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DRAFT REPORT (2023/2085(INI))

On the implementation of Treaty provisions on EU citizenship

AFCO-PR-754647

Committee on Constitutional Affairs · Rapporteur: Maite Pagazaurtundúa

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This draft report by Parliament's Committee on Constitutional Affairs examines how the Treaty provisions on EU citizenship are applied and proposes ways to strengthen citizenship. It calls for an EU citizenship statute, better enforcement of existing rights, and action on political rights, consular protection and discrimination. It asks member states to fully implement directives on mobile citizens' rights, extend their voting rights to national and regional elections, and end 'golden visa' schemes that sell EU citizenship. It asks the Commission to clarify Directive 2004/38/EC, update the Consular Protection Directive, promote a binding European Charter on Digital Rights, and include these proposals in its 2023 EU Citizenship Report. It also calls for a one-stop shop for EU participatory tools, public consultations tailored to citizens, and teaching European history in schools.

Committee position. The rapporteur proposes that Parliament call for an EU citizenship statute, better implementation of existing rights, action on political rights, consular protection and discrimination, and that the Commission include these proposals in its 2023 EU Citizenship Report.

Key points

  1. EU citizenship reflects a shared European democratic identity, and exercising its rights strengthens citizens' link with the EU and its democratic legitimacy.
  2. The report finds that EU citizens lack awareness of their citizenship rights and that non-uniform implementation of EU legislation by member states causes shortcomings.
  3. It regrets that the Commission did not mention strengthening EU citizenship in its follow-up to the Conference on the Future of Europe, while the Council showed willingness to do so.
  4. It is concerned that the Commission's 2023 EU Citizenship Report may rely on outdated data because the Commission chose a call for evidence instead of a public consultation.
  5. It deplores that mobile citizens are less likely to vote or run for office in their member state of residence, and is concerned that some member states deprive citizens living abroad of voting rights in national elections.
  6. It is concerned that mobile citizens are treated differently from nationals in access to social and institutional benefits, and that consular protection has deficiencies, worsened by the United Kingdom's exit from the EU.
  7. It finds that differences in member states' rules on acquiring and losing national citizenship lead to differences in acquiring and losing EU citizenship, sometimes violating EU principles and values.
  8. It calls on member states to fully implement directives on mobile citizens' rights, extend those rights to national and regional elections, and guarantee expatriate nationals the right to vote in their country of origin.
  9. It calls on the Commission to clarify key concepts in Directive 2004/38/EC, to update the Consular Protection Directive, and for the EU to promote a binding European Charter on Digital Rights.
  10. It calls on member states to end 'golden visa' programmes and investor schemes that involve the sale of EU citizenship, and to teach European history in schools.
  11. It calls for an EU citizenship statute based on Article 25 TFEU that compiles and updates existing rights and creates new ones, including a horizontal non-discrimination clause.
  12. It calls on the Commission to run awareness campaigns on the statute, dedicate more resources to EU citizenship, and include these proposals in the 2023 EU Citizenship Report; it reiterates its call for a Convention to revise the Treaties.

Who is affected

  • EU citizens, especially mobile citizens, who face obstacles in exercising voting, movement and residence rights.
  • People with disabilities, older people, homeless people and others at risk of exclusion or digital exclusion.
  • Member states, asked to implement EU rules uniformly, extend voting rights and end investor citizenship schemes.
  • The Commission, asked to clarify rules, update the Consular Protection Directive and act on the 2023 citizenship report.

Figures and deadlines

  • more than thirty years since EU citizenship was created
  • Three years since Parliament's last report on EU citizenship
  • over 60 % of participants in the 2020 public consultation did not feel well informed about EU citizenship rights
  • almost 87 million EU citizens live with some form of disability
  • EU citizenship established with the Maastricht Treaty in 1993

Legal basis: Article 25 TFEU