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Glossary of Institutions, policies and enlargement of the European Union
(Starting with "F")



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Fight against drugs

The fight against drugs involves various activities, geared mainly to preventing addiction and combating illicit trafficking. The specific legal basis for European Union action depends on the type of measure undertaken.

Combating illicit drug trafficking has been clearly identified by the Treaty of Amsterdam as an objective under the new Title VI of the Treaty on European Union, and thus falls within the scope of police and judicial cooperation in criminal matters.

As far as preventing drug addiction is concerned, that aspect is covered by Article 152 of the Treaty establishing the European Community, which stipulates that "the Community shall complement the Member States' action in reducing drugs-related health damage, including information and prevention".

In the light of the conclusions of the European Council meetings held in Cardiff (June 1998) and in Vienna (December 1998), the Council, the Commission and Parliament were asked to develop a comprehensive drugs strategy to follow on from the action plan covering the period 1995-99. The Commission's response to this request was to present:

  • a drugs strategy (2000-04);
  • an action plan (2003-08).

In December 2004, the European Council approved a European drugs strategy for the period 2005-12, comprising two action plans for the periods 2005-08 and 2008-12.

The fight against illicit drug trafficking is led by Europol's "Drugs" Unit, an intelligence unit which facilitates police and customs cooperation between the Member States.

The European Monitoring Centre for Drugs and Drug Addiction, based in Lisbon, is responsible for providing the Community and its Member States with objective, reliable and comparable information giving an overview of the drugs and drug addiction phenomenon and its consequences.

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Fight against fraud

The fight against fraud and corruption is part of the general efforts to combat organised crime but also concerns the more specific issue of countering all illegal activities adversely affecting the financial interests of the Community. It rests on two legal bases:

  • Article 29 of the Treaty on European Union, in the field of police and judicial cooperation in criminal matters, calls for "closer cooperation between police forces, customs authorities and other competent authorities in the Member States, both directly and through the European Police Office (Europol);
  • Article 280 of the Treaty establishing the European Community concerns activities affecting the Community's financial interests and requires the Council and the European Parliament to adopt measures under the codecision procedure after consulting the Court of Auditors.

Since June 1999, the body tasked with combating fraud has been the European Anti-Fraud Office (OLAF), which replaces the fraud prevention task force (UCLAF) set up in 1988.

At the Nice Intergovernmental Conference (February 2000), in order to strengthen Community action in this area, the Commission proposed incorporating into the Treaties a legal basis for establishing a system of rules on criminal-law proceedings for transnational fraud and appointing a European public prosecutor to coordinate investigations and prosecute offences involving the Union's financial interests. This proposal was followed by a Green Paper (December 2001) on criminal-law protection of the Community's financial interests, suggesting the appointment of a European prosecutor.

The European Constitution now being ratified retains the wording of Article 280 of the EC Treaty, omitting part of the article but opening the way for the Union to take appropriate criminal-law measures to protect its financial interests. The Constitution also provides for a European Public Prosecutor's Office to be established from Eurojust in order to combat crimes affecting the financial interests of the Union.

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Fight against organised crime

The fight against organised crime, which forms part of police and judicial cooperation in criminal matters (Treaty on European Union, Title VI, third pillar) is intended to afford the public a high level of safety within an area of freedom, security and justice.

EU policy seeks to prevent and combat organised crime. It is informed by and complements the work of the international organisations.

Implementation is largely based on alignment of national criminal law in this area and on the work of Europol and, to a certain extent, of Eurojust.

Efforts to combat organised crime rest on the five-year programme adopted in 2004 in The Hague, following on from the 1999 Tampere programme. A centrepiece is the development of a strategic concept envisaged by the Hague programme and presented by the Commission in 2005.

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Fight against racism and xenophobia

The first key measure in the fight against racism was the resolution adopted by the Council and the representatives of the Member States in July 1996, declaring 1997 to be the "European Year against Racism".

Since the advent of the Amsterdam Treaty, Article 13 has provided a basis for combating all forms of discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation. It was on the basis of this Article that in June 2000 the Council adopted an important directive implementing the principle of equal treatment between persons irrespective of racial or ethnic origin.

In the same year the Council also adopted a Community action programme to combat discrimination (2001-06) designed to support schemes to prevent and combat discrimination based on race or ethnic origin.

In addition to committing itself to the implementation of Article 13, the European Union has pursued its efforts to integrate the fight against racism and xenophobia into all its policies: in particular employment, the European Structural Funds, education, training and youth. Moreover, Article 29 of the Treaty on European Union, inserted by the Amsterdam Treaty, provides a legal basis for the fight against racism and xenophobia in the fields of police and judicial cooperation in criminal matters.

Entry into force of the Nice Treaty (1 February 2003) supplemented the penalty mechanism already provided for by the Amsterdam Treaty with a prevention or warning mechanism, particularly targeting human rights abuses such as racism, xenophobia and anti-Semitism.

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Fight against terrorism

Article 29 of the Treaty on European Union refers specifically to terrorism as a serious crime. The Union's efforts to combat terrorism fall under the third pillar, i.e. police and judicial cooperation in criminal matters (EU Treaty, Title VI).

Terrorist offences are defined as intentional acts such as kidnapping or hostage taking, release of dangerous substances, causing fires, floods or explosions the effect of which is to endanger human life, murders and acts which may seriously damage a country or an international organisation where committed with the aim of seriously intimidating a population, coercing the public authorities, or seriously destabilising or destroying the fundamental political structures (Framework Decision of 13 June 2002).

In the battle against terrorism, the European Union has a number of specific tools which make it easier for the Member States' law enforcement agencies to provide mutual assistance:

  • Europol;
  • Eurojust;
  • the European arrest warrant;
  • joint investigation teams, comprising leading members of enforcement authorities in the Member States and, if required, Europol personnel.

Other tools are concerned more directly with terrorist organisations, their members and operations. These include a common list of persons whose terrorist assets must be confiscated.

Since the attacks in the United States on 11 September 2001, the main stages in the development of the Union's anti-terrorist policy have been marked by various events:

  • an action plan for closer police and judicial cooperation on counter-terrorism was adopted by the European Council meeting in extra-ordinary session on 21 September 2001 following the 11 September attacks;
  • a declaration that all the Member States will act jointly in a spirit of solidarity if one of them is the victim of a terrorist attack, mobilising all the instruments at their disposal, including military resources, was issued at the European Council meeting in March 2004, following the Madrid attacks on 11 March 2004;
  • a counter-terrorism strategy was adopted in December 2005, following the London bombings; this centred on the approaches "prevent", "protect", "disrupt", "respond".

The efforts to combat terrorism are currently based on the five-year programme adopted in 2004 in The Hague. This sets out action priorities for 2005-2010.

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Financial perspective

The financial perspective forms the framework for Community expenditure over a period of several years. It is the product of an interinstitutional agreement between the European Parliament, the Council and the Commission and indicates the maximum volume and the composition of the foreseeable Community expenditure. It is adjusted annually by the Commission to take account of prices and the development of Community GNP. However, it should be noted that the financial perspective is not a multiannual budget since the annual budgetary procedure remains essential to determine the actual amount of expenditure and the breakdown between the different budget headings.

To date, four interinstitutional agreements of this type have been concluded, the first in 1988, the second in 1992, the third in 1999, and the fourth in 2006:

  • the 1988-92 financial perspective (Delors I package);
  • the 1993-99 financial perspective (Delors II package);
  • the 2000-06 financial perspective;
  • the 2007-13 financial perspective.

The European Constitution, which is in the process of ratification, incorporates the financial perspective for the first time in a Treaty under the name of the "multiannual financial framework". This framework will be adopted unanimously by the Council following approval by the European Parliament. However, However, there is a "bridging" clause which gives the European Council the option of deciding unanimously to change over to majority voting.

This multiannual financial framework is intended to ensure that expenditure develops in an orderly fashion, always remaining within the limits of the Union's own resources. It places a ceiling on annual expenditure in the Union's major spheres of activity for a period of at least five years.

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Food safety

The European Union has made food safety one of the main priorities of its policy agenda. It is a horizontal objective to be taken into account in several areas of Community competence: the CAP and its rural development pillar, the environment, public health, consumer protection and the internal market.

In response to the food scares of the 1990s (BSE, foot-and-mouth disease), in January 2000 the European Commission published a White Paper on food safety, which marks an important step in the recasting of European legislation in this area. It heralds the development of a legal framework covering the entire food chain - "from farm to fork" - using a global, integrated approach. This approach sees food safety as covering animal feed and animal health, animal protection and welfare, veterinary checks, animal health measures, plant health checks, and the preparation and hygiene of foodstuffs. The White Paper also stresses the need to launch an ongoing dialogue with consumers in order to inform and educate them.

Adopted in February 2002, the Regulation forming the basis of the new food safety legislation defines six fundamental general principles:

  • an affirmation of the integrated nature of the food chain;
  • risk analysis as the cornerstone of food safety policy;
  • a clear dividing-line between the analysis and management of risks;
  • the responsibility of operators in the sector;
  • the traceability of products at every stage of the food chain;
  • the citizen's right to clear and accurate information.

The European Food Safety Authority (EFSA) has been set up. Its main tasks are to provide independent scientific opinions on food safety issues, to collect and analyse data on any potential or emerging risks and to maintain an ongoing dialogue with the public. In particular, it issues scientific opinions on certain foodstuffs or ingredients (additives, GMOs). The Brussels European Council held in December 2003 established the EFSA's headquarters in Parma, Italy.

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Free movement of persons (visas, asylum, immigration and other policies)

Title IV of the Treaty establishing the European Community (EC Treaty) sets out the European Union's policy on "visas, asylum, immigration and other policies related to free movement of persons". These areas of Community action are linked to the progressive institution of an area of freedom, security and justice and cover the following:

  • free movement of persons;
  • external border controls;
  • asylum, immigration and safeguarding of the rights of third-country nationals;
  • judicial cooperation in civil matters.

Following a five-year transition period after the entry into force of the Treaty of Amsterdam (May 1999), the Commission has sole right of initiative and the codecision procedure applies, except that in certain areas, such as judicial cooperation in family law matters, the Council still acts by unanimous decision and the European Parliament is only consulted.

The powers of the Court of Justice of the European Communities are more limited than usual. For example, it cannot rule on measures relating to maintenance of public order or homeland security.

Before being incorporated into the EC Treaty by the Treaty of Amsterdam, these fields used to fall under Title VI of the Treaty on European Union (third pillar). The Treaty of Amsterdam has "communitised" them, bringing them within the legal framework of the first pillar.

The European Constitution now being ratified provides for policies on border controls, visas, asylum and immigration to become common policies.

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