¿Cómo se crea derecho en la UE?
Author | VÍctor M. Sánchez (Dir.) - Maria Julia Barceló |
Pages | 163-171 |
Page 163
Ya hemos visto que el principio clásico de la separación de poderes que hay en el interior de los estados no funciona de la misma manera en el sistema comunitario. La Comisión, el PE y el Consejo participan en el ejercicio de diferentes funciones que llevan a adoptar actos normativos. El sistema actual de toma de decisiones es muy diferente del que había originalmente en las Comunidades. Desde la creación de las Comunidades Europeas en los años 50 hasta el año 1986, el procedimiento predominante de toma de decisiones para la creación de actos normativos era el de consulta, como veréis, el que ofrece el perfil más bajo de intervención del PE sobre el contenido de los actos jurídicos comunitarios.
A partir de las reformas introducidas por el AUE (1986) se puede afirmar que ha habido una metamorfosis del sistema decisorio. El principio que ha guiado estos cambios ha sido el de la democratización del procedimiento normativo. Y ha tenido dos consecuencias: la mayor comunitarización de los procesos decisorios y el aumento de la participación del PE en la adopción de normas. Desde una perspectiva histórica, el sistema de toma de decisiones en el seno del Consejo ha tendido a aumentar las materias en que el acto de adopción se aprobaba por mayoría de los votos emitidos y no por unanimidad. También en perspectiva histórica, ha crecido la capacidad de incidencia del PE —y de otros órganos como el Comité de las Regiones o el Consejo Económico y Social— en la toma de decisiones mediante la articulación de distintos procedimientos. La parlamentarización del sistema de adopción de normas, y su ténue apertura a la participación de representantes de otros intereses más variados, tiende a establecer un equilibrio mayor de poderes entre las instituciones que reduce la primacía del órgano intergubernamental.
Page 164
En general, para la adopción de los actos jurídicos vinculantes (reglamentos, directivas y decisiones), existen cuatro procedimientos principales de toma de decisiones: i) El procedimiento de consulta; ii) El procedimiento de cooperación; iii) El procedimiento de codecisión; y iv) El procedimiento de dictamen conforme. Su denominación se hace por referencia a la participación variable (de menos a más) de una institución: el Parlamento Europeo. En los epígrafes siguientes se analizan estos procedimientos y se deja constancia del progresivo aumento del poder normativo del PE. Tambíen se incorpora una breve mención al papel de los lobbies en el complicado mundo de la Unión.
El procedimiento de consulta (art. 250 TCE) es el más antiguo de los procedimientos normativos comunitarios que conlleva la participación del PE. Poco a poco ha visto reducido su ámbito de aplicación y ha cedido terreno al procedimiento de codecisión, ahora el más extendido. Hasta 1986, la competencia consultiva del PE era el núcleo esencial de su participación en el proceso decisorio. En la actualidad sólo se utiliza como cajón de sastre para los casos no sometidos expresamente a los otros procedimientos.
Se caracteriza por una división de las tareas principales entre la Comisión (hace la propuesta legislativa) y el Consejo (adopta el acto). Entre estas etapas, se evacua un trámite de consulta obligatoria pero no vinculante al Parlamento, de ahí el nombre del procedimiento, y en determinados casos, dependiendo de la materia de que se trate, al Comité Económico y Social o al Comité de las Regiones. Esta consulta es preceptiva, es decir, los tratados establecen que el Consejo o la Comisión tienen...
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- Lecciones de derecho de la Unión Europea
- ¿Qué es la Unión Europea?
- Presentación
- Glosario
- Configuración histórica de la Unión Europea
- Miembros y ampliación
- Objetivos
- Pilares
- Competencias
- Cooperación reforzada
- Modelo organizativo
- Comisión
- Consejo de la Unión Europea
- Parlamento Europeo
- Tribunal de Justicia de las Comunidades Europeas y otros tribunales
- Otros órganos
- ¿Cómo se crea derecho en la UE?
- Presupuesto
- Ordenamiento jurídico comunitario (I): derecho primario, principios generales y acuerdos internacionales
- Ordenamiento jurídico comunitario (II): derecho derivado
- Otras fuentes del derecho de la UE
- Relaciones entre el derecho comunitario y los ordenamientos jurídicos de los estados miembros
- Tutela judicial (I): competencia contenciosa
- Tutela judicial (II): competencia consultiva, prejudicial y arbitral
- Vías no jurisdiccionales de tutela de los derechos de los particulares
- Mercado interior (I): libre circulación de mercancías
- Mercado interior (II): libre circulación de trabajadores
- Mercado interior (III): derecho de establecimiento y libre prestación de servicios
- Mercado interior (IV): libre circulación de capitales y pagos
- Anexo
- Lecturas recomendadas
- Indice de jurisprudencia
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