[pic] | COMMISSION OF THE EUROPEAN COMMUNITIES |

[pic] | KUMMISSJONI TAL-KOMUNITAJIET EWROPEJ |

Brussels, 20.11.2007

Brussel 20.11.2007

COM(2007) 725 final

KUMM(2007) 725 finali

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS

KOMUNIKAZZJONI MILL-KUMMISSJONI LILL-PARLAMENT EWROPEW, LILL-KUNSILL, LILL-KUMITAT EKONOMIKU U SOĊJALI U LILL-KUMITAT TAR-REĠJUNI

Accompanying the Communication on "A single market for 21st century Europe" Services of general interest, including social services of general interest: a new European commitment

Anċillari mal-Komunikazzjoni “Suq uniku għall-Ewropa tas-seklu 21” Servizzi ta’ interess ġenerali, inklużi s-servizzi soċjali ta’ interess ġenerali: impenn Ewropew ġdid

{COM(2007) 724 final}{SEC(2007) 1514}{SEC(2007) 1515}{SEC(2007) 1516}

{ KUMM(2007) 724 finali}{SEG(2007) 1514}{SEG(2007) 1515}{SEG(2007) 1516}

TABLE OF CONTENTS

WERREJ

1. Introduction 3

1. Daħla 3

2. The role of the EU: ensuring common rules while respecting diversity 3

2. Ir-rwol ta’ l-UE: Ikunu żgurati regoli komuni filwaqt li tkun rispettata d-diverstià 3

2.1. The scope of EU action 4

2.1. L-ambitu ta’ l-azzjoni ta’ l-UE 4

2.2. The approach: meeting public interest objectives in a single market 6

2.2. Il-metodu: biex jintlaħqu għanijiet ta’ interess pubbliku f’suq uniku 6

2.3. The particular situation of social services 7

2.3. Is-sitwazzjoni partikolari tas-servizzi soċjali 7

2.4. The particular situation of health services 8

2.4. Is-sitwazzjoni partikolari tas-servizzi tas-saħħa 8

3. The Protocol: a coherent framework for EU action 9

3. Il-Protokoll: qafas koerenti għal azzjoni ta’ l-UE 9

4. Moving forward 11

4. Nimxu ’l quddiem 12

4.1. Providing legal guidance on cross-cutting issues 11

4.1. Il-provvista ta’ gwida legali dwar kwistjonijiet trasversali 12

4.2. Modernising and developing sector-specific policies 12

4.2. Il-modernizzazzjoni u l-iżvilupp ta’ politiki speċifiċi għas-settur 13

4.3. Monitoring and evaluation 13

4.3. Il-monitoraġġ u l-evalwazzjoni 15

5. Conclusion 14

5. Konklużjoni 15

1. INTRODUCTION

1. DAħLA

The agreement by Heads of State and Government of a Protocol on services of general interest to be annexed to the Treaty of Lisbon is a decisive step towards establishing a transparent and reliable EU framework. The new Treaty on the Functioning of the European Union will also include a new Article 14[1] stressing the joint responsibility of the Union and the Member States and establishing a legal basis for the EU to take action.

Il-ftehim mill-Kapijiet ta’ l-Istati u tal-Gvernijiet rigward Protokoll dwar servizzi ta’ interess ġenerali li ser jiġi anness mat-Trattat ta’ Lisbona huwa pass deċiżiv biex ikun stabbilit qafas trasparenti u affidabbli ta’ l-UE. It-Trattat dwar l-Iffunzjonar ta’ l-Unjoni Ewropea il-ġdid se jinkludi wkoll l-Artikolu 14 il-ġdid[1] li jenfasizza r-responsabbiltà konġunta ta’ l-Unjoni u ta’ l-Istati Membri u jistabblixxi bażi ġuridika għall-azzjoni ta’ l-UE.

These new provisions build on a decade of debate about the responsibilities of the EU and about whether or not the EU should adopt an overarching framework for services of general interest. This debate has helped to generate converging views on the role and approach of the EU with regard to services of general interest, in particular following the 2004 Commission's White Paper[2] and the 2006 opinion of the Parliament[3]. A broad agreement has emerged on the need to ensure legal certainty and consistency across EU policies, while respecting the diversity of sectors and situations. There is also broad recognition of the need to improve general awareness and understanding of EU rules. By spelling out the role of the Union, the Protocol brings the necessary clarity and certainty to EU rules.

Dawn id-dispożizzjonijiet il-ġodda jibnu fuq għaxar snin ta’ dibattitu dwar ir-responsabbiltajiet ta’ l-UE u dwar jekk l-UE għandiex tadotta jew le qafas ewlieni għal servizzi ta’ interess ġenerali. Dan id-dibattitu għen sabiex ikunu ġenerati fehmiet konverġenti dwar ir-rwol u l-metodu ta’ l-UE rigward servizzi ta’ interess ġenerali, b’mod partikolari wara l-White Paper tal-Kummissjoni ta’ l-2004[2] u l-opinjoni tal-Parlament ta’ l-2006[3]. Irriżulta ftehim ġenerali dwar il-ħtieġa li tkun żgurata ċertezza u konsistenza legali fil-politiki kollha ta’ l-UE, filwaqt li tiġi rispettata d-diversità tas-setturi u tas-sitwazzjonijiet. Hemm ukoll rikonoxximent ġenerali tal-ħtieġa li jittejbu l-kuxjenza u l-fehim ġenerali tar-regoli ta’ l-UE. Billi jiġi spjegat x’inhu r-rwol ta’ l-Unjoni, il-Protokoll iġib iċ-ċarezza u ċ-ċertezza meħtieġa għar-regoli ta’ l-UE.

This Communication presents the Commission's views on this debate, in particular in the light of the Parliament's resolution and the Treaty of Lisbon. It also draws on the public consultation on social services of general interest initiated in 2006.

Din il-Komunikazzjoni tippreżenta l-fehmiet tal-Kummissjoni dwar dan id-dibattitu, b’mod partikolari fid-dawl tar-riżoluzzjoni tal-Parlament u t-Trattat ta’ Lisbona. Tagħmel użu wkoll mill-konsultazzjoni pubblika dwar is-servizzi soċjali ta’ interess ġenerali li nbdiet fl- 2006.

2. THE ROLE OF THE EU: ENSURING COMMON RULES WHILE RESPECTING DIVERSITY

2. IR-RWOL TA’ L-UE: IKUNU żGURATI REGOLI KOMUNI FILWAQT LI TKUN RISPETTATA D-DIVERSITÀ

Services of general interest cover a broad range of activities, from the large network industries such as energy, telecommunications, transport, audiovisual broadcasting and postal services, to education, water supply, waste management, health and social services. These services are essential for the daily life of citizens and enterprises, and reflect Europe's model of society. They play a major role in ensuring social, economic and territorial cohesion throughout the Union and are vital for the sustainable development of the EU in terms of higher levels of employment, social inclusion, economic growth and environmental quality.

Is-servizzi ta’ interess ġenerali jkopru firxa wiesgħa ta’ attivitajiet, mill-industriji ta’netwerk il-kbar bħas-servizzi ta’ l-enerġija, tat-telekomunikazzjonijiet, tat-trasport, tax-xandir awdjoviżiv u s-servizzi postali, għal servizzi edukattivi, tal-provvista ta’ l-ilma, tal-ġestjoni ta’ l-iskart, is-servizzi tas-saħħa u dawk soċjali. Dawn is-servizzi huma essenzjali għall-ħajja ta’ kuljum taċ-ċittadini u ta’ l-intrapriżi u jirriflettu l-mudell tas-soċjetà ta’ l-Ewropa. Għandhom rwol ewlieni sabiex jiżguraw koeżjoni soċjali, ekonomika u territorjali ma’ l-Unjoni kollha u huma vitali għall-iżvilupp sostenibbli ta’ l-UE f’termini ta’ livelli ogħla ta’ impjiegi, ta’ inklużjoni soċjali, ta’ tkabbir ekonmiku u ta’ kwalità ambjentali.

Although their scope and organisation vary significantly according to histories and cultures of state intervention, they can be defined as the services, both economic and non-economic, which the public authorities classify as being of general interest and subject to specific public service obligations. This means that it is essentially the responsibility of public authorities, at the relevant level, to decide on the nature and scope of a service of general interest. Public authorities can decide to carry out the services themselves or they can decide to entrust them to other entities, which can be public or private, and can act either for-profit or not for-profit.

Għalkemm l-ambitu u l-organizzazzjoni tagħhom jistgħu jvarjaw b’mod sinifikanti skond l-istorji u l-kulturi ta’ l-intervent mill-Istat, jistgħu jiġu definiti bħala s-servizzi, kemm ekonomiċi kif ukoll mhux ekonomiċi, li l-awtoritajiet pubbliċi jikklassifikaw bħala li huma ta’ interess ġenerali u suġġetti għal obbligi speċifiċi tas-servizz pubbliku. Dan ifisser li hija essenzjalment ir-responsabbiltà ta’ l-awtoritajiet pubbliċi, fuq il-livell rilevanti, li jiddeċiedu dwar in-natura u l-ambitu ta’ servizz ta’ interess ġenerali. L-awtoritajiet pubbliċi jistgħu jiddeċiedu li jwettqu s-servizzi huma stess jew jistgħu jiddeċiedu li jafdawhom lil entitajiet oħra, li jistgħu jkunu pubbliċi jew privati, u jistgħu jaġixxu għal qligħ jew mhux għal qligħ.

At the same time, providers of these services must respect the rules laid down in the EC Treaty and in secondary EU law where these are applicable. Moreover, given their EU dimension, a number of network industries which perform services of general economic interest are now subject to sector-specific EU directives. In partnership with national, regional and local authorities, the EU therefore has a role to play in framing the principles and conditions for the operation of a wide range of services. This shared responsibility is reflected in the Treaty and will be underlined in the Protocol on services of general interest to be annexed to the Treaty of Lisbon.

Fl-istess ħin, il-fornituri ta’ dawn is-servizzi jridu jirrispettaw ir-regoli stabbiliti fit-Trattat KE u fil-liġi sekondarja ta’ l-UE, fejn dawn ikunu applikabbli. Barra minn hekk, meta titqies id-dimensjoni ta’ l-UE tagħhom, numru ta’ industriji netwerk li jwettqu servizzi ta’ interess ekonomiku ġenerali issa huma suġġetti għal direttivi ta’ l-UE speċifiċi għas-setturi. Fi sħubija ma’ l-awtoritajiet nazzjonali, reġjonali u lokali, l-UE għalhekk għandha rwol biex tqiegħed f’kuntest il-prinċipji u l-kundizzjonijiet biex jitħaddmu firxa wiesgħa ta’ servizzi. Din ir-responsabbiltà kondiviża hija riflessa fit-Trattat u ser tiġi enfasizzata fil-Protokoll dwar servizzi ta’ interess ġenerali li ser jiġi anness mat-Trattat ta’ Lisbona.

2.1. The scope of EU action

2.1. L-ambitu ta’ l-azzjoni ta’ l-UE

In accordance with the principles of subsidiarity and proportionality, the EU intervenes within the competences entrusted to it by the Treaty and to the extent necessary. Its action respects the diversity of situations in the Member States and the roles of national, regional and local authorities in ensuring the well-being of their citizens and in promoting social cohesion, while guaranteeing democratic choices regarding, among other things, the level of service quality.

Skond il-prinċipji ta’ sussidjarjetà u ta’ proporzjonalità, l-UE tintervjeni fi ħdan il-kompetenzi fdati lilha mit-Trattat u safejn ikun meħtieġ. L-azzjoni tagħha tirrispetta d-diversità tas-sitwazzjonijiet fl-Istati Membri u r-rwoli ta’ l-awtoritajiet nazzjonali, reġjonali u lokali sabiex jiżguraw il-benesseri taċ-ċittadini tagħhom u biex jippromwovu koeżjoni soċjali filwaqt li jiggarantixxu għażliet demokratiċi rigward, fost l-oħrajn, il-livell tal-kwalità tas-servizzi.

For the first time, the Protocol introduces the notion of services of general interest in primary EU law whereas the current EC Treaty only refers to services of general economic interest. As things stand, two sets of services of general interest can be distinguished for illustrative purposes, in terms of how they are governed by EU rules:

Għall-ewwel darba, il-Protokoll jintroduċi l-kunċett ta’ servizzi ta’ interess ġenerali fil-liġi primarja ta’ l-UE filwaqt li t-Trattat KE kurrenti jirreferi biss għal servizzi ta’ interess ekonomiku ġenerali. Kif inhuma l-affarijiet issa, jistgħu jintgħarfu żewġ ġabriet ta’ servizzi ta’ interess ġenerali għal finijiet deskrittivi, f’termini ta’ kif jiġu gvernati mir-regoli ta’ l-UE:

- Services of general economic interest : the provision and organisation of these services are subject to internal market and competition rules of the EC Treaty since their activities are economic in nature. In the case of large network industries having a clear European-wide dimension, such as telecommunications, electricity, gas, transport and postal services, the services are regulated by a specific EU legislative framework. Similarly, certain aspects of public service broadcasting are covered by specific EU legislation, such as the "television without frontier" directive. Other services of general economic interest, such as those in the area of waste management, water supply or waste water treatment, are not subject to a self-standing regulatory regime at EU level. However, specific Community rules such as public procurement, environmental and consumer protection legislation apply to certain aspects of the service. In addition, a number of services of general economic interest are also subject to the regulatory framework established by the Services Directive[4].

- Servizzi ta’ interess ekonomiku ġenerali : il-provvista u l-organizzazzjoni ta’ dawn is-servizzi huma suġġetti għar-regoli tas-suq intern u tal-kompetizzjoni tat-Trattat KE peress li l-attivitajiet tagħhom huma ta’ natura ekonomika. Fil-każ ta’ industriji netwerk kbar li għandhom dimensjoni Ewropea ċara, bħas-servizzi tat-telekomunikazzjonijiet, ta’ l-elettriku, tal-gass, tat-trasport u s-servizzi postali, is-servizzi jiġu regolati minn qafas leġiżlattiv speċifiku ta’ l-UE. Bl-istess mod, ċerti aspetti tax-xandir tas-servizz pubbliku huma koperti minn leġiżlazzjoni speċifika ta’ l-UE, bħad-direttiva dwar “televiżjoni mingħajr fruntieri”. Servizzi oħra ta’ interess ekonomiku ġenerali, bħal dawk fil-qasam tal-ġestjoni ta’ l-iskart, tal-provvista ta’ l-ilma jew tat-trattament ta’ l-ilma tad-drenaġġ, mhumiex suġġetti għal reġim regolatorju awtonomu fuq il-livell ta’ l-UE. Madankollu, regoli Komunitarji speċifiċi bħal-leġiżlazzjoni dwar l-akkwist pubbliku, il-ħarsien ambjentali u tal-konsumatur japplikaw għal ċerti aspetti tas-servizz. Barra minn hekk, numru ta’ servizzi ta’ interess ekonomiku ġenerali huma wkoll suġġetti għall-qafas regolatorju stabbilit mid-Direttiva dwar is-Servizzi[4].

- Non-economic services : these services, for instance traditional state prerogatives such as police, justice and statutory social security schemes are not subject to specific EU legislation, nor are they covered by the internal market and competition rules of the Treaty. Some aspects of the organisation of these services may be subject to other rules of the Treaty, such as the principle of non-discrimination.

- Servizzi mhux ekonomiċi : dawn is-servizzi, pereżempju l-prerogattivi tradizzjonali ta’ l-Istat bħall-pulizija, il-ġustizzja u l-iskemi statutorji tas-sigurtà soċjali mhumiex suġġetti għal leġiżlazzjoni speċifika ta’ l-UE, u lanqas mhuma koperti mir-regoli tas-suq intern u tal-kompetizzjoni tat-Trattat. Uħud mill-aspetti ta’ l-organizzazzjoni ta’ dawn is-servizzi jistgħu jkunu suġġetti għal regoli oħra tat-Trattat, bħall-prinċipju tan-nuqqas ta’ diskriminazzjoni.

The question of how to distinguish between economic and non-economic services has often been raised. The answer cannot be given a priori and requires a case-by-case analysis: the reality of these services is often specific and differs widely from one Member State to another, and indeed from one local authority to another; the ways in which they are provided are constantly evolving as a response to new economic, social and institutional developments, such as shift in consumer demands, technological change, the modernisation of public administrations and the devolution of responsibilities to the local level.

Ta’ spiss tqajmet il-kwistjoni ta’ kif issir distinzjoni bejn servizzi ekonomiċi u mhux ekonomiċi. It-tweġiba ma tistax tingħata a priori u teħtieġ analiżi każ b’każ: ir-realtà ta’ dawn is-servizzi ta’ spiss hija waħda speċifika u tvarja ferm minn Stat Membru għall-ieħor, u tabilħaqq minn awtorità lokali għall-oħra; il-modi li bihom dawn jiġu provduti qed jevolvu kostantement bħala reazzjoni għal żviluppi ekonomiċi, soċjali u istituzzjonali ġodda, bħal bidla fit-talbiet tal-konsumatur, bidla teknoloġika, il-modernizzazzjoni ta’ l-amministrazzjonijiet pubbliċi u d-devoluzzjoni tar-responsabbiltajiet fuq il-livell lokali.

In the area of competition law, according to the Court of Justice, it is not the sector or the status of an entity carrying out a service (e.g. whether the body is a public undertaking, private undertaking, association of undertakings or part of the administration of the State), nor the way in which it is funded, which determines whether its activities are deemed economic or non-economic; it is the nature of the activity itself. To make the distinction, the Court relies on a set of criteria related to the conditions of functioning of the service under consideration, such as the existence of a market, state prerogatives or obligations of solidarity. In practice, this means that a single entity may well be engaged in both economic and non-economic activities and therefore be subject to competition rules for parts of its activities but not for others. For example, the Court has ruled that a given entity may be engaged on the one hand in administrative activities which are not economic, such as police tasks, and on the other hand in purely commercial activities[5]. An entity can also be engaged in non-economic activities where it behaves like a charity fund and at the same time compete with other operators for another part of its activity by performing financial or real estate operations, even on a not-for-profit basis[6]. According to this functional approach, each activity has therefore to be analysed separately[7].

Skond il-Qorti tal-Ġustizzja, fil-qasam tal-liġi tal-kompetizzjoni, mhux is-settur jew l-istatus ta’ entità li twettaq servizz (eż. jekk l-entità tkunx intrapriża pubblika, intrapriża privata, assoċjazzjoni ta’ intrapriżi jew parti mill-amministrazzjoni ta’ l-Istat), lanqas il-mod li bih tiġi finanzjata, li jiddetermina jekk l-attivitajiet tagħha jitqiesux ekonomiċi jew mhux ekonomiċi; hija n-natura ta’ l-attività nfisha. Sabiex issir id-distinzjoni, il-Qorti tal-Ġustizzja tistrieħ fuq ġabra ta’ kriterji relatati mal-kundizzjonijiet tal-funzjonament tas-servizz meqjus, bħall-eżistenza ta’ suq, il-prerogattivi ta’ l-Istat jew l-obbligi ta’ solidarjetà. Fil-prattika, dan ifisser li entità waħda tista’ tkun involuta kemm f’attivitajiet ekonomiċi kif ukoll f’attivitajiet mhux ekonomiċi u għalhekk tkun suġġetta għar-regoli tal-kompetizzjoni għal parti mill-attivitajiet tagħha imma mhux għal oħrajn. Pereżempju, il-Qorti tal-Ġustizzja ddeċidiet li entità partikolari tista’ tkun involuta, fuq in-naħa l-waħda, f’attivitajiet amministrattivi li ma jkunux ekonomiċi, bħall-kompiti tal-pulizija, u min-naħa l-oħra f’attivitajiet purament kummerċjali[5]. Entità tista’ wkoll tkun involuta f’attivitajiet mhux ekonomiċi fejn tagħmilha ta’ fond ta’ karità u fl-istess ħin tikkompeti ma’ operaturi oħra għal parti oħra mill-attività tagħha billi twettaq operazzjonijiet finanzjarji jew ta’ proprjetà ta’ beni immobbli, anki fuq bażi mhux bi qligħ[6]. Skond dan il-metodu funzjonali, kull attività għalhekk trid tiġi analizzata separatament[7].

For a given service to qualify as an economic activity under the internal market rules (free movement of services and freedom of establishment), the essential characteristic of a service is that it must be provided for remuneration. The service does not, however, necessarily have to be paid by those benefiting from it. The economic nature of a service does not depend on the legal status of the service provider (such as a non-profit making body) or on the nature of service, but rather on the way a given activity is actually provided, organised and financed. In practice, apart from activities in relation to the exercise of public authority, to which internal market rules do not apply by virtue of Article 45 of the EC Treaty, it follows that the vast majority of services can be considered as "economic activities" within the meaning of EC Treaty rules on the internal market (Articles 43 and 49).

Biex servizz partikolari jikkwalifika bħala attività ekonomika skond ir-regoli tas-suq intern (moviment ħieles tas-servizz u libertà ta’ stabbiliment), il-karatteristika essenzjali ta’ servizz tkun dik li jrid ikun provdut għal remunerazzjoni. Is-servizz, madankollu, mhux bilfors irid jitħallas minn dawk li jibbenefikaw minnu. In-natura ekonomika ta’ servizz ma tiddependix mill-istatus legali tal-fornitur tas-servizz (bħal entità li ma tagħmilx qligħ) jew min-natura ta’ servizz, iżda aktar fuq il-mod li attività partikolari fil-fatt tingħata, tiġi organizzata u ffinanzjata. Fil-prattika, minbarra l-attivitajiet b’rabta ma’ l-eżerċizzju ta’ l-awtorità pubblika, li fuqha ma japplikawx ir-regoli tas-suq intern skond l-Artikolu 45 tat-Trattat tal-KE, ifisser li l-maġġoranza l-kbira tas-servizzi jistgħu jitqiesu bħala “attivitajiet ekonomiċi” fit-tifsira tar-regoli tat-Trattat KE dwar is-suq intern (l-Artikoli 43 u 49).

Against this background, the situation of social services has been the subject of discussion in recent years. Social services can be of an economic or non-economic nature depending on the activity under consideration. Although they are not defined, the 2006 Communication identified two broad types of social services: firstly, statutory and complementary social security schemes, organised in various ways (mutual or occupational organisations), covering the main risks of life, such as those linked to health, ageing, occupational accidents, unemployment, retirement and disability; secondly, other services provided directly to the person such as social assistance services, employment and training services, social housing or long-term care. These services are typically organised at a local level and are heavily dependent on public funding.

F’dan l-isfond, f’dawn l-aħħar snin, is-sitwazzjoni tas-servizzi soċjali kienet is-suġġett ta’ diskussjoni. Is-servizzi soċjali jistgħu jkunu ta’ natura ekonomika jew mhux ekonomika skond l-attività meqjusa. Għalkemm mhumiex definiti, il-Komunikazzjoni ta’ l-2006 identifikat żewġ tipi ġenerali ta’ servizzi soċjali: l-ewwelnett, skemi statutorji u komplementari tas-sigurtà soċjali, organizzati b’modi differenti (organizzazzjonijiet reċiproċi jew okkupazzjonali), li jkopru r-riskji ewlenin tal-ħajja, bħal dawk marbuta mas-saħħa, mat-tixjiħ, ma’ l-aċċidenti fuq il-post tax-xogħol, mal-qgħad, ma’ l-irtirar u mad-diżabbiltà; it-tieninett, servizzi oħra provduti direttament lill-persuna bħal servizzi ta’ għajnuna soċjali, servizzi ta’ impjieg u ta’ taħriġ, djar soċjali jew kura fit-tul. Dawn is-servizzi huma tipikament organizzati fuq livell lokali u huma ferm dipendenti fuq il-finanzjament pubbliku.

2.2. The approach: meeting public interest objectives in a single market

2.2. Il-metodu: biex jintlaħqu għanijiet ta’ interess pubbliku f’suq uniku

If a service of general interest is regarded as economic, it is subject to internal market and competition rules. This may lead to questions as to whether the full application of these rules is compatible with the pursuit of the specific missions of general interest assigned to the service. At the level of the Treaty, these situations are addressed by Article 86(2) as interpreted by the case law of the Court of Justice[8]. This provides that services of general economic interest are in principle subject to the application of Treaty rules. However, where the application of these rules obstructs the performance, in law or in fact, of the particular tasks of general interest assigned to them, these services may benefit from a derogation from the provisions of the Treaty, provided certain conditions are satisfied, notably as regards the proportionality of the compensation provided to undertakings entrusted with the operation of those services.

Jekk servizz ta’ interess ġenerali jitqies bħala wieħed ekonomiku, ikun suġġett għal regoli tas-suq intern u tal-kompetizzjoni. Dan jista’ jwassal għal mistoqsijiet dwar jekk l-applikazzjoni sħiħa ta’ dawn ir-regoli tkunx kompatibbli ma’ l-insegwiment tal-missjonijiet speċifiċi ta’ interess ġenerali assenjati lis-servizz. Fuq il-livell tat-Trattat, dawn is-sitwazzjonijiet jiġu indirizzati mill-Artikolu 86(2) kif ġew interpretati mill-ġurisprudenza tal-Qorti tal-Ġustizzja[8]. Din tipprovdi li s-servizzi ta’ interess ekonomiku ġenerali fil-prinċipju jkunu suġġetti għall-applikazzjoni tar-regoli tat-Trattat. Madankollu, fejn l-applikazzjoni ta’ dawn ir-regoli tostakola t-twettiq, fil-liġi jew fil-fatt, tal-kompiti partikolari ta’ interess ġenerali assenjati lilhom, dawn is-servizzi jistgħu jibbenefikaw minn deroga mid-dispożizzjonijiet tat-Trattat, sakemm jiġu sodisfatti ċerti kundizzjonijiet, prinċipalment rigward il-proporzjonalità tal-kumpens ipprovdut lill-intrapriżi fdati bit-tħaddim ta’ dawn is-servizzi.

As highlighted in its 2004 White Paper, the Commission considers that the objectives of developing high-quality, accessible and affordable services of general economic interest and of an open and competitive internal market are compatible and should be mutually supportive. Experience, for instance in the telecommunications and transport sectors, or at a local level (e.g awarding public service contracts), shows that markets which are open to competition contribute to improving the efficiency, affordability and choice of services on offer. At the same time, specific provisions can be maintained to ensure that a balance is struck. For instance, the Court accepts the grant of exclusive or special rights for some services, as well as measures intended to regulate markets, such as authorisation requirements, to the extent they are justified by public interest objectives and proportionate to the objectives pursued[9]. In secondary law, the pursuit of public interest objectives by services of general economic interest is also taken into account in the Services Directive[10].

Kif ġie enfasizzat fil-White Paper ta’ l-2004, il-Kummissjoni tqis li l-għanijiet ta’ l-iżvilupp ta’ servizzi ta’ kwalità għolja, aċċessibbli, u għall-bwiet ta’ kulħadd ta’ interess ekonomiku ġenerali u ta’ suq intern miftuħ u kompetittiv huma kompatibbli u għandhom jagħtu appoġġ lil xulxin. Pereżempju, l-esperjenza fis-setturi tat-telekomunikazzjonijiet u tat-trasport, jew fuq livell lokali (eż. l-għoti ta’ kuntratti ta’ servizz pubbliku) turi li s-swieq li huma miftuħin għall-kompetizzjoni jikkontribwixxu għal titjib fl-effiċjenza, fi prezzijiet għall-bwiet ta’ kulħadd u fl-għażla tas-servizzi offruti. Fl-istess ħin, jistgħu jinżammu dispożizzjonijiet speċifiċi sabiex ikun żgurat li jintlaħaq bilanċ. Pereżempju, il-Qorti tal-Ġustizzja taċċetta l-għotja ta’ drittijiet esklussivi jew speċjali għal uħud mis-servizzi, kif ukoll miżuri maħsuba sabiex jirregolaw swieq, bħal rekwiżiti ta’ awtorizzazzjoni, sakemm ikunu ġustifikati minn għanijiet ta’ interess pubbliku u jkunu proporzjonati għall-għanijiet insegwiti[9]. Fil-liġi sekondarja, l-eżerċizzju ta’ għanijiet ta’ interess pubbliku mis-servizzi ta’ interess ekonomiku ġenerali kuwa wkoll ikkunsidrat fid-Direttiva dwar is-Servizzi[10].

The capacity to combine the provision of services of general interest with the development of a European single market is particularly well illustrated by the series of sector-specific policies developed since the early 1990s for network industries such as telecommunications, energy, transport and postal services, which today represent more than 7% of the GDP and 5% of total employment in the EU. The gradual opening up of these sectors to competition went hand in hand with the definition of a number of public service obligations for each sector, covering aspects such as universal service, consumer and user rights and health and safety concerns. These sectoral frameworks also specify the scope of public policy intervention in regulating these networks, with particular reference to the role of national regulatory authorities. These sector-specific frameworks are in the process of being modernised in the light of technological developments or global challenges, such as climate change, and because of successive enlargements which have created more diversity in the Member States' approach to services of general interest .

Il-ħila li l-provvista ta’ servizzi ta’ interess ġenerali tkun ikkombinata ma’ l-iżvilupp ta’ suq uniku Ewropew hija deskritta partikolarment sew mis-sensiliet ta’ politiki speċifiċi għas-setturi li ġew żviluppati sa minn kmieni fis-snin 90 tas-seklu 20 għall-industriji netwerk bħas-servizzi tat-telekomunikazzjonijiet, ta’ l-enerġija, tat-trasport u s-servizzi postali, li llum jirrappreżentaw aktar minn 7% tal-PGD u 5% ta’ l-impjiegi totali fl-UE. Il-ftuħ gradwali ta’ dawn is-setturi għall-kompetizzjoni mexa pari passu mad-definizzjoni ta’ numru ta’ obbligi tas-servizz pubbliku għal kull settur, fejn ikopri aspetti bħas-servizz universali, id-drittijiet tal-konsumaturi u ta’ l-utenti, u t-tħassib dwar is-saħħa u s-sikurezza. Dawn l-oqfsa settorjali jispeċifikaw ukoll l-ambitu ta’ intervent ta’ politika pubblika fir-regolamentazzjoni ta’ dawn in-netwerks, b’referenza partikolari għar-rwol ta’ l-awtoritajiet regolatorji nazzjonali. Dawn l-oqfsa speċifiċi għas-setturi qegħdin jiġu modernizzati fid-dawl ta’ l-iżviluppi teknoloġiċi jew ta’ l-isfidi globali, bħall-bidla klimatika, u minħabba tkabbir suċċessiv li ħoloq aktar diversità fil-metodu ta’ l-Istati Membri rigward servizzi ta’ interess ġenerali.

2.3. The particular situation of social services

2.3. Is-sitwazzjoni partikolari tas-servizzi soċjali

The Commission initiated in April 2006 a broad consultation with the Member States, service providers and users to better understand the nature of these services across the EU and assess stakeholders' experience with the application of Community rules[11].

F’April 2006, il-Kummissjoni tat bidu għal konsultazzjoni wiesgħa ma’ l-Istati Membri, mal-fornituri tas-servizzi u ma’ l-utenti tas-servizzi sabiex tifhem aħjar in-natura ta’ dawn is-servizzi min-naħa għall-oħra ta’ l-UE u tivvaluta l-esperjenza tal-partijiet interessati fl-applikazzjoni tar-regoli Komunitarji[11].

Although the functions and organisation of social services vary a great deal, the consultation highlighted their importance for the fulfilment of basic EU objectives such as the achievement of social, economic and territorial cohesion, a high level of employment, social inclusion and economic growth, as well as their close interconnection with local realities.

Għalkemm il-funzjonijiet u l-organizzazzjoni tas-servizzi soċjali jvarjaw ferm, il-konsultazzjoni enfasizzat l-importanza li għandhom sabiex jintlaħqu l-għanijiet bażiċi ta’ l-UE bħall-kisba ta’ koeżjoni soċjali, ekonomika u territorjali, livell għoli ta’ impjiegi, inklużjoni soċjali u tkabbir ekonomiku, kif ukoll l-interkonnessjoni mill-qrib tagħhom mar-realitajiet lokali.

Objectives and principles of organisation of social services

Għanijiet u prinċipji ta’ organizzazzjoni tas-servizzi soċjali

Social services are often meant to achieve a number of specific aims:

Ta’ spiss ikun hemm il-ħsieb li s-servizzi soċjali jilħqu numru ta’ għanijiet speċifiċi:

- they are person-oriented services, designed to respond to vital human needs, in particular the needs of users in vulnerable position; they provide protection from general as well as specific risks of life and assist in personal challenges or crises; they are also provided to families in a context of changing family patterns, support their role in caring for both young and old family members, as well as for people with disabilities, and compensate possible failings within the families; they are key instruments for the safeguard of fundamental human rights and human dignity;

- huma servizzi orjentati lejn il-persuna, imfassla sabiex iwieġbu għal ħtiġiet vitali tal-bniedem, b’mod partikolari l-ħtiġiet ta’ utenti li jinsabu f’pożizzjoni vulnerabbli; jipprovdu ħarsien minn riskji ġenerali u speċifiċi tal-ħajja u jgħinu fl-isfidi jew fil-kriżijiet personali; jiġu provduti wkoll lill-familji f’kuntest ta’ mudelli familjari li qed jinbidlu, jappoġġjaw ir-rwol tagħhom fil-kura kemm tal-membri żgħar kif ukoll dawk anzjani tal-familja, kif ukoll jieħdu ħsieb il-persuni b’diżabbiltajiet, u jikkumpensaw għal nuqqasijiet possibbli fi ħdan il-familji; huma strumenti ewlenin għas-salvagwardja tad-drittijiet fundamentali tal-bniedem u tad-dinjità tal-bniedem;

- they play a preventive and socially cohesive role, which is addressed to the whole population, independently of wealth or income;

- għandhom rwol preventiv u li jgħaqqad soċjalment, li huwa mmirat lejn il-popolazzjoni kollha, indipendentement mill-ġid jew mid-dħul;

- they contribute to non-discrimination, to gender equality, to human health protection, to improving living standards and quality of life and to ensuring the creation of equal opportunities for all, therefore enhancing the capacity of individuals to fully participate in the society.

- jikkontribwixxu għan-nuqqas ta’ diskriminazzjoni, għall-ugwaljanza bejn is-sessi, għall-ħarsien ta’ saħħet il-bniedem, għat-titjib ta’ l-istandards ta’ l-għajxien u tal-kwalità tal-ħajja u sabiex ikun żgurat il-ħolqien ta’ opportunijiet ugwali għal kulħadd, biex b’hekk titkabbar il-ħila ta’ l-individwi li jipparteċipaw b’mod sħiħ fis-soċjetà.

These aims are reflected in the ways in which these services are organised, delivered and financed:

Dawn l-għanijiet huma riflessi fil-modi li bihom dawn is-servizzi jiġu organizzati, jingħataw jew jiġu ffinanzjati:

- in order to address the multiple needs of people as individuals, social services must be comprehensive and personalised, conceived and delivered in an integrated manner; they often involve a personal relationship between the recipient and the service provider;

- sabiex ikunu indirizzati l-ħtiġijiet multipli tal-persuni bħala individwi, is-servizzi soċjali għandhom ikunu komprensivi u personalizzati, maħluqa u mogħtija b’mod integrat; ta’ spiss jinvolvu relazzjoni personali bejn ir-riċevent u l-fornitur tas-servizz;

- the definition and delivery of a service must take into account the diversity of users;

- id-definizzjoni u l-għotja ta’ servizz jridu jqisu d-diversità ta’ l-utenti;

- when responding to the needs of vulnerable users, social services are often characterised by an asymmetric relationship between providers and beneficiaries which is different from a commercial supplier / consumer relationship;

- meta jkun bħala tweġiba għall-ħtiġiet ta’ utenti vulnerabbli, is-servizzi soċjali ta’ spiss ikunu ikkaratterizzati minn relazzjoni assimettrika bejn il-fornituru u l-benefiċjarji li hija differenti minn relazzjoni bejn fornitur kummerċjali u konsumatur;

- as these services are often rooted in (local) cultural traditions, tailor-made solutions taking into account the particularities of the local situation are chosen, guaranteeing proximity between the service provider and the user while ensuring equal access to services across the territory;

- billi ħafna drabi dawn is-servizzi jkollhom l-għeruq tagħhom fi tradizzjonijiet kulturali, jintgħażlu soluzzjonijiet imfassla għall-każ partikolari b’kunsiderazzjoni tal-karatteristiċi tas-sitwazzjoni lokali, li jiggarantixxu prossimità bejn il-fornitur tas-servizz u l-utent filwat li jiżfuraw aċċess ugwali tas-servizzi mit-territorju kollu.

- service providers often need a large autonomy to address the variety and the evolving nature of social needs;

- il-fornituri tas-servizzi ta’ spiss jeħtieġu awtonomija kbira sabiex jindirizzaw il-varjetà u n-natura li tevolvi tal-ħtiġiet soċjali;

- these services are generally driven by the principle of solidarity and are highly dependent on public financing, so as to ensure equality of access, independent of wealth or income;

- dawn is-servizzi ġeneralment ikunu gwidati mill-prinċipju tas-solidarjetà u huma ferm dipendenti fuq il-finanzjament pubbliku, sabiex tkun żgurata ugwaljanza ta’ aċċess, indipendenti mir-rikkezza jew mid-dħul;

- non-profit providers as well as voluntary workers often play an important role in the delivery of social services,, thereby expressing citizenship capacity and contributing to social inclusion, the social cohesion of local communities and to intergenerational solidarity.

- ta’ spiss il-fornituri mhux bi qligħ kif ukoll ħaddiema volontarji jkollhom rwol fl-għoti tas-servizzi soċjali, biex h’hekk jesprimu l-ħila taċ-ċittadinanza u jagħtu kontribut għall-inklużjoni soċjali, għall-koeżjoni soċjali tal-komunitajiet lokali u għas-solidarjetà bejn il-ġenerazzjonijiet.

The consultation has also highlighted the fact that these services are all engaged in an important modernisation process to better respond to new challenges such as changing needs of European citizens and the impact of ageing, while at the same time facing financial constraints. This process has often resulted in profound changes in the way in which these services are organised, provided and financed, including the emergence of new areas of action, the recourse to outsourcing of services previously provided directly by public authorities and an increasing devolution of competences to the local level.

Il-konsultazzjoni enfasizzat ukoll il-fatt li dawn is-servizzi huma kollha involuti fi proċess importanti ta’ modernizzazzjoni sabiex iwieġbu aħjar għal sfidi ġodda bħall-ħtiġiet li qed jinbidlu taċ-ċittadini Ewropej u l-impatt tat-tixjiħ, filwaqt li fl-istess ħin jiffaċċjaw limiti finanzjarji. Dan il-proċess ta’ spiss irriżulta f’bidliet profondi fil-mod li bih dawn is-servizzi jiġu organizzati, ipprovduti u ffinanzjati, inkluża l-emerġenza ta’ oqsma ġodda ta’ azzjoni, l-użu tad-delegazzjoni (outsourcing) ta’ servizzi li qabel kienu jipprovduhom direttament l-awtoritajiet pubbliċi u żjieda fid-devoluzzjoni tal-kompetenzi fuq il-livell lokali. L-effett ikkombinat ta’ dawn il-bidliet huwa li numru dejjem ikbar ta’ attivitajiet imwettqa kuljum mis-servizzi soċjali issa qed jaqgħu fl-ambitu tal-liġi tal-KE.

The combined effect of these changes is that an increasing number of activities performed daily by social services are now falling under the scope of EC law to the extent they are considered as economic in nature. This new situation has raised a number of practical questions, with the consultation showing that a number of stakeholders from the sector have difficulty in understanding and applying the rules, in particular state aid and public procurement rules. Local authorities and small providers in particular may lack awareness and information about EU rules, which can lead to misunderstandings and misapplication of rules on the ground. In particular, public authorities and service providers in the social field are sometimes less aware than in other sectors of the specific provisions of Article 86(2) presented above. The application of Article 86(2) requires from Member States the respect of certain basic conditions which have been developed in the case law of the Court and described by the Commission, notably in the texts on state aid adopted following the Altmark ruling which in practice exempt the vast majority of services performed at the local level from notification. Among these conditions, a clear mandate must be assigned by the competent public authority to the service provider regarding the operation of the service at stake. It is therefore important that Member States ensure that such adoption of acts of entrustment is effectively made for all services of general economic interest, including the provision of social services, in order to provide adequate legal certainty and transparency towards citizens.

L-effett kollu ta’ dawn il-bidliet huwa li għadd dejjem jikber ta’ attivitajiet li jitwettqu ta’ kuljum mis-servizzi soċjali issa jaqgħu fl-ambitu tal-liġi tal-KE safejn ikunu kkunisdrati ta’ natura ekonomika. L-awtoritajiet lokali u l-fornituri ż-żgħar b’mod partikolari jista’ ma jkollhomx kuxjenza u informazzjoni dwar ir-regoli ta’ l-UE, li jista’ jwassal għal konfużjoni u għal applikazzjoni ħażina tar-regoli fil-prattika. L-awtoritajiet lokali u l-fornituri żgħar, b’mod partikolari, jista’ jonqoshom l-għarfien u l-informazzjoni dwar ir-regoli ta’ l-UE, u dan jista’ jwassal għal nuqqas ta’ ftehim u applikazzjoni ħażina tar-regoli fil-prattika. B’mod partikolari, xi drabi l-awtoritajiet pubbliċi u l-fornituri tas0servizzi fil-qasam soċjali jkunu anqas konxji minn setturi oħra dwar id-dispożizzjonijiet speċifiċi ta’ l-Artikolu 86(2) li jidher hawn fuq. L-applikazzjoni ta’ l-Artikolu 86(2) teħtieġ li l-Istati Membri jirrispettaw ċerti kundizzjonijiet bażiċi li ġew żviluppati fil-ġurisprudenza tal-Qorti tal-Ġustizzja u li ġew deskritti mill-Kummissjoni, prinċipalment fit-testi dwar l-għajnuna mill-Istat li ġew adottati wara s-sentenza Altmark, li fil-prattika jeżenta min-nofitika l-maġġoranza kbira tas-servizzi li jitwettqu fil-livell lokali. Fost dawn il-kundizzjonijiet, irid jiġi assenjat mandat ċar mill-awtorità pubblika kompetenti lill-fornitur tas-servizz rigward it-tħaddim tas-servizz in kwistjoni. Għalhekk huwa importanti li l-Istati Membri jiżguraw li tali adozzjoni ta’ atti ta’ fiduċja effettivament issir għas-servizzi kollha ta’ interess ekonomiku ġenerali, inkluża l-provvista ta’ servizzi soċjali, sabiex tkun provduta ċertezza u trasparenza legali adegwata fil-konfront taċ-ċittadini.

As outlined below, the Commission is committed to providing explanations about the rules applicable and to assisting the modernisation process in which social services are engaged, whilst fully respecting the principle of subsidiarity and the responsibilities of national, regional and local authorities.

Kif se jiġi spjegat fil-qosor aktar ’il quddiem, il-Kummissjoni hija impenjata li tipprovdi spjegazzjonijiet dwar ir-regoli applikabbli u li tgħin fil-proċess ta’ modernizzazzjoni li fih huma involuti s-servizzi soċjali, filwaqt li tirrispetta b’mod sħiħ il-prinċipju ta’ sussidjarjetà u r-responsabbiltajiet ta’ l-awtoritajiet nazzjonali, reġjonali u lokali.

2.4. The particular situation of health services

2.4. Is-sitwazzjoni partikolari tas-servizzi tas-saħħa

Health services are also part of the wider framework on services of general interest. Article 152 of the Treaty makes clear that Community action in the field of health services must respect the responsibilities of the Member States for the organisation, financing and delivery of health services and medical care. In parallel to the work on social services, the Commission has recently held an open consultation regarding Community action and possible difficulties with the application of EC law[12]. It plans to bring forward proposals setting out a framework for safe, high-quality, and efficient cross-border healthcare services, also taking due account of the Council conclusions on "Common values and principles in European Union Health Systems" adopted in June 2006.

Is-servizzi tas-saħħa huma wkoll parti minn qafas aktar ġenerali ta’ servizzi ta’ interess ġenerali. L-Artikolu 152 tat-Trattat jagħmilha ċara li azzjoni Komunitarja fil-qasam tas-servizzi tas-saħħa trid tirrispetta r-responsabbiltajiet ta’ l-Istati Membri għall-organizzazzjoni, għall-finanzjament u għall-għotja tas-servizzi tas-saħħa u tal-kura medika. B’mod parallel għall-ħidma fuq is-servizzi soċjali, il-Kummissjoni dan l-aħħar għamlet konsultazzjoni miftuħa rigward l-azzjoni Komunitarja u d-diffikultajiet possibbli bl-applikazzjoni tal-liġi tal-KE[12]. Hija tippjana li tressaq proposti li jistabbilixxu qafas għal servizzi tas-saħħa transkonfinali li jkunu sikuri, ta’ kwalità għolja u effiċjenti, anke b’kunsiderazzjoni għall-konklużjonijiet tal-Kunsill dwar “Il-valuri u l-prinċipji komuni fis-Sistemi tas-Saħħa ta’ l-Unjoni Ewropea” adottati f’Ġunju 2006.

3. THE PROTOCOL: A COHERENT FRAMEWORK FOR EU ACTION

3. IL-PROTOKOLL: QAFAS KOERENTI GħAL AZZJONI TA’ L-UE

The Protocol annexed to the Treaty of Lisbon provides a coherent framework that will guide EU action and serves as a reference for all levels of governance. By clarifying the principles and setting out the common values underpinning EU policies, it gives visibility, transparency and clarity to the EU approach applicable to services of general interest.

Il-Protokoll anness mat-Trattat ta’ Lisbona jipprovdi qafas koerenti li se jiggwida l-azzjoni ta’ l-UE u jagħmilha ta’ referenza għal-livelli kollha ta’ governanza. Billi jiċċara l-prinċipji u jistabbilixxi l-valuri komuni wara l-politiki ta’ l-UE, jagħti viżibbiltà, trasparenza u ċarezza lill-metodu ta’ l-UE applikabbli għas-servizzi ta’ interess ġenerali.

Protocol on services of general interest

Protokoll dwar servizzi ta’ interess ġenerali

The Inter-governmental conference meeting in Lisbon in October 2007 agreed to annex the following Protocol to the Treaty of Lisbon [13]:

Il-konferneza intergovernattiva li ltaqgħet f’Lisbona f’Ottubru 2007 qablet li żżid il-Protokoll li ġej bħala anness tat-Trattat ta' Lisbona[13]:

"The High Contracting Parties,

“Il-Partijiet Kontraenti Għoljin,

Wishing to emphasise the importance of services of general interest ,

Filwaqt li jixtiequ jenfasizzaw l-importanza tas-servizzi ta’ interess ġenerali,

Have agreed upon the following interpretative provisions, which shall be annexed to the Treaty on European Union and to the Treaty on the Functioning of the Union:

Qablu dwar id-dispożizzjonijiet interpretattivi li ġejjin, li għandhom ikunu annessi mat-Trattat dwar l-Unjoni Ewropea u mat-Trattat dwar l-Iffunzjonar ta’ l-Unjoni:

Article 1

Artikolu 1

The shared values of the Union in respect of services of general economic interest within the meaning of Article 14 Treaty on the Functioning of the European Union include in particular:

Il-valuri kondiviżi ta’ l-Unjoni rigward is-servizzi ta’ interess ekonomiku ġenerali fit-tifsira ta’ l-Artikolu 14 dwar l-Iffunzjonar ta’ l-Unjoni Ewropea jinkludu b’mod partikolari:

- the essential role and the wide discretion of national, regional and local authorities in providing, commissioning and organi sing services of general economic interest as closely as possible to the needs of the users;

- ir-rwol essenzjali u d-diskrezzjoni wiesgħa ta’ l-awtoritajiet nazzjonali, reġjonali u lokali biex jipprovdu, jikkummissjonaw, u jorganizzaw servizzi ta’ interess ekonomiku ġenerali mill-aktar qrib possibbli għall-ħtiġiet ta’ l-utenti;

- the diversity between various services of general economic interest and the differences in the needs and preferences of users that may result from different geographical, social or cultural situations;

- id-diversità bejn is-servizzi differenti ta’ interess ekonomiku ġenerali u d-differenzi fil-ħtiġiet u fil-preferenzi ta’ l-utenti li jistgħu jirriżultaw minn sitwazzjonijiet ġeografiċi, soċjali jew kulturali differenti;

- a high level of quality, safety and affordability, equal treatment and the promotion of universal access and of user rights .

- livell għoli ta’ kwalità, ta’ sikurezza u ta’ prezzijiet għall-bwiet ta’ kulħadd, trattament ugwali u l-promozzjoni ta’ l-aċċess universali u tad-drittijiet ta’ l-utenti.

Article 2

Artikolu 2

The provisions of the Treaties do not affect in any way the competence of Member States to provide, commission and organise non-economi c services of general interest".

Id-dispożizzjonijiet tat-Trattati ma jaffetwaw bl-ebda mod il-kompetenza ta’ l-Istati Membri biex jipprovdu, jikkummissjonaw u jorganizzaw servizzi mhux ekonomiċi ta’ interess ġenerali”.

The Protocol builds on, and re-asserts, a number of more operational principles guiding the work of EU institutions, and in particular that of the Commission, such as:

Il-Protokoll jibni fuq, u jisħaq mill-ġdid fuq, numru ta’ prinċipji aktar operattivi li jiggwidaw ħidmet l-istituzzjonijiet ta’ l-UE u b’mod partikolari dik tal-Kummissjoni, bħal:

- The role and the wide discretion of national, regional and local authorities in operating services of general economic interest as closely as possible to the needs of the users : Services of general economic interest should be responsive and delivered as closely as possible to citizens and businesses. The action of the EU should respect the principles of subsidiarity and proportionality. The competent authorities of the Member States are free to define what they consider to be services of general economic interest and have broad discretion to decide how to organise, regulate and finance these services, in accordance with EU law and within the limits of manifest error. In particular, the competition rules and the internal market rules do not apply to non-economic activities.

- Ir-rwol u d-diskrezzjoni wiesgħa ta’ l-awtoritajiet nazzjonali, reġjonali u lokali fit-tħaddim ta’ servizzi ta’ interess ekonomiku ġenerali mill-aktar qrib possibbli għall-ħtiġiet ta’ l-utenti: Is-servizzi ta’ interess ekonomiku ġenerali għandhom ikunu reattivi u jingħataw mill-aktar qrib possibbli liċ-ċittadini u lin-negozji. L-azzjoni ta’ l-UE għandha tirrispetta l-prinċipji ta’ sussidjarjetà u ta’ proporzjonalità. L-awtoritajiet kompetenti ta’ l-Istati Membri huma ħielsa li jiddefinixxu dak li jqisu li huma s-servizzi ta’ interess ekonomiku ġenerali u għandhom diskrezzjoni wiesgħa biex jiddeċiedu kif jorganizzaw, jirregolaw u jiffinanzjaw dawn is-servizzi, skond il-liġi ta’ l-UE u fi ħdan il-limiti ta’ żball manifest. B’mod partikolari, ir-regoli tal-kompetizzjoni u r-regoli tas-suq intern ma japplikawx għal attivitajiet mhux ekonomiċi.

- Respecting the diversity of services, situations, and needs and preferences of users : Differences between various services of general economic interest and the different needs and preferences of citizens, users and consumers resulting from different economic, social, geographical, cultural and physical situations should be respected. Due account should be taken of the diversity that characterises such services, the situations in which they are provided, the characteristics of service providers and the need for flexibility to adapt services to various needs: this is particularly relevant in the case of social services. Relevant regulation should be regularly updated to cover new developments over time, such as technological innovation.

- Ir-rispett tad-diversità tas-servizzi, tas-sitwazzjonijiet, u tal-ħtiġiet u tal-preferenzi ta’ l-utenti: Id-differenzi bejn id-diversi servizzi ta’ interess ekonomiku ġenerali u l-ħtiġiet u l-preferenzi differenti taċ-ċittadini, ta’ l-utenti u tal-konsumaturi li jirriżultaw minn sitwazzjonijiet ekonomiċi, soċjali, ġeografiċi, kulturali u fiżiċi differnti għandhom jiġu rispettati. Id-diversità li tikkaratterizza tali sitwazzjonijiet, is-sitwazzjonijiet fejn jiġu provduti, il-karatteristiċi tal-fornituri tas-servizzi u l-ħtieġa għal flessibbiltà sabiex is-servizzi jiġu adattati għal ħtiġiet differenti għandhom jitqiesu b’mod xieraq: dan huwa partikolarment rilevanti fil-każ tas-servizzi soċjali. Ir-regolamentazzjoni rilevanti għandha tkun aġġornata regolarment sabiex tkopri l-iżviluppi l-ġodda li jkun hemm maż-żmien, bħall-innovazzjoni teknoloġika.

- Achieving a high level of quality, safety and affordability : Promoting the development of high-quality, safe and affordable services of general economic interest is an essential objective of the action of the EU. This encompasses access to services, including cross-border services; the value for money and financial affordability of services, including special schemes for people on low incomes and with special needs, which is particularly important in the case of social services; physical safety, reliability and continuity; high quality and choice; transparency and access to information from providers and regulators. Where it is appropriate for the EU to act, EU sector-specific instruments should establish rules ensuring the quality, security and safety of products and services for consumers and users in general, as well as all persons involved in their production.

- Biex jintlaħaq livell għoli ta’ kwalità, ta’ sikurezza u ta’ prezzijiet għall-bwiet ta’ kulħadd: Il-promozzjoni ta’ l-iżvilupp ta’ servizzi ta’ interess ekonomiku ġenerali li jkunu ta’ kwalità għolja, sikuri u għall-bwiet ta’ kulħadd huwa għan essenzjali ta’ l-azzjoni ta’ l-UE. Din tinkludi l-aċċess għas-servizzi, inklużi s-servizzi transkonfinali; il-valur għall-flus u livell finanzjarju tas-servizzi li jintlaħaq mill-bwiet ta’ kulħadd, inklużi l-iskemi speċjali għall-persuni bi dħul baxx u bi ħtiġiet speċjali, li huwa partikolarment importanti fil-każ tas-servizzi soċjali; is-sikurezza fiżika, l-affidabbiltà u l-kontinwità; il-kwalità għolja u l-għażla; it-trasparenza u l-aċċess għall-informazzjoni mill-fornituri u mir-regolaturi. Fejn ikun xieraq biex l-UE taġixxi, l-istrumenti ta’ l-UE speċifiċi għas-settur għandhom jistabbilixxu regoli li jiżguraw il-kwalità, is-sigurtà u s-sikurezza tal-prodotti u tas-servizzi għall-konsumaturi u għall-utenti b’mod ġenerali, kif ukoll għall-persuni kollha involuti fil-produzzjoni tagħhom.

- Ensuring equal treatment and promoting universal access : Access to services of general economic interest is recognised as a right in the EU Charter on Fundamental Rights. This includes ensuring equal treatment between women and men and combating all forms of discrimination in accessing services of general economic interest. Where an EU sector-specific rule is based on the concept of universal service, it should establish the right of everyone to access certain services considered as essential and impose obligations on service providers to offer defined services according to specified conditions, including complete territorial coverage and at an affordable price. Universal service provides for a minimum set of rights and obligations, which as a general rule can be further developed at national level. It is a dynamic concept, which needs to be updated regularly sector by sector. Promoting access throughout the territory of the Union is essential for the promotion of territorial cohesion in the EU, as mentioned above in the case of social services. Territories with a geographical or natural handicap such as outermost regions, islands, mountains, sparsely populated areas and external borders, often face challenges in terms of access to services of general interest, due to the remoteness from major markets or the increased cost for connection. These specific needs must be taken into account.

- Ikun żgurat trattament ugwali u tingħata promozzjoni lil aċċess universali: L-aċċess għal servizzi ta’ interess ekonomiku ġenerali huwa rikonoxxut bħala dritt fil-Karta dwar id-Drittijiet Fundamentali ta’ l-UE. Dan jinkludi li jkun żgurat trattament ugwali bejn in-nisa u l-irġiel u l-ġlieda kontra l-forom kollha ta’ diskriminazzjoni fl-aċċess għas-servizzi ta’ interess ekonomiku ġenerali. Fejn regola ta’ l-UE speċifika għal settur tkun ibbażata fuq il-kunċett ta’ servizz universali, għandha tistabbilixxi d-dritt ta’ kulħadd li jkollu aċċess għal ċerti servizzi meqjusa bħala essenzjali u għandha timponi obbligi fuq il-fornituri tas-servizzi sabiex joffru servizzi definiti skond kundizzjonijiet speċifiċi, inkluża koperatura sħiħa tat-territorju u bi prezz għall-bwiet ta’ kulħadd. Is-servizz universali jipprovdi għal ġabra minima ta’ drittijiet u ta’ obbligi, li bħala regola ġenerali jista’ jkun żviluppat aktar fuq livell nazzjonali. Huwa kunċett dinamiku, li jeħtieġ li jiġi aġġornat regolarment settur b’settur. Il-promozzjoni ta’ l-aċċess fit-territorju kollu ta’ l-Unjoni huwa essenzjali għall-promozzjoni tal-koeżjoni territorjali fl-UE, kif issemma aktar ’il fuq fil-każ tas-servizzi soċjali. It-territorji b’nuqqas ġeografiku jew naturali, bħar-reġjuni l-aktar imbiegħda, il-gżejjer, il-muntanji, iż-żoni li ma tantx huma popolati u l-fruntieri esterni, ta’ spiss jiffaċċjaw sfidi f’termini ta’ aċċess għas-servizzi ta’ interess ġenerali, minħabba l-bogħod li għandhom mis-swieq ewlenin jew minħabba ż-żjieda fl-ispiża biex ikun hemm konnessjoni. Dawn il-ħtiġiet speċifiċi jridu jitqiesu.

- Upholding user rights : Citizens, consumer and user rights should be specified, promoted and upheld. The capacity of consumers and users, including vulnerable or disabled persons; to take up their rights, especially their right of access, often requires the existence of independent regulators with appropriate staff and clearly defined powers and duties. These include powers of sanction, in particular the ability to monitor the transposition and enforcement of universal service provisions. These also require provisions for the representation and active participation of consumers and users in the definition and evaluation of services, the availability of appropriate redress and compensation mechanisms, and the existence of a review clause allowing requirements to be adapted over time to reflect new social, technological and economic developments. Regulators should also monitor market developments and provide data for evaluation purposes.

- Is-sostenn tad-drittijiet ta’ l-utenti: Id-drittijiet taċ-ċittadini, tal-konsumaturi u ta’ l-utenti għandhom ikunu speċifikati, promossi u sostnuti. Il-ħila tal-konsumaturi u ta’ l-utenti, inklużi l-persuni vulnerabbli jew b’diżabbiltà; li jieqfu għal drittijiethom, speċjalment id-dritt tagħhom għal aċċess, ta’ spiss teħtieġ l-eżistenza ta’ regolaturi indipendenti bi staff adattat u b’segħat u bi dmirijiet iddefiniti b’mod ċar. Dawn jinkludu s-setgħat ta’ sanzjoni, b’mod partikolari l-ħila li jiġu monitorjati t-traspożizzjoni u l-infurzar tad-dispożizzjonijiet ta’ servizz universali. Dawn jeħtieġu wkoll dispożizzjonijiet għar-rappreżentazzjoni u għall-parteċipazzjoni attiva tal-konsumaturi u ta’ l-utenti fid-definizzjoni u fl-evalwazzjoni tas-servizzi, id-disponibbiltà ta’ kumpens xieraq u ta’ mekkaniżmi ta’ kumpens, u l-eżistenza ta’ klawżola ta’ analiżi li tippermetti li r-rekwiżiti jiġu adattati maż-żmien biex jirriflettu żviluppi soċjali, teknoloġiċi u ekonomiċi ġodda. Ir-regolaturi għandhom ukoll jimmonitorjaw l-iżviluppi fis-suq u jipprovdu data għal finijiet ta’ evalwazzjoni.

- Non-economic services : As mentioned above, these services are not subject to a specific EU legislation, nor are they covered by the internal market and competition rules of the Treaty.

- Servizzi mhux ekonomiċi : Kif issemma aktar ’il fuq, dawn is-servizzi mhumiex suġġetti għal leġiżlazzjoni ta’ l-UE speċifika, u lanqas mhuma koperti mir-regoli tas-suq intern u tal-kompetizzjoni tat-Trattat.

Pending the entry into force of the new Treaty, which will give legal effect to the new provisions, the Commission intends to use the Protocol and principles as a benchmark to check the consistency and proportionality of EU policies and initiatives.

Sakemm jidħol fis-seħħ it-Trattat il-ġdid, li se jagħti l-effett legali lid-dispożizzjonijiet il-ġodda, il-Kummissjoni bi ħsiebha tuża l-Protokoll u l-prinċipji bħala livell ta’ referenza sabiex tikkontrolla l-konsistenza u l-proprozjonalità tal-politiki u ta’ l-inizjattivi ta’ l-UE.

4. MOVING FORWARD

4. NIMXU ’L QUDDIEM

On the basis of the Protocol, and in line with Parliament's approach, the Commission will continue to consolidate the EU framework applicable to services of general interest, including for social and health services, providing concrete solutions for concrete problems where they exist. With progress made, attention should increasingly concentrate on the good transposition and application of EU rules, with greater emphasis on monitoring outcomes for the users and consumers, dissemination of information and exchange of practices, monitoring of enforcement and evaluation of performance. The Commission envisages a mix of sector-specific and issue-specific actions along the following three axes:

Fuq il-bażi tal-Protokoll, u skond il-metodu tal-Parlament, il-Kummissjoni se tkompli tikkonsolida l-qafas ta’ l-UE applikabbli għas-servizzi ta’ interess ġenerali, inkluż għas-servizzi soċjali u tas-saħħa, billi tipprovdi soluzzjonijiet konkreti għal problemi konkreti fejn jeżistu. Bil-progress li sar, l-attenzjoni għandha tkun ikkonċentrata dejjem aktar fuq it-traspożizzjoni u l-applikazzjoni t-tajbin tar-regoli ta’ l-UE, b’enfasi akbar fuq il-monitoraġġ tar-riżultati għall-utenti u għall-konsumaturi, it-tixrid ta’ l-informazzjoni u l-iskambju tal-prattiki, il-monitoraġġ ta’ l-infurzar u l-evalwazzjoni tar-rendiment. Il-Kummissjoni tipprevedi taħlita ta’ azzjonijiet speċifiċi għas-setturi u speċifiċi għall-kwistjonijiet tul it-tliet assi li ġejjin:

4.1. Providing legal guidance on cross-cutting issues

4.1. Il-provvista ta’ gwida legali dwar kwistjonijiet trasversali

The Commission is aware that the application of Community law to services of general economic interest may raise questions and that a number of legal clarifications or explanations about EU rules are regularly sought in the various areas. In this context, the Commission is committed to enable users and practitioners to obtain quickly answers to practical questions, explanations and interpretations. Answers to questions raised will be published and appropriate update reflecting the position of the Commission will be provided on a regular basis through a dedicated website. As a first illustration, a set of answers is published alongside this Communication to address questions concerning the application of public procurement and state aid rules, notably on social services of general interest[14].

Il-Kummissjoni hija konxja li l-applikazzjoni tal-liġi Komunitarja għal servizzi ta’ interess ekonomiku ġenerali tista’ tagħti lok għal mistoqsijiet u li numru ta’ kjarifiki jew ta’ spjegazzjonijiet legali dwar ir-regoli ta’ l-UE huma regolarment imfittxija fid-diversi oqsma. F’dan il-kuntest, il-Kummissjoni hija impenjata li tagħti l-opportunità lill-utenti u lill-prattikanti biex jiksbu tweġibiet għal mistoqsijiet prattiċi, spjegazzjonijiet u interpretazzjonijiet malajr. It-tweġibiet għall-mistoqsijiet imqajma se jkunu pubblikati u permezz ta’ sit web apposta se jkun ipprovdut aġġornament xieraq li jirrifletti l-pożizzjoni tal-Kummissjoni fuq bażi regolari. Bħala l-ewwel eżempju, sett ta' tweġibiet ippubblikati flimkien ma’ din il-Komunikazzjoni li jwieġbu kwistjonijiet dwar l-applikazzjoni ta’ l-akkwisti pubbliċi u r-regoli ta’ għajnuna mill-Istat, prinċipalment dwar is-servizzi soċjali ta’ interess ġenerali[14].

An interactive information service

Servizz ta’ informazzjoni interattiv

A dedicated and interactive on-line service will be shortly put in place at the disposal of citizens, service providers, public authorities and all stakeholders to provide information and allow them to raise questions concerning the application of EU law. Answers to frequently asked questions, starting with questions raised in the context of the consultation on social services, will be placed on the Commission's website. The Commission expects that this tool could assist actors at local and regional levels, in particular in the field of social services, to develop a good understanding of the position of the Commission on the relevant EU provisions and that over time all relevant questions arising in practice will be covered in a hands-on, user-friendly way.

Dalwaqt se jiġi stabblit servizz onlajn apposta u interattiv għad-dispożizzjoni taċ-ċittadini, tal-fornituri tas-servizzi, ta’ l-awtoritajiet pubbliċi u tal-partijiet interessati kollha biex jipprovdi informazzjoni u jippermettilhom isaqsu mistoqsijiet dwar l-applikazzjoni tal-liġi ta’ l-UE. It-tweġibiet għal mistoqsijiet li jsiru frekwentement, ibda bil-mistoqsijiet li jsiru fil-kuntest tal-konsultazzjoni dwar is-servizzi soċjali, se jitqiegħdu fuq is-sit web tal-Kummisjsoni. Il-Kummissjoni tistenna li dan l-istrument jista’ jgħin lill-atturi fuq livelli lokali u reġjonali, b’mod partikolari fil-qasam tas-servizzi soċjali, sabiex jiżviluppaw fehim tajjeb tal-pożizzjoni tal-Kummissjoni dwar id-dispożizzjonijiet rilevanti ta’ l-UE, u li maż-żmien il-mistoqsijiet rilevanti kollha li jsiru fil-prattika se jkunu koperti b’mod prattiku u li jiffavorixxi lill-utent.

In the field of state aid, the decision and the framework on state aid in the form of public service compensation adopted in 2005 (often referred to as the "Altmark package"[15]) has already made a significant contribution to the simplification of rules applicable, in accordance with better regulation principles. These texts fully respect the wide freedom of Member States to define tasks of services of general economic interest. They enable Member States to secure these missions through an act of entrustment, and to compensate all net costs incurred by the companies charged with such services. In this context, separation of accounts enables to achieve transparency and avoid any overcompensation. Moreover, compensations for services that fulfil these conditions are fully exempted from notification, as long as their amount is lower than EUR 30 million per year, or even without limits in the field of social housing and hospitals. This in practice exempt from notification the vast majority of services performed at the local level. The Commission will evaluate and report on the application of the package on state aid by the end of 2009 and consider whether to update it in this context.

Fil-qasam ta’ l-għajnuna mill-Istat, id-deċiżjoni u l-qafas dwar l-għajnuna mill-Istat fil-forma ta’ kumpens ta’ servizz pubbliku li ġie adottat fl-2005 (ta’ spiss jissejjaħ il-“pakkett ta’ Altmark”[15]) diġà għamel kontribuzzjoni sinifikanti għas-semplifikazzjoni tar-regoli applikabbli, skond prinċipji ta’ regolamentazzjoni aħjar. Dawn it-testi jirrispettaw b’mod sħiħ il-libertà wiesgħa ta’ l-Istati Membri biex jiddefinixxu l-kompiti tas-servizzi ta’ interess ekonomiku ġenerali. Dawn jagħtu l-opportunità lill-Istati Membri biex jiżguraw dawn il-missjonijiet permess ta’ att ta’ fiduċja, u li jikkumpensaw għall-ispejjeż netti kollha li jsiru mill-kumpaniji inkarigati minn tali servizzi. F’dan il-kuntest, is-separazzjoni tal-kontijiet tagħti l-possibbiltà li tintlaħaq trasparenza u jiġi evitat kumpens żejjed. Barra minn hekk, il-kumpensi għal servizzi li jissodisfaw dawn il-kundizzjonijiet huma għalkollox eżentati min-notifika, sakemm l-ammont tagħhom ikun iċken minn EUR 30 miljun fis-sena, jew saħansitra mingħajr limiti fil-qasam tad-djar soċjali u ta’ l-isptarijiet. Fil-prattika dan jeżenta min-notifika l-parti l-kbira tas-servizzi mwettqa fuq il-livell lokali. Il-Kummissjoni se tevalwa u tirrapporta dwar l-applikazzjoni tal-pakkett dwar l-għajnuna mill-Istat sa tmiem l-2009 u se tqis jekk taġġornahx f’dan il-kuntest.

In the field of public-private partnerships and concessions, a number of issues are pending and/or emerging. The Commission will present shortly an interpretative Communication on institutionalised public-private partnerships with a view to clarifying the rules applicable. Based on the results of an impact assessment, the Commission is also considering further steps to clarify the rules applicable to concessions. Requests have also been made to better explain the rules applicable to public procurement following the entry into force of the new directives in January 2006. The toolbox presented above should provide greater clarity.

Fil-qasam tas-sħubiji u tal-konċessjonijiet bejn il-pubbliku u l-privat, hemm numru ta’ kwistjonijiet pendenti u/jew emerġenti. Il-Kummissjoni dalwaqt se tippreżenta Komunikazzjoni interpretattiva dwar is-sħubija istituzzjonalizzati bejn il-pubbliku u l-privat bil-għan li jiġu ċċarati r-regoli applikabbli. Fuq il-bażi tar-riżultati ta’ valutazzjoni ta’ impatt, il-Kummissjoni qed tqis ukoll aktar passi sabiex tiċċara r-regoli applikabbli għall-konċessjonijiet. Saru wkoll talbiet sabiex jiġu spjegati aħjar ir-regoli applikabbli għall-akkwist pubbliku wara d-dħul fis-seħħ tad-direttivi l-ġodda f’Jannar 2006. Il-kaxxa ta’ strumenti li ġiet ippreżentata aktar ’il fuq għandha tipprovdi aktar ċarezza.

These efforts will complement the wider on-going initiatives to improve access to information and develop communication tools following the review of the single market, such as the creation of a EU "single market assistance service".

Dawn l-isforzi se jikkomplementaw l-inizjattivi aktar ġenerali li għaddejjin bħalissa sabiex jittejjeb l-aċċess għall-informazzjoni u jiġu żviluppati strumenti ta’ komunikzzjoni wara l-analiżi tas-suq uniku, bħall-ħolqien ta’ “servizz ta’ għajnuna f’suq uniku” ta’ l-UE.

4.2. Modernising and developing sector-specific policies

4.2. Il-modernizzazzjoni u l-iżvilupp ta’ politiki speċifiċi għas-settur

The Commission is committed to pursuing and developing its sectoral approach by proposing, where appropriate, sector-specific initiatives which take account of the specific requirements and situations of each sector, and reflect the principles set out in the envisaged Protocol. A number of sector-specific frameworks applicable to network industries are already in place at EU level. However, in a dynamic and constantly evolving single market, they may require updating in the years to come.

Il-Kummissjoni hija impenjata li tinsegwi u tiżviluppa l-metodu settorjali tagħha billi, fejn ikun xieraq, tipproponi inizjattivi speċifiċi għas-setturi li jqisu r-rekwiżiti u s-sitwazzjonijiet speċifiċi ta’ kull settur, u jirriflettu l-prinċipji stabbiliti fil-Protokoll previst. Numru ta’ oqfsa speċifiċi għas-setturi applikabbli għall-industriji netwerk diġà ġew stabbiliti fuq il-livell ta’ l-UE. Madankollu, f’suq uniku dinamiku u li qed jevolvi kostantement, fis-snin li ġejjin jista’ jkun hemm il-ħtieġa li jiġu aġġornati.

In particular, the Commission will:

B’mod partikolari, il-Kummissjoni se:

- in the field of energy : follow up on the measures to ensure the completion of the internal energy market proposed in September 2007, as well as on the draft European Charter on the rights of energy consumers;

- fil-qasam ta’ l-enerġija: issegwi l-miżuri sabiex tiżgura li s-suq intern ta’ l-enerġija propost f’Settembru 2007 jiġi kompletat, kif ukoll l-abbozz tal-Karta Ewropea dwar id-drittijiet tal-konsumaturi ta’ l-enerġija;

- in the field of transport : follow up its proposal of July 2006 to modernise the single market legislation for aviation; monitor the implementation of the "third railway package" and the revised regulation on public passenger transport services now agreement has been reached;

- fil-qasam tat-trasport: issegwi l-proposta tagħha ta’ Lulju 2006 biex il-leġiżlazzjoni tas-suq uniku għall-avjazzjoni tiġi modernizzata; timmonitorja l-implimentazzjoni tat-“tielet pakkett ferrovjarju” u r-regolamentazzjoni riveduta dwar is-servizzi tat-trasport pubbliku għall-passiġġieri issa li ntlaħaq ftehim;

- in the field of e-communications : follow up its proposals on the review of the regulatory framework for electronic communications (including fixed phones, mobile and broadband access and transmission of broadcast content) and publish a Communication on long term issues in the field of universal service in electronic communications;

- fil-qasam tal-komunikazzjonijiet elettroniċi (e-communications): issegwi l-proposti tagħha dwar l-analiżi tal-qafas regolatorju għall-komunikazzjonijiet elettroniċi (inklużi t-telefons fissi, l-aċċess għal telefons ċellulari u għall-broadband, u t-trażmissjoni tal-kontenut tax-xandir) u tippubblika Komunikazzjoni dwar kwistjonijiet fit-tul fil-qasam tas-servizz universali fil-komunikazzjonijiet elettroniċi;

- in the field of postal services : assist Member States in the transposition of the directive for the completion of the EU postal internal market;

- fil-qasam tas-servizzi postali: tagħti għajnuna lill-Istati Membri fit-traspożizzjoni tad-direttiva sabiex ikun ikkompletat is-suq intern postali ta’ l-UE;

- in the field of health services : plans to bring forward proposals setting out a framework for safe, high-quality, and efficient healthcare services;

- fil-qasam tas-servizzi tas-saħħa: tippjana li tippreżenta proposti li jistabbilixxu qafas għal servizzi tal-kura tas-saħħa sikuri, ta’ kwalità għolja u effiċjenti;

- in the field of social services : develop the actions outlined in the box.

- fil-qasam tas-servizzi soċjali: jiġu żviluppati l-azzjonijiet enfasizzati fil-kaxxa.

A strategy for supporting the quality of social services across the EU

Strateġija biex tiġi appoġġjata l-kwalità tas-servizzi soċjali min-naħa għall-oħra ta’ l-UE

The consultation on social services has highlighted the need to support the promotion of the quality of social services in a more systematic manner. The European Social Fund and the ERDF already provide direct financial support to a number of services. The open method of coordination for social protection and social inclusion sets a policy framework for the pursuit of reforms and the exchange of good practices. Based on this experience, the Commission will support the development, within the Social Protection Committee, of a voluntary EU quality framework providing guidelines on the methodology to set, monitor and evaluate quality standard. Moreover, via the PROGRESS programme, the Commission will support cross-European bottom-up initiatives aimed at developing voluntary quality standards and exchange of experience and will promote training of public authorities in the field of public procurement.

Il-konsultazzjoni dwar is-servizzi soċjali enfasizzat il-ħtieġa li jiġu appoġġjati l-promozzjoni u l-kwalità tas-servizzi soċjali tiġi promossa b’mod aktar sistematiku. Il-Fond Soċjali Ewropew u l-ERDF diġà jipprovdu appoġġ finanzjarju dirett lil numru ta’ servizzi. Il-metodu miftuħ ta’ koordinazzjoni għall-ħarsien soċjali u għall-inklużjoni soċjali jistabbilixxi qafas ta’ politika għall-insegwiment tar-riformi u għall-iskambju ta’ prattiki tajba. B’bażi fuq din l-esperjenza, il-Kummissjoni ser tappoġġja l-iżvilupp, fi ħdan il-Kumitat tal-Protezzjoni Soċjali, ta’ qafas ta’ kwalità ta’ l-UE volontarju li jipprovdi linji gwida dwar il-moetodoloġija li tistabbilixxi, ssegwi u tevalwa l-istandard tal-kwalità. Barra minn hekk, permezz tal-programm PROGRESS, il-Kummissjoni ser tappoġġja inizjattivi bejn entitajiet Ewropej li jkunu mill-qiegħ ’il fuq, immirati għall-iżvilupp standards ta’ kwalità volontarji u l-iskambju ta’ esperjenza u ser jippromwovu t-taħriġ ta’ l-awtoritajiet pubbliċi fil-qasam ta’ l-akkwisit pubbliċi.

4.3. Monitoring and evaluation

4.3. Il-monitoraġġ u l-evalwazzjoni

The Commission considers it important, for the quality and transparency of the decision-making process, to regularly conduct in-depth evaluation and to disclose its methodology and results, so that they are open to scrutiny. This is usually done on a sector-by-sector basis.

Il-Kummissjoni tqisha importanti, għall-kwalità u għat-trasparenza tal-proċess tat-teħid tad-deċiżjonijiet, li twettaq b’mod regolari evalwazzjoni approfondita u tiżvela l-metodoloġija u r-riżultati tagħha, sabiex ikunu miftuħa għal skrutinju. Dan ġeneralment isir fuq bażi ta’ settur settur.

The new market monitoring tools presented in the final report on the single market review, such as the establishment of a consumer scoreboard, are a step forward in the evaluation of performances. Since the publication of the 2004 White Paper, progress has been made in developing a cross-sectoral evaluation of network industries at EU level. This methodology is being reviewed and the Commission will present its proposals for improvement in 2008.

L-istrumenti l-ġodda għall-monitoraġġ tas-suq li ġew ippreżentati fir-rapport finali dwar l-analiżi tas-suq uniku, bħall-istabbiliment ta’ tabella ta’ valutazzjoni għall-konsumaturi, huma pass ’il quddiem fl-evalwazzjoni tar-rendimenti. Sa mill-pubblikazzjoni tal-White Paper ta’ l-2004, sar progress biex tkun żviluppata evalwazzjoni trans-settorjali ta’ l-industriji netwerk fuq livell ta’ l-UE. Din il-metodoloġija qed tiġi analizzata u fl-2008 il-Kummissjoni se tippreżenta l-proposti tagħha għal titjib.

A specific request has been made to the Commission to present to Parliament a comprehensive analysis of the effects of "liberalisation" to date. The Commission will take this request into account in the revision of its methodology and perform this analysis in the context of its regular evaluation report of network services.

Saret talba speċifika lill-Kummissjoni biex tippreżenta quddiem il-Parlament analiżi komprensiva ta’ l-effetti li kellha s’issa l-“liberalizzazzjoni”. Il-Kummissjoni se tqis din it-talba fir-reviżjoni tal-metodoloġija tagħha u se twettaq din l-analiżi fil-kuntest tar-rapport ta’ evalwazzjoni tas-servizzi netwerk regolari tagħha.

The Commission will also review progress with the application of the Protocol, once the new Treaty has entered into force. In addition, it will issue a dedicated report on social services every two years to serve as an exchange tool with stakeholders.

Il-Kummissjoni se tanalizza wkoll il-progress bl-applikazzjoni tal-Protokoll, ladarba t-Trattat il-ġdid ikun daħal fis-seħħ. Barra minn hekk, hija ser toħroġ rapport speċjali dwar is-servizzi soċjali kull sentejn li jservi ta’ strument ta’ skambju mal-partijiet interessati.

5. CONCLUSION

5. KONKLUżJONI

At this important stage in the development of the EU, pending the entry into force of the Treaty of Lisbon, it is crucial to ensure that there is a shared vision of the initiatives to be pursued to achieve concrete results for Europeans. This is the approach underpinning the Citizens’ Agenda[16] put forward by the Commission.

F’dan l-istadju importanti fl-iżvilupp ta’ l-UE, sakemm jidħol fis-seħħ it-Trattat ta’ Lisbona, huwa kruċjali li jkun żgurat li jkun hemm viżjoni kondiviża ta’ l-inizjattivi li għandhom jiġu insegwiti sabiex jinkisbu riżultati konkreti għall-Ewropej. Dan huwa l-metodu wara l-Aġenda taċ-Ċittadini[16] li kienet ippreżentata mill-Kummissjoni.

The approach of the EU with regard to services of general interest, including social and health services, is essentially pragmatic. It reflects the division of competences between the different levels of governance in the EU. It respects the diversity and specificities of these services. Where sector-specific frameworks are established, it is because there is a clear European added value. These frameworks are regularly revised to reflect new economic, social and technological developments. The application of EU law is monitored in accordance with the EC Treaty and regularly reviewed to take account of new realities. In areas which could be perceived as problematic, active consultation has taken place or is ongoing to identify and solve pending or emerging issues.

Il-metodu ta’ l-UE rigward is-servizzi ta’ interess ġenerali, inklużi s-servizzi soċjali u tas-saħħa, hija essenzjalment prammatika. Jirrefletti d-diviżjoni tal-kompetenzi bejn il-livelli differenti ta’ tmexxija fl-UE. Jirrefletti d-diversità u l-ispeċifiċitajiet ta’ dawn is-servizzi. Fejn jiġu stabbiliti oqfsa speċifiċi għas-setturi, dan sar għaliex hemm valur miżjud Ewropew ċar. Dawn l-oqfsa jiġu riveduti regolarment sabiex jirriflettu żviluppi ekonomiċi, soċjali u teknoloġiċi ġodda. L-applikazzjoni tal-liġi ta’ l-UE tiġi monitorjata skond it-Trattat KE u tiġi regolarment riveduta sabiex jitqiesu realtajiet ġodda. F’oqsma li jistgħu jitqiesu problematiċi, saret konsultazzjoni attiva jew għaddejja waħda bħalissa sabiex jiġu identifikati u solvuti kwistjonijiet pendenti jew emerġenti.

The discussions triggered by the 2004 White Paper have been particularly helpful in bringing about a clearer understanding of the role and approach of the EU with regard to services of general interest. The debate which followed and the views of the other European institutions have shown that, despite differences of opinion, there is a broad agreement on a number of principles guiding EU action. The experience of sector-specific frameworks has also provided a practical basis for identifying key principles that can be applied to services of general interest throughout Europe.

Id-diskussjonijiet li nbdew bil-White Paper ta’ l-2004 kienu partikolarment ta’ għajnuna sabiex iwasslu għal fehim aktar ċar tar-rwol u tal-metodu ta’ l-UE rigward is-servizzi ta’ interess ġenerali. Id-dibattitu li segwa u l-fehmiet ta’ l-istituzzjonijiet Ewropej l-oħra wrew li, minkejja d-differenzi ta’ opinjoni, hemm ftehim ġenerali dwar numru ta’ prinċipji li jiggwidaw l-azzjoni ta’ l-UE. L-esperjenza ta’ oqfsa speċifiċi għas-setturi provdiet ukoll bażi prattika għall-identifikazzjoni ta’ prinċipji ewlenin li jistgħu jiġu applikati għas-servizzi ta’ interess ġenerali ma’ l-Ewropa kollha.

The Protocol and revised provisions in the new the Treaty build on this discussion and experience, and mark a new European commitment. Ten years after the first Communication at EU level, three years after the White Paper, they reflect the broad consensus across the EU about the role and responsibilities of the EU. Now that the EU framework has been consolidated by the Protocol, it is time to focus on implementation. On this basis, together with action at national, regional and local level, the Commission is determined to help ensure clarity, coherence and publicity of EU rules, so that services of general interest can fulfil their missions and contribute to a better quality of life for European citizens.

Il-Protokoll u d-dispożizzjonijiet riveduti tat-Trattat il-ġdid jibnu fuq din id-dikussjoni u fuq din l-esperjenza, u jimmarkaw impenn Ewropew ġdid. Għaxar snin wara l-ewwel Komunikazzjoni fuq il-livell ta’ l-UE, tliet snin wara l-White Paper, jirriflettu l-kunsens wiesa’ min-naħa għall-oħra ta’ l-UE madwar ir-rwol u r-responsabbiltajiet ta’ l-UE. Issa li l-qafas ta’ l-UE ġie konsolidat mill-Protokoll, huwa żmien li niffokaw fuq l-implimentazzjoni. Fuq din il-bażi, flimkien ma’ azzjoni fuq livell nazzjonali, reġjonali u lokali, il-Kummissjoni hija determinata li tgħin sabiex ikunu żgurati ċ-ċarezza, il-koerenza u l-pubbliċità tar-regoli ta’ l-Ue, sabiex is-servizzi ta’ interess ġenerali jistgħu jissodisfaw il-missjonijiet tagħhom u jikkontribwixxu għal kwalità ta’ ħajja aħjar għaċ-ċittadini Ewropej.

[1] An amendment to Article 16 TEC.

[1] Emenda għall-Artikolu 16 TKE.

[2] The 2004 White Paper - COM(2004) 374, 12.5.2004 - was built on previous consultations and Communications, in particular the Commission's 2003 Green Paper - COM(2003) 270, 21.5.2003 -, two Communications in 2001 - COM(2001) 598, 17.10.2001 and "Services of general interest in Europe" (OJ C 17, 19.1.2001) - and the first Communication on this subject of 1996 ("Services of general interest in Europe" - OJ C 281, 26.9.1996).

[2] Il-White Paper ta’ l-2004 - KUMM(2004) 374, 12.5.2004 - inbniet fuq konsultazzjonijiet u Komunikazzjonijiet preċedenti, b’mod partikolari l-Green Paper tal-Kummissjoni ta’ l-2003 - KUMM(2003) 270, 21.5.2003 -, żewġ Komunikazzjonijiet fl-2001 - KUMM(2001) 598, 17.10.2001 u “Servizzi ta’ interess ġenerali fl-Ewropa” (ĠU C 17, 19.1.2001) - u l-ewwel Komunikazzjoni dwar dan is-suġġett ta’ l-1996 - “Servizzi ta’ interess ġenerali fl-Ewropa” (ĠU C 281, 26.9.1996).

[3] The resolution of the European Parliament (A6-0275/2006 of 26 September 2006) completed the large round of consultation of EU institutions and stakeholders initiated by the 2004 White Paper. The resolution supports the underlying principles and priority actions set out in the White Paper. It states that it is not possible to define services of general interest uniformly and does not call for a single horizontal legislative framework, but calls on the EU and the Commission in particular to continue acting in various domains and sectors so as to achieve greater clarity and consistency of EU rules, while fully respecting the principle of subsidiarity. The European Economic and Social Committee and the Committee of the Regions have also given their opinions (CESE/2005/121 of 9 February 2005, CESE/2006/223 of 6 July 2006 and CDR/2004/327of 23 February 2005).

[3] Ir-riżoluzzjoni tal-Parlament Ewropew (A6-0275/2006 tas-26 ta’ Settembru 2006) ikkompletat is-sekwenza twila ta’ konsultazzjoni ta’ l-istituzzjonijiet ta’ l-UE u tal-partijiet interessati li nbdiet bil-White Paper ta’ l-2004. Ir-riżoluzzjoni tappoġġja l-prinċipji sottostanti u l-azzjonijiet prijoritaji stabbiliti fil-White Paper. Tiddikjara li mhux possibbli li jiġu definiti s-servizzi ta’ interess ġenerali b’mod uniformi u ma tagħmilx sejħa għal qafas leġiżlattiv orizzontali wieħed, imma titlob lill-UE u lill-Kummissjoni, b’mod partikolari, sabiex ikomplu jaġixxu fid-diversi oqsma u setturi ħalli jinkisbu aktar ċarezza u konsistenza tar-regoli ta’ l-UE, filwaqt li jkun irrispettat b’mod sħiħ il-prinċipju ta’ sussidjarjetà. Il-Kumitat Ekonomiku u Soċjali Ewropew u l-Kumitat tar-Reġjuni wkoll taw l-opinjonijiet tagħhom (CESE/2005/121 tad-9 ta’ Frar 2005, CESE/2006/223 tas-6 ta’ Lulju 2006 u CDR/2004/327tat-23 ta’ Frar 2005).

[4] More information can be found in the staff working paper on progress since the 2004 White Paper on services of general paper SEC(2007) 1515, which is published alongside this Communication.

[4] Aktar informazzjoni tinsab fid-dokument ta’ ħidma dwar il-persunal dwar il-progress li sar mill-White Paper ta’ l-2004 dwar servizzi ta’ interess ġenerali SEG(2007) 1515, li hija ppubblikata flimkien ma’ din il-Komunikazzjoni.

[5] Case C-82/01 Aéroports de Paris [2002].

[5] Kawża C-82/01 Aéroports de Paris [2002].

[6] Case C-222/04 Cassa di Risparmio di Firenze [2006].

[6] Kawża C-222/04 Cassa di Risparmio di Firenze [2006].

[7] Case C-118/85 Commission v Italy [1987]. Compare also Cases C-205/03 P. Fenin [2006] and T-155/04- Selex [2006] for a situation where different activities could not be analysed separately.

[7] Kawża C-118/85 Il-Kummissjoni vs L-Italja [1987]. Ipparaguna wkoll il-Kawżi C-205/03 P. Fenin [2006] u T-155/04- Selex [2006] għal sitwazzjoni fejn attivitajiet differenti ma setgħux jiġu analizzati separatament.

[8] Case C-320/91, Corbeau, [1993], ECR I-2533, case C-393/92, Almelo [1994] ECR I-1477, joined cases C-157/94 - C-160/94, Commission v. Netherlands, [1997], ECR I-5699 , Commission v. Italy [1997], ECR I-5789, Commission v. France [1997], ECR I-5815, Commission v. Spain [1997], ECR I-5851.

[8] Kawża C-320/91, Corbeau, [1993], ECR I-2533, Kawża C-393/92, Almelo [1994] ECR I-1477, Kawżi maqgħuda C-157/94 - C-160/94, Il-Kummissjoni vs l-Olanda, [1997], ECR I-5699, Il-Kummissjoni vs l-Italja [1997], ECR I-5789, Il-Kummissjoni vs Franza [1997], ECR I-5815, Il-Kummissjoni vs Spanja [1997], ECR I-5851.

[9] For instance case C-70/95, Sodemare [1997] ECR I-3395, Joined cases C-282/04 and C-283/04, Commission v. Netherlands [2006].

[9] Per eżempju l-kawża C-70/95, Sodemare [1997] ECR I-3395, Kawżi magħquda C-282/04 u C-283/04, il-Kummissjoni kontra l-Olanda [2006].

[10] More information can be found in the document SEC(2007) 1515.

[10] Aktar informazzjoni tinstab fid-dokument SEG(2007) 1515.

[11] COM(2006) 177, 26.4.2006. The consultation process included the launch of a questionnaire by the Social Protection Committee, the preparation of a consultant study on social services of general interest and a report by a group of legal experts.

[11] KUMM(2006) 177, 26.4.2006. Il-proċess ta’ konsultazzjoni kien jinkludi t-tnedija ta’ kwestjonarju mill-Kumitat tal-Ħarsien Soċjali, il-preparazzjoni ta’ studju ta’ konsulenza dwar is-servizzi soċjali ta’ interess ġenerali u rapport minn grupp ta’ esperti legali.

[12] SEC(2006) 1195, 26.9.2006.

[12] SEG(2006) 1195, 26.9.2006.

[13] The following quotation is without prejudice to the final version of the Treaty about to be signed and to its translation into the official languages of the EU.

[13] Il-kwotazzjoni li ġejja hija mingħajr ħsara għall-verżjoni finali tat-Trattat li dalwaqt għandu jiġi ffirmat u għat-traduzzjoni tiegħu fl-ilsna uffiċjali ta’ l-UE.

[14] See SEC(2007) 1514 and SEC(2007) 1516 respectively.

[14] Ara SEG(2007) 1514 u SEG(2007) 1516 rispettivament.

[15] More information on the "Altmark package" can be found in SEC(2007) 1515.

[15] Aktar informazzjoni dwar il-“pakkett Altmark” tinstab fid-dokument SEG(2007) 1515.

[16] COM(2006) 211, 10.5.2006.

[16] KUMM(2006) 211, 10.5.2006.