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Controlling the Purse: How the European Parliament Shaped Social Policy Through the European Social Fund

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The Parliamentary Roots of European Social Policy

Part of the book series: Palgrave Studies in European Union Politics ((PSEUP))

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Abstract

The EP’s budgetary power has been shown to have played an important role in the EP’s institutional evolution prior to 1979. MEPs swiftly learned to use their power over the Community budget not only to influence expenditure, but also to enhance the EP’s role in Community legislation. The Community’s structural funds were among the mechanisms allowing for such EP activism. This chapter focuses on the EP’s involvement in the establishment and regulation of the first Community structural fund: the European Social Fund. The chapter analyses how MEPs used the ESF in order to attain political aims on the one hand, and to strengthen the EP’s parliamentary powers on the other.

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Notes

  1. 1.

    As in the case of equality policy, this case study is limited to the EEC, given that the ESF was a tool created on the basis of the EEC Treaty, and with a remit limited to the EEC.

  2. 2.

    See Art. 56 ECSC; Vergès (1966: 87) et seq.

  3. 3.

    See Varsori (2010: 243).

  4. 4.

    Regulation No. 9 of 25 August 1960 on the European Social Fund (OJ P56, 31 August 1960, pp. 1189–1198); Brine (2004: 779).

  5. 5.

    One unit of account corresponded to 0.88867088 g of fine gold. See Leboutte (2008: 654).

  6. 6.

    See Tomé (2013: 343).

  7. 7.

    See i.a. Kaelble (2007: 65).

  8. 8.

    See Anderson (1995: 135, et seqq.).

  9. 9.

    See ibid.: 137.

  10. 10.

    See i.a. Varsori (2010: 259); Leboutte (2008: 666); Varsori and Mechi (2007: 225, et seqq.); Murray (2001: 91).

  11. 11.

    O’Grada (1969: 99).

  12. 12.

    See Anderson (1995: 138); Shanks (1997: 15).

  13. 13.

    See Tomé (2013: 346); Brine (2004: 781); Anderson (1995: 134, et seqq.).

  14. 14.

    Brine (2002: 27).

  15. 15.

    See Tomé (2013: 345); Brine (2004: 781).

  16. 16.

    See Consultation of the EP on the implementing regulation of Arts. 124-126 EEC for the ESF, 14 January 1960 (PE0_AP_RP!ASOC.1958_A0-0081!590001DE_0001).

  17. 17.

    Report by the Committee on Social Affairs on the Consultation of the EP on the implementing regulation of Arts. 124-126 EEC for the ESF, December 1959 (PE0_AP_RP!ASOC.1958_A0-0081!590010DE_00435578), p. 1; translated by the author—original quote: “Der Europäische Sozialfonds ist eines der Instrumente, mit dessen Hilfe sowohl die sozialen als auch die allgemeinen Ziele des Vertrages zu erreichen sind”.

  18. 18.

    See Regulation No. 9 of 25 August 1960, Arts. 1 and 2; amended Commission proposal KOM(60) 6 rev. (HAEU, CM2/1960-747); Forsyth (1964: 139).

  19. 19.

    See Resolution on the social aspects of the current coal issues, 15 April 1959 (PE0_AP_RP!ASOC.1958_A0-0026!590001DE_0001), and Resolution on the adaptation measures in the coal mining sector and the social situation of miners as well as certain social issues discussed in the Eighth General Report on the Activity of the ECSC, 1 July 1960 (PE0_AP_RP!ASOC.1958_A0-0057!600001DE_0001).

  20. 20.

    It should be noted that not all EP documents which were coded for these figures are exclusively focused on the ESF. Several contain references to the ESF as a tool to reach political aims with regard to other social policy issues, not all of which are connected to the ESF according to the EEC Treaty, the ESF’s rules of procedure, or Community legislation.

  21. 21.

    Commission proposal for a regulation on the revision of Regulation No. 9 on the ESF, 25 September 1962 (PE0_AP_RP!ASOC.1961_A0-0131!630030DE_00701009).

  22. 22.

    Report by the Committee on Social Affairs on the need to restructure the sulphur industry in Sicily, 4 February 1963 (PE0_AP_RP!ASOC.1961_A0-0133!630010DE_00700983).

  23. 23.

    Commission proposals concerning social measures in favour of workers in the Italian sulphur mines, 13 April 1965 (PE0_AP_RP!ASOC.1961_A0-0090!650030DE_000359).

  24. 24.

    This is, for instance, also visible in a Resolution on Commission proposals for regulations on the more effective organisation of ESF aids, 16 June 1965 (PE0_AP_RP!ASOC.1961_A0-0053!650001DE_0001). In this case, the EP—and through the attached report in particular its social committee—used a consultation based on Arts. 127 and 235 in order to present concrete proposals for the ‘activation’ (i.e., extension) of the ESF.

  25. 25.

    See i.a. Resolution on a Commission proposal for a regulation concerning compensatory measures and Community plans on the improvement of the rural populations’ living conditions, 8 January 1964 (PE0_AP_RP!AGRI.1958_A0-0107!630001DE_0001).

  26. 26.

    See i.a. Resolution on the results of a study trip regarding the particular problems of free movement, 23 January 1964 (PE0_AP_RP!ASOC.1961_A0-0118!630001DE); Report by the Committee on Social Affairs on results of a study trip regarding the particular problems of free movement, 20 January 1964 (PE0_AP_RP!ASOC.1961_A0-0118!640010DE_00699509), p. 5 et seq.

  27. 27.

    Report by the Committee on Social Affairs on the opinion of the Commission concerning the reform of the ESF, 4 December 1969 (PE0_AP_RP!ASOC.1967_A0-0170!690010DE_008129), and connected EP Resolution, 9 December 1969 (PE0_AP_RP!ASOC.1967_A0-0170!690001DE_0001).

  28. 28.

    See Varsori (2010: 261).

  29. 29.

    See Chapter 6.

  30. 30.

    Elderly were first mentioned in an adopted EP document in November 1956. See Report by the Committee on Social Affairs on the social aspects of the report by the head of delegation of the inter-state committee created by the Conference of Messina, November 1956 (AC_AP_RP!ASOC.1953_AC-0002!56-novembre0010DE_00001000).

  31. 31.

    People with disabilities were first mentioned in an adopted EP document in June 1963. See Report drawn up in accordance with the Resolution of 25th March, 1963, on the Eleventh General Report on the activities of the ECSC, 18 June 1963 (PE0_AP_RP!PARL.1958_A0-0036!630010EN_00717271).

  32. 32.

    For consultations during this fourth peak, see i.a. Resolution embodying the opinion of the European Parliament on the communication from the Commission of the European Communities to the Council on the review of the rules governing the tasks and operations of the European Social Fund, 12 May 1977 (PE0_AP_RP!ASOC.1976_A0-0084!770001EN_0001); Resolution on Commission proposals for a Decision regarding European Social Fund assistance towards women, and a Regulation concerning operations qualifying for a higher rate of intervention by the European Social Fund, 11 October 1977 (PE0_AP_RP!ASOC.1973_A0-0314!770001EN_0001).

  33. 33.

    See i.a. Resolution on the crisis in the textile industry, 9 January 1978 (PE0_AP_RP!ECON.1973_A0-0438!770001EN_0001); Resolution on the conclusions of the Seminar held by the Committee on Agriculture in Echternach, 5 June 1979 (PE0_AP_RP!AGRI.1958_A0-0128!790001EN_0001).

  34. 34.

    Whereas, for instance, 20 ESF-related parliamentary questions were submitted during 1976 as the year with the highest frequency of questions on the ESF, there were over 30 questions on equality issues and over 40 questions concerning children and youth policy in 1978.

  35. 35.

    See Westlake (1990).

  36. 36.

    One of the most active British delegates in asking ESF-related questions was Lord O’Hagan. See i.a. Written Questions 668/73, 31 January 1974 (PE0_AP_QP!QE_E-0668!730060EN_183501); 738/73, 28 February 1974 (PE0_AP_QP!QE_E-0738!730060EN_182983); 143/74, 28 May 1974 (PE0_AP_QP!QE_E-0143!740040FR_186113); and 286/74, 7 August 1974 (PE0_AP_QP!QE_E-0286!740040EN_187645) by Lord O’Hagan to the Commission.

  37. 37.

    See i.a. Written Question 537/77 by Willem Albers to the Commission, 31 August 1977 (PE0_AP_QP!QE_E-0537!770040FR_205050); Written Question 633/77 by Aart Geurtsen to the Commission, 30 September 1977 (PE0_AP_QP!QE_E-0633!770040FR_205219); Question 37/79 by Ferruccio Pisoni to the Commission, 27 March 1979 (PE0_AP_QP!QE_E-0037!790050FR_224807); Question 421/78 by Liam Kavanagh to the Commission during Question Time on 18 January 1979 (PE0_AP_QP!QH_H-0421!780015EN_01391787).

  38. 38.

    See i.a. Written Question 624/74 by Luigi Girardin to the Commission, 10 January 1975 (PE0_AP_QP!QE_E-0624!740010EN_192587); Written Question 338/76 by Ernest Glinne and Willy Dondelinger to the Commission, 22 July 1976 (PE0_AP_QP!QE_E-0338!760060FR_208825); Question 40 to the Council by Pietro Lezzi during Question Time on 13 December 1978 (PE0_AP_QP!QH_H-0354!780015EN_01391451).

  39. 39.

    The budget treaties of 1970 and 1975 have been pointed out as such watershed moments in the EP’s history for instance by Hix and Høyland (2013); Doutriaux and Lequesne (2007); Burban (2005); and Burgess (2000).

  40. 40.

    See Resolution on the reform of the ESF, 8 October 1970 (PE0_AP_PR_B0-0141!700001DE_0001).

  41. 41.

    See Opinion of the Committee on Budgets on the communication from the Commission to the Council concerning the review of the rules governing the tasks and operations of the European Social Fund, 27 April 1977 (PE0_AP_RP!ASOC.1976_A0-0084!770010EN_044929), p. 25 (emphasis added).

  42. 42.

    See Chapter 3.

  43. 43.

    See Resolution on the communication from the Commission of the European Communities to the Council on the review of the rules governing the tasks and operations of the European Social Fund, 12 May 1977 (PE0_AP_RP!ASOC.1976_A0-0084!770001EN_0001).

  44. 44.

    Resolution on the implementation of the conciliation procedure referred to in paragraph 14 of the European Parliament’s resolution of 12 May 1977 on the revision of the European Social Fund, 16 December 1977 (PE0_AP_PR_B0-0436!770001EN_0001).

  45. 45.

    See interview with Heinz Schreiber, who could unfortunately not remember the precise issue at hand. Quote from the interview: “that as an issue which had nothing to do with the budget; that was an issue in which there was controversy between the [EP’s and the Council’s] opinion” (original quote: “das war aber eine Sache, die hatte nichts mit dem Haushalt zu tun; das war eine Sachfrage, und da gab es Streit zwischen der Auffassung [des Europäischen Parlaments und des Rates]”).

  46. 46.

    See interview with Colette Flesch, confirmed also by Charles McDonald.

  47. 47.

    See interviews with Doeke Eisma, Colette Flesch and Fionnuala Richardson.

  48. 48.

    On a similar note, the German Socialist MEP Willy Odenthal called for a more intensive involvement of the EP in the regulation of the ESF and argued that leaving out the EP might lead to “rebellions and political situations which none of us desires. We expect hence that the Treaties of Rome are implemented not only according to the letter, but to the spirit” (translated by the author; full original quote: “Sonst könnte es passieren, daß es über die Funktionen der Exekutive und der Legislative, die sich heute in einer Hand beim Ministerrat befinden, der uns durch seine Anwesenheit recht selten beglückt, zu Rebellionen und politischen Zuständen kommt, die uns allen nicht erwünscht sind. Wir erwarten deshalb, daß die Verträge von Rom nicht nur dem Buchstaben, sondern ihrem Geist und Inhalt nach erfüllt werden.”). See speech by Willy Odenthal during plenary debate on 11 January 1960 (PE0_AP_DE!1960_DE19600111-039900DE_9302138), p. 27.

  49. 49.

    This practice was pointed out, amongst others, by the EP budget committee in an opinion on a Commission proposal for a regulation on certain administrative and financial modalities of the ESF, 10 December 1971 (PE0_AP_RP!ASOC.1967_A0-0209!710010DE_010914), p. 14.

  50. 50.

    See speech by Gerard Nederhorst during plenary debate on 11 January 1960 (PE0_AP_DE!1960_DE19600111-039900DE_9302138), p. 16; translated by the author; original quote: “alles aus dem Vertrag herauszuholen, was juristisch in ihm enthalten ist”.

  51. 51.

    Resolution on the communication from the Commission to the Council on the review of the rules governing the tasks and operations of the European Social Fund, 12 May 1977, paragraph 14.

  52. 52.

    See speech by Commissioner Albert Coppé during plenary debate on 16 December 1971 (PE0_AP_DE!1971_DE19711216-029900DE_9307589), p. 30.

  53. 53.

    Resolution on the first annual report on the activities of the new European Social Fund—financial year 1972, 25 April 1974 (PE0_AP_RP!ASOC.1973_A0-0018!740001EN_0001).

  54. 54.

    See Report by the Committee on Social Affairs on the first annual report on the activities of the new European Social Fund—financial year 1972, 2 April 1974 (PE0_AP_RP!ASOC.1973_A0-0018!740010EN_024489), pp. 9–11.

  55. 55.

    See also Varsori (2010: 261).

  56. 56.

    See Resolution concerning, amongst other issues, the social and occupational integration of disabled, 12 February 1974 (PE0_AP_RP!ASOC.1973_A0-0354!730001EN).

  57. 57.

    See i.a. Resolution on the Commission’s opinion concerning the reform of the ESF, 9 December 1969 (PE0_AP_RP!ASOC.1967_A0-0170!690001DE_0001).

  58. 58.

    See interviews with Lothar Ibrügger and Vera Squarcialupi.

  59. 59.

    Interview with John Corrie. Ole Espersen also said in an interview with the author that the EP used the budget in order to have a say on issues in the discussion of which it would otherwise not have been involved.

  60. 60.

    Speech by Laurens Jan Brinkhorst during plenary debate, 7 July 1976 (PE0_AP_DE!1976_DE19760707-079900EN_9314095), p. 148.

  61. 61.

    A 1974 report by the Committee on Social Affairs, for instance, criticised a Commission proposal concerning ESF aid for disabled persons for “put[ing] too much stress on the economic aspects, and too little on the social aspects of the problem of disablement”. See Report by the Committee on Social Affairs on Commission proposals for two decisions and a regulation concerning ESF aids for different groups of persons, 11 February 1974 (PE0_AP_RP!ASOC.1973_A0-0354!730010EN_018884), p. 11 (emphasis in the original).

  62. 62.

    See i.a. speech by Alfred Bertrand during plenary debate on 11 January 1960 (PE0_AP_DE!1960_DE19600111-039900DE_9302138), p. 22 (emphasis added by the author); translated by the author—original quote: “Wir dürfen nicht vergessen, daß alle Artikel des Vertrages von Rom zum Hauptziel die Hebung der Lebenshaltung der Völker der Gemeinschaft haben. Wäre dies nicht der Fall, so hätte nach unserer Meinung der EWG-Vertrag keinen Sinn.”.

  63. 63.

    See Oral Question 116/73 with debate by the Committee on Social Affairs to the Council, 5 October 1973 (PE0_AP_QP!QO_O-0116!730010FR_230395).

  64. 64.

    See Written Question 1299/77 by Frans Van Der Gun, Willem Albers and Aart Geurtsen to the Commission, 28 February 1978 (OJ C175, 24 July 1978, p. 25).

  65. 65.

    See Resolution on the Fourth Report on the activities of the European Social Fund in 1975, 21 April 1977 (PE0_AP_RP!ASOC.1976_A0-0578!760001EN_0001).

  66. 66.

    Report drawn up on behalf of the Committee on Social Affairs, Employment and Education on the Fourth Report on the Activities of the European Social Fund—1975, 7 March 1977 (PE0_AP_RP!ASOC.1976_A0-0578!760010EN_037469), p. 11.

  67. 67.

    Resolution embodying the Opinion of the European Parliament on the proposal from the Commission of the European Communities to the Council for a Decision on European Social Fund measures to aid vocational adaptation operations, 14 November 1975 (PE0_AP_RP!ASOC.1973_A0-0357!750001EN_0001).

  68. 68.

    See Resolution on the reform of the ESF, 15 May 1970 (PE0_AP_RP!ASOC.1967_A0-0043!700001DE_0001); translated by the author—original quote: “treibende und richtungsweisende Kraft”.

  69. 69.

    See i.a. Resolution on the first annual report on the activities of the ESF, 2 April 1974 (PE0_AP_RP!ASOC.1973_A0-0018!740010EN_024489); Resolution on the Commission proposal for a Decision on ESF measures to aid vocational adaptation operations, 14 November 1975 (PE0_AP_RP!ASOC.1973_A0-0357!750001EN_0001); Resolution on the Fourth Report on the activities of the ESF, 21 April 1977 (PE0_AP_RP!ASOC.1976_A0-0578!760030EN_037481).

  70. 70.

    Speech by Willem Albers during plenary debate on 12 May 1977 (PE0_AP_DE!1977_DE19770512-029900EN_9317481), p. 203.

  71. 71.

    Opinion of the Committee on Budgets on a Commission opinion concerning the reform of the ESF, 26 November 1969 (PE0_AP_RP!ASOC.1967_A0-0170!690010DE_008129), p. 26.

  72. 72.

    Report by the Committee on Social Affairs on the first report of the activities of the ESF in 1972, 2 April 1974 (PE0_AP_RP!ASOC.1973_A0-0018!740010EN_024489), p. 10 (emphasis added).

  73. 73.

    See i.a. Opinion of the Committee on Economic Affairs on the Commission’s opinion concerning the reform of the ESF, 4 December 1969 (PE0_AP_RP!ASOC.1967_A0-0170!690010DE_008129), 24; translated by the author—original quote: “daß das Europäische Parlament an allen Stadien der Schaffung und der Arbeit des erneuerten Sozialfonds eng beteiligt wird”. See also the speech by Ilse Elsner during plenary debate on 9 December 1969 (PE0_AP_DE!1969_DE19691209-039900DE_9306313), p. 51.

  74. 74.

    Confirmed in an interview with Colette Flesch. She named as an example of a particularly engaged member of the Committee on Budgets the French Socialist MEP Georges Spénale, chairman of the committee, who—according to Flesch—“always” had in the back of his mind in his actions how to strengthen the EP.

  75. 75.

    See Report by the Committee on the Environment, Public Health and Consumer Protection on the draft resolution of the Council on a Community action programme on safety and health at work, 9 May 1978, including the opinions of the Committee on Budgets and the Committee on Social Affairs, Employment and Education, 9 May 1978 (PE0_AP_RP!ENVI.1976_A0-0097!780010EN_058193). The conflict in this case concerned the assignment of the case to a responsible committee: the social committee considered the subject to be within its area of responsibility, rather than the environment committee’s. The budget committee complained moreover about proceedings in the adoption of the report prior to the reception of all requested opinions from other committees (including the budget committee’s own opinion).

  76. 76.

    Translated by the author; original quote: “Es [the EP] hat seinen Einfluss über den Haushaltsausschuss ausgebaut.” See interview with Colette Flesch.

  77. 77.

    Translated by the author; original quote: “cette commission a fait avancer les pouvoirs budgétaires du Parlement européen”. See interview with Alain Terrenoire.

  78. 78.

    Translated by the author; original quote: “Der Haushaltsausschuss kontrolliert für das Parlament die Kommission, denn dann wissen wir, wo das Geld hin geht und wo es raus geht”. See interview with Heinz Schreiber.

  79. 79.

    Translated by the author; original quote: “[zum Haushaltsausschuss] sind immer die besten Leute hingeschickt worden”. See interview with Hans-Werner Müller.

  80. 80.

    Speech by Erwin Lange during plenary debate on 12 May 1977 (PE0_AP_DE!1977_DE19770512-029900EN_9317481), p. 206.

  81. 81.

    Confirmed by Julian Priestley (2008), who worked for the EP Committee on Budgets in the late 1970s, and who recalled that “an amendment to the remarks column of the budget could establish political conditions for the implementation of Community activities, whatever a regulation might say. This audaciously extensive definition of Parliament’s budgetary powers was ultimately tested and found wanting in the Court of Justice. But by then Parliament’s legislative influence was beginning to catch up with its considerable but not unlimited budgetary powers” (121 et seq.).

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    Mechthild Roos

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Roos, M. (2021). Controlling the Purse: How the European Parliament Shaped Social Policy Through the European Social Fund. In: The Parliamentary Roots of European Social Policy. Palgrave Studies in European Union Politics. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-78233-7_7

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