A6-0049/2008
29.2.2008
***III
ДОКЛАД
относно съвместен проект, одобрен от помирителния комитет, на регламент на Европейския парламент и на Съвета за общите правила в областта на сигурността на гражданското въздухоплаване и за отмяна на Регламент (ЕО) № 2320/2002
(PE-CONS 3601/2008 – C6‑0029/2008 – 2005/0191(COD))
Делегация на Европейския парламент в помирителния комитет
Председател на делегацията:
Rodi Kratsa-Tsagaropoulou
Докладчик:
Paolo Costa
PE 400.383v02-00
Легенда на използваните знаци
* Процедура на консултация
мнозинство от подадените гласове
**I Процедура на сътрудничество (първо четене)
мнозинство от подадените гласове
**II Процедура на сътрудничество (второ четене)
мнозинство от подадените гласове за одобряване на общата позиция
мнозинство от всички членове на Парламента за отхвърляне или изменение на общата позиция
*** Одобрение
мнозинство от всички членове на Парламента, освен в случаите по членове 105, 107, 161 и 300 от Договора за ЕО и член 7 от Договора за ЕС
***I Процедура на съвместно вземане на решение (първо четене)
мнозинство от подадените гласове
***II Процедура на съвместно вземане на решение (второ четене)
мнозинство от подадените гласове за одобряване на общата позиция
мнозинство от всички членове на Парламента за отхвърляне или изменение на общата позиция
***III Процедура на съвместно вземане на решение (трето четене)
мнозинство от подадените гласове за одобряване на съвместния проект
(Посочената процедура се базира на правното основание, предложено от Комисията.)
СЪДЪРЖАНИЕ
ПРОЕКТ НА ЗАКОНОДАТЕЛНА РЕЗОЛЮЦИЯ НА ЕВРОПЕЙСКИЯ ПАРЛАМЕНТ....5
ИЗЛОЖЕНИЕ НА МОТИВИТЕ...............................................................................................6
ПРОЦЕДУРА...........................................................................................................................11
ПРОЕКТ НА ЗАКОНОДАТЕЛНА РЕЗОЛЮЦИЯ НА ЕВРОПЕЙСКИЯ ПАРЛАМЕНТ
относно съвместен проект, одобрен от помирителния комитет, на регламент на Европейския парламент и на Съвета за общите правила в областта на сигурността на гражданското въздухоплаване и за отмяна на Регламент (ЕО) № 2320/2002
(PE-CONS 3601/2008 – C6‑0029/2008 – 2005/0191(COD) )
(Процедура на съвместно вземане на решение: трето четене)
Европейският парламент ,
– като взе предвид съвместния проект, одобрен от помирителния комитет, и прилежащите декларации на Комисията (PE-CONS 3601/2008 – C6‑0029/2008 ),
– като взе предвид своята позиция на първо четене
ОВ C 300 Е, 9.12.2006 г., стр. 463. относно предложението на Комисията към Европейския парламент и Съвета ( COM(2005)0429 ),
– като взе предвид своята позиция на второ четене
Приети текстове на 25.4.2007 г., P6_TA(2007)0142 . относно общата позиция на Съвета
ОВ C 70 Е, 27.3.2007 г., стр. 21. ,
– като взе предвид становището на Комисията относно измененията в общата позиция, внесени от Парламента ( COM(2007)0475 ),
– като взе предвид член 251, параграф 5 от Договора за ЕО,
– като взе предвид член 65 от своя правилник,
– като взе предвид доклада на своята делегация в помирителния комитет ( A6‑0049/2008 ),
1. одобрява съвместния проект;
2. възлага на своя председател да подпише акта заедно с председателя на Съвета, съгласно член 254, параграф 1 от Договора за ЕО;
3. възлага на своя генерален секретар да подпише акта след проверка на надлежното изпълнение на всички процедури и да пристъпи към публикуването му, заедно с генералния секретар на Съвета, в Официален вестник на Европейския съюз;
4. възлага на своя председател да предаде законодателната резолюция на Съвета и на Комисията.
ИЗЛОЖЕНИЕ НА МОТИВИТЕ
I. Background
The proposal for a Regulation on common rules in the field of civil aviation security was adopted by the Commission on 22 September 2005 ( COM(2005)0429 ). The fundamental aim of the proposal was to replace Regulation 2320/2002 establishing common rules in the field of civil aviation security, which had been adopted very quickly after 11 September 2001.
After two and a half years of experience with Regulation 2320/2002, it was apparent that a simpler and more flexible legislative framework was needed; one which would leave more decisions to implementing legislation than had the previous, very detailed legislation. At the same time, a greater degree of harmonisation was considered necessary to facilitate operations of the industry. Finally, it was hoped that greater clarity would make for more effective implementation of the security standards.
Like Regulation 2320/2002, the proposal covered issues such as the security standards to be followed at airports (e.g. the screening of passengers, prohibited articles or cargo), the means to monitor compliance with the common standards (e.g. Commission inspections), and international cooperation.
II. The legislative procedure before conciliation
The committee responsible, the Committee on Transport and Tourism, appointed Mr Costa as rapporteur. The Parliament held its first reading on 15 June 2006. Contacts between the Parliament and the Council took place during the Finnish Presidency in an attempt to reach an early second reading agreement. A compromise package (later referred to as the "Finnish compromise"
See Council documents 14498/06, 14145/06, 12455/07 and DS 653/07. ) was, however, rejected by the Parliament. Thereafter, the Council adopted its common position, on 11 December 2006: the Parliament's second reading took place on 25 April 2007.
At second reading, the Parliament adopted 97 amendments. In Parliament's view, the Council's common position had failed to address the question of cost sharing for aviation security measures. The Parliament restored its first reading position on the issue of financing.
III. Conciliation
The constituent meeting of Parliament's delegation to the Conciliation Committee was held on 10 July 2007. Its members mandated the chair, Mrs Kratsa-Tsagaropoulou, the chair of the TRAN committee and rapporteur, Mr Costa, and the other members of the negotiation team, Mr Jarzembowski and Mr El Khadraoui, to begin informal negotiations with the Council.
Before the formal opening of the conciliation procedure on 20 November, four trialogues were held (on 4 September, 25 September, 10 October and 13 November) and the EP delegation met three times (on 5 September, 26 September and 23 October). When the conciliation procedure was formally opened, the two most controversial issues were still the financing of aviation security measures and, as had emerged during the procedure, the comitology provisions.
At the conciliation meeting of 20 November, the Council was represented by Mr Lino, Portuguese Minister of Transport, and the Commission by Vice-President Barrot. Even after two trialogues and delegation meetings, no agreement could be reached and the Conciliation Committee was adjourned.
A further trialogue at political level, with Mr Lino and Mr Barrot, took place on 10 December. All main outstanding issues (financing, comitology, the transition from the old to the new legal regime) were discussed, but no overall agreement could be reached. The Parliament delegation meeting on the following day therefore proposed to the Council a package comprising proposals on the three issues mentioned above. Since the Council could not accept all of these proposals a final agreement could be found only after a further EP delegation meeting on 18 December and an exchange of letters between the Presidency-in-Office of the Council and the chair of the EP delegation.
IV. Key points of the agreement reached
IV.1 Arrangements for financing security measures: Two Articles (Security Costs (Article 5) and Commission Report on Financing (Article 22)) were added to the text.
The Article on Security Costs sets out, as a first step, certain provisions in this matter. While non-binding language is used for the sharing of costs, the provisions on security charges (that they are directly related to the costs of providing security measures and designed to recover no more than the relevant costs involved) are of a binding nature, using the word "shall".
The report of the Commission, due no later than 31 December 2008, will deal with the principles of financing civil aviation security measures, the steps necessary to ensure that security charges are used exclusively to meet security costs, and ways to improve the transparency of such charges. It will also set out the principles necessary to safeguard undistorted competition between airports and between air carriers and the different methods to ensure consumers' protection as regards the distribution of the costs of security measures between taxpayers and users. This report "will be accompanied, if appropriate, by a legislative proposal". The Parliament accepted this standard wording together with a statement of Vice-President Barrot.
Vice-President Barrot states that he intends to present to the College of Commissioners a legislative proposal "on the distribution of the costs, between taxpayers and users, of the more stringent aviation security measures that Member States may adopt, further to the common basic standards provided in this new Regulation".
IV.2 Comitology: The Parliament succeeded in convincing the Council and the Commission to use the regulatory procedure with scrutiny for a whole series of measures when defining the common basic standards for aviation security (Article 4). The new comitology rules will apply, inter alia, to methods for screening of passengers (which will be relevant should the Commission wish to introduce, for example, body scanners as a new method of screening) and to the categories of articles that may be prohibited (such as, for example, liquids).
IV.3 Other issues:
· As regards the publication of implementing measures, a general rule was added that measures which have a direct impact on passengers shall be published (recital 16 and Article 16).
· An Article on the cooperation with the International Civil Aviation Organisation (ICAO) concerning audits was added (Article 8).
· The concept of "one-stop security" was strengthened (recital 20 and Article 20).
· The provisions on the use of sky-marshals were improved with a reference to training (recital 8) and the required security conditions (chapter 10.3 of the Annex).
· A provision was added to recital 3 that consideration should be given to the most effective means of offering assistance following terrorist acts that have a major impact in the transport field.
· The date of application of the new Regulation can be less than two years from the entry into force. The Parliament will be involved in the decision on the date of application via the regulatory procedure with scrutiny (Article 24).
V. Analysis of the agreement
The agreement reached in the course of the conciliation procedure on the civil aviation dossier represents a positive outcome for the Parliament. This can clearly be demonstrated by comparing the final outcome with the Finnish compromise on the table during the first reading.
Before the adoption of the common position by the Council, during the second reading and at the beginning of the conciliation procedure, the Council representatives underlined repeatedly that the Finnish compromise was as far as the Council would be able to go.
Letter from Mr BÁRTOLO (Chairman of Coreper I) to Mrs KRATSA-TSAGAROPOULOU of 25 July 2007: '... that the Council, for its part, is prepared to show some flexibility on its common position, but that it will not be able to go beyond the principles established in its compromise proposal submitted to Parliament in November 2006.'
The final agreement reached clearly goes much further than the Finnish compromise:
V.1 Finance
Concerning finance , the positions of the Commission
The initial Commission proposal did not contain any provisions as to the question of who would pay for the security measures. Parliament had been very disappointed by this omission of the Commission since the Parliament, the Council and the Commission in an Interinstitutional Declaration added to Regulation 2320/2002 had recognised that the funding question had to be analysed urgently. and the Council
The common position does not contain any provisions on financing. In its statement Council outlined that it would be inappropriate in such a technical regulation to include requirements or obligations on financing and that "the principle of subsidiarity dictates that such questions be addressed at national level." (OJ C 70 E of 27.3.2007, p. 32) (which did not want to include any provisions on financing in the text) and the Parliament (with several quite far-reaching amendments on this issue
Identical amendments in first (AMs 3, 35, 44 and 43) and second reading (AMs 3, 31, 38, 39 and 44). ) were poles apart. The final compromise is clearly closer to the Parliaments amendments than the Finnish compromise:
As regards the sharing of costs, both texts use non-binding language. In the final text, however, the provisions are included in Article 5 while in the Finnish compromise they were only in recital 18a. Moreover, the language used in Article 4a of the Finnish compromise underlines the autonomy of Member States, while the final text can be read as a first step towards Community rules. The final text is also more detailed.
As to the provisions on security charges (that they are directly related to the costs of providing security measures and designed to recover no more than the relevant costs involved) the expression "should" is used in recital 18a and Article 4a of the Finnish compromise. In Article 5 of the final text the word "shall" is used.
As for the next steps, in recital 18a of the Finnish compromise the Commission "is invited to consider an initiative on the financing of security measures at European airports, and the transparency of security costs, in order to address possible distortion of competition in this field". The final text includes a date ("no later than 31 December 2008") for the report foreseen as the next step and sets out in a much more detailed way what is expected. The provisions are not limited to the objective of addressing "possible distortion of competition", but include also the sharing of costs between taxpayers and users.
In the Finnish compromise, the Commission undertook "in the coming months" to present "a proposal on infrastructure charging at the European airports, including a proposal on transparency of the financing of the security measures". It continued: "On the basis of such legislation the Commission will also further develop a more general approach to the financing of security measures at the European airports." The proposal mentioned became the proposal on airport charges (COM(2006)820) which was made on 24 January 2007, despite the failure of the civil aviation security negotiations at that stage. The final outcome goes further, in the sense that Vice-President Barrot declared his intention to submit a legislative proposal to the College of Commissioners on the distribution of costs for more stringent measures.
V.2 Comitology
At second reading, the Parliament's concerns about the delegated implementing power were expressed in mainly two amendments: one requiring detailed risk, cost and impact assessments for each implementing measure (AM 36) and one providing for a sunset-clause for all implementing measures (measures would expire after six months but could be upheld after a thorough re-evaluation of security risks, costs and operational impact) (AM 33).
The Finnish compromise provided for the regulatory procedure with scrutiny in two cases (the criteria allowing Member States to derogate from the common basic standards and the specifications for the national quality control programme).
Building on Parliament's amendments mentioned above, the final text in addition now provides for the scrutiny procedure for the list of measures contained in Article 4(2), i.e. for the common basic standards. The common basic standards can in a way be considered to be at the heart of the Regulation: the fact that, despite strong resistance, the Council and the Commission eventually accepted Parliament's arguments for the new comitology rules, should be regarded as a considerable success. This will allow for the Parliament's close involvement in such issues as liquids on board an aircraft
See European Parliament resolution of 5 September 2007 on Commission Regulation (EC) No 1546/2006 amending Regulation (EC) No 622/2003 laying down measures for the implementation of the common basic standards on aviation security (introduction of liquids onto aircraft). in the future. In acknowledgement of the need to make quick decisions in certain circumstances, Parliament's delegation accepted the possibility to use the urgency procedures for future measures under the scrutiny procedure.
V.3 Other issues
All the other issues summarised above under IV.3 were not part of the Finnish compromise and constitute clear improvements from the Parliament's view.
VI. Conclusion
As the agreement reached goes much further than what was possible at earlier stages of the procedure, the delegation recommends that the Parliament approves the joint text at third reading.
ПРОЦЕДУРА
Заглавие
Съвместен проект, одобрен от помирителния комитет, на регламент на Европейския парламент и на Съвета за общите правила в областта на сигурността на гражданското въздухоплаване и за отмяна на Регламент (ЕО) № 2320/2002
Позовавания
PE-CONS 3601/2008 – C6‑0029/2008 – 2005/0191(COD)
Председател на делегацията: заместник-председател
Rodi Kratsa-Tsagaropoulou
Водеща комисия
Председател
TRANPaolo Costa
Докладчик (ци)
Paolo Costa
Предложение на Комисията
COM(2005)0429 – C6‑0290/2005
Дата на първото четене в ЕП - Номер P
15.6.2006
P6_TA(2006)0267
Изменено предложение на Комисията
Обща позиция на Съвета
Дата на обявяване в заседание
14039/1/2006 – C6-0041/2007
18.1.2007
Позиция на Комисията
(чл. 251, пар. 2, алинея втора, тире 3)
COM(2006)0810
Дата на второто четене в ЕП - Номер P
25.4.2007
P6-TA(2007)0142
Становище на Комисията
(чл. 251, пар. 2, алинея трета, буква в)
COM(2007)0475
Дата на получаване на втория прочит от Съвета
6.7.2007
Дата на писмото на Съвета относно неодобрението на измененията, внесени от ЕП
2.10.2007
Съвещания на помирителния комитет
20.11.2007
Дата на гласуване на делегацията на ЕП
11.1.2008
Резултат от гласуването
+:
-:
0:
23
0
1
Присъствали членове
Inés Ayala Sender, Philip Bradbourn, Paolo Costa, Arūnas Degutis, Saïd El Khadraoui, Robert Evans, Luis de Grandes Pascual, Georg Jarzembowski, Rodi Kratsa-Tsagaropoulou, Jörg Leichtfried, Eva Lichtenberger, Marian-Jean Marinescu, Hartmut Nassauer, Reinhard Rack, Gilles Savary, Brian Simpson, Dirk Sterckx, Ulrich Stockmann, Silvia-Adriana Ţicău, Corien Wortmann-Kool
Присъствал(и) заместник(ци)
Mathieu Grosch, Elisabeth Jeggle, Anne E. Jensen, Dieter-Lebrecht Koch
Присъствал(и) заместник(ци)
(чл. 178, пар. 2)
Дата на споразумението в помирителния комитет
Споразумение чрез размяна на писма
19.12.2007
11.1.2008
Дата на констатиране от съпредседателите на одобрението на съвместния проект и на предаването му на ЕП и на Съвета
16.1.2008
Дата на внасяне
29.02.2008
Забележки (данни, на разположение само на един език)
…
УДЪЛЖАВАНЕ НА СРОКОВЕ
Срок за второ четене на Съвета
Срок за свикване на комисията
Институция, поискала удължаването - дата
28.11.2007Съвет – 9.11.2007
Срок за работа в комисия
Институция, поискала удължаването - дата
16.1.2008ЕП – 18.12.2007
Срок за приемане на акта
Институция, поискала удължаването - дата
13.3.2008Съвет – 30.1.2008
