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Improving urgency

procedures and crisis preparedness within the

European Parliament and

EU institutions

Rationales for democratic, efficient and

effective governance under emergency rule Policy Department for Citizens' Rights and Constitutional Affairs

Directorate-General for Internal Policies

PE 730.838 - March 2022

EN STUDY

Requested by the AFCO committee

Abstract

This study, commissioned by

the European Parliament's Policy Department for Citizens' Rights and Constitutional Affairs at the request of the AFCO Committee, analyses the obstacles to democratic, transparent and efficient decision-making in urgency situations at the EU level, with a specific focus on the European Parliament. It provides a systematic overview of Parliament's role and functions as well as the interinstitutional cooperation during recent crisis situations and concludes with proposals on how to improve the existing set-up and

Parliament's internal procedures.

Improving urgency

procedures and crisis preparedness within the

European Parliament and

EU institutions

Rationales for democratic, efficient and

effective governance under emergency rule This document was requested by the European Parliament's Committee on Constitutional Affairs.

AUTHOR

Maurer, ANDREAS, Professor, Jean Monnet Chair for EU Integration studies, University of Innsbruck Annex III: Dietrich, MARCUS, Assistant to the Jean Monnet Chair, University of Innsbruck, and

Duller, MELINA,

Assistant to the Jean Monnet Chair, University of Innsbruck

ADMINISTRATOR RESPONSIBLE

Eeva PAVY

EDITORIAL ASSISTANT

Fabienne VAN DER ELST

LINGUISTIC VERSIONS

Original: EN

ABOUT THE EDITOR

Policy departments provide in-house and external expertise to support EP committees and other parliamentary bodies in shaping legislation and exercising democratic scrutiny over EU internal policies. To contact the Policy Department or to subscribe for updates, please write to: Policy Department for Citizens' Rights and Constitutional Affairs

European Parliament

B-1047 Brussels

Email:

poldep-citizens@europarl.europa.eu

Manuscript completed in

March 2022

© European Union, 2022

This document is

available on the internet at:

DISCLAIMER AND COPYRIGHT

The opinions expressed in this document are the sole responsibility of the authors and do not necessarily represent the official position of the European Parliament. Reproduction and translation for non-commercial purposes are authorised, provided the source is acknowledged and the European Parliament is given prior notice and sent a copy.

© Cover image:

Jemina MAURER, 2022

Improving urgency procedures and crisis preparedness

PE 730.838 3 CONTENTS

LIST OF

ABBREVIATIONS 7

LIST OF BOXES 12

LIST OF FIGURES 12

LIST OF TABLES 13

EXECUTIVE SUMMARY 14

1. INTRODUCTION 17

1.1. Structure of the paper 20

1.2. The normative set-up for emergency situations 21

2. CONCEPTS AND TYPES OF EMERGENCIES 23

2.1. Framing the emergency 23

2.2. Authorising and limiting emergency rule 27

2.3. Conceptualisation of emergency situations by the ECHR 28

3. HOW THE EU TREATIES DEAL WITH EMERGENCY RULE 30

3.1. Solidarity clause and the Council's implementing decision 30

3.2. Article 122 TFEU and the EU's economic and financial crisis 31

3.3. Article 122 TFEU and the COVID-19 crisis 32

3.4. Article 196 TFEU, emergency situations and the Civil Protection Mechanism 34

3.5. State aid and Emergency 36

3.6. Article 168 TFEU and the Decision on serious cross-border threats to health 37

3.7. Free movement of citizens and the Schengen Borders Code 40

3.8. Article 78(3) TFEU and the risk of excessive emergency measures 47

3.9. Specific rules for urgency procedure 48

3.10. Urgency procedures in the Institutions' Rules of Procedure 49

3.10.1. Urgency procedures in the Council's Rules of Procedure 50

3.10.2. Urgency procedures in Parliament's Rules of Procedure 53

3.10.3. Urgency procedures in the Commission's Rules of Procedure 53

4. PARLIAMENT"S ROLES AND FUNCTIONS IN URGENCY SITUATIONS 55

4.1. Parliament and EMU's financial and economic crisis 55

4.1.1. Negotiations on 'six-pack' regulations 57

4.1.2. The TSCG negotiations 62

4.1.3. Parliament's system-development function and post-emergency EMU reform 63

4.2. Parliament's efficiency test: the MFF and the rule-of-law regulation 69

4.3. Brexit and urgency requirements within Article 50 TEU and Article 218 TFEU 72

IPOL | Policy Department for Citizens' Rights and Constitutional Affairs

4 PE 730.838

4.4. Negotiating EU-China relations under emergency rule 78

4.5. Parliament and the COVID-19 health emergency 80

4.5.1. Emergency measures taken by the Presidency and the Bureau 82

4.5.2. Parliament's seat under emergency 83

4.5.3. Towards Parliament's remote participation regime 84

4.5.4. Measures to adapt legislative work 86

4.5.5. Remote Parliament - implications for committees and the Plenary 86

4.5.6. Adaptation of Parliament's Rules of Procedure 87

4.6. Impact of the crisis on Parliament's functions - A macroscopic analysis 91

4.6.1. Effects on Parliament's policy-making function 93

4.6.2. Effects on Parliament's interaction and emerging policy-initiation functions 100

4.6.3. Effects on Parliament's control function 106

5. PRACTICES AT THE LEVEL OF NATIONAL PARLIAMENTS AND INTERNATIONAL

ASSEMBLIES 111

5.1. Comparative overview 111

5.2. Interim conclusions and recommendations 114

6. CONCLUSIONS AND RECOMMENDATIONS 116

6.1. The way forward - Supranational Parliamentary Democracy after the crisis 119

6.2. Reviewing Parliament's rights under the state of emergency 120

6.3. Strengthening Parliament's access to information 121

6.4. Digital or digitalised democracy? Recommendations for the digitalisation of Parliament in a

post-COVID world 123

6.5. Recommendations for internal reform 127

6.6. Improving inter-institutional cooperation under emergency rule 128

6.7. Setting up the Special Committee on COVID-19 129

6.8. Creating a horizontal emergency provision 131

6.9. Amending Article 168 TFEU on the EU's health policy 131

REFERENCES 133

ANNEX I

PARLIAMENT"S POWERS AND CONSTRAINTS UNDER ARTICLES 218 AND 207

TFEU 143

ANNEX II - THE EU"S LEGISLATIVE RESPONSE TO THE HEALTH EMERGENCY 155 ANNEX III - REPORTS ON A SELECTION OF THE EU NATIO NAL PARLIAMENTS AND

INTERNATIONAL ASSEMBLIES 163

NATIONAL PARLIAMENTS 163

1. HUNGARY 163

1.1 Emergency procedures 163

Improving urgency procedures and crisis preparedness

PE 730.838 5

1.2 The Hungarian Parliament during COVID-19 163

2. GERMANY 164

2.1. Emergency procedures 164

2.2. The German Parliament during COVID-19 165

2.2.1. Legislative function and policy making 165

2.2.2. Working conditions, control and transparency 166

3. ITALY 166

3.1. Emergency procedures 166

3.2. Italy's Parliament during COVID-19 166

3.2.1. Legislative function 167

3.2.2. Control and transparency 167

4. AUSTRIA 168

4.1. Emergency procedures 168

4.2. Austria's Parliament during COVID-19 169

4.2.1. Legislative Function 169

4.2.2. Control and transparency 169

5. LATVIA 170

5.1. Emergency procedures 170

5.2. Latvian Parliament during COVID-19 170

5.2.1. Legislative function 170

5.2.2. Control and transparency 171

INTERNATIONAL ASSEMBLIES 171

6. SWITZERLAND 171

6.1. Emergency procedures 172

6.2. The Swiss Parliament during COVID-19 173

6.2.1. Legislative and policy making 173

6.2.2. Control function and transparency 173

6.2.3. Working conditions 174

7. UNITED STATES OF AMERICA 174

7.1. Emergency procedures 174

7.2. US Senate during COVID-19 175

7.2.1. Legislative function 175

7.2.2. Control and transparency 175

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6 PE 730.838

8. AUSTRALIA 176

8.1. Emergency procedures 176

8.2. The Australian Parliament during COVID-19 176

8.2.1. Legislation and policy making 176

8.2.2. Control and Transparency 177

8.2.3. Working conditions 178

9. NEW ZEALAND 178

9.1. Emergency procedures 178

9.2. New Zealand Parliament during COVID-19 178

9.2.1. Legislative function 178

9.2.2. Control and transparency 179

10. BRAZIL 180

10.1. Emergency procedures 180

10.2. The Brazilian Parliament during COVID-19 180

10.2.1. Legislative function 180

10.2.2. Control and transparency 181

10.2.3. Working Conditions 181

11. NIGERIA 182

11.1. Emergency Procedures 182

11.2. The Nigerian Parliament during COVID-19 183

11.2.1. Legislation and policy making 183

11.2.2. Control and Transparency 183

11.2.3. Working conditions 184

ANNEX IV - SPECIFIC EMERGENCY OVERSIGHT MEASURES AND INSTITUTIONS 185 Improving urgency procedures and crisis preparedness

PE 730.838 7

LIST OF ABBREVIATIONS

ACTA Anti-Counterfeiting Trade Agreement,

AFCO Committee on Constitutional Affairs

AFET Committee on Foreign Affairs

AGRI Agriculture and Rural Development Committee

BECA Special Committee on Beating Cancer

BLM-IIA Inter-institutional agreement (IIA) on Better Law-Making BSE Bovine Spongiform Encephalopathy ("mad cow disease")

BSG Brexit Steering Group

BUDG Committee on Budgets

CAI Comprehensive Agreement on Investment (EU-PRC)

CAP Common Agricultural Policy

CCC Conference of Committee Chairs

CCP Common Commercial Policy

CF Cohesion Fund

CFP Common Fisheries Policy

CMO Common market organisation

CoE Council of Europe

CONT Committee on Budgetary Control

CoP Conference of Presidents

CoR Committee of the Regions

COREPER Comité des représentants permanents / Committee of the Permanent Representatives of the Governments of the Member States to the European Union COSAC Conférence des Organes Spécialisés dans les Affaires de lїUnion europquotesdbs_dbs18.pdfusesText_24

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