cât şi de către statele membre. În virtutea acestui atribut Comisia poate să declanşeze anumite proceduri juridice care au menirea de a stabili dacă, Consiliul ori statele membre îndeplinesc obligaţiile ce le revin din tratate. Comisia dispune, de asemenea, şi de o procedură prin care poate să “urmărească” un stat comunitar care nu-şi îndeplineşte obligaţiile ce-i revin. Ca organism executiv, Comisia să ocupă de implementarea bugetului comunitar şi de administrarea clauzelor protectoare în tratate şi în legislaţia secundară. Sub aspectul activităţilor pe care le desfăşoară, Comisia nu dispune de liberate deplină, deoarece, potrivit statutului propriu, este obligată să acţioneze numai dacă interesele Comunităţii o cer. Limbile principale de lucru sunt: engleza, franceza şi germana, dar
documentele oficiale sunt traduse şi tipărite, în totalitate, în toate cele 11 limbi oficiale – daneza, engleza, finlandeza, franceza, germana, greaca, italiana, olandeza, portugheza, spaniola şi suedeza.
În domeniul extern, Comisia îndrumă negocierea acordurilor cu ţările terţe, iar în exercitarea mandatelor Consiliul reprezintă Comunităţile.
2.3. Parlamentul European
Încă de la început, organizarea prevăzută a se realiza între cele 6 state membre a avut în vedere aspectul reprezentării lor într-o formă reunită la nivelul Comunităţilor europene. Această reprezentare s-a realiza, la început, în cadrul Adunării Comunităţilor, în prezent Parlamentul European fiind organul destinat acestui scop. Parlamentul este singura instuţie căreia i-a sporit considerabil competenţele atât prin modificarea formală a tratatelor institutive cât, mai ales, prin acordurile instituţionale. În prezent Parlamentul European a reuşit să obţină pe lângă competenţe bugetare şi un rol important în materie legislativă şi în materie de relaţii externe. I. Controlul politic
reprezintă primul atribut al puterii. Această posibilitate
pe care o are Parlamentul european se materializează, în primul rând, în dezbaterile organizate, ocazie cu care diferite organe de acţiune sunt chemate săşi susţină activităţile şi orientarea în plan politic. Fiecare dezbatere se finalizează prin adoptarea unei rezoluţii prin care se face cunoscută poziţia faţă de o anumită problemă. Parlamentul european, organ deliberativ, poate sesiza orice problemă care
consideră că se poate raporta la activitatea şi misiunile Comunităţilor , inclusiv cooperare politică. Instituţia Paralamentului European poate, de asemenea, pe calea unei moţiuni de cenzură să constrângă Comisia să demisioneze. II.
Competen ţa bugetar ă ocupă un loc important între atribuţiile
Parlamentului european şi îi permite, dacă nu să se impună, măcar să negocieze de la egal la egal cu Consiliul. Adunarea poate printr-o majoritatea a membrilor săi şi 2/3 din sufragii exprimate să respingă proiectul de buget în întregime şi să ceară ca un nou proiect să-i fie supus aprobării de către Consiliu. III
În materie legislativ ă Parlamentul european nu deţine atributele
parlamentelor naţionate. Nu are nici competenţa de iniţiativă, rezervată Comisiei, nici competenţa de decizie rezervată Consiliului. 7
Competenţa decizională a Parlamentului există numai în domeniul “micilor revizuiri”. În rest Parlamentul are numai statut de asociat la legislaţia de grade diferite, după care actul intră în câmpul de aplicare al unei sau alteia dintre cele 3 proceduri: - procedura consultărilor este obligatorie interzicându-se Consiliului să
decidă fără ca Parlamentul să fi dat î n prealabil un aviz asupra propunerii Comisiei. - procedura înţelegerii între Adunare şi Consiliu, cu concursul activ al
Comisiei, se deschide atunci când Consiliul percepe o limitare a părerii adoptate de Adunare. Comisa de înţelegere, compusă din membrii Consiliului şi o delegaţie a Parlamentului condusă de Preşedintele său, la lucrăile căreia participă şi Comisia, are scop ajungerea la un acord între cele 2 instituţii. Când punctele de vedere ale celor două instituţii sunt suficient de apropiate Parlamentul trebuie să dea o nouă proprunere şi Consiliul să decidă. - procedura cooperării a fost introdusă prin Actul unic european, iar
câmpul său de aplicare vizează deciziile luate cu majoritate calificată de c ătre Consiliu în domeniul pieţii interne, politicii sociale, coeziunii economice şi sociale şi cercetării. IV. În
materie de rela ţ ii externe, în situaţia în care tratatele se limitează
să prevadă intervenţia Parlamentului numai pentru acordurile de asociere sub forma unei consultări ulterioare, deci înainte de concluzia Consiliului, acesta a obţinut să fie informat în cursul întregului proces diplomatic, atât cu acordurile de asociere, cât şi cu acordurile comerciale sau economice cu ţările terţe. Parlamentul primeşte din timp şi cu titlu oficial o informaţie asupra acordurilor internaţionale şi poate, astfel, să procedeze la o primă dezbatere de orientare în şedinţă plenară, înainte chiar de deschiderea negocierilor. Înainte de semnarea acordului, un reprezentant al Consiliului expune în Parlament rezultatele negocierilor.
2.4. Curtea de Justiţ ie
Necesitatea înfiinţării unei astfel de instituţii s-a resimţit încă din perioada lucrărilor pregătitoare elaborării Tratatului de la Paris, instituind C.E.C.A. Partenerii prezenţi vedeau în Curtea de Justiţie un organism de control al legalităţii actelor emise de Înalta Autoritate şi Consiliul Special de Miniştri (organe ale C.E.C.A.). În cadrul negocierilor s-au propus mai multe soluţii (înfiinţarea unei comisii de arbitraj sau recurgerea la serviciile unui organ de jurisdicţie deja existent – Curtea Internaţională de Justiţie), dar nici una nu a fost adoptată . În cele din urmă s-a optat pentru o soluţie proprusă încă din anul 1950, de a înfiinţ a o Curte de Justiţie proprie. Curtea de Justiţie a fost concepută ca un organism comun al C.E.C.A., C.E.E. şi C.E.E.A. atât pentru raţ iuni de ordin practic, cât, mai ales pentru facilitareas unităţii de aplicare şi interpretare a tratatelor şi pentru a favoriza rezolvarea eventualelor conflicte de competenţă dintre Comunităţi. Curtea este formată din 16 judecători asistaţi de 9 avocaţi generali. Şi unii şi ceilalţi sunt numiţi de comun acord de către guvernele statelor membre. În ceea ce priveşte pe judecătorii, deşi nici o dispoziţia tratatelor nu prevede ca judecătorii să aibă naţionalitatea statelor membre, în practică s-a urmărit, ca, întotodeauna, Curtea să cuprindă cel puţin câte un judecător din fiecare din statele membre. Judecătorii sunt numiţi pe o perioadă de 6 ani, fiind reînnoiniţi fără limitări. Nu este prevăzută nici o limit ă de vârstă pentru judecători. Guvernele statelor membre nu pote revoca un judecător al Curţii în timpul exrcitării mandatului său, Curtea fiind singura în măsură să asigure controlul asupra activităţii şi disciplinei membrilor săi. Judecătorii desemnează, dintre ei, prin vot secret, pe preşedintele
Curţii de justiţie, pentru un mandat de 3 ani care poate fi reînnoit. Avocaţii generali sunt numiţi cu acordul statelor membre pe o 9
perioadă de 6 ani, cu posibilitatea de a li se prelungi mandatul. Rolul esenţial al avocaţilor generali se materializează în momentul punerii concluziillor Din structura Curţii de justiţie, pe lângă judecător şi avocaţi generali, mai fac parte şi grefieri, raport ori adjunc ţi şi referenţ i. Grefierul
este numit de către Curte, cu consultarea avocaţilor, pe o
perioadă de 6 ani. Acesta are misiunea de a primit, conserva şi transmite toate documentele şi, de asemenea, să efectueze eventualele notificări sau comunicări de acte pe care le comportă aplicarea regulamentului de procedură. Asistă la şedinţele Curţii, are în grijă arhivele şi se ocupă de publicaţiile Curţii. Ca atribuţii administrative, grefierul le are pe cele de gestiune şi contabilizare a Curţii cu ajutorul unui administrator. Raportorii adjuncţi au sarcina de a-i ajuta pe preşedinte în procedura
de urgenţă şi pe judecătorii raportori în îndeplinrea atribuţiilor lor. Nu au dreptul să participe la vot, dar pot lua parte la deliberări în cauza pe care au avut-o în studiu. Referenţii.
Fiecare dintre judecători şi avocaţii generali primesc
asistenţa persoană a doi referenţi, jurişti calificaţi, de obicei doctori în drept având aceeaşi naţionalitate ca şi judecătorul sau avocatul. Curtea de justiţie este organul jurisdicţional comun al celor 3 organizaţii ale integrării vest-europene, dar are competenţe specifice şi îndeplineşte atribuţii proprii fiecărei Comunităţi, în conformitate cu tratatul instituitv. Curtea nu poate avea decât competenţa precis determinată fie de chiar textul tratatelor constitutive, fie, pe baza acestora, de actele comunitare cu valoare normativă ori cea conferită de legislaţia unui stat membru pentru cazuri conexe cu obiectul tratatelor. Instanţa comunitară controlează legalitatea acţiunilor sau omisiunilor statelor membre în raport de dispoziţiile tratatelor, tranşând litigiile dintre aceste state, ivite cu aplicarea şi în legătură cu aplicarea şi cu interpretarea actelor statuare. De asemena Curtea mai are şi următoarele atribuţii: - soluţionează acţiuni relative la repararea pagubelor cauzate de
organele Comunităţilor sau de agenţii acestora;
- poate acţiona în soluţionarea litigiilor privind raporturile funcţionarilor comunitari cu organele de care depind; - devine instanţă arbitrară dacă o clauză compromisorie fiinţează în acest sens într-un contract încheiat de una dintre Comunităţi. - acţionează ca o instanţă de recurs de ultim grad;
- este o instanţă internaţională putând tranşa litigii între statele membre, dacă acestea sunt în legătură cu obiectul tratatelor. Curtea de Justiţie este abilitată să soluţioneze litigii între statele membre, între acestea şi organele comunitare, precum şi între organele comunitare între ele.
2.5. Tribunalul de primă instanţă
Este o instituţie asociată Curţii de Justiţie, fiind format din 15 membrii,
aleşi pe o perioadă de 6 ani, cu posibilitatea reânnoirii mandatului la fiecare 3 ani. Ca şi membrii Curţii de justiţie, ei sunt numiţi de comun acord de către guvernele statelor membre.
Tribunalul este, în principal competent să se pronunţe în: - litigiile dintre Comunităţi şi agenţii lor, adică în toate problemele de personal, inclusiv recursurile în despăgubire; - recursurile formulate împotriva unei instituţii a Comunităţilor de către persoane fizice; - recursurile formulate împotriva Comisie de către întreprinderi şi asociaţii de întreprinderi. Tribunalul este competent să se pronunţe, şi în recursurile în despăgubire care urmăresc repararea prejudiciilor provocate de o instituţie comunitară ca urmare a unui act sau a unei reţineri care face obiectul unui recurs în anulare. Tribunalul nu poate judeca niciodată un recurs prejudicial.
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2.6. Curtea de Conturi
Este inclusă în rândul instituţiilor Comunităţilor europene prin Tratatul de la Maastricht din 1992 alături de Consiliu, de Comisie, de Parlament şi de Curtea de Justiţie. A fost creată la iniţiativa Parlamentului european prin Tratatul de revizuire a dispoziţiilor bugetare de la Bruxelles din 22 Iulie 1975, înlocuind, astfel, Comisia de control înfiinţată prin Tratatele C.E.E. şi EURATOM şi Comisarii (delegaţii) pentru conturi prevăzuţi în Tratatul C.E.C.A. Curtea este formată de 15 membrii aleşi pe o perioadă de 6 ani de către Consiliu cu majoritate de voturi, după consultarea Parlamentului. Competenţele Curţii de Conturi sunt foarte mari. Se ocupă cu examinarea
aspectelor de legalitate şi regularitate a totalităţii veniturilor şi cheltuielilor celor 3 Comunităţi, indiferent dacă sunt bugetare sau nu. Totodată, Curtea îşi exercită controlul şi asupra instituţiilor şi statelor membre, în măsura în care acestea au beneficiat şi au folosit fonduri comunitare, cum ar fi: ajutor, servicii de vamă, etc. Atribuţiile susmenţionate se concretizează în rapoarte anuale, elaborate după încheierea exerciţiului financiar, rapoarte care sunt trimise spre informare şi examinare şi altor instituţii comunitare.
BIBLIOGRAFIE
MAZILU, Dumitru – “ Integrarea europeană . Drept comunitar şi instituţii europene“, Ed. Lumina Lex, Bucureşti, 2001.
DIACONU, Nicoleta – “Sistemul instituţional al Uniunii Europene“,Ed. Lumina Lex, Bucureşti, 2001.
Statutul Consiliului Europei semnat la Londra în 5 mai 1949, intrat în vigoare la 3 august 1949, modificat prin procesele verbale ale Secretarului general al Consiliului Europei.
Ion Filipescu ş.a. „Drept Instituţional Comunitar European”, Editura Actami,Bucureşti, 1996.
Corina Leicu „Instituţiile Comunitare”, Editura Lumina Lex, 13
Bucureşti, 1996.
http://europa.eu.
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