Written by Ralf Drachenberg.
The EU’s leaders took two crucial decisions at their summit on 27 June to set the framework for the new institutional cycle: one on high-level appointments, the other on the Union’s political priorities for the next 5 years, the Strategic Agenda 2024-2029. Since the adoption of the previous edition of the EU’s long-term priorities in 2019, the EU has had to face major crises, including the COVID-19 pandemic, the energy crisis, and the change in the security environment following Russia’s full-scale war against Ukraine.
Are these global challenges reflected in the EU’s new long-term political priorities or has the list of political orientations remained unchanged? Is the new Strategic Agenda more of a continuation or does it constitute a real shift? To answer these questions, this briefing examines the new Strategic Agenda, outlining its content, developments in its substance during the adoption process, and similarities and differences with the political priorities set in the previous institutional cycles.
The findings of the analysis (see the table in the Annex) show that the Strategic Agenda 2024-2029 constitutes an important shift in the EU’s political priorities compared with the previous Strategic Agenda, but that elements of continuity remain quite apparent nevertheless. The most obvious changes are the significance of security and defence, the importance granted to enlargement, the addition of new elements on EU competitiveness, and the salience of democracy (within the Union and in relations with third countries), which is a headline priority for the first time. Another noteworthy development is that less attention is paid to climate and environmental issues, even if some points were introduced during the drafting process.
At the same time, there is a substantial degree of continuity with the Strategic Agenda 2019-2024. Less than 20 % of the policy aspects are completely new, even though the length of the Strategic Agenda document has increased by 25 %. This observation tends to indicate that the previous EU priorities remain relevant and that a reshaping of the Agenda (rather than starting from scratch) was considered sufficient. Interestingly, many of the elements added seem to be a reiteration of policy issues addressed by the European Council in its conclusions over the last 5 years. Thus, the document appears to be a collection of previously agreed positions rather than a new set of guidelines. While the impact of Russia’s war against Ukraine and the change in the geopolitical context have fed into the new Strategic Agenda, other major issues of recent years such as health and energy are less explicitly referred to than could have been expected considering the severity of the crises with which the EU has been confronted.
The European Council’s role in setting the EU’s political priorities
The European Council is composed of the Heads of State or Government of the EU Member States, as well as its President and the President of the European Commission. Its role, as defined in Article 15 (1) of the Treaty on European Union (TEU), is to ‘provide the Union with the necessary impetus for its development’ and to define its ‘general political directions and priorities’. The European Council sets the 5-year political priorities for the EU, at the start of the institutional cycle, shortly after the European elections, in a document known as the Strategic Agenda.
The Strategic Agenda influences the political priorities of the new Commission President and feeds into the subsequent Commission annual work programmes. Therefore, the guidelines outlined in the Strategic Agenda are likely to be reflected in the legislative proposals put forward by the Commission and, in turn, in the legislative work of the Parliament and the Council.
Read the complete briefing on ‘Strategic Agenda 2024-2029: Continuity or paradigm shift?‘ in the Think Tank pages of the European Parliament.
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