ࡱ>  @ ,bjbjFF ,,Pv0 l*l*l*(* |:|:|::vvv8Tv\w:9mz@x@x(hxhxxÂ\0,l.l.l.l.l.l.l$pRsZRli|:eWlÂeeRl**hxxl6;;;e*d hx|:x,l;e,l;;A6d|:Mhx4x /Nyv%hFpklH9m G_s=_sM::****M _s|:P/xz;!H///RlRl:<Z(:<Z october 2007 directorate general international and european relations eu institutions and fora division Better regulation C. barontini, B. Frankal* - eif: european issues - * The authors gratefully acknowledge the contributions to this note made by N. de Windt (DG-S), A. Larsen Kendall (DG-L) and F. Recine(D-FS), as well as comments from H. Ongena and T. Martens. Executive Summary Although a long standing item on the EU agenda, Better Regulation has recently been given a higher political profile because it has become a core part of the Lisbon Strategy. The aim is to free up business resources away from providing unnecessary information and towards activities that should increase productivity, attract more foreign investment to the EU, generate employment and accelerate growth. One goal of the Better Regulation programme is to reduce the actual amount of existing EU law, by encouraging the use of alternative, lighter, regulatory approaches and by a simplification process that reduces the amount of EU law and increases its overall coherence. Much has already been achieved, and a real change in culture can be observed, particularly at the Commission. A standard European model has been agreed to measure administrative costs. In March 2007, the European Council agreed to cut the administrative burden imposed by EU legislation by 25% by 2012. A second goal is to improve the quality of EU legislation, including through better drafting and more consideration of possible consequences. To achieve this, greater involvement by the stakeholders who will actually be affected by often complex EU legislation is crucial. Here too, there are already real results. The life cycle of EU law now systematically involves the consultation of stakeholders and economic impact assessments. A third goal is to strengthen the level playing field through the more consistent application of EU regulation across the different Member States. This is mainly a task for the Commission, who see to it that directives are transposed accurately and on time by the Member States. Better Regulation has become a flagship EU policy and a high-profile part of the Lisbon Strategy. Success will require prolonged political will to carry the policy through a long and complex process aimed at rolling back new or entrenched EU regulatory requirements where they are unnecessary. Contents Introduction ..... 3 The three pillars of Better Regulation .. 4 Reducing regulation (paras 2 6) 4 Box 1: EU decision-makers on Better Regulation ... 6 Box 2: Reducing the administrative burden in the field of statistics .. 8 Higher quality regulation (paras 7 9) .. 8 Applying regulation more consistently (paras 10 12) .... 10 Conclusion .... 13 Introduction The Better Regulation initiative dates back to 1992, when it was initially a response to the wave of EU legislation in the build-up to the completion of the Single Market. For a decade, results were very limited. However, with the publication in 2001 of a Commission White Paper on European Governance, the issue began to be taken seriously. Since 2004, Better Regulation has been given a very high profile by the Barroso Commission, linking it closely to the Lisbon Strategy. The Lisbon Strategy, originally launched by the European Council in 2000, set the goal of making the EU the most competitive and dynamic economy in the world. One objective was to simplify the regulatory environment, including the performance of public administration, at both national and Community levels. When the Lisbon Strategy was relaunched in March 2005, its focus was narrowed to growth and jobs, and the Better Regulation programme became a key element. It is now one of the 16 Broad Economic Policy Guidelines (BEPGs) for 2005-2008, with the aim of creating a more competitive business environment and [to] encourage private initiative through better regulation. The BEPGs apply both to the EU and the Member States, and therefore guide both national and EU actions to implement Lisbon. The reason the Better Regulation programme has become such an important element of the Lisbon Strategy is that by improving regulation and lessening the administrative burden on companies, resources can be to reallocated to more productive activities, thereby, potentially, increasing their productivity. Improved regulation also removes obstacles to adaptation and innovation, increasing companies international competitiveness. By successfully anchoring the Better Regulation programme in the Lisbon Strategy, the Commission has succeeded in making it a priority area for the Council, as evidenced by four succeeding Council Presidencies (Ireland, Netherlands, Luxembourg and the UK, subsequently joined by Austria and Finland) making it a key priority of their work programmes. Following the Commissions strategic review of the Better Regulation programme in November 2006, and its January 2007 Action Plan, in March 2007 the European Council endorsed the Commissions proposals to launch a comprehensive exercise to measure administrative costs and to reduce the administrative burden arising from EU legislation by 25% by 2012. The European Council also discussed national legislation. Clearly, the overall administrative burden can only be significantly reduced through a strong joint effort of both the EU and the Member States. However, in March 2007, Member States proved unwilling to bind themselves to reduce the national administrative burden in the same way they set a clear target for the EU. Despite this, several Member States are pioneers of Better Regulation and all are party to the common EU effort. Much of the work necessary to meet the European Councils 25% target falls on the Ecofin Council. In October 2007, it discussed the progress made to date at both the EU and the national level, and future actions required. In November 2007, it will specifically discuss the administrative burden in the field of statistics. The Ecofin Council will monitor both the Commissions ongoing efforts and those of the Member States and will be actively involved in preparing the Strategic Review of Better Regulation, which will form the basis of a further set of decisions by the European Council in Spring 2008. 1. The three pillars of the Better Regulation programme Better Regulation is a loosely-defined term that is now used in a broad sense to include a wide variety of measures to reduce the amount of legislation, and to improve its quality and the consistency of its application. Although the various elements of the Better Regulation programme do not fall easily into the different categories, three pillars are sometimes distinguished. The first pillar is that Better Regulation is intended to reduce the actual amount of existing legislation. The focus here is on legal techniques, such as simplification and consolidation, that reduce the amount of applicable laws and increase their overall coherence, as well as on alternative regulatory techniques, such as voluntary codes. Included in this pillar is the reduction of the administrative burden, which has been given a great deal of prominence in the debate. The second pillar is about improving the intrinsic quality of new regulation, primarily through the increased involvement of stakeholders and through systematically assessing the potential consequences (or impact) that legislation is likely to produce. The third pillar focuses on better and more consistent implementation of EU legislation across the different Member States. 2. Better Regulation means less regulation The combined body of EU law, the acquis communautaire, comprises some 70,000 pages and includes over 9,000 EU legislative measures, of which nearly 2,000 are directives, each requiring up to 300 national (or regional) legislative measures to transpose them into the national law of the 27 Member States. The Better Regulation programme seeks to reduce this volume of law. The main methodology for achieving this is simplification. This should not be confused with deregulation, which means removing regulation in a given area. Rather, simplification is a process whereby several related legal instruments are considered together, in order to rationalise them and create a smaller, more coherent body of law. A sectoral approach is applied for these exercises, with all legislation in a given area considered together, to try to cut both the number of acts and the number of pages, and to improve horizontal consistency. 3. First results in reducing the amount of EU legislation The simplification initiative is based on a three year rolling programme, the first period of which was 2005 to 2008. This contained some 100 simplification initiatives. A further 43 were added when the programme was updated for the 2006 to 2009 period. For the years 2005 and 2006, a total 73 simplifications were planned, of which 51 were completed, with a further five cancelled after consultations with stakeholders. For 2007, 44 of a planned 47 will be completed. Three specific areas have been prioritised, namely agriculture (where in 2007 twenty concrete projects should be completed), fisheries and statistics. The Commission is also committed to withdrawing legislative proposals, and now systematically screens those that are in the legislative pipeline with a view to their possible withdrawal. The Barrosso Commission withdrew 68 out of the 183 pending legislative proposals it inherited, and has subsequently withdrawn a further ten announced since 2004. 4. Less regulation by using alternative forms of regulation Recent decades have seen a steady rise in alternative forms of rule-making, not least in the field of financial services. This is consistent with Better Regulation principles, which consider that legislation should be the last resort. Alternative regulatory forms include sectoral agreements and self-regulation, both by private and public sector actors, including at the European level. An example of such private-sector regulation is the European Accounting Standards, and of the public sector, the ESCB-CESR Standards, which can be implemented only through the voluntary agreement of relevant counterparties. There is also co-regulation, where the EU partly entrusts the attainment of the regulations objectives to third parties. Where legislation is adopted, there is a well-established principle of EU law that legislative acts cannot go beyond what is necessary to achieve their objectives, i.e. proportionality. This presumes that in all cases the least onerous means must be used and all alternatives to legislation must be fully considered. It is also worth noting that subsidiarity, as set out in a Protocol to the 1997 Amsterdam Treaty, requires that EU law can only be used where its objectives cannot be sufficiently achieved by Member States actions and are better achieved at EU level. The effects of these various attempts are illustrated in Figure 1, which shows the clear trend of the Commission producing less proposals. Box 1: EU decision-makers on Better Regulation Subject to the political guidance of the European Council, the Better Regulation programme has been driven by the Commission, with strong support from several Member States, most notably the Netherlands, Denmark and the UK. As regards the Better Regulation programmes first pillar (reducing the amount of EU regulation), the Commission is the key body, because it has the (almost) exclusive right to initiate legislation, and can also withdraw it. Reducing the administrative burden of EU legislation is also dealt with under this heading. Here, it is the Ecofin and Competitiveness formations of the Council that have the main responsibility for measuring administrative costs and reducing administrative burdens. In November 2006, the Commission set up a High Level Group to guide the work of the Competitiveness Council, whose main focus is on how Better Regulation could improve competitiveness. As regards the second pillar (improving the quality of EU regulation), better lawmaking principally involves the Council and the European Parliament. Together with the Commission, these institutions have signed several interinstitutional agreements to improve the quality of EU legislation. For the Ecofin Council, the key point is the programmes importance for the Lisbon Strategy. Both the EFC and the EPC are working on the design of the common methodology for measuring administrative costs and on reducing the administrative burden. The Ecofin Council also has a specific role in the field of statistics, which is therefore also discussed at the EFC and EPC. At technical level, a leading role is played by the EFCs Sub-Committee on Statistics. Strongly backed by business, the momentum of the programme, and the pressure for tangible results, has continued to rise, and in October 2007 a High Level Group of Independent Stakeholders on Administrative Burdens was created to help the Commission achieve the 25% reduction in the administrative burden. Chaired by Edmund Stoiber, its fifteen members include figures from business, trade unions, NGOs and academia. As regards the third pillar (applying EU regulation more consistently), the Commission again has the key role as the principal body responsible for ensuring that EU legislation is applied in the same way and at the same time across all Member States. 5. Better Regulation means reducing the administrative burden Measuring the administrative costs and reducing the administrative burden created by regulation is now a primary goal of the Better Regulation programme, and, unsurprisingly, the aim most referred to by stakeholders. Administrative costs are the costs incurred by businesses and other bodies in collecting information further to regulation. As Figure 2 shows, administrative costs are estimated to amount to as much as 6.8% of GDP in some EU countries. The part of those costs relating to information that would not be collected if it were not legally required is termed administrative burden. Some of this is labelled as unnecessary administrative burden, meaning it adds to the costs of businesses without creating any value added. In the field of statistics, the term response burden is also used. An example of unnecessary response burden in this field is that because of legal obstacles to data sharing amongst authorities of different Member States, companies often need to report the same data to several different administrations. There are not yet any figures to quantify the global administrative burden. However, several simulations led to the estimate that a reduction of 25% of the administrative burden would create a on-off increase in EU GDP of 150 billion, and an increase of 1.4  1.8% of GDP in the medium-long term. 6. Measuring costs and reducing the burden Based on the Commission s Action Plan of January 2007, the Ecofin Councils current work is focused on measuring administrative costs and reducing the administrative burden. For measurement, the EU Standard Cost Model has been developed and is now being widely used. The measurement exercise that has now begun will be ongoing throughout the length of the programme, i.e. until 2012. As regards reducing the burden, in March 2007, the European Council endorsed the Commissions plans to reduce the administrative burden arising from EU legislation by 25% by 2012. The Action Plan focused on thirteen clearly identified priority areas, including company law, tax law, statistics and financial services. With a view to several quick wins, in March 2007 the Commission proposed, as a first step, a fast-track procedure for ten specific actions that could immediately be taken to eliminate 1.3bn of administrative burden on small businesses. By July 2007, six of these actions had been completed.  Box 2: Reducing the administrative burden in the field of statistics Simplifying and reducing the administrative (or  response ) burden in the field of statistics has been an issue for many years. It has now become a priority area for the Ecofin Council, which, in 2004, invited the EFC (with the assistance of the ECB and the Commission) to come up with specific proposals regarding priority setting. A Commission Communication of November 2006 identified a number of priority areas for simplification and proposed a number of statistical tools to minimise the response burden, such as using smaller samples and raising the thresholds for reporting. The Commission also promotes the identification of synergies among statistical areas, such as structural business statistics and national accounts, and proposes applying a cost-benefit analysis to all new statistical requirements. The sharing of already-existing information among different institutions also has potential for significant reductions of the burden. However, access to administrative data for statistical purposes is uneven across the EU and is hampered in several Member States by legal obstacles. The proposed simplification and prioritisation has the potential to free resources for high-priority euro area statistics that are still lacking, such as several so-called Principal European Economic Indicators. An increased application of European (as opposed to national) sampling and a more intensive use of administrative and accounting data may substantially contribute to burden reduction. However, there are some concerns that undue emphasis on reducing the statistical burden may result in a severe adverse effect on the quality of essential statistics, as may increasing thresholds, such as the Commissions recent initiative to exclude small entities from certain accounting and reporting obligations.7. Better Regulation means higher quality regulation The Better Regulation programme is also about improving the quality of EU legislation, e.g. by increasing legal certainty and so making the effects of laws more predictable. It also means more involvement of the stakeholders who will actually be affected by the new law, with the intention of helping ensure that provisions have the effect intended in the often highly-complex technical areas in which the EU legislates. The 1997 Amsterdam Treaty contained a Protocol on relevant principles and the Commission, the European Parliament and the Council have now signed several interinstitutional agreements to increase best practice on the quality of legal instruments. A seminal work in this respect was the publication in 2000 of a report by the Mandelkern Group, which presented a set of recommendations to improve the quality of EU law covering the whole life cycle of policy, from inception and design to legislation, implementation and review. The report recommended the central use of consultations and impact assessments as tools for initiating and designing legislation. Another tool for the proper implementation and review of legislation is post-legislative assessments, although their use is not yet routine. These assessments examine the effects of legislation after a set period (usually three years) and assess the impact and validity of ex ante impact assessments. Mandatory review clauses are increasingly included in EU legislation. 8. Higher quality regulation through increased involvement of stakeholders Stakeholder involvement in the legislative process has been shown to raise the quality of legislation, mainly through receiving the opinions of experts in the field at an early stage. Also, by increasing the laws accessibility to those same stakeholders, it provides them with a greater sense of ownership. Stakeholders can be both private sector businesses and public bodies, both at the national and the European levels (e.g. the Committee of Regions or the European Economic and Social Committee). The appropriate tool in this context is consultation, of which there are two types. The first relates to policy developments, is made at an early stage, and provides the opportunity for input on specific questions or general feedback on Commission proposals. This is often in the form of a green paper. The second type of consultation is when there is an actual draft text of a legal instrument and the Commission wants precise drafting comments. In this case, the Commission usually publishes a white paper. The Commission has developed several web-based techniques for such consultations and usually publishes all responses. Communications and miscellaneous reports are also consultation tools, as are fora such as workshops and open hearings, and the Commissions use of permanent and ad hoc expert groups that exist in various specialist fields. The Commission has recently set up a register of such expert groups. Figure 3 provides an overview of the use by the Commission of its various consultation tools, and shows the increase in their use.  9. Higher quality regulation through systematic use of impact assessments In 2001, the European Council decided that all legislative proposals must take into account economic, social and environmental costs. For such costs to be taken into account, they must first be identified and quantified. Regulatory Impact Assessments (RIAs) are intended to gather and present information to help determine all possible policy options, highlighting the benefits and drawbacks of a legislative proposal and so helping to ensure that legal instruments are cost-effective, proportional and likely to succeed in their stated aims. An interinstitutional agreement of 2005 binds the Council and the European Parliament to take RIAs fully into account when examining Commission proposals and to carry out impact assessments of their own on substantial amendments. The Commission has developed a standardised methodology for RIAs, and from 2003 to June 2007 it conducted 230 impact assessments. In Spring 2006, the whole internal operational set up of the Commission regarding impact assessments was subjected to an external evaluation, which led, in November 2006, to the creation of an independent Impact Assessment Board, which is directly responsible to the Commission President. This Board scrutinises all draft impact assessments carried out by individual Commission departments. The methodology that was developed to calculate administrative costs (the EU Standard Cost Methodology), as endorsed by the Ecofin Council in March 2007, is an integral part of the RIA device. 10. Better Regulation means applying EU law more consistently A third aim of the Better Regulation programme is to ensure that legislation is applied consistently throughout the EU. The main focus is on EU directives, which, unlike EU regulations, have no direct effect. Instead, directives set out the result to be achieved and need to be transposed into national law by every Member State. Better Regulation principles suggest the greater use of regulations instead of directives, as one common instrument, uniformly applicable, takes the place of at least 27 different national legal acts. This was also the conclusion of Lamfalussy and his Committee of Wise Men in 2001 in their seminal report on the regulation of European Securities Markets. However, owing to the reluctance of Member States, there has been no move towards more regulations. Inevitably, with directives, there is scope for national discretion and variation, such as gold-plating, when some Member States go further than provided for in the directive. There is also the time-lag problem, with directives coming into force at different times in different Member States (and sometimes later than specified in the directive). The Commission closely monitors implementation, producing annual reports on the application of EU law. Of a higher profile is the twice-yearly Internal Market Scoreboard, where the transposition deficit (the non-implementation of directives by Member States after the required date) currently stands at 1.6%. However, this does not include incorrect transpositions. A significant aid is the systematic use of correlation tables, which show how each provision of a directive is transposed into the national law of each Member State. As seen in Figure 4, the Commission is very active in taking Member States to the European Court of Justice for late or incorrect transposition of directives.  11. Better Regulation in the Member States Attitudes towards Better Regulation vary greatly between Member States. In March 2007, in addition to agreeing on a 25% reduction of the administrative burdens arising from EU legislation by 2012, the European Council also invited Member States to set comparable targets for their own legislation by 2008. These are to be set out in National Reform Programmes, which will provide details of national measures and initiatives taken in this field. Follow-up action, if any, will be considered in the context of the 2008 Strategic Review. So far, eight Member States have set such national targets. As to results already achieved by Member States, in a few, these are already in advance of those at EU-level, e.g. between 2002 and 2007 the Netherlands reduced the administrative burden on companies by 26%. Denmark, Sweden and the UK too have made significant progress. Consultation mechanisms are already mandatory in the national legislative processes of nine Member States and the use of systematic impact assessments for national legislation is growing, as is use of the EU Standard Cost Model. Several Member States have established independent advisory bodies to advise national governments on reducing the administrative burden. Support for the Better Regulation programme is also prominent from European business lobbies. 12. Better Regulation in the US and international financial institutions The concept of Better Regulation also exists outside the EU. The US in particular has long experience of considering the impact of regulations proposed by federal agencies and has a special branch of government for this regulatory oversight: the Office of Information and Regulatory Affairs, which is part of the Office of Management and Budget and is directly attached to the White House. Federal agencies are required to consider all economically significant regulatory actions on the basis of cost-benefit analysis. Several international institutions have also developed comparable analyses and use them for regular assessments. The OECD monitors the efficiency and effectiveness of regulatory policies and publishes Regulatory Quality Indicators and a Red Tape Scoreboard. It also makes ex-post evaluations of regulatory tools and institutions. A joint EU-OECD project promotes better regulation practices in Central and Eastern Europe. The World Bank produces an annual Doing Business report, where it ranks 178 economies on the basis of ten indicators related to the quality of regulation. In the 2007 report, several new Member States, most notably Estonia, Hungary and Bulgaria, were shown to have made great progress, and Estonia was ranked higher than most of the EU15. The IMF meanwhile takes the quality of regulation into account in its surveillance activities. In the EUs case, it identified regulatory reform as a key element in achieving the goals of the Lisbon Strategy, which, in the long term, could deliver, according to the IMF, a significant increase in GDP and productivity. Conclusion Mainly because of the Lisbon Strategy, the Better Regulation programme now has a high profile. A clear and agreed timetable for action is in place and results have started to be achieved. The Commission is producing less new legislation and its targets for simplifying existing legislation are largely being met. A standard European model to assess the administrative costs of regulation is being used. Consultation and impact assessments, which take into account stakeholders views and the economic consequences of legislation, are becoming an integral part of the EUs legislative machinery, which is producing less law and regulation of a higher quality. The European Councils agreement in March 2007 to reduce the administrative burden arising from EU legislation by 25% by 2012 further increases the pressure for results and also the political cost of failing. Much of this work falls to the Ecofin Council and its subsidiary bodies. However, most regulation in Europe, including the transposition of EU legislation, is produced by legislators and regulators at the national level. Despite the fact that Member States have, so far, been unwilling to make any similar commitment as regards reducing the national administrative burden, the picture is not entirely negative. Transposition, as a general trend, has greatly improved. Also, several Member States have fully adopted the Better Regulation agenda and some are in advance of the EU in applying it. Also, all have been involved in adopting the model to measure administrative costs and all are committed to reducing the administrative burden. Hence, even if the speed of the process is uncertain, the direction seems clear. Better Regulation offers the potential of significant rewards, in terms of freeing up business resources from providing unnecessary information obligations towards the innovation that should increase productivity, attract more foreign investment to the EU, generate employment and accelerate growth. That is why the policy has such an important role in the Lisbon Strategy. However, Better Regulation is no quick fix. On the contrary, it requires legal perseverance to bring coherence to many previously unconnected texts and the development of a robust approach to quantifying the cost of regulation and to finding a common European way, consistent with the EUs level playing field, to balance identified costs against expected benefits. Better Regulation also requires political will. Whether the momentum can be maintained or whether reform fatigue surfaces before the hard work is done, will ultimately determine the success of this once-obscure but now flagship EU policy.  Various legal techniques are used in this context, including consolidation, codification and recasting. Consolidation is the grouping together, without adopting a new legal act, of the diverse fragments of legislation governing a given matter, without affecting the legal validity of those fragments. It has no legal effect but creates a more user-friendly version. Codification is the adoption of a new legal act repealing and replacing a legal act and its subsequent amending acts. Recasting is codification with new, substantive, changes.  The full list also includes pharmaceutical legislation, working environment/employment relations, agriculture, food safety, transport, fisheries, environment, cohesion policy and public procurement.  Those with less than ten employees, a balance sheet total below 500,000 and turnover below 1m.  This was a high-level advisory group created further to the conclusions of the Lisbon European Council meeting of 2000. It consisted of 16 experts from the (then) 15 Member States and the Commission.  Unless the respondents specifically ask that their contribution is not published.  Austria, Czech Republic, Germany, Denmark, Spain, the Netherlands, Sweden and the United Kingdom. Seven use the same (25%) benchmark, while the eighth (Czech Republic) set a 20% target. 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