INTRODUCTION

When the Working Group began its deliberations, one thing was certain: nothing is more complicated than simplification. The simplification of the Union's instruments and procedures, as sought by the Convention, is an operation with considerable repercussions and a direct bearing on the level of democracy of our Institutions.

The Union's system as we know it is not very clear or comprehensible to its citizens. However, ability to criticise the system is a key factor of democracy. Citizens must be able to understand the system so that they can identify its problems, criticise it, and ultimately control it.

To simplify therefore firstly means "to make comprehensible", but also to provide a guarantee that acts with the same legal/political force have the same foundation in terms of democratic legitimacy. The democratic legitimacy of the Union is founded on its States and peoples, and consequently an act of a legislative nature must always come from the bodies which represent those States and peoples, namely the Council and the Parliament. Procedures must therefore be reviewed to ensure that they respect this simple principle: acts which have the same nature and the same legal effect must be produced by the same democratic procedure.

This brings us directly to a clearer hierarchy of legislation, which is the consequence of a better separation of powers. This is not with the aim of paying tribute to Montesquieu, but out of concern for democracy.

The arduous task of the Working Group has been to translate such principles into concrete proposals; before beginning discussion of its recommendations to the Convention, the Group questioned experts who have a very thorough knowledge of Community practice regarding instruments and procedures.

The Group's report addresses separately the simplification of instruments, including the hierarchy of legislation, and the simplification of legislative and budgetary procedures.

The report presents recommendations which have achieved broad support within the Group. A brief summary of the other proposals heard appears in Annex II.

During its discussions, the Group addressed a number of issues which did not come within its terms of reference. Annex III sets out those which the Group believes need to be passed on to the Convention plenary.

To read the full report see:
http://register.consilium.eu.int/pdf/en/02/cv00/00424en2.pdf