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Doc. 8344

10 March 1999

Expenditure of the Assembly for the
financial year 2000

Report

Committee on the Budget

Rapporteur: Mr Giuseppe Aleffi, Italy, Group of the European People's Party

I.        Draft opinion

1.       Following the Strasbourg Summit and the report of the Wise Persons (Building Greater Europe without dividing lines), the aim in the financial year 2000 should be to enable the Council of Europe, and in particular its Parliamentary Assembly, to make an even fuller contribution to the well-being of Europe.

2.       The Assembly deeply regrets that the Committee of Ministers only to a very limited extent met its budgetary requests for 1999, as set out in its Opinion No. 206 (1998). The Assembly was granted barely over 1 MF - as compared with the 5.075.000 FF or 6.09% increase requested for 1999 - representing an increase of some 1.6%, of which 663.000 FF will go toward the creation of a new A-grade post. The Assembly, although aware of the financial difficulties of some member states, in the year 2000 wishes to be given the additional human and financial resources needed to render its current committee structure better prepared to face its enlarged mission and new challenges. Greater recourse may also have to be made to temporary staff on a secondment or fixed-term contract basis for specific projects and activities.

3.       The Assembly continues to be a strong advocate of reform, as witnessed by its constant effort to achieve rationalisation and a better use of its limited resources. However, it is increasingly concerned that the principle of zero growth, which is likely to be applied even for the year 2000, could seriously reduce its capacity to function efficiently.

4.       For the year 2000 onwards, the Assembly believes that the Committee of Ministers will have to increasingly concentrate on ensuring that the Organisation as a whole has the financial means to continue to play its important role on behalf of Europe. It follows that the Assembly’s proposals for the year 2000 must take into account the financial deficit so far incurred and be tailored to the future, notably in terms of the goals set by the Second Summit and the direction the Organisation is likely to take following the Wise Persons report.

5.       The Assembly, being the Organisation’s parliamentary organ, stresses that since its budgetary estimates are particularly modest in comparison with the Council of Europe's general budget, it should not have financial constraints jeopardising its smooth functioning, in particular when it comes to fostering parliamentary democracy, political pluralism, respect for human rights and environment as well as undertaking monitoring procedures in certain member states.

6.       It reminds that, given the Assembly’s responsibility to complete the enlargement process in the coming years, additional financial and human resources are required to enable it to cope with its important task and to adapt its internal structure to the changing needs of its enlarged membership.

7.       The Assembly wishes to recruit programme staff on limited duration contracts (structural posts) in connection with specific programmes, in particular for its co-operation and monitoring programme with a view to including in its Secretariat nationals of as many of its member states as possible.

8.       It wishes to take full advantage of the possibilities offered by the mass and electronic media in order to make its public documents and information material available to its members, national parliaments, governments and the public and to establish in this respect a Research and Documentation Unit.

9.       The enlargement process has also had important consequences for the Assembly's political groups. Their secretariat resources need to be enhanced considering that the membership of each political group has increased, as has their role in the Assembly. A gradual increase in their financial resources will therefore be crucial.

10.       Since over 60 percent of the funds of the Assembly’s co-operation programme are now used to cover the costs pertaining to tasks that have become central to the Assembly's mission, namely new accessions, country monitoring and the observation of elections, the Assembly asks the Committee of Ministers to include the resources allocated to the co-operation and monitoring programme within its budgetary package.

Appended to this opinion are:

      i. a table of requested increases for the year 2000 compared with the appropriations for 1999;

      ii. brief explanations for the changes.

VOTE III of the ordinary budget – Expenditure of the Assembly TITRE III du budget ordinaire – Dépenses relatives à l’Assemblée	Appropriations for 1999 Crédits ouverts au budget de 1999 FF	Changes in real terms proposed for 2000 Modifications en termes réels proposées pour 2000 FF
HEAD 3.1 – Staff CHAPITRE 3.1 – Dépenses de personnel Sub-heads/Articles 3101 – Salary, allowances and social charges of the Clerk of the Assembly Rémunération, indemnités et charges sociales du Greffier ……… 3102 – Remuneration of staff recruited on established posts Rémunération du personnel recruté sur le cadre des emplois permanents 3103 – Recruitment, arrival and departure expenses – Home leave Frais de recrutement à l’arrivée et au depart – congé dans le pays d’origine ………………………………………. 3104 – Overtime – statutory and other allowances Heures supplémentaires – indemnités statutaires et autres…………... 3105 – Remuneration and accessory charges of temporary staff Rémunération et charges accessoires du personnel temporaire………… 3106 – Provision for adjustment to remuneration Provision pour ajustements de la rémunération………………………… 3107 – Secondment of national civil servants to the Assembly Fonctionnaires nationaux mis à disposition de l’Assemblée…………… TOTAL HEAD 3.1 TOTAL DU CHAPITRE 3.1…………………………………………..	1 133 000 40 995 000 481 000 140 000 23 075 000 400 000 66 224 000	+1 164 000 +1 000 000 +200 000 + 2 364 000
HEAD 3.2 – Allocation to the Assembly’s political groups CHAPITRE 3.2 – Dotation des groupes politiques de l’Assemblée 3201 – Allocation to the Assembly’s political groups Dotation des groupes politiques de l’Assemblée……………………….. TOTAL HEAD 3.2 TOTAL DU CHAPITRE 3.2…………………………………………	4 030 000 4 030 000	+350 000 + 350 000

HEAD 3.3 – Supplies, services and other operational expenditure CHAPITRE 3.3 – Dépenses de matériel et autres dépenses de fonctionnement Sub-heads/Articles 3301 – Publishing and printing Publications et impressions………………………………………………. 3302 – Official expenses of the President of the Assembly Frais de fonction du Président de l’Assemblée…………………………... 3303 – Expenditure pertaining to the Private Office of the President of the Assembly / Dépenses du Cabinet du Président de l’Assemblée………… 3304 – Representational expenditure, other official expenditure and travelling expenses of members of the Assembly / Dépenses de représentation, frais de fonction et de déplacement des Membres de l’Assemblée… 3305 – Official journeys Frais de missions…………………………………………………………. 3306 – Expenses for inviting parliamentary delegations of non-member states and other guests Dépenses d’accueil des invites de l’Assemblée parlementaire…………... 3307 – Consultation of experts Consultation d’experts…………………………………………………... 3308 – Organisation of ad hoc conferences Organisation de conférences ad hoc……………………………………... 3309 – Grant to the International Institute for Democracy Dotation à l’Institut International pour la Démocratie…………………… 3310 – Other expenditure not specifically provided for in this vote Autres dépenses non spécialement prévues au présent titre……………... 3311 – Modernisation of the Assembly’s equipment Modernisation de l’équipement de l’Assemblée………………………… 3312 – European prizes Prix européens……………………………………………………………. 3313 Operating and Maintenance costs of the new electronic system Coûts de maintenance et d’exploitation du vote électronique…………… 3314 Co-operation and Monitoring programme Programme de coopération et du suivi des engagements ……………….. TOTAL HEAD 3.3 TOTAL DU CHAPITRE 3.3……………………………………………. TOTAL VOTE III TOTAL DU TITRE III……...………………………………………….

4 900 000 535 000 500 000 1 300 000 1 700 000 1 404 000 500 000 900 000 250 000 330 000 p.m. 400 000 230 000 3 700 000 16 649 000 86 903 000

+900 000 +15 000 +50 000 + 100 000 + 1 600 000 +2 665 000 + 5 379 000

VOTE III — EXPENDITURE OF THE PARLIAMENTARY ASSEMBLY

HEAD 3.1 — STAFF

Sub-head 3101 —       Salary, allowances and social charges of the Clerk of the Assembly

      The 2000 appropriations for this sub-head should be maintained at the same level in real terms as in 1999.

Sub-head 3102 —       Remuneration of staff recruited on established posts

This appropriation covers the basic salaries, allowances (both non-recurring and periodic) and social insurance of the permanent staff of the Office of the Clerk, which comprises the following 75 posts:

      —3        A6 posts,—

      —8        A5 posts,—

      —13       A4 posts,—

— 17 A2/A3 posts,

— 1 B6 post,

— 6 B5 posts,

— 10 B4 posts,

— 15 B3 posts,

      —2        B2 posts.Th

The proposed staffing changes for 2000 would meet the Assembly’s enhanced structural requirements as described in previous Assembly’s Opinions and form part of a longer-term strategy designed to rationalise the structure of the Office of the Clerk.

      As already stated in Opinions No. 197 (1996), No. 201 (1997) and No. 206 (1998), for the Assembly’s committees to be fully operational, it is necessary that:

- the 9 committees with 65 members (and 65 alternates) to have at least 3 grade A staff (a secretary at A5 level and two co-secretaries, A4 or A2/3), one B4 administrative assistant and one B2/B3 official;

      -        the 5 committees with 45 members (and 45 alternates) to have two grade A staff (one secretary, A4 and one co-secretary, A2/A3), one B4 administrative assistant and one B2/3 official.

      This would give a total of 37 grade A staff and 28 grade B staff, compared with the current establishment of 31 A-grade officials (6 A5, 11 A4, and 14 A2/A3) and 20 B-grade staff (2 B5, 7 B4, 9 B3 and 2 B2) serving the Assembly’s committees.

      Reform of the committee secretariats in conformity with the principles set out above would therefore entail the following creations of posts, amounting at 1999 prices to 6.422.000 FF:

      3 x A5 post       (2.253.000 FF)

      3 x A2/A3 posts       (1.488.000 FF)

      7 x B4 posts       (2.394.000 FF)

      1 x B2 post       (287.000 FF)

The Assembly, fully aware of the budgetary situation of some member states, believes that its more comprehensive reform, as proposed in its Opinion 206 (1998), should be further postponed in the hope that European economic growth will soon accelerate in the course of 1999. It is in this spirit that it formulates its requests, which include some upgradings of existing posts and the creation of two A2/A3 posts. The latter would most likely be used to recruit nationals of those countries that are not yet represented in the Clerk’s Office.

At 1999 prices, the cost of these proposed modifications amounts to 1.164.000 FF.

2 upgradings from A4 to A5        (52.000 FF)

1 upgrading A3 to A4        27.000 FF)

1 upgrading from B5 to B6        (19.000 FF)

3 upgradings from B3 to B4        (48.000 FF)

      2 upgradings from B2 to B3        (26.000 FF)

Creation of two A2/A3 posts        (992.000 FF)

2 upgradings from A4 to A5        (52.000 FF)

1 upgrading A3 to A4        (27.000 FF)

      In a situation where budgetary growth has in recent years been extremely modest, many A- grade staff members are effectively blocked in their career paths. This is all the more to be regretted when they serve one of the 9 major committees with 65 members (and 65 alternates) in a dedicated and competent manner, and have reached an age where promotion is fully justifiable. This proposal is in line with the special procedure for reclassification contained in the report of Wise Persons (Appendix I, reviewing the organisation and management of the Secretariat). Careers are – together with work content and the Organisation’s prestige – an important factor both for the recruitment of qualified, independent new staff and for the retention of existing staff who might be tempted to leave the Clerk’s Office for other departments within the organisation or to leave the Council altogether. Career prospects are also vital to ensure that the Clerk’s staff members remain motivated to do a good job for their committees and the Assembly as a whole.

Creation of two A2/A3 posts        (992.000 FF)

This request is in line with the principle of a more thorough reform of the committee secretariat, set out in Opinion No. 206 (1998). The ultimate goal of this reform would be to render the Assembly’s overall functioning more efficient and responsive to new challenges. These creations would most likely be used to recruit nationals of those countries that are not yet represented in the Clerk’s Office.

1 upgrading from B5 to B6        (19.000 FF)

The request for the upgrading of a B5 post to B6 appeared already in Opinion No. 201 (1997) and Opinion No. 206 (1998).

The responsibilities and workload of the person in charge of the administrative and secretarial unit of the Table Office have multiplied considerably in recent years. This staff member supervises a team of secretaries and is responsible for the registration and publication of all Assembly documents, especially those on the agenda of the Assembly plenary sessions and of Standing Committee meetings, and for the material preparation of amendments. By way of example, the number of documents increased from 237 in 1995 to 282 in 1998, whereas the number of amendments went from 261 to 485 over the same period. This staff member is also responsible for compiling and updating the biographies of Assembly members, the list of national delegations and of committee and sub-committee membership.

3 upgradings from B3 to B4        (48.000 FF)

2 upgradings from B2 to B3        (26.000 FF)

It should be noted that the responsibilities and workload of officials responsible for the administrative and secretarial back-up of committees have increased significantly in recent years. In addition to their normal secretarial duties, B- grade staff working in Clerk’s Office:

- are responsible for the co-ordination of A-grade administrative activities (official journeys/diary appointments/reports/ drafting/agenda);

-       act as intermediaries between the committee chairpersons, their secretariats, other Parliamentary Assembly members and the committee secretariat as regards practical administrative matters in the absence of A-grades (ie when A-grade staff are on official journeys, leave, etc);

-       are often called upon to act as repositories of basic information for their committee secretariat in respect of new A and B-grade staff, in view of their often sound and extensive committee experience;

-       are responsible for the involvement and training of other B-grade staff as regards their committee’s specific tasks;

-       are often responsible for counselling trainees and study visitors;

-       bear major responsibilities in the administrative and practical preparation of special events organised by their Committees, often resulting in long working hours.

It can thus be seen that important gaps remain for both A-grade and B-grade staff members as regards their grades and their duties. For example, the tasks carried out by committee assistants often correspond more to the duties of administrative assistants (B4/B5/B6) than to those of secretarial assistants (B1/B2/B3). It was against this background that the Assembly, in its Opinion No. 206 (1998), proposed a thorough, albeit progressive, reorganisation of the committee structure – a reform which has become absolutely necessary in order to cope with the increasingly demanding tasks entrusted to the staff of the Office of the Clerk, in particular to B-grade personnel.

Sub-head 3103 —       Recruitment, arrival and departure expenses — Home leave

Sub-head 3104 —       Overtime — Statutory and other allowances

The 2000 appropriations for sub-heads 3103 and 3104 should be kept at the same level in real terms as in 1999.

Sub-head 3105 —       Remuneration and accessory charges of temporary staff

An increase of around 1.000.000 FF is required to cover the increase in interpretation costs resulting from the creation of the new Assembly’s committee and from the need to reinforce the team of interpreters and of the Table Office during sessions of the Assembly. Furthermore, all Assembly documents, before becoming available to the public, has to be proof-read by a native speaker. This new procedure will entail the creation of two proof-reading posts, one English and one French, at B4 or B5 level, corresponding to the administrative level of proof-readers in Seddoc.

Sub-head 3106 —       Provision for adjustments to remuneration

Sub-head 3107 —       Secondment of national civil servants to the Assembly

In 1997 the Assembly established new links with the national parliaments by inviting them to second their officials to the Assembly. This practice, which was continued in 1998 and 1999, is proving very useful and successful. The seconded officials have contributed substantially to the work of the Table Office and the committee secretariats. The appropriation for 1998 and 1999 assumed the secondment of only two officials. Taking into consideration the present and future needs of the Assembly this number should be increased to three in 2000. An increase of 200.000 FF for 2000 is therefore requested for this purpose. Moreover, the Assembly points out that the rules governing the secondment of national officials, established by the Committee of Ministers, do not meet the specific requirements expressed by a number of national parliaments. It therefore suggests that its Bureau establish new, specific rules on the secondment of parliamentary officials.

HEAD 3.2 -

Sub-head 3201 —       Allocation to the Assembly's political groups

The Assembly’s political groups play an increasingly important role in the activities of the Assembly. This role has been crucial in enabling the Assembly to maintain its operational capacity and organisational efficiency, as it has had to absorb the practical consequences of the enlargement of the Organisation. However, if the political groups are to play a full role, they need to be adequately staffed in terms of both level and numbers. In the medium term, a progressive increase over several financial years should be aimed at allowing each group to recruit one administrative officer and one secretarial assistant.

The allocation to the political groups is calculated on the basis of a lump sum for secretarial assistance to each of the existing groups and an additional per capita allocation according to the membership of each group. Appropriations for 1997, 1998 and 1999 amounted to 4.030.000 FF. Each group received a fixed allowance of 135.000 FF and an additional per capita allowance (some 6.000 FF per member).

In its Opinion No. 206 (1998) the Assembly asked for a modest increase of 70.000 FF per group (350.000 FF in total) to cover the cost of one half-time administrative officer. However, this request was not granted. For 2000, an increase of 70.000 FF in the fixed allowance of each group is once again requested. The total increase requested is, therefore, 350.000 FF (5 x 70.000 FF), with the intention that this lump sum allocation for secretarial services will be gradually built up further in the coming years.

It should also be borne in mind for the future that, with the increase in membership of the Assembly, there has been a parallel increase in the number of members who are not affiliated to an existing political group. Proposals for the possible creation of new political groups cannot therefore be ruled out. It is obvious that the existing appropriations under this sub-head would need to be revised accordingly.

HEAD 3.3 —        SUPPLIES, SERVICES AND OTHER OPERATIONAL EXPENDITURE

Since 1975, the appropriations under the following sub-heads have been voted as a lump sum (budgetary package). The various amounts in this package may subsequently be altered under Article 31 of the Financial Regulations.

The total requests of the Assembly for the 2000 budgetary package amount to an increase of 2.665.000 FF. However, the Assembly wishes to stress that since 1993, despite its request for inflation indexing of these appropriations, no such increase has been granted.

In a situation where the Assembly is entrusted with an increasing number of more and more complex tasks - and where a new European political and economic architecture is being created as a result of the progress of democratic governance, the rule of law and economic efficiency - the Assembly believes it indispensable to include the co-operation and monitoring programme’s budget within the Assembly’s budgetary package.

Sub-head 3301 —       Publishing and printing

Publishing and printing costs in the last three years amounted to 4 MF. Since 1997 the Clerk’s Office has regularly prepared and published – in both electronic and paper form – the newsletter entitled “The Europeans”. With the constantly increasing number of Assembly documents to be printed, and with new publications of the Assembly coming on-stream, it is almost impossible to reduce the global cost of printing. Added to these are the future costs of putting in an electronic form the Assembly’s parliamentary archives. Therefore an increase of 900.000 FF under this sub-head is required.

Sub-head 3304 —       Representational expenditure, other official expenditure and travelling expenses of members of the Assembly

The 2000 appropriation for sub-head 3304 should be kept at the same level in real terms as in 1999.

Sub-head 3305 —       Official journeys

The 2000 appropriation for sub-head 3305 should be kept at the same level in real terms as in 1999.

Sub-head 3306 —       Expenses for inviting parliamentary delegations of non-member states and other guests

The 2000 appropriation for sub-head 3306 should be kept at the same level in real terms as in 1999.

Sub-head 3307 —       Consultation of experts

The 2000 appropriation for sub-head 3307 should be kept at the same level in real terms as in 1999.

Sub-head 3308 —       Organisation of ad hoc conferences

The 2000 appropriation for sub-head 3308 should be kept at the same level in real terms as in 1999.

Sub-head 3309 —       Grant to the International Institute for Democracy

The 2000 appropriation for sub-head 3309 should be kept at the same level in real terms as in 1999.

Sub-head 3310 —       Other expenditure not specifically provided for in this vote

The 2000 appropriation for sub-head 3310 should be kept at the same level in real terms as in 1999.

Sub-head 3311 —       Modernisation of the Assembly's equipment - p.m.

Sub-head 3312 —       European Prizes

In December 1997, the Assembly decided to sponsor the “Young Europe” category of the “Prix Europe for Television”. The cost of this prize amounts to 75.000 FF annually. An increase of 25.000 FF would enable the activities of the Council of Europe and the Assembly to be publicised more effectively at ceremonies for the presentation of these prizes as well as of flags and plaques of honour. Moreover, the cost of the “Museum Prize” has significantly grown in the last two years. Therefore a total increase of 100.000 FF is necessary under this sub-head.

In its Opinion No. 206 (1998) the Assembly asked for this modest increase of 100.000 FF to cover the costs of new prizes. However, this request was not granted.

Sub-head 3313 —       Operating and Maintenance costs of the new electronic system

The 2000 appropriation for sub-head 3313 should be kept at the same level in real terms as in 1999.

Sub-head 3314 —       Co-operation and Monitoring programme

In the past, the aim of the co-operation programme of the Assembly was to foster the political integration of many central and eastern European countries into the European mainstream, through such activities as special training courses for parliamentarians and parliamentary staff, seminars and the provision of legislative and technical assistance. As a result of the widening of the Council of Europe’s membership, the character of the co-operation programme has changed radically - especially compared with 1995, when the separate budgetary sub-head that finances all these inter-parliamentary activities was established. Over 60 per cent of the funds of the Assembly’s co-operation programme are now used to cover the costs resulting from tasks that have become central to the Assembly's role, namely country monitoring and the observation of elections. This programme has made a major contribution to the consolidation of democratic institutions in the member states.

Another point is worth making. With the introduction of a results-based budgetary system it would be easier for the Assembly to define its tasks and objectives within a budgetary package enlarged in this way. The co-operation programme is an integral part of the Assembly’s activities and it would therefore be unfortunate if it were kept as a separate item. If the Assembly’s budgetary package and co-operation programme are not placed under a single budget heading, then the new budget structure - which is based on the linkage between performance and objectives on the one hand, and resources allocated to attain the latter on the other - could become a straitjacket. The Assembly would then be unable to take any additional, unforeseen political initiatives and might as a result be seen to be failing in its political mission. It is a primary role of the Assembly to keep abreast of world political changes by gearing its initiatives to the constantly evolving political conditions within its enlarged membership. The Assembly therefore proposes that the “Co-operation and Monitoring programme” item be integrated into its budgetary package and that its endowment be increased in the order of 1.600.000 FF, necessary not only to restore its 1996 level, (the budget having been reduced in the years 1997, 1998 and 1999), but also to recoup the financial loss in purchasing power due to the non-indexation of these appropriations. Such an increase will enable the Assembly to complete the Organisation’s enlargement process and to reinforce the staff of the Political Affairs and Monitoring Committees, responsible for country accessions, monitoring procedures and observation of elections, with two structural A-grade posts, with a limited duration of 2/3 years. This proposal is consistent with point 18 (ii; d) of the Opinion No. 208 (1999) on the report presented by the Committee of Wise Persons in which the Assembly asked for more autonomy in the management of budgetary and administrative matters.

II.        Explanatory Memorandum by Mr Aleffi

1. The purpose of this report is to analyse Vote III of the Council of Europe’s ordinary budget, in particular the appropriations allocated to the Assembly to cover staff expenditure, the costs associated with the functioning of political groups, supplies, services and other operational outlays, as well as the financing of its inter-parliamentary co-operation programme. This focussing inevitably means that all the other common services of the Council of Europe, which are integral part of the Assembly’s operations, will not be discussed in the report.

2. The Rapporteur will therefore concentrate on the proposals concerning the Assembly’s appropriations for the year 2000 in full compliance with the budgetary procedure in force. These requests, once approved by the Assembly, will be transmitted in the form of an opinion to the Committee of Ministers.

3. The Rapporteur wishes to emphasise that, in formulating his requests, he gave careful consideration to the economic, social and budgetary situation in the large majority of the Council of Europe member states. Although it is true that several European countries are currently experiencing a period of austerity, it is nonetheless important to remember that the Assembly should be in a position to fulfil its new, ever growing tasks and responsibilities without excessive financial constraints.

4. In order to reach a compromise between these two conflicting factors, the Rapporteur considers it necessary to identify the Assembly’s priorities, viz:

a. to consolidate and increase the resources the Assembly needs in order to contribute more effectively - through monitoring activities, dialogue, co-operation, training and legislative assistance - to fostering pluralist democracy, the rule of law and respect for human rights throughout its wide membership; and

b. to adjust the staffing and administrative structure of the Clerk’s Office in order to meet the growing demands arising from the widening of the Organisation’s geographical coverage and the qualitative and quantitative increase in the Assembly’s responsibilities.

5. In substance, this opinion is wholly in line with the previous Parliamentary Assembly’s budgetary opinions since it calls for increases in appropriations to cover the Assembly’s growing activities and its enhanced structural requirements. It may therefore be seen necessary to increase the financial endowment of the following sub-heads:

SUB-HEAD 3102 (Remuneration of staff recruited on established posts)

The creations and upgradings of posts asked for, some of which had already been requested by the Assembly in its Opinions Nos. 187 (1995), 197 (1996), 201 (1997) and 206 (1998), should be granted in order to permit the Clerk’s Office to start its restructuring plan. Career prospects are an important motivating factor for current or prospective international civil servants, and it is therefore all the more surprising that many officials of the Office of the Clerk of the Assembly should find their career paths effectively blocked in spite of their hard work on behalf of the Organisation. These proposals amount to 1.164.000 FF for 2000.

SUB-HEAD 3105 (Remuneration and accessory charges of temporary staff)

The enlargement of the Council of Europe and the increase in the number of meetings have led to a rise in interpretation costs and the number of temporary staff for the Table Office. Thus, the Assembly requests at this stage an increase of 1.000.000 FF for the year 2000.

SUB-HEAD 3107 (Secondment of national civil servants to the Assembly)

The experience of having parliamentary officials seconded to the Clerk’s Office has proved particularly successful. The Rapporteur believes, after two years, that the time has come to expand this limited programme and hence to propose an increase of 200.000 FF so as to enable three such officials to be seconded in 2000.

SUB-HEAD 3201 (Allocation to the Assembly’s political groups)

In its Opinion No. 206 (1998) the Assembly asked for a modest increase of 70.000 FF per group (350.000 FF in total) to cover the cost of one half-time administrative officer. However, this request was not granted. The allocation made to the political groups is not sufficient to enable them to cope with the increased activities organised by each group, namely seminars and training courses for new members.

SUB-HEAD 3301 (Publishing and printing)

An increase of 900.000 FF is necessary to cover the current level of expenditure, which in previous years has always necessitated transfers from other sub-heads of the Assembly’s package. The number of pages and documents produced is determined by the rise in the number of meetings and member states. The appropriations entered under this sub-head in 1999 have proved highly inadequate, as they have had to cover in full the costs of documents to be produced.

SUB-HEAD 3302 (Official expenses of the President of the Assembly)

Although the enlargement of the Council of Europe has led to a growing number of official journeys made by the President, in the last four years no increase was requested under this sub-head. This is why the Assembly asked for 2000 an increase of 15.000 FF.

SUB-HEAD 3303 (Expenditure pertaining to the Private Office of the President of the Assembly)

Although the enlargement of the Council of Europe has led to a growing number of official journeys made by the Private Office of the President and of activities carried out on behalf of the President, in the last four years no increase was requested under this sub-head. The Assembly therefore asked for 2000 an increase of 50.000 FF.

SUB-HEAD 3312 (European Prizes)

The procedures for awarding the European Prizes have become more complex in recent years because of the enlargement of the Organisation. In particular, the costs of publicity arrangements should be added to those of awarding certain prizes. The appropriation under this sub-head needs to be increased by 100.000 FF.

SUB-HEAD 3314 (Co-operation and Monitoring programme )

In a situation where the Assembly is entrusted with an increasing number of more and more complex tasks - and where a new European political and economic architecture is being created as a result of the progress of democratic governance, the rule of law and economic efficiency - the Rapporteur believes it indispensable to include the co-operation programme’s activities within the Assembly’s budgetary package. There are two main reasons for this.

Firstly, in the past, the aim of the Assembly’s co-operation programme was to foster the political integration of many central and eastern European countries into the European mainstream through such activities as special training courses for parliamentarians and parliamentary staff, seminars and the provision of legislative and technical assistance. As a result of the widening of the Council of Europe’s membership, the character of the co-operation programme has changed radically - especially compared with 1995, when the separate budgetary sub-head that finances all these inter-parliamentary activities was established. Over 60 per cent of the funds of the Assembly’s co-operation programme are now used to cover the costs pertaining to tasks that have become central to the Assembly's role, namely country monitoring and the observation of elections. It would seem essential for the structure of our budget to reflect this new situation.

Secondly, with the introduction of a results-based budgetary system it would be easier for the Assembly to define its tasks and objectives within a budgetary package enlarged in this way. Co-operation programme activities are an integral part of the Assembly’s political role and it would therefore be unfortunate if they were kept as a separate item. If the Assembly’s budgetary package and co-operation programme are not placed under a single budget heading, then the new budget structure - which is based on the linkage between performance and objectives on the one hand, and resources allocated to attain the latter on the other - could become a straitjacket. The Assembly would then be unable to take any additional, unforeseen political initiatives and might as a result be seen to be failing in its political mission. It is a primary role of the Assembly to keep abreast of world political changes by gearing its initiatives to the constantly evolving political conditions within its enlarged membership. The Assembly therefore proposes that the “Co-operation and Monitoring programme” item be integrated into its budgetary package and that its endowment be increased by 1.600.000 FF. This would not only restore its 1996 level but also take account of the growing financial costs of the Assembly’s monitoring activities.

CONCLUSION

6. Following the Strasbourg Summit and the report presented by the Wise Persons, the Assembly would like to see its operational resources strengthened in order to enable it to cope with the new tasks it is now required to perform and for which a gradual adaptation of its internal organisation is necessary.

7. The Assembly is, however, aware of the budgetary difficulties of several member states. Nonetheless, since the Assembly’s budget estimates are particularly modest in comparison with the Council of Europe's general budget, these financial constraints should not jeopardise the smooth functioning of the Organisation’s parliamentary organ, in particular when it comes to fostering parliamentary democracy, political pluralism and respect for human rights in certain member states.

8. In view of the radically enlarged membership of the Council of Europe, there is no reason to believe that the year 2000 will be in any way easier in budgetary terms than previous years. It is therefore essential, before presenting budgetary proposals, to make a careful evaluation of present and future needs. It can no longer be regarded as sufficient just to demonstrate optimum use of existing resources in order to obtain additional funds. A new structure of the Clerk’s Office, accompanied by more efficient working methods, could be crucial when it comes to convincing the Committee of Ministers of the need to increase the Assembly’s budget. High standards of efficiency and allocation of resources will need to be met if fresh funds are to be obtained. In short, the Rapporteur believes that the Assembly must show that its own house is fully in order before it can plausibly ask for more resources.

9. This means introducing stringent budgetary measures, such as a reduction in the number of committee meetings or in the number of official journeys for staff and the Assembly’s members, wherever this is possible. If these savings prove insufficient, it will be necessary to change the structure of the Clerk’s Office, given the limited financial and staff resources likely to be at the Assembly's disposal in the coming years.

10. Such a reform, if carried out correctly, could ensure smoother and more efficient functioning of the Organisation through a more flexible and targeted use of its overall and increasingly over-stretched resources. Grouping together committees engaged in complementary activities - while preserving a measure of political freedom for the Assembly - could be a possibility. This might allow parliamentarians to engage in fewer but more substantive meetings, given the wider terms of reference that would result for committees from the reform.

11. The above requests as a whole represent an increase of some 5.379.000 FF in real terms over the appropriations allocated to the Assembly for 1999. The Rapporteur feels that such an increase is well within the capacity of the Organisation’s budgetary authorities.

12. The Rapporteur drafted this opinion in a spirit of realism and in the hope that the Assembly’s point of view will be shared by the Committee of Ministers. Enabling the Assembly to perform its statutory political role to the full is in the interests of the Organisation and the wider Europe.

Reporting committee: Committee on the Budget.

Reference to committee: Standing mandate.

Draft opinion unanimously adopted by the committee on 8 March 1999.

Members of the committee: MM. Goovaerts (Chairman), Theis, Koulouris (Vice-Chairmen), Aleffi, Anusz, Begaj, Ms Belohorska, MM Bojars, Bordas, Bulic, Buwitt, Caceres, Calin, Debono Grech, Duivesteijn, von der Esch, Gill, Gregory, Ms Jäger, MM Jonsson, Kittis, Lento (alternate: Corrao), Lotz, Ms Luhtanen, MM Luis, Matvienko (alternate: Yemets), Mautner-Markhof, Naydenov, Oorzhak, Plattner, Lord Ponsonby, MM Rise, Rupar, Schreiner, Soendergaard, Ms Stanoiu, MM Svoboda, Tekir, Zhirinovsky.

NB The names of members who took part in the meeting are printed in italics.

Secretary of the committee: Stefano Bertozzi