C Explanatory Memorandum presented by M. van der GOES van NATERS
1. T h e C o m m i t t e e on General Affairs, w h i c h has b e e n i n s t r u c t e d w i t h i n t h e c o n t e xt of t h e " new drive for E u r o p e a n integrat i o n " t o e x a m i n e t h e i n s t i t u t i o n a l aspects of t h e p r o b l em of a general common m a r k et a n d E u r o p e a n o r g a n i s a t i o n in t h e field of a t o m i c energy, h a s f o u n d t h a t t h e q u e s t i o n of p a r l i a m e n t a r y control over these two new E u r o p e a n a c t i v i t i e s called for special consider a t i o n , t h e object b e i n g t o devise t h e s i m p l e st m e t h o d s of e n s u r i n g :
1.1
1.2 t h a t f u t u r e E u r o p e a n p a r l i a m e n t a r y work is simplified;
1.3 t h a t each E u r o p e a n i n s t i t u t i o n w i t h its own specific field of c o m p e t e n c e is e q u i p p ed w i t h a p a r l i a m e n t a r y organ;
1.4 t h a t all d u p l i c a t i o n of work b e t w e e n t he v a r i o u s E u r o p e a n Assemblies is a v o i d e d ; and (iv) t h a t t h e closest p o s s i b l e l i n k s a r e e s t a b l i s h ed b e t w e e n t h e p a r l i a m e n t a r y organs of t he m o r e c o m p r e h e n s i v e o r g a n i s a t i o n s , on t h e one h a n d , a n d t h e r e s t r i c t e d C o m m u n i t i e s , on t he o t h e r .
2. The C o m m i t t e e is fully aware of t he difficulties involved. When, at the beginn i n g of t h e p r e s e n t p a r t - S e s s i o n , i t s R a p p o r t e u r Mile. K l o m p e s u b m i t t e d a d e t a i l e d r e p o rt on t h e m a n y a s p e c t s of t h i s p r o b l e m , i t d e c i d ed t o d i v i d e i t s w o r k i n t o t w o p h a s e s. T h e first phase will be d e v o t e d to w o r k i n g o u t g u i d i n g p r i n c i p l e s a n d t h e second t o d e v i s i n g p r a c t i c a l m e t h o d s of a p p l y i n g t h o se p r i n c i p l e s . The C o m m i t t e e h a s a l r e a d y e m b a r k ed u p o n t h e first phase and has u n a n i m o u s ly a d o p t e d t h e above draft R e c o m m e n d a t i on w h i c h draws the Committee of Ministers' a t t e n t i o n to t h e p r i n c i p l e s t h a t should be o b s e r v e d w h e n d r a f t i n g b o t h t h e t r e a t i e s on t h e common m a r k e t and E u r a t o m and the a g r e e m e n t s on t h e e s t a b l i s h m e n t of a E u r o p e a n N u c l e a r E n e r g y Agency u n d e r t h e aegis of 0. E. E. C. The C o m m i t t e e of Ministers s h o u l d also b e g u i d e d t h e r e b y w h e n i t discusses i n its t u r n t h e r a t i o n a l i s a t i o n of E u r o p e an i n s t i t u t i o n s . The Committee also r e q u e s t s the A s s e m b l y to g r a n t it official a u t h o r i t y to e m b a r k u p o n t h e second p h a s e of i t s work, in c o - o r d i n a t i o n w i t h t h e o t h e r E u r o p e a n Assemb l i e s , w h e n it will d e v i s e p r a c t i c a l m e t h o d s of i m p l e m e n t i n g t h e a b o v e - m e n t i o n e d p r i n c i p l e s.
3. The C o m m i t t e e felt t h a t t h e d e b a te on t h e s e p l a n s w o u l d be d i v o r c e d from r e a l i ty if m e m b e r s of t h e A s s e m b l y were not given a p r e - v i ew of t h e b o l d p r o p o s a l s p u t f o r w a r d by Mile. Klompe, and has t h e r e f o r e decided to a t t a c h her r e p o r t to t h e p r e s e n t d o c u m e n t. I t wishes once more t o r e c o r d its r e g r e t t h at Mile. K l o m p e will be u n a b l e to p r e s e n t this r e p o r t t o t h e A s s e m b l y in person, since she h a s been a p p o i n t e d to g o v e r n m e n t a l office.
1 Report drawn up by Mile. KLOMPE
I N T R O D U C T I O N
4. Under t h e g e n e r a l h e a d i n g of E u r o p e a n i n t e g r a t i o n , t h e A s s e m b l y h a s before it a d r a f t R e s o l u t i o n on t h e c r e a t i o n of a general c o m m o n m a r k e t and t h e a s s o c i a t i o n of t h is m a r k e t w i t h a free t r a d e area, p r e s e n t e d by t h e C o m m i t t e e on E c o n o m i c Questions as r e g a r d s e c o n o m i c a s p e c t s , a n d b y t h e Committ e e on General Affairs as r e g a r d s p o l i t i c a l a nd i n s t i t u t i o n a l a s p e c t s . The C o m m i t t e e on Econ o m i c Q u e s t i o n s has also s u b m i t t e d a r e p o rt on the economic, t e c h n i c a l and financial a s p e c t s of t h e E u r o p e a n o r g a n i s a t i o n of a t o m ic e n e r g y , whereas t h e C o m m i t t e e on General Affairs did not feel able t o p r e p a r e a r e p o rt on t h e p o l i t i c a l a n d i n s t i t u t i o n a l a s p e c t s of t h i s q u e s t i o n until sufficient h e a d w a y had b e e n made in t h e i n t e r g o v e r n m e n t a l negot i a t i o n s n o w p r o c e e d i n g a t t h e B r u s s e l s Conference on E u r a t o m and t h e Common Market a n d at 0 . E. E. C. i n P a r i s ; for n o t u n t i l such a s t a g e has been r e a c h e d can t h e Assembly e n l a r g e u p o n t h e views c o n t a i n e d in Resolut i o n 97 of 21st April 1956.
5. In t h e p r e s e n t r e p o r t t h e C o m m i t t ee on General Affairs merely suggests solutions t o t w o major p r o b l e m s a r i s i n g f r om " t h e new d r i v e " for E u r o p e a n i n t e g r a t i o n :
5.1 H o w can t h e r e be a d e q u a t e p a r l i a m e n t a ry s u p e r v i s i o n of t h e exercise of powers t r a n s f e r r e d b y t h e G o v e r n m e n t s t o E u r o p e a n i n s t i t u t i o n s i n c o n n e c t i o n w i t h t h e " n e w d r i v e ", w h e t h e r s u c h p o w e r s a r e b a s e d on t h e Brussels R e p o r t or are v e s t e d in 0 . E. E . C ? Insofar as s u c h p o w e r s b y p a s s n o r m a l p a r l i a m e n t a ry c o n t r o l , s u p e r v i s i o n must be p l a n n e d on a E u r o p e a n scale.
5.2 H o w can t h e r e be t h e closest p a r l i a m e n t a r y c o - o r d i n a t i o n b e t w e e n s u p e r v i s i o n of t he w o r k of t h e p r o p o s e d n e w r e s t r i c t e d commun i t i e s ( E u r a t o m , Common Market) and t h at of 0 . E. E. C ? It h a s a l w a y s b e e n one of t he m a i n p r e o c c u p a t i o n s of the C o n s u l t a t i ve A s s e m b l y to establish the fullest liaison b e t w e e n t h e s e two t r e n d s of E u r o p e a n unific a t i o n , a n d t h e C o m m i t t e e on General Affairs once m o r e finds itself obliged i n t h i s c o n t e xt t o raise the problem of links between 0 . E. E. C. and the C o n s u l t a t i v e Assembly.
6. T h e C o m m i t t e e on General Affairs wishes to e m p h a s i s e at once t h a t t h e agreem e n t s n o w b e i n g p r e p a r e d a r e m o r e i m p o r t a nt t h a n ever before from t h e point of v i ew of E u r o p e a n u n i f i c a t i o n , for t h e Suez affair has p r o v i d e d f u r t h e r e v i d e n c e of t h e need t o press f o r w a r d with E u r o p e a n u n i f i c a t i o n w i t h o ut d e l a y . Now, if e v e r , is t h e t i m e for t h e fullest c o - o r d i n a t i o n b e t w e e n t h e efforts of " l i t t l e " a n d " g r e a t e r " E u r o p e.
1.1 Parliamentary supervision of the activities covered by the " new drive for European integration "
1.1.1 Eur atom and the work of 0. E. E. C. in the atomic field
7. No d e f i n i t i o n has y e t been given of t h e n a t u r e a n d powers of t h e A s s e m b l y which would s u p e r v i s e t h e w o r k of E u r a t o m . It h as b e e n a s s e r t e d in p r i n c i p l e t h a t s u c h a n Assemb l y is n e c e s s a r y
Notein view of t h e r a n g e of a c t i v i t i e s to be covered by t h e E u r a t o m 's E u r o p e a n Commission. By reason of its d u t i e s and powers, t h i s Assembly will have m u c h in common w i t h t h e ECSC Assembly.
8. 0. E. E. C. has set up a Steering C o m m i t t e e for N u c l e a r E n e r g y which, accordi n g t o t h e Special C o m m i t t e e ' s r e p o r t t o t he Council, " shall be i n v e s t e d w i t h t h e p o w e r s it r e q u i r e s for t h e discharge of its d u t i e s "
Note w h e n t h e new E u r o p e a n A t o m i c E n e r g y has b e e n e s t a b l i s h e d . It will be e m p o w e r e d inter alia " t o e x e r c i s e t h e p o w e r s of d e c i s i o n conferred on t h e O r g a n i s a t i o n u n d e r i n t e r n a t i o n al a g r e e m e n t s for t h e a l l o c a t i o n of fissionable m a t e r i a l s s u p p l i e d t o t h e O r g a n i s a t i o n or t o i ts m e m b e r c o u n t r i e s or p r o d u c e d b y t h e joint u n d e r t a k i n g s " and " to decide w h a t i n t e r im p r o t e c t i v e m e a s u r e s should be t a k e n or what s a n c t i o n s a p p l i e d in t h e e v e n t of a n y infringem e n t of the s e c u r i t y r e g u l a t i o n s , subject t o t h e c o m p e t e n c e of a n i n t e r n a t i o n a l t r i b u n al w h i c h m a y be r e c o g n i s e d i n t h i s m a t t e r " . The e x p e r t s who d r a f t e d t h i s r e p o r t were conscious of t h e fact t h a t such a u t o n o m o u s powers w o u l d r e q u i r e special p a r l i a m e n t a r y supervis i o n
Note, a l t h o u g h t h e y made no p r o n o u n c e m e n t on t h e f o rm t h a t t h i s s h o u l d t a k e . It is a fact t h a t some of t h e decisions r e a c h e d by t h e A d m i n i s t r a t i v e C o m m i t t e e by v i r t u e of t h e s e powers ( p a r t i c u l a r l y m a j o r i t y decisions) will e s c a p e t h e c o n t r o l a n d v o t e of c e n s u r e of t h e n a t i o n a l P a r l i a m e n t s . It follows of necess i t y t h a t a E u r o p e a n A s s e m b l y m u s t b e given c o n t r o l over t h e exercise of s u c h p o w e r s , if an i r r e s p o n s i b l e E u r o p e a n t e c h n o c r a c y is t o be a v o i d e d . Since the C o n s u l t a t i v e Assembly h a s for m a n y y e a r s held w h a t is v i r t u a l l y a w a t c h i n g brief o v e r t h e a c t i v i t i e s of 0 . E. E. C , i t would be logical t o ask t h i s b o d y t o make t h e n e c e s s a r y a r r a n g e m e n t s on t h e lines indic a t e d below.
1.1.2 The general common market and the free trade area
9. The p r o b l em is i d e n t i c a l in r e l a t i on t o t h e second a s p e c t of t h e " new d r i v e " : t he c r e a t i o n of a c o m m o n m a r k e t and i t s associat i o n w i t h a free t r a d e area. The E u r o p e an Commission in c h a r g e of t h e common m a r k et will e n j o y i n d e p e n d e n t powers a n d i t s n a t u r al c o n c o m i t a n t is an Assembly with effective powers modelled on t h o s e of t h e ECSC and E u r a t o m Assemblies. N o t h i n g is y e t known of t h e f o rm w h i c h t h e free t r a d e a r e a will t a k e , b u t it can be s t a t e d w i t h o u t h e s i t a t i o n t h at t h e r e s h o u l d a t a n y r a t e b e s u p e r v i s i o n of t he a c t i v i t i e s of 0 . E. E. C. i n t h i s field and t h at t h i s should be assigned t o t h e C o n s u l t a t i ve A s s e m b l y on t h e lines i n d i c a t e d below.
1.1.3 The Consultative Assembly as the parliamentary organ of 0. E. E. C.
10. It has b e e n shown in p r e v i o u s p a r a g r a p h s s i o n of t h e n e w r e s t r i c t e d C o m m u n i t i e s should b e a r r a n g e d on similar lines t o t h e Common A s s e m b l y of E. C. S. C , the point of d e p a r t u r e for s u p e r v i s i o n of 0 . E. E, C.'s new a c t i v i t i e s should be t h e C o n s u l t a t i v e Assemb l y . For some y e a r s now, t h e l a t t e r h a s b e en r e c e i v i n g progress r e p o r t s from 0. E. E. C. a n d giving Opinions thereon. Now that 0 . E. E. C. is t o assume new f u n c t i o n s , the t i m e h a s come t o p l a c e t h e p r a c t i c a l c o - o p e r a t i o n which has grown up b e t w e e n t h e two o r g a n i s a t i o n s on a more formal basis. This would m e a n s o l v i n g t h e p r o b l em of t h e r e p r e s e n t a t i o n of S t a t e s which are Members of 0 . E. E. C. b u t not of t h e Council, n a m e ly S w i t z e r l a n d a n d P o r t u g a l , a n d h e r e t h e Comm i t t e e on General Affairs proposes a r e t u rn t o an idea o r i g i n a l l y m o o t e d i n i t s 1954 r e p o rt on t h e C o m m i t t e e of M i n i s t e r s ' p r o g r a m me of work, w h i c h w a s p r e s e n t e d on i t s behalf by M. Mommer (Doc. 264, p a r a s . 27-31). This i d e a is t h a t t h e C o n s u l t a t i v e A s s e m b l y should h o l d a special session w i t h Swiss and P o r t u guese Members of P a r l i a m e n t , o u t s i d e the n o r m a l f r a m e w o r k of t h e S t a t u t e of t h e Council. Needless to say, Swiss and P o r t u g u e se Members of P a r l i a m e n t would h a v e t h e same r i g h t s as o t h e r members at such meetings. T h e p r e p a r a t o r y work for t h e s e meetings would be done by c o m m i t t e e s comprising r e p r e s e n t a t i v e s of all t h e Member S t a t e s of 0 . E. E. C.
11. As a g e n e r a l r u l e t h e s e special sessions w o u l d m e r e l y h a v e c o n s u l t a t i v e p o w e r s . However, where the powers of an O.E.E.C. A g e n c y (such as t h e E u r o p e a n N u c l e a r E n e r gy Agency) w e r e i n d e p e n d e n t , t h e special session c o v e r i n g t h e i r exercise s h o u l d be given except i o n a l a n d effective powers of c o n t r o l over a nd a b o v e its n o r m a l a d v i s o r y f u n c t i o n s . Here one m i g h t r e v e r t t o a n i d e a p u t f o r w a r d b y t he A s s e m b l y as early as 1950 (Recommenda t i o n 4) : " By special c o n v e n t i o n s concluded b e t w e e n t h e Member S t a t e s or b e t w e e n some of t h e m , powers n o t p r o v i d e d for b y t h e S t a t u te of t h e C o u n c i l " m i g h t b e c o n f e r r e d on s p e c i al m e e t i n g s of t h e C o n s u l t a t i v e A s s e m b l y a t t e n d ed only by r e p r e s e n t a t i v e s of t h e s i g n a t o ry S t a t e s . The same idea r e a p p e a r e d later in t h e Eden Plan. It should be added t h at t h e c o m p o s i t i o n of s p e c i a l sessions w o u l d h a ve t o be v a r i e d a c c o r d i n g to t h e n u m b e r of Member S t a t e s of t h e Council a n d 0 . E. E. C. w h i c h took p a r t in t h e OEEC a c t i v i t y to b e d e b a t e d — general a c t i v i t i e s , E u r o p e an N u c l e a r E n e r g y Agency, free t r a d e area, etc.; t h a t whereas p a r l i a m e n t a r y supervifor it is n o t yet c e r t a i n t h a t e v e r y Member S t a t e of each O r g a n i s a t i o n will p a r t i c i p a te i n e v e r y new a c t i v i t y.
12. The Rules of P r o c e d u r e of t h e Consult a t i v e Assembly should be a p p l i e d at these s p e c i a l Sessions t o a v o i d t h e d r a f t i n g of a n ew s e t of rules, a l t h o u g h t h e r e would have to b e special p r o v i s i o n s defining effective powers i n specific cases. The Clerk of t h e C o n s u l t a t i ve A s s e m b l y should have charge of all these sessions, b e i n g j o i n t l y r e s p o n s i b l e t o t h e Secret a r i e s - G e n e r a l of t h e Council of E u r o p e a n d of 0 . E. E. C. Moreover, for t h e work r e l a t i ng t o these sessions, his staff should include n a t i o n a l s of Member States of 0. E. E. C. w h i c h are n o t Members of t h e Council.
13. Thus t h e C o n s u l t a t i v e A s s e m b l y , meeti n g i n special session would i n fact b e c o m e t he p a r l i a m e n t a r y organ of 0 . E. E. C , and t h i s, i n t h e view of t h e C o m m i t t e e on General Affairs, involves the further necessity of t a c k l i n g t h e p r o b l em of t w o s e p a r a t e minist e r i a l a u t h o r i t i e s : t h e C o m m i t t e e of Ministers of t h e Council of E u r o p e and t h e Council of 0 . E. E. C. This m a t t e r has a l r e a d y been r a i s e d in t h e Assembly on m a n y occasions. For i n s t a n c e , in 1953, M. Bohy, s p e a k i n g on behalf of t h e C o m m i t t e e on General Affairs
Note, gave t h e following s u m m a r y of t h e principle of all p r e v i o u s Assembly r e c o m m e n d a t i o n s on t h e s u b j e c t : t h e C o m m i t t e e of Minist e r s w o u l d i n c l u d e M i n i s t e r s f r om all t h e OEEC c o u n t r i e s w h e n economic q u e s t i o n s were u n d er d i s c u s s i o n , b u t w o u l d b e l i m i t e d t o t h e Member S t a t e s of t h e Council w h e n i t c o n s i d e r e d other m e a n s of fulfilling t h e aims of t h e Council of E u r o p e . As a first s t e p t o w a r d s such an i n t e r - r e l a t i o n b e t w e e n t h e t w o O r g a n i s a t i o n s, i t would be d e s i r a b l e t o consider e s t a b l i s h i ng t h e m in one a n d t h e same l o c a l i t y.
14. To c o n c l u d e t h i s c h a p t e r , t h e followi n g p o i n t s m a y be e m p h a s i s e d :
14.1 P a r l i a m e n t a r y c o n t r o l of E u r a t o m and t he Common M a r k e t s h o u l d be e n s u r e d b y t a k i ng t h e Common Assembly of E. C. S. C. as a p o i n t of d e p a r t u r e for n e w Assemblies.
14.2 The C o n s u l t a t i v e Assembly, m e e t i n g in special session with Swiss and P o r t u g u e se Members of P a r l i a m e n t , should be given a w a t c h i n g brief over t h e p r e s e n t a c t i v i t i e s of 0 . E. E. C. as well as i t s f u t u r e work in conn e c t i o n w i t h t h e free t r a d e area a n d nuclear d e v e l o p m e n t s . The c o m p o s i t i o n and powers of t h e s e special sessions w o u l d v a r y a c c o r d i ng t o t h e n u m b e r of S t a t e s p a r t i c i p a t i n g i n e i t h er of t h e s e a c t i v i t i e s a n d t o t h e powers conferred on 0 . E. E. C. in e a c h field. The Clerk of t he C o n s u l t a t i v e A s s e m b l y s h o u l d b e m a d e r e s p o n s i b l e for such sessions t o t h e S e c r e t a r i e s - G e n e r a l of t h e Council a n d 0 . E. E. C.
14.3 On t h e m i n i s t e r i a l p l a n e , t h i s o p p o r t u n i ty s h o u l d be g r a s p e d of e n a b l i n g t h e C o m m i t t ee of Ministers of t h e Council to meet as the Council of 0. E. E. C. when economic quest i o n s come u n d e r discussion, its m e m b e r s h ip b e i n g confined as before t o t h e Member S t a t es of t h e Council of E u r o p e , when it considers o t h e r means of fulfilling the aims of the l a t t e r .
14.4 The Committee of Ministers should a p p o i n t a g r o u p of e x p e r t s t o devise t h e most e c o n o m i c a l m e t h o d of e s t a b l i s h i n g t h e Council a n d 0 . E. E. C. i n one a n d t h e same l o c a l i t y.
1.2 Improvement in the functioning of the European Assemblies
15. Once" t h e n e w E u r o p e a n d r i v e " w i t h in b o t h t h e r e s t r i c t e d and t h e wider framework h a s been b r o u g h t about t h e r e will be the following E u r o p e a n Assemblies to reckon w i t h , t a k i n g e a c h as a c o m p l e t e l y i n d e p e n d e nt b o d y :
15.1 T h e C o n s u l t a t i v e Assembly of t h e Council of E u r o p e;
15.2 The C o n s u l t a t i v e Assembly in Special Session w i t h a v a r i a b l e m e m b e r s h i p and diff e r e n t powers, t o d i s c u s s:
t h e w o r k of 0 . E. E. C. w i t h i n its p r e s e n t l i m i t s,
t h e f u t u r e work of 0 . E. E. C. on t h e s u b j e c t of t h e free t r a d e area,
t h e f u t u r e work of 0 . E. E. C. in t h e n u c l e a r field;
15.3 T h e W E U A s s e m b l y;
15.4 The Common Assembly of E. C. S. C.;
15.5 T h e E u r a t o m A s s e m b l y;
15.6 The Common M a r k e t Assembly.
16. T h u s t h e r e would be six Assemblies (one m i g h t even s a y e i g h t ) , i n o p e r a t i o n , each of t h e m a s s i s t e d by a n u m b e r of c o m m i t t e e s. T h i s m u l t i p l i c i t y of E u r o p e a n p a r l i a m e n t a ry b o d i e s is i n a d m i s s i b l e . There is a d a n g e r t h at t h e E u r o p e a n cause will lose all p r e s t i g e in t he eyes of t h e p u b l i c , t h a t G o v e r n m e n t s will no l o n g e r k n o w w h o m to consult a n d t h a t parl i a m e n t a r i a n s will n o l o n g e r b e a b l e t o p e r f o rm a l l t h e d u t i e s assigned t o t h e m . It is t h e r e fore n e c e s s a r y i n t h e i n t e r e s t s of all t o " s t r e a m l i n e " E u r o p e a n p a r l i a m e n t a r y a c t i v i t y . The following basic p r i n c i p l e s s h o u l d be t a k e n as a guide :
16.1 t h e q u a l i t y of t h e w o r k m u s t n o t be allowed t o suffer, but i m p r o v e d;
16.2 t h e h e a l t h of R e p r e s e n t a t i v e s must b e preserved and excessive a b s e n t e e i sm due t o overwork m u s t be a v o i d e d;
16.3 all d u p l i c a t i o n m u s t be a v o i d e d;
16.4 t h e r e m u s t be no split b e t w e e n t he v a r i o u s Communities in which t h e E u r o p e an S t a t e s are grouped;
16.5 t h e i n d i v i d u a l c h a r a c t e r of t h e t wo t y p e s of Assembly, n a m e l y t h e Consultative t y p e and t h e t y p e w i t h i t s own powers of decision, must be preserved
Principles I and II : the maximum " output " of each parliamentarian
17. These t w o principles are i n t e r c o n n e c t ed : t h e q u a l i t y of t h e work will i n e v i t a b ly suffer if s u p e r h u m a n efforts continue to be r e q u i r e d of R e p r e s e n t a t i v e s . For instance, t h e c o m m i t t e e s of t h e C o n s u l t a t i v e Assembly, W. E. U., a n d t h e Common Assembly, meet at l e a s t once in t h e i n t e r v a l b e t w e e n t h e sessions, a n d sometimes twice or even more f r e q u e n t l y : t h u s R e p r e s e n t a t i v e s to all t h r e e Assemblies a r e r e q u i r e d to a t t e n d 5 to 10 committee m e e t i n g s in a d d i t i o n to the t h r e e plenary sessions; all t h i s in t h e short i n t e r v a l between t h e spring and a u t u m n Sessions. Moreover, e a c h R e p r e s e n t a t i v e is expected to continue t o e x e r t his influence i n his n a t i o n a l p a r l i a m e n t; t h i s is i n d e e d n e c e s s a r y in t h e i n t e r e s t s of t he E u r o p e a n Assemblies themselves, especially d u r i n g t h e t r a n s i t i o n period between national s t r u c t u r e and the achievement of a united E u r o p e . At the same time R e p r e s e n t a t i v es h a v e t o keep in t o u c h w i t h t h e i r c o n s t i t u e n t s. I n fact t h e o p t i m um " o u t p u t " has a l r e a dy been, exceeded w i t h t h e result t h a t t h e policy of personal contact between R e p r e s e n t a t i v es t o all t h e Assemblies, p u r s u e d since 1949, must be a b a n d o n e d . The p r e s e n t s i t u a t i o n calls for a new solution,
Principle III : duplication of work
18. E. C. S. C , E u r a t o m and the General Common M a r k e t deal w i t h a n u m b e r of common problems such as i n v e s t m e n t policy, and power p r o d u c t i o n and supply policy in connection w i t h which each of t h e m has specific responsi b i l i t i e s ; social p o l i c y a n d economic a d j u s t m e nt policy. If each of t h e s e Communities is t o be a d m i n i s t e r e d by different a u t h o r i t i e s , both logic and t h e q u a l i t y of t h e work r e q u i r e t h at t h e p a r l i a m e n t a r y r e p r e s e n t a t i v e s concerned w i t h these m a t t e r s should be t h e same, or b e t t e r still, t h a t a single Assembly should cover t h i s field. In addition, r e p r e s e n t a t i v e s of o t h e r S t a t e s could t a k e p a r t in one or more of t h e Communities. To t a k e the Council of E u r o p e and W. E. U . ; t h e y also h a v e common problems s u c h as general questions of i n t e r n a t i o n al p o l i c y a n d t h e i r i m p a c t on defence a n d measures of E u r o p e a n u n i f i c a t i o n in t h e social and cultural spheres. The logical solution—which is a l r e a d y being applied—is t h a t the States which are Members of both organisations s h o u l d send t h e same R e p r e s e n t a t i v e s t o b o th Assemblies. W i t h regard, lastly, to 0. E. E. C, t h a t o r g a n i s a t i o n ' s c o n t r i b u t i o n to E u r o p e an economic u n i f i c a t i o n w i t h i n t h e b r o a d e s t framework is i d e n t i c a l in scope w i t h t h e work of t he C o n s u l t a t i v e Assembly. Its a c t i v i t i e s in the field of coal a n d steel, n u c l e a r e n e r g y a n d t r a de l i b e r a l i s a t i o n o v e r l a p w i t h t h o s e of t h e smaller Communities. A new solution m u s t therefore be found which will allow for t h i s double link. For example, t h e E u r o p e a n Nuclear Energy Agency of 0. E. E. C. is c r e a t i n g a common u n d e r t a k i n g (one of t h e schemes u n d e r considera t i o n is t o set up a chemical s e p a r a t i o n plant) in which several of the Member States of E u r a t o m will be t a k i n g p a r t . The Representa t i v e s who control E u r a t o m should therefore a l s o supervise t h i s p a r t i c u l a r aspect of the 0 . E. E. C.'s work, because t h e y alone will be a b l e to d e t e r m i n e its effect on the work of E u r a t o m . However, t h i s n ew s o l u t i o n r e m a i ns t o be found.
Principle IV : The danger of a split between the " two Europes "
19. Nothing could be more harmful to E u r o p e a n unification t h a n diverging developm e n t o f " l i t t l e E u r o p e " a n d " g r e a t e r E u r o p e ". I n order t o avoid t h i s danger at p a r l i a m e n t a ry level, t h e C o n s u l t a t i v e A s s e m b l y
Noteproposed in 1951 t h e following draft protocol t o t h e T r e a ty i n s t i t u t i n g E. C. S. C. : " The High Contracti n g P a r t i e s shall r e c o m m e n d t o t h e i r r e s p e c t i ve p a r l i a m e n t s t h a t the members of t h e Joint Assembly of t h e c o m m u n i t y w h o m t h e y are to a p p o i n t shall b e s e l e c t e d from a m o n g t h e Repres e n t a t i v e s to the Consultative Assembly of t h e Council of E u r o p e " . The final t e x t of t he P r o t o c o l says t h a t " t h e Governments of Member S t a t e s shall be r e q u e s t e d t o r e c o m m e nd t o t h e i r r e s p e c t i v e p a r l i a m e n t s t h a t t h e memb e r s of the Assembly whom they are to a p p o i n t s h o u l d p r e f e r a b l y b e selected f r o m a m o ng t h e R e p r e s e n t a t i v e s t o t h e C o n s u l t a t i v e Assemb l y of t h e Council of E u r o p e " . I n fact, of t he 78 m e m b e r s of t h e Common Assembly 14 a r e , at p r e s e n t , full m e m b e r s a n d 8 s u b s t i t u t e members of t h e C o n s u l t a t i v e Assembly. There is nothi n g s u r p r i s i n g i n t h i s , for, as we h a v e seen u n d er P r i n c i p l e s I a n d II it is becoming i n c r e a s i n g ly difficult for p a r l i a m e n t a r i a n s to p a r t i c i p a t e in all t h e a c t i v i t i e s of several Assemblies. A way out of this difficulty lies in a s y s t em of d i s t r i b u t i o n of work by related s u b j e c t s while still p a r t l y r e t a i n i n g t h e principle of dual membership : for i n s t a n c e , t he R e p r e s e n t a t i v e s to t h e Common Assembly of E. C. S. C , E u r a t o m a n d t h e Common Market m i g h t also sit in t h e C o n s u l t a t i v e Assembly w h e n e v e r t h e l a t t e r discusses i n Special Session t h e same p r o b l e m s w i t h i n t h e wider framework of 0 . E. E . C. ; i n other words t h e y would at l e a s t a t t e n d debates on problems of energy ( b o t h c o n v e n t i o n a l and nuclear), on t h e free t r a d e area and, insofar as t h e i r other engagem e n t s allow, on the general activities of 0 . E. E. C. Their place would be t a k e n by o t h e r r e p r e s e n t a t i v e s of these Member States w h e n e v e r t h e C o n s u l t a t i v e Assembly discussed q u e s t i o n s coming w i t h i n t h e c o m p e t e n c e of t he Council of E u r o p e . They would also sit i n t he W E U Assembly.
20. T h e r e are several ways of achieving t h i s :
20.1 The n u m b e r of full members i n t h e Consulta t i v e Assembly could be doubled w i t h o u t the a n y change i n t o t a l figure, i. e. 138. Nor need t h e n u m b e r of s u b s t i t u t e s n e c e s s a r i l y be changed. This w o u l d give a t o t a l n u m b e r of 278 full members of w h o m one half (or t h e i r s u b s t i t u t e s) would sit in t h e C o n s u l t a t i v e Assembly at its O r d i n a r y Sessions ( a n d a t t h e W E U Assembly, if t h e y h a p p e n e d to be m e m b e r s ) ; t h e other half which would i n c l u d e all t h e members of t he Common Assembly of E. C. S. C , E u r a t om a n d t h e Common Market, would sit i n t h e Cons u l t a t i v e Assembly a t i t s Special Sessions d e v o t ed t o discussion of similar problems w i t h i n t he wider context of 0 . E. E . C. Although the d e l e g a t i o n s of t h o s e Member S t a t e s which did n o t belong t o t h e smaller Communities would n o t n e e d t w o groups of full m e m b e r s i t w o u l d be o n l y fair t h a t t h e y should be given equal t r e a t m e n t . It would, however, b e sufficient t o m a ke t h e i r p r e s e n t s u b s t i t u t e s full members and to r e f r a i n from a p p o i n t i n g n e w s u b s t i t u t e s . This s o l u t i o n is open to the objection t h a t it is c o n t r a r y t o p a r l i a m e n t a r y p r a c t i c e for a single s e a t t o be occupied by t w o full members.
20.2 T h e n u m b e r of full m e m b e r s a n d s u b s t i t u t es of each Member S t a t e in the Consultative Assembly could be increased by 50 %. The Assembly would t h e n have 204 full members a n d 204 s u b s t i t u t e s . For i n s t a n c e , delegations n ow holding 18 s e a t s would be a l l o t t e d 27. W i t h r e g a r d t o t h e Member S t a t e s of t h e r e s t r i c t ed Communities, t h i s figure would easily cover all t h e m e m b e r s of t h e Common Assembly of E. C. S. C , E u r a t o m and t h e Common Market who would sit i n t h e C o n s u l t a t i v e Assembly in Special Session. This s o l u t i o n has t h e d r a w b a c k t h at t h e States which are not Members of these c o m m u n i t i e s would also be obliged to send l a r g e r delegations t o S t r a s b o u r g . The q u o r um for the Assembly would exceed the present f i g u r e a n d would be all t h e more difficult to achieve.
20.3 The States which are Members of the Communities might double their number of s u b s t i t u t e s ; in t h a t e v e n t , t h e major delegations for i n s t a n c e , would consist of 18 full members a n d t w o sets of 18 s u b s t i t u t e s . This figure would cover R e p r e s e n t a t i v e s to t h e Common Assembly of E. C. S. C , E u r a t o m and the Common Market, the d i s t r i b u t i o n of seats b e i n g left to the delegations concerned. It would, however, appear to be advisable to g r a n t R e p r e s e n t a t i v e s t o t h e Common Assemb l y t h e s t a t u s of S u b s t i t u t e s t o t h e C o n s u l t a t i ve Assembly, as t h e y would only a t t e n d Special Sessions or p e r h a p s only t h o s e which a r e directl y concerned w i t h t h e work of the r e s t r i c t ed Communities. This should m a k e t h e s t a t u s of S u b s t i t u t e s a c c e p t a b l e t o our colleagues i n t he Common Assembly. Member S t a t e s which do not at t h e moment belong to t h e r e s t r i c t ed Communities would not be obliged to double t h e number of t h e i r S u b s t i t u t e s , b u t could do so in t h e e v e n t of t h e i r a c c e d i n g t o or becoming closely a s s o c i a t e d with t h o s e Communities.
21. T h i s s o l u t i o n , t h o u g h n o t i d e a l , would a p p e a r t o be t h e least c o m p l i c a t e d in t h e circ u m s t a n c e s . Since the idea of appointing s u b s t i t u t e s , t h o u g h foreign t o p a r l i a m e n t a ry p r a c t i c e , has b e e n embodied in t h e S t a t u t e of t h e Council of E u r o p e , i t is b e t t e r t o m a k e use of it t h a n to devise n e w m e t h o d s . To take a specific example, let us consider t h e case of Monsieur A. a F r e n c h M. P . who r e p r e s e n t s his c o u n t r y i n t h e Common A s s e m b l y of E. C. S. C , E u r a t o m a n d the Common Market. If the p r o p o s e d solution were a d o p t e d he would also be a s u b s t i t u t e R e p r e s e n t a t i v e t o t h e Consulta t i v e Assembly b u t would only a t t e n d Special Sessions d e v o t e d t o d e b a t e s on problems conn e c t e d with the same subjects in a wider c o n t e x t . This would ensure co-ordination b e t w e e n t h e two parallel a c t i v i t i e s . The full member, Monsieur B. or his second s u b s t i t u t e, M. C , would occupy t h i s seat at t h e o r d i n a ry meetings of the Consultative Assembly and i n t h e W E U Assembly.
22. This c a n b e a c h i e v e d m e r e l y b y a m e n d i ng A r t i c l e 25 (c) of the S t a t u t e , r e p l a c i n g the words : " e a c h R e p r e s e n t a t i v e may have a s u b s t i t u t e . . . " b y t h e words " e a c h Representa t i v e m a y have one or two s u b s t i t u t e s . . . ". By v i r t u e of Article 4 1 , t h i s a m e n d m e n t could be m a d e w i t h o u t r e q u i r i n g p a r l i a m e n t a r y r a t i fication. The n a t i o n a l p a r l i a m e n t s would be asked t o a p p o i n t t h e i r delegations t o t h e Cons u l t a t i v e Assembly in such a w a y as t o include R e p r e s e n t a t i v e s to t h e Common Assembly of E. C. S. C , E u r a t o m a n d t h e Common Market. This could be done in two ways. The C o m m i t t e e of Ministers should, when a d o p t i ng t h e a m e n d m e n t t o A r t i c l e 25 (c), r e q u e s t S t a t es which are Members of t h e Communities to e n s u r e , insofar as falls w i t h i n t h e i r competence, t h a t t h e i r n a t i o n a l p a r l i a m e n t s abide b y this r u l e ; t h e B u r e a u of t h e Assembly should also s u b m i t a r e s o l u t i o n on t h e same lines for a d o p t i o n by n a t i o n a l p a r l i a m e n t s where it should h a v e the support of R e p r e s e n t a t i v e s to the Assembly. There would be no need t o amend h e T r e a t y c o n s t i t u t i n g E. C. S. C. since the P r o t o c o l a l r e a d y s t i p u l a t e s t h a t t h e Members of t h e Common Assembly shall p r e f e r a b l y be s e l e c t e d from among R e p r e s e n t a t i v e s to the C o n s u l t a t i v e Assembly.
Principle V : Respecting the different characters of the types of Assembly
23. The above proposal in no w a y affects t h e f u n d a m e n t a l difference b e t w e e n Assemblies h a v i n g t h e i r own powers of decision, namely t h e Common Assembly of E. C. S. C , E u r a t om a n d t h e Common Market, a n d Assemblies w i th e s s e n t i a l l y c o n s u l t a t i v e powers, while making for b e t t e r co-ordination between both kinds of Assembly. It follows t h a t t h e Offices of t he Clerk of b o t h kinds of Assembly must remain s e p a r a t e from each other. There would, however, be no need to go t o e x t r e m e s ; in fact, Offices of t h e Clerks of t h e t h r e e r e s t r i c t ed Assemblies should, as far as possible, be composed of t h e same p e r s o n s ; t h e same holds t r ue in t h e case of t h e Clerks of Assemblies of t he c o n s u l t a t i v e type. Beyond t h a t stage close c o - o p e r a t i o n b e t w e e n t h e different Clerks is t he most t h a t can be a c h i e v e d u n t i l a n ew a t t e m pt is m a d e t o r a t i o n a l i s e t h e a c t i v i t i e s of E u r o p e an bodies.
Long-term objective : greater rationalisation
24. While t h e a b o v e - m e n t i o n e d proposals a r e l i k e l y t o i m p r o v e t h e w o r k i n g of t h e E u r o p e a n Assemblies, t h e y c a n n o t t a k e t h e place of r a t i o n a l i s a t i o n of all E u r o p e a n a c t i v i t i e s which is b e c o m i n g i n c r e a s i n g l y n e c e s s a r y as E u r o p e an i n t e g r a t i o n progresses. During a d e b a t e i n t he C o m m i t t e e on General Affairs t h e C o n s u l t a t i ve Assembly was once described as t h e " m o t h er of all E u r o p e a n Assemblies " . This is not, l e g a l l y speaking, t r u e , and it is indeed no longer possible t o b r i n g all t h e s e Assemblies w i t h i n t h e framework of t h e Council of E u r o p e. I t may, however, be possible i n t h e near future t o i n c o r p o r a t e all these different Assemblies w i t h i n a " E u r o p e a n Assembly " whose main p u r p o s e would be t o act as a p u b l i c symbol of E u r o p e a n u n i t y.
