European integration and cultural policies : analysis of a dialectic polarity

WORKING

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IN EUROPEAN

CULTURAL STUDIES

EUI Working Paper ECS No. 90/1

European Integration and Cultural Policies

Analysis of a Dialectic Polarity

L

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divided into six sub-series, each sub-series will be numbered

individually (e.g. EUI Working Paper LAW N o 90/1).

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EUROPEAN CULTURE RESEARCH CENTRE

EUI Working Paper ECS No. 90/1

European Integration and C ultural Policies

A nalysis of a Dialectic Polarity

L

B

BADIA FIESOLANA, SAN DOMENICO (FI)

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All rights reserved.

No part of this paper may be reproduced in any form

without permission of the author.

© Léonce Bekemans

Printed in Italy in May 1990

European University Institute

Badia Fiesolana

- 50016 San Domenico (FI) -

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" E u r o p e is n ot an e c o n o m y a nd not q u i t e a p o l i t i c a l entity,

it is a t h o u s a n d - y e a r - o l d cul t u r e . A ny E u r o p e a n a c t i o n must

s t a r t from a r e a l i s a t i o n of this fact."

H. B r u g m a n s

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E U R O P E A N I N T E G R A T I O N A N D C U L T U R A L P O L I C I E S A N A L Y S I S O F A D I A L E C T I C P O L A R I T Y L é o n c e B e k e m a n s * T A B L E OF C O N T E N T S T. E u r o p e a n I n t e g r a t i o n an d C u l t u r a l D i v e r s i t y A. I n t e g r a t i o n t h e o r y and c u l t u r e B. Formal and i nformal i n t e g r a t i o n

C. D i f f e r e n t d i m e n s i o n s of c u l t u r a l c o - o p e r a t i o n D. Scope of C o m m u n i t y a c t i o n II. B a s e s of C o m m u n i t y C u l t u r a l A c t i o n A. M a r k e t i n t e g r a t i o n w i t h i n the E u r o p e a n C o m m u n i t y 1. Free c u l t u r a l e x c h a n g e 2. C o m p e n s a t i o n for n e g a t i v e e f f e c t s of m a r k e t integration. 3. Art i c 1e 235 B. S p e c i f i c i n ternal m a r k e t c o n s e q u e n c e s 1. Free m o v e m e n t of c u l t u r a l g o o d s 2. Free m o v e m e n t of c u l t u r a l ser v i c e s 3. Free m o v e m e n t of c u l t u r a l w o r k e r s C. P r o b l e m A r e a s

TIT. C o m m u n i t v A c t i o n in C ultural Affairs:

1. Cu l t u r a l a c t i o n of EC i n s t i t u t i o n s 2. C o n f r o n t i n g t e n d e n c i e s in the 1980's

IV. N e w F r o n t i e r s for c u l t u r a l p o l i c i e s in Euro p e

A n n e x e s

* The a u t h o r is a R e s e a r c h F e l l o w at the E u r o p e a n Cult u r e

R e s e a r c h C e n t r e of the E u r o p e a n U n i v e r s i t y I n s t i t u t e in Florence, a nd S e n i o r L e c t u r e r at the E u r o p e a n I n s t i t u t e of

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I. E u r o p e a n I n t e g r a t i o n and C u l t u r a l D i v e r s i t y

A. I n t e g r a t i o n t h e o r y a nd c u l t u r e

T he r i s i n g i n t e n s i t y of E u r o p e a n e c o n o m i c i n t e g r a t i o n and the e x t r a o r d i n a r y e v e n t s in E a s t e r n E u r o p e m ay result in the e m e r g e n c e of n e w c h a l l e n g e s to the f u t u r e of the overall

i n t e g r a t i o n pro c e s s . T he n e w m o m e n t u m of the E u r o p e a n

C o m m u n i t y , g e n e r a t e d by the E u r o p e a n S i n g l e A ct and the r e a l i s a t i o n of the int e r n a l market, s eems to h a v e a d e c i s i v e

impact on the i n t e g r a t i o n p r ocess. It s h o u l d not be

f o r g o t t e n that the wo r d " c u l t u r e " is n e v e r m e n t i o n e d in the E EC Treaty. However., the u l t i m a t e s u c c e s s of this d y n a m i c p r o c e s s wi l l d e p e n d on the i n c l u s i o n of culture, b e i n g the

u l t i m a t e j u s t i f i c a t i o n of a E u r o p e a n Union. Th e c o n f i n e m e n t

of E u r o p e ’s d e s t i n y to that of a large s i n g l e m a r k e t w ould

c e r t a i n l y be to o n a r r o w a s c o p e of su c h a process, and

w o u l d p r o v e to be a s e l f - d e f e a t i n g goal in the long run.

T he m e a n i n g of the word " c u l t u r e " depe n d s on its use. It can

be t aken in e i t h e r a n a r r o w or w i d e r sense. The n o t i o n of

c u l t u r e can be r e s t r i c t e d to the arts, literature, music, or

p h i l o s o p h y . Its field is then the w o r l d as a whole. In its

w i d e r sense, c u l t u r e r e fers to a c o m p l e x i t y of values,

customs, ideas, and p o l i t i c a l and social i n stitutions, in

which ca s e it d e t e r m i n e s the h u m a n and social re l a t i o n s of a

s p e c i f i c s ociety. in c a s u Europe. In this w i d e r sense,

c u l t u r e b e c o m e s central to the n o t i o n of a C o m m u n i t y and its

f u t u r e , e v e n if this C o m m u n i t y is e c o n o m i c in origin, The

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r e a 1 i ty d ivers i f i r e f e r e n c e c 1 o s e ly i of E u r o p e a n c u l t u r e e d , but n o n e t h e l e s s s y s t e m s w h i c h a re not n t e g r a t e d system. is an a c c u m u l a t i o n of c o h e r e n t . i d e n t i t i e s and e a s i l y c o n f i n e d w i t h i n a P r o c e s s e s of i n t e g r a t i o n can be a s s e s s e d in t h r e e dif ways: in terms of social i n t e r a c t i o n , in t erms of pol d e c i s i o n - m a k i n g and in t e r m s of c o m m o n i d e n t i t y (1). a c c o r d i n g l y . West E u r o p e a n i n t e g r a t i o n in the c u l t u r a l can be a s s e s s e d a l o n g t h e s e t h r ^ e d i m e n s i o n s ; i.e. in c u l t u r a l int e r a c t i o n . formal p r o c e s s e s of cu c o - o p e r a t i o n a nd the e x i s t e n c e of a " E u r o p e a n cu i dent i t y ". f e rent i t i c a 1 A n d field formal 1 t u r a 1 1tural

F o l l o w i n g the f o u n d i n g fathers' p r o c l a m a t i o n s , the p r i m a r y task of the E u r o p e a n i n t e g r a t i o n p r o c e s s was to r e v i t a l i s e an e n t i r e c i v i l i s a t i o n w h i c h h ad been o v e r w h e l m e d by w a r ' s

d e v a s t a t i on . The det e r m i n a t i o n to " 1 ay the f o u n d a t i o n s of

an ever c l o s e r iin ion a m o n g the pe?op 1 e s of Eur o p e " was

c 1 ear 1v s t a t e d in the p r e a m b l e of the EEC t r e a t y . Hi stori ca 1

rea son s exp lain whv this p r o c è s s wa s t a c k l e d from an

e c o n o m i c s t a n d p o i n t : i t was 1 inked to the e c o n o m i c r a t i o n ale

of a d istributi on of r e s o u r c e s an d a u n i f i c a t i o n of the

1) Leon Hur w i t z . C o n t e m p o rary P e r s p e c t i v e s on EC

Int é g r â t i o n . London: A l d w i c h Press, 1980, p.3-23. For a g o o d

o v e r v i e w of the d i f f e r e n t a p p r o a c h e s to i n t e g r a t i o n t h e o r y

see C h a r l e s P e n tland. I n t e r n a t i o n a l T h e o r y and E u r o p e a n

I ntégrât i o n . London: F a b e r & Faber, 1973. For a cr i t i c a l but

s t i m u l a t i n g v i e w on West E u r o p e a n i n t e g r a t i o n see Stua r t

Holland., U n c o m m o n M a r k e t , L o n d o n : The M a c M i l l a n P r e s s Ltd. ,

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m a r k e t . It was h o p e d that E u r o p e a n l o y a l t y w ould g r o w a l o n g w i t h the f u n c t i o n a l i n t e g r a t i o n of its e c o n o m y . I n fact, e c o n o m i c i n t e g r a t i o n was on l y m e a n t to be a s t a r t i n g p oint

for a mo r e i n t e n s i v e i n t e g r a t i o n in the future. At the time

of the EC's c r e ation, the a d h e r e n t s of t he f u n c t i o n a l i s t

t h eory of i n t e g r a t i o n h o p e d that the c o m m o n m a n a g e m e n t of

p a r t s of the e c o n o m i e s of the m e m b e r s t a t e s by c o m m o n

i n s t i t u t i o n s w o u l d set a w i d e r p r o c e s s of p o l i t i c a l

i n t e g r a t i o n into motion. It was b e l i e v e d that e c o n o m i c

i n t e g r a t i o n w o u l d in due time, ur g e the S t a t e s to c o - o p e r a t e in n o n - e c o n o m i c m a t t e r s w h i c h we r e at that ti m e still u n d e r

their s o v e r e i g n t y . Therefore., due to t h e s e s p i l l - o v e r

effects, m o r e p o w e r w o u l d be t r a n s f e r r e d to the E u r o p e a n

ins t i t u t i o n s , t h e r e b y c r e a t i n g in the end, a sort of

E u r o p e a n F e d e r a t i o n , w h i c h w o u l d r e p l a c e the n a t i o n states and be of d i r e c t i m p o r t a n c e to the E u r o p e a n citizens.

This n e o - f u n c t i o n a l i s t a p p r o a c h a r g u e s that e c o n o m i c

i n t e g r a t i o n in E u r o p e will i n e v i t a b l y lead to a u n i f i c a t i o n

in o t h e r fields. N e o - f unct i ona ] i sm (1) aims at the

r e a l i s a t i o n of a s u p r a - n a t i o n a l s y s t e m through

Roci o — economi c means, i.e, c o m b i n i n g grad u a l eco n o m i c

1) See, E r n s t B. Haas, T h e U n i t i n g of Europe: Political,

Social and E c o n o m i c F o rces 1 9 5 0 - 1 9 5 7 , Stanford: St a n f o r d

U n i v e r s i t y Press, 1958; Le o n N, Lindberg, The P o l itical

D y n a m i c s of E u r o p e a n E c o n o m i c I n t e g r a t i o n , Stanford:

S t a n f o r d U n i v e r s i t y Press, 1963; Leon N. L i n d b e r g and Stuart A. S c h e i n g o l d , E u r o p e ' s W o u l d - B e Polity: P a t t e r n s of Change in the E u r o p e a n C o m m u n i t y , E n g l e w o o d Cliffs, N.J.: P r e n t i c e - H a l l Inc., 1970.

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c o - o p e r a t ion with the goal of p o l i t i c a l u n i o n .

Fede r a lis m ( 1 ) , on the c o n t r a r y , r e l i e s on p o l i t i c a l

v a r i a b l e s to c r e a t e a s u p r a - n a t i o n a l s t r u c t u r e . T he g r o w i n g

insti tut iona 1 i n v o l v e m e n t of the EC w i t h c u l t u r e s e e m s to

i l l u s t r a t e the f u n c t i o n a l s p i l l - o v e r of the e c o n o m i c

i n t e g r a t i o n p r o c e s s in the c u l t u r a l s e c t o r (2). M a r k e t

integration., h owever, p r i m a r i l y a f f e c t s c u l t u r e in its

mat e r i a l a p p e a r a n c e , i.e. as a p r o d u c t of an a c t i v i t y , and not so m u c h for its b a s i c values.

A l t h o u g h the e c o n o m i c b e n e f i t s of E u r o p e a n i n t e g r a t i o n h a v e been t h o r o u g h l y d i s c u s s e d a nd a n a l ysed, the s o c i o - p o l i t i c a l

p r o b l e m s of i n t e g r a t i o n h a v e been s o m e w h a t n e g l e c t e d by

social s c i e n t i s t s , In p a r t i c u l a r , the c i t i z e n s h i p a s p e c t of

i n t e r s t a t e i n t e g r a t i o n is e m e r g i n g as a s e n s i t i v e issue,

i n v o l v i n g t e n s i o n s b e t w e e n s u p r a - s t a t e , n a t i o n - s t a t e and

regional l o y alities, i d e n t i t i e s and c o m m i t m e n t s .

T h e s o — c a i l e d cui t urai crisiis in a n d o b j €a c t i v e r o o t s . (3) . T h e fa t h e r s h a d of a u n i f i ed E u r N a t io n a 1 i n t e r e s t s a r e s till t h e c o n d Viet o f E u r o p e a n a f f a i rs . T h e h a s n o t b e e n f o 1 l o w e d u p b y an

E u r o p e has its subject-

v i s i o n that the found

ope is still i n c o m p l e d o m i n a t i n g force in E u r o p e a n i s a t i o n of real i n s t i t u t i o n a l r e s p o n s i ve ing t e , the i ty (1) See Henri B r u g m a n s , La P e n s é e p o l i t i q u e du f é d é r a l i s m e , Leyden: S i jthof, 1969.

(2) See Part III of this a r t i c l e for an o v e r v i e w of

i n c r e a s i n g EC i n v o l v e m e n t in c u l t u r a l affairs,

(3) See c l o s i n g spee c h of W. M a i h o f e r in D. R o c h e Ced) ,

A c t e s du C o l l o q u e " C u l t u r e et C u l t u r e s E u r o p é e n n e s " ,

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a l t h o u g h t he o b j e c t i v e f a c t s of the i n t e g r a t i o n p r o c e s s

i n - c r e a s i n g l y d e m a n d a E u r o p e a n d i m e n s i o n of n a t i o n a l

po l i c i e s . It a l s o imp l i e s that f u r t h e r i n t e g r a t i o n has to

incl u d e the c u l t u r a l s p a c e of E u r o p e by p r e s e r v i n g the

E u r o p e a n c u l t u r a l h e r i t a g e and p r o m o t i n g its c u l t u r a l

ident i t v .

T he s o c i o - p o l i t i c a l p r o b l e m s of E u r o p e a n i n t e g r a t i o n are

m a i n l v r e l a t e d to the a b s e n c e of s t r o n g c u l t u r a l

a t t a c h m e n t s . the m a r g i n a 1 isat ion of s m a l l e r c o m m u n i t i e s on

the p e r i p h e r y of the E u r o p e a n market, and the c o n s e q u e n t

threat to the c o n t i n u i t y of l a n g u a g e s a nd m i n o r i t y c u l t ures,

the p o s s i b i l i t y of s t r o n g r e l i g i o u s c o n f l i c t s , a n d the

d e m o g r a p h i c i m b a l a n c e s r e s u l t i n g from the m i g r a t i o n and

t r a n s f e r of p o p u l a t i o n s from the S o u t h to the North.

The f u n c t i o n of e d u c a t i o n m u s t p r i m a r i l y be to a w a k e n

c u l t u r a l a w a r e n e s s . U n i v e r s i t i e s can p l a y an i m p o r t a n t role

in the f o r m a t i o n of a E u r o p e a n c o n s c i o u s n e s s by d e v e l o p i n g an i n t e g r a t e d s y s t e m of h i g h e r e d u c a t i o n and by s t r e s s i n g

the E u r o p e a n d i m e n s i o n in the c u r r i c u l u m of national

u n i v e r s i t i e s . In this p e r s p e c t i v e , the E R A S M U S p r o g r a m m e is

one of the mo s t e x c i t i n g i n i t i a t i v e s of the E u r o p e a n

C o m m u n i t y in r e c e n t y e a r s as it s t i m u l a t e s the m o b i l i t y of

u n i v e r s i t y s t u d e n t s of the EC c o u n t r i e s . A l s o the Jean

M o n n e t p r o j e c t , r e c e n t l y l a unched by the E u r o p e a n

C o m m i s s i o n , is an e x a m p l e of such an a p p r o a c h (1).

(1 > 0.7, N o C 308/1 3; the p r o j e c t aims at s t i m u l a t i n g the s tudy of E u r o p e a n i n t e g r a t i o n in nat i o n a l u n i v e r s i t i e s .

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The n e o - f u n c t i o n a l a p p r o a c h shows its s h o r t c o m i n g s w h e n it

is a p p l i e d t o w a r d s a E u r o p e a n U n i o n w h i c h finds its

j u s t i f i c a t i o n in c ulture. Th e p h i l o s o p h y b e h i n d the EC

T r e a t i e s has o n l y p a r t i a l l y b e e n v e r i f i e d . Th e p o w e r of

ea c h s i n g l e S t a t e is not as great., but a n e w E u r o p e a n

s t r u c t u r e is still not in sight. Th e l i m i t a t i o n of the

scope of a c t i o n of the EC T r e a t i e s is i n c r e a s i n g l y felt as a m a j o r h a n d i c a p to the role w h i c h the EC m i g h t p l a y in the p r o c e s s of E u r o p e a n inte g r a t i o n .

C o n s e n s u s on f u r t h e r E u r o p e a n i n t e g r a t i o n c a n not o n l y be

found in the n e o - f u n c t i o n a 1 t h e o r y of i n t e r n a t i o n a l

c o - o p e r a t i o n , but must be b a s e d on b r o a d p u b l i c support, and

on the r e c o g n i t i o n of c u l t u r a l i d e n t i t i e s at Eu r o p e a n ,

n a t i o n a l a nd r e g i o n a l levels. M e c h a n i s m s of i n t e g r a t i o n did

not set the a g e n d a for f u t u r e a c t i v i t i e s by t h e i r own

motion, but h a d to be e m b e d d e d w i t h i n s o m e b r o a d e r p u r p o s e of action, to be e n a c t e d bv the c i t i z e n s of Europe,

W i t h i n this c o ntext, c u l t u r a l p o l i c y c a n n o t be c o n s i d e r e d as an i n s t r u m e n t aimed at g u i d i n g c u ltural a c t i v i t i e s in the

na m e of a g e n e r a l E u r o p e a n interest. C u l t u r e has its own

d e v e l o p m e n t c a p a c i t i e s and E u r o p e a n c u l t u r a l i d e n t i t y s h o u l d be seen as a p r o j e c t of p e r m a n e n t c r e a t i o n a nd e x c h a n g e to

w h i c h the c i t i z e n s of E u r o p e can refer. We n e e d to

c o n s c i o u s l y p r o m o t e i d e n t i t y as an i n t e g r a t i v e factor. Such

a c o m m o n p r o j e c t for the futu r e c an a c c e l e r a t e the

i n t e g r a t i o n p r o c e s s in a d e c i s i v e manner.

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Henri B r u g m a n s was c o n v i n c e d that E u r o p e c o n s t i t u t e s a c u l t u r e in its o wn right, a c i v i l i s a t i o n that is s i n g l e d out

by its s p e c i a l g e o g r a p h i c e n v i r o n m e n t , b a s i c v a l u e s and

c o m m o n c u l t u r a l h e r i t a g e , and s h a r e d e x p e r i e n c e s (1). E u r o p e u n d o u b t e d l y ha s a c o m m o n c u l t u r a l h i s t o r y w h i c h was n e v e r c o n f i n e d to n a t i o n a l fronti e r s .

The h i s t o r i c a l c o m p o n e n t s of a E u r o p e a n c u l t u r a l i d e n t i t y

(e.g. the Renaissance., the Enlightenment., the I n d u s t r i a l

Revolution., etc.) h a v e a l s o be e n s t r e s s e d d u r i n g a U N E S C O

c o n f e r e n c e h e l d in H e l s i n k i in D e c e m b e r of 1980. This

a w a r e n e s s of a E u r o p e a n d i m e n s i o n of c u l t u r e as a

j u s t i f i c a t i o n for the E u r o p e a n U n i o n was a l r e a d y d i s c u s s e d

at The H a g u e C o n g r e s s in M a y of 1948 (2). Th e C o n g r e s s

e s t a b l i s h e d a c l o s e link b e t w e e n the r e a l i s a t i o n of a

p o l i t i c a l u n i o n b e t w e e n s t a t e s and the n e e d to m o b i l i s e

E u r o p e ’s c i t i z e n s a r o u n d s h a r e d c u l t u r a l values. It

c e r t a i n l y is an i m p o r t a n t s t a r t i n g - p o i n t for actual

p o l i c y - m a k i n g a nd c o m m o n a c t i o n in the c u l t u r a l field. The

t e a c h i n g of " E u r o p e a n " h i s t o r y in our s c h o o l s may then be

seen as a c o h e s i v e f a c t o r in such a p r o c e s s of integration.

The a f f i r m a t i o n of cu l t u r a l id e n t i t y was al s o the causa

mov e n d i for the M a d r i d D e c l a r a t i o n on a E u r o p e a n c u ltural

space in Oct o b e r , 1985. T he C o n f e r e n c e of E u r o p e a n

(1) H enri B r u g m a n s , T o w a r d s a E u r o p e a n Cul t u r a l P o l i c y .,

Brussels: E u r o p e a n C o o p e r a t i o n Fund, 1978.

(2) B r u g m a n s H . , Le c o n g r è s de la Ha y e - avant, p e n d a n t et

après, in N e d e r l a n d en de E u r o p e s e E e n w o r d i n g , P.M. H o m m e r s

(ed), D en Haag: M a r t i n u s Niihoff., 1980, p. 152-169.

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1 2 i n t e l l e c t u a l s r e c o n f i r m e d a c u l t u r a l E u r o p e b e y o n d that of a m a r k e t in w h i c h v a r i e t y and d i v e r s i t y m i g h t pr o s p e r . The c o n c l u s i o n a s k e d for c o n c r e t e and i n s t i t u t i o n a l l y e f f i c i e n t m e a s u r e s a nd a c t i o n s to m o v e E u r o p e from a p u r e s t a t e of the m a r k e t to a s t a t e of a c u l t u r a l d y n a m i c space. Th i s is v e r y m u c h r e l a t e d to a E u r o p e of the r e g i o n s in w h i c h the

v a r i o u s l e vels of cul t u r a l i d e n t i t y (European, n a t i o n a l

r e g i onal) a re c o m p l e m e n t a r y and s e l f - e n f o r c i n g in an

E u r o p e a n c o n t e x t .

Th e T i n d e m a n s r e port of 1976 on E u r o p e a n U n i o n a l s o d r e w the a t t e n t i o n of the E u r o p e a n C o m m u n i t y to the fact that E u r o p e cann o t p r o c e e d to a g r e a t e r d e g r e e of p o l i t i c a l i n t e g r a t i o n

w i t h o u t the u n d e r l y i n g s t r u c t u r e of a u n i f y i n g E u r o p e a n

ide n t i t y (1). In o r d e r to a c c o m p l i s h this goal, the R e p o r t

p r o p o s e d two c o u r s e s of action: the p r o t e c t i o n of

fun d a m e n t a l , c o n sumer, and e n v i r o n m e n t a l rights, and the

c o n c r e t e m a n i f e s t a t i o n s of E u r o p e a n s o l i d a r i t y by s y m b o l i c

actions. Th i s p o s i t i o n was u n d e r s c o r e d by a n u m b e r of

E u r o p e a n C o u n c i l s in the e i g h t i e s . N o mu c h a t t e n t i o n was

h o w e v e r g i v e n to the regional d i m e n s i o n of cul t u r a l

id e n t itv .

Rece n t e v e n t s and d e v e l o p m e n t s h a v e i n d i c a t e d the g r o w i n g

po l i t i c a l i m p o r t a n c e of the r ight to c u l t u r a l i d e n t i t y as

one of the p r i m e means for d e v e l o p i n g E u r o p e ' s future. We

should be a w a r e that f u n d a m e n t a l d e c i s i o n s a re n e v e r b a s e d on s t a t i s t i c a l e v i d e n c e of m e r e e c o n o m i c interaction.. E v e r y (1) Bull EC, S u p p l e m e n t 1/76

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d e b a t e th a t h as f o c u s e d on the g r e a t e c o n o m i c c h o i c e s b e f o r e us has u n d o u b t e d l y s u f f e r e d f r o m not i n c o r p o r a t i n g c u l t u r e

as o ne of the b a s i c f a c t o r s of t h e i r a rguments.

I n c o r p o r a t i n g the q u a l i t a t i v e f a ctor of c u l t u r e in the

E u r o p e a n i n t e g r a t i o n p r o c e s s implies, h o w e v e r , a n u m b e r of c h a l l e n g e s w h i c h are bo t h i n t r i c a t e a nd c o m p l e x (1). T h e r e f o r e , a c l a r i f i c a t i o n of the b a s e s of c o m m o n p e r s p e c t i v e s at regional, n a t i o n a l and E u r o p e a n C o m m u n i t y levels is n e e d e d if the d a n g e r s of a h o m o g e n i s e d , b u r e a u c r a t i s e d a p p r o a c h to a E u r o p e a n c u l t u r a l d i m e n s i o n is to be a v o i d e d . B. Formal a nd informal c u l t u r a l i n t e r a c t i o n (2) In o r d e r to c o m p r e h e n d the e x p l a n a t o r y p o w e r of n e o - f u n c t i o n a l i s m in the E u r o p e a n i n t e g r a t i o n process,

d i s t i n c t i o n s h o u l d be m a d e b e t w e e n formal and informal

p r o c e s s e s of cul t u r a l i n t e r action. I nformal cultural

i n t e r a c t i o n is o f t e n d i f f i c u l t to a s s e s s in r e l a t i o n to the

1) T he i m p o r t a n c e of the cu l t u r a l d i m e n s i o n as an essential part of the i n t e g r a t i o n p r o c e s s is d i s c u s s e d in D. Roche

(e d ), A c t e s du C o l l o g u e " C u l t u r e et C u l t u r e s E u r o p é e n n e s ",

Florence: Ins t i t u t U n i v e r s i t a i r e Europeen; M a r c h 1987; A.

R i j k s b a r o n , W.H. Roobol & M. W e i s g l a s (eds ) , E urope f rom a

C u l t u r a l P e r s p e c t i v e , T he Hague: OPR, 1987; and R. Papini

( ed ) , P e r _uria__ p o litica c u ltu r a le europea, la sfida dei

diritti c u l t u r a l i, Milano: M a ssimo, 1986.

(2) A go o d juridical a n a l y s i s of the formal p r o c esses of

cultural c o - o p e r a t i o n w i t h i n the West E u r o p e a n s y stem is

given by B. De Witte, Cultural L i n k a k e s , p a p e r p r e s e n t e d at

the B r u s s e l s W o r k i n g C o n f e r e n c e of the p r o j e c t "Dynamics of

E u r o p e a n I n t e g r a t i o n " , 17-18 February, 1989.

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1 4

flows of c u l t u r a l g o o d s (e.g. w o r k g of arts, r e cords, films, books, etc.) of p e r s o n s e x e r c i s i n g c u l t u r a l a c t i v i t i e s (e.g,

actors, w r i t e r s , p a i n t e r s , etc.) and of a n u m b e r of

i n v i s i b l e flows (e.g. c o m m u n i c a t i o n s , se r v i c e s , etc.) a nd to the m e a s u r i n g of c u l t u r a l flows and t h e i r e f fects.

Such i n formal p r o c e s s e s a re an i m p o r t a n t e l e m e n t in s t i m u l a t i n g the a w a r e n e s s of a E u r o p e a n d i m e n s i o n of culture, and c o n s e q u e n t l y c r u c i a l to o n g o i n g f u t u r e p r o c e s s of i n t e g ration. T h e y a re o f t e n a s s e s s e d as a a b a s i s for the r e g u l a t o r y i n i t i a t i v e s of g o v e r n m e n t s . T he l o n g - s t a n d i n g t r a d i t i o n of e s s e n t i a l l y i n formal but c l e a r l y n o n - i n s t i t u t i o n a l i s e d N o r d i c c u l t u r a l c o - o p e r a t i o n i l l u s t r a t e s e x t e n s i v e inf o r m a l c u l t u r a l i n t e r a c t i o n w h i c h is based on s h a r e d cu l t u r a l identity. At the e c o n o m i c level , t h e r e is a f a i r l y c l o s e o v e r l a p p i n g

of informal and informal inte g r a t i o n . In the field of

culture, on the c o n t rary, it s e e m s that formal c o - o p e r a t i o n

is n e i t h e r a natu r a l o u t g r o w t h n or the d i r e c t s o u r c e of

informal inte r a c t i o n . T h e r e is no e v i d e n c e to s u g g e s t that

the p a t t e r n s of informal i n t e r a c t i o n lead to s i m i l a r

p a t t e r n s of formal int e g r a t i o n ; o ften t h e r e a p p e a r s to be

tens i o n b e t w e e n both p r o c e s s e s in the E u r o p e a n Commu n i t y ,

This is in s t r i k i n g c o n t r a s t with the i m p o r t a n c e of

cul t u r a l flows acro s s the A t l a n t i c and the a l m o s t total

a b s e n c e of formal links b e t w e e n the U n i t e d S t ates and

E u r o p e a n c o u n t r i e s in this field. T he o v e r w h e l m i n g

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in E u r o p e is but a d e p l o r a b l e example. S imilarly, a n o t h e r

m a j o r c u l t u r a l flow, that b e t w e e n N o r t h and South,

e s p e c i a l l y b e t w e e n West E u r o p e a n c o u n t r i e s and the n a tive c o u n t r i e s of t h e i r i m migrants, is on l y i n s t i t u t i o n a l i s e d in

part. On the o t h e r hand, r e l a t i o n s b e t w e e n West E u r o p e a n

c o u n t r i e s a p p e a r to be less in t e n s i v e at the informal level, and m o r e h e a v i l y i n s t i t u t i o n a l i s e d .

At the formal level, a d i s t i n c t i o n can be ma d e betw e e n

n a t i o n a l a nd i n t e r n a t i o n a l r e g u l ations. U n i l a t e r a l

r e g u l a t i o n by ea c h S t a t e is o f t e n e x p l a i n e d as an atte m p t to limit or c o n t r o l u n d e s i r a b l e forms of cu l t u r a l movement.

T h r e e s t r u c t u r a l types of m e a s u r e s can be d i s t i n g u i s h e d

w h i c h limit c r o s s b o r d e r fl o w or exchange; each is

a p p l i c a b l e to the v a r i o u s forms in w h i c h cult u r e moves

(goods, s e r v i c e s , persons):

a. O u t r i g h t p r o h i b i t i o n s on e n t r y or exit;

b. D i r e c t d i s c r i m i n a t i o n s a g a i n s t for e i g n c u ltural goods or

o p e r a t o r s . A typical and v e r y c o m m o n e x a m p l e is that of

g o v e r n m e n t a l s u b s i d i e s to the nat i o n a l p r o d u c t i o n of films;

c. The va s t c a t e g o r y of what is k nown in E u r o p e a n Community

law as m e a s u r e s h a v i n g an e q u i v a l e n t effect. These are

m e a s u r e s that do not o p e n l y u se c i t i z e n s h i p or national o r i g i n as d i s t i n g u i s h i n g criteria, but n e v e r t h e l e s s have a d e t r i m e n t a l e f f e c t on the m o v e m e n t of culture.

E x a m p l e s of such l i m i t a t i o n s on the flow of culture are the ma n y p r i v a t e regu l a t i o n s , o f t e n backed by state legislation. Thus, b r o a d c a s t e r s may use s e l f - i m p o s e d q u otas on foreign

bo o k traders an d librarians a g r e e d to impose p r o g r a m m i n g ;

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r e sale p r i c e m a i n t e n a n c e s y s t e m s a f f e c t i n g i n t e r n a t i o n a l

book trading; the I n t e r n a t i o n a l C o u n c i l of M u s e u m s ( a

n o n - g o v e r n m e n t a l o r g a n i s a t i o n ) has a d o p t e d a c o d e of e t h i c s on m e a s u r e s l i m i t i n g the illegal trade of w o r k s of art, n a t i o n a l o r c h e s t r a s e m p l o y m a i n l y n a t i o n a l m u s i c i a n s , etc. I n t e r n a t i o n a l legal c u l t u r e in v a r i o u s c o n s t i t u t e informal react a g a i n s t n a t i o n a l u n d u l y lenient to u n d e s i r a b l e N o r m a l l y speaking., r e s t r i c t i o n s thro u g h and o u t g o i n g flows, however, e s c a p e such t h e r e f o r e r e q u i r e d on S t a t e s . the m o v e m e n t of restrain., p e r m i t or i n t e r n a t i o n a l rules ar e c o n s i d e r e d as c u l t u r a l m o v e ment, i m pose a ny d e s i r a b l e a c t i o n c o n t r o l l i n g i n c o m i n g of c u l t u r a l movement., a nd c o m m o n a c t i o n is s e n d i n g a nd r e c e i v i n g rules ma y i n f l u e n c e d i r e c t i o n s : they can flows. R e s t r i c t i v e s t a n d a r d s w h i c h forms of S t a t e s can un i late r a 1 Some forms e a s y c o n t r o l ., b e h a l f of the T he o b v i o u s e x a m p l e is a u d i o - v i s u a l b r o a d c a s t i n g , w h i c h is t r a n s m i t t e d by s a t e l l i t e so that it cannot, u n l i k e o t h e r c a r r i e r s of c ultural c o n t e n t (goods or p e r s o n s ) be s t o p p e d at the State borders. T he r e c e i v i n g S t a t e m i g h t r e sort to

jamming, but. this a both c o s t l y and an i n e f f e c t i v e

solution. G o v e r n m e n t s can a l s o join f o rces to stop forms of

b r o a d c a s t i n g w h i c h they c o n s i d e r u n d e s i r a b l e . C o - o p e r a t i o n

b e t w e e n e x p o r t i n g and i m p o r t i n g c o u n t r i e s a l s o may cu r b

illicit flows, like those of art o b j e c t s (UNESCO C o n v e n t i o n

1970, E u r o p e a n C o n v e n t i o n 1985). H o wever, a m o r e p o s i t i v e

a c t i o n s h o u l d be t h o u g h t of for the a u d i o - v i s u a l sector, for

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T he t y p i c a l r e l a tion, h o w e v e r , is the o t h e r way around: i n t e r n a t i o n a l rules try to e x p a n d c u ltural flows by rem o v i n g

n a t i o n a l r e s t r i c t i o n s . A d i s t i n c t i o n is ma d e b e t w e e n

p e r m i s s i v e a nd c o n s t i t u t i v e rules. P e r m i s s i v e rules are the

c h a r a c t e r i s t i c f e a t u r e of e c o n o m i c and c u l t u r a l r e l a tions in

the W e s t e r n world. T h e y c r e a t e a f r a m e w o r k of rules

p e r m i t t i n g inf o r m a l i n t e r a c t i o n by p r i v a t e actors; typical

sets of p e r m i s s i v e rules are those of the GATT, the EEC

T r e a t y a nd m a n y C o n v e n t i o n s a d o p t e d w i t h i n the Council of

E u r o p e (1). On the o t h e r hand, c o n s t i t u t i v e rules intend to

i ncrease c u l t u r a l flows but u n d e r c l o s e g o v e r n m e n t a l

control. T h e y are a typical feature of ma n y bilateral

a g r e e m e n t s p r o v i d i n g for e d u c a t i o n a l and c ultural exchanges,

ten d e t e r m i n e d by an i n t e r g o v e r n m e n t a l m i x e d c o m m i s s i o n

(e.g. c u l t u r a l r e l a t i o n s b e t w e e n East and West, until

r e c e n t l y ) .

C. D i f f e r e n t d i m e n s i o n s of c ultural c o - o p e r a t i o n

A p a r t from the i m p o r t a n c e of formal and informal integration

sche m e s in c u lture, d i f f e r e n t d i m e n s i o n s of European

c o - o p e r a t i o n in cu l t u r a l aff a i r s exist, a c c o r d i n g to

d i f f e r e n t p o l i t i c a l p r i o r i t i e s and set in d i f f erent legal

(1) T he m a n y p u b l i c a t i o n s which res u l t e d from the

i n t e r n a t i o n a l r e s e a r c h p r o j e c t on "Methods, Tools and

P o t e n t i a l for E u r o p e a n legal inte g r a t i o n in the light of the

A m e r i c a n Fede r a l expe r i e n c e " , with h e a d q u a r t e r s at the

E u r o p e a n U n i v e r s i t y I n s t i t u t e of Florence, clea r l y present the E u r o p e a n an d A m e r i c a n e x p e r i e n c e of integration through 1 a w .

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f r a m e w o r k s (1) (e .g .U N E S C O - E u r o p e and the A g r e e m e n t of

A s s o c i a t i o n (1945) a n d a s e r i e s of s p e c i a l conventions.;

He 1s i n k i - E u r o p e and the C o n f e r e n c e on S e c u r i t y and

C o - o p e r a t i o n in E u r o p e (1975); the C o u n c i l of E u r o p e a nd the

E u r o p e a n C u l t u r a l C o n v e n t i o n (1954); the E u r o p e a n

Communities., the T r e a t y of R o m e (1957) a nd the S i n g l e A ct (1986); the N o r d i c Coun c i l a nd its a g r e e m e n t s in 1962 and

1971; F o u n d a t i o n s and n o n - g o v e r n m e n t a l o r g a n i s a t i o n s wi t h

E u r o p e a n d i m e n s i o n s such as the E u r o p e a n C u l t u r a l F o u n d a t i o n in A m s t e r d a m (2); a w h o l e seriv.s of c u l t u r a l c o - o p e r a t i o n a g r e e m e n t s b e t w e e n countries., etc.).

C e r t a i n t r a d i t i o n a l c o n d i t i o n s for c l o s e r c u l t u r a l

c o - o p e r a t i o n , linguistic, s o c i a l or political., g o far

b e y o n d the formal f r a m e w o r k of the E u r o p e of the Twelve. The

f o l l o w i n g e x a m p l e s i n d i c a t e p o s s i b l e links of EC M e m b e r

S t ates and c e r t a i n c u l t u r a l r e g i o n s of r e f e r e n c e and

i n f l u e n c e w h i c h are set in a w h o l e r a n g e of d i f f e r e n t

(1) E u r o p e a n H a n d b o o k for C u l t u r a l A f f a i r s , N o m o s :

Baden-Baden., 1985.

(2) The E u r o p e a n C u ltural F o u n d a t i o n , a n o n - p r o f i t - m a k i n g

p r i v a t e b o d y e s t a b l i s h e d in 1954, has p l a y e d an i m p o r t a n t role in the p r o m o t i o n and s t i m u l a t i o n of c u l t ural, social, e d u c a t i o n a l a c t i v i t i e s , and r e s e a r c h of a E u r o p e a n n a t u r e t h r o u g h its n e t w o r k of n a t i o n a l c o m m i t t e e s a nd i n s titutes. Its s u b s i d y p r o g r a m m e has m a d e it p o s s i b l e to s u p p o r t and p a r t i c i p a t e in a n u m b e r of p r o j e c t s of E u r o p e a n i n t e r e s t

r e l a t e d to e n v i r o n m e n t , e d u c a t i o n , E u r o p e a n c u l t u r a l

c o - o p e r a t i o n , East-West. r e l a t i o n s , the media, and the

e m p l o y m e n t p r o b l e m s of y o u n g p e o p l e and m i g r a n t w o rkers.

O ften its role has be e n u n d e r e s t i m a t e d . Its E R A S M U S b u r e a u

ass i s t s the C o m m i s s i o n in the a d m i n i s t r a t i o n of the E R A S M U S

p r o g r a m m e and its E U R Y D I C E E u r o p e a n Un i t a c t i v a t e s and

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f r a m e w o r k s of i n t e r n a t i o n a l c o - o p e r a t i o n , be it general p u r p o s e o r g a n i s a t i o n s or s p e c i f i c c u l t u r a l c o - o p e r a t i o n . The

e x a m p l e s s e e m to sug g e s t that g e o g r a p h i c a l p r o x i m i t y or

m e m b e r s h i p in the E u r o p e a n C o m m u n i t y are less i m p o r t a n t than ling u i s t i c , h i s t o r i c a l and cu l t u r a l links;

F r a n c e an d the f r a n c o p h o n e c o m m u n i t i e s in Belgium,

L u x e m b o u r g , Canada, and to a lesser degree, S w i t z erland,

h a v e c o - o p e r a t i o n a g r e e m e n t s w h i c h ha v e c o n c r e t e

c o n s e q u e n c e s for t heir c u l t u r a l p o l i c i e s (i.e. lingui s t i c

laws, m e d i a c o - o p e r a t i o n ) . Th i s c o - o p e r a t i o n is o r g a n i s e d

a r o u n d the " A g e n c e de C o o p e r a t i o n C u l t u r e l l e et T e c h n i q u e " ( 1 ) ;

- a c o m p r e h e n s i v e s y s t e m of cu l t u r a l c o - o p e r a t i o n exists

b e t w e e n the five S c a n d i n a v i a n c o u n t r i e s in the f r a m e w o r k of

the N o r d i c C ouncil, i n c l u d i n g the a r e a s of education,

science, r e s e a r c h , media, a nd c o m m u n i c a t i o n s (2);

the c u l t u r a l c o - o p e r a t i o n a m o n g C o m m o n w e a l t h nati o n s

c o v e r s the fiel d s of science, sports, literature, and

publi s h i n g ;

- a n e t w o r k of intense informal re l a t i o n s b e t w e e n the German

l a n g u a g e c o u n t r i e s (The Federal Republic, A u s t r i a and

S w i t z e r l a n d ) exi sts in the fields of theatre, literature,

music, radio, a nd t e levision;

the M e d i t e r r a n e a n c o u n t r i e s o c c a s i o n a l l y c o - o p e r a t e in

cul t u r a l affairs.

( 1 ) Etat de la f r a n c o p h o n i e dans le m o n d e , Paris:

D o c u m e n t a t i o n F rançaise, 1986 (2) H a n d b o o k of Cultural A f fairs, o p . c i t . , p. 80-87.

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- the F r e n c h - S a a r c u l t u r a l t r e a t y (1948) w h i c h a i m e d at the i n t e g r a t i o n of the Sa a r in F r a n c e set up a F r e n c h - G e r m a n U n i v e r s i t y (which still e x i s t s ) , f a v o u r e d F r e n c h t e a c h i n g in the s c hools, a nd s t i m u l a t e d c u l t u r a l e x c h a n g e t h r o u g h a r t i s t i c a c t i v i t i e s and s p o r t s e v e n t s (1). T he d i f f e r e n t d i m e n s i o n s of c u l t u r a l c o - o p e r a t i o n a nd c u l t u r a l a c t i o n p r e s e n t a v a r i e t y of s y s t e m s in w h i c h g o v e r n m e n t r e p r e s e n t a t i v e s , ex p e r t s , a nd o t h e r r e s p o n s i b l e p e r s o n s in the c u l t u r a l p o l i c y field me e t r e g u l a r l y . T he juridical ba s e of c o - o p e r a t i o n d i f f e r s s i g n i f i c a n t l y . A r e a s of c u l t u r a l c o - o p e r a t i o n a l s o differ, d e p e n d i n g on t h e i r r e l a t i v e a p p r o a c h e s a nd o b j e c t i v e s .

H o wever, the s c o p e of e n g a g e m e n t does n ot s p e a k of the

e f f e c t s of c u l t u r a l c o - o p e r a t i o n . T he type of i n t e g r a t i o n

does h a v e an impact : t he R o m e T r e a t y does not c o n t a i n

s p e c i f i c a r t i c l e s in the c u l t u r a l sector, yet the d e c i s i o n s

of the C o m m i s s i o n o f t e n h a v e i m p o r t a n t c o n s e q u e n c e s for

p r o f e s s i o n a l s and c u l t u r a l i n d u s t r i e s in g eneral. On the

c o n trary, the C o u n c i l of Europe, s o l i d l y b a s e d on the

Cul t u r a l c o n v e n t i o n of 1954, s e r v e s as a me r e forum for an e x c h a n g e of v i e w p o i n t s , a b u n d l i n g of e f f o r t s and s h a r i n g of e x p e r i e n c e s in the field of c u l t u r a l p o l i c y , w i t h no b i n d i n g (1) Amt.sblatt des S a a r l a n d e s , 1948, p p . 1 203-1204.

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d e c i s i o n s for the M e m b e r S t ates (1).

A l t h o u g h the C o u n c i l of E u r o p e c o u l d h a v e a c c o m p l i s h e d more, it has e s t a b l i s h e d an i n t e r n a t i o n a l link b e t w e e n cultural

a d m i n i s t r a t o r s a nd p u b l i s h e d n u m e r o u s repo r t s on a wide

r a n g e of topics. It r e m a i n s an i m p ortant i n t e r g o v e r n m e n t a l

i n s t i t u t i o n f or the c o - o r d i n a t i o n of e x i s t i n g cultural

a c t i v i t i e s as well as the p r o m o t i o n of ne w ones. An

e f f e c t i v e c o n s e n s u s - b u i l d i n g r e l a t i o n s h i p b e t w e e n the two o r g a n i s a t i o n s can on l y be a d v a n t a g e o u s to t hose c o n c e r n e d w i t h the f o r m u l a t i o n of c u l t u r a l p o l i c y in Europe. A recent e x a m p l e of th e u n d e n i a b l e p o t e n t i a l for such c o - o p e r a t i o n is e v i d e n t in the A s s i s e sur "1'A u d i o - v i s u e 1" (Paris, S e p t e m b e r 1989) in w h i c h bo t h the Coun c i l of E u r o p e and the Eu r o p e a n C o m m u n i t y c o - o p e r a t e d (2).

D. Scope of C o m m u n i t y A c t i o n

In the f r a m e w o r k of this p r o s p e c t i v e survey, sta r t i n g point is the formal i n t e r a c t i o n of culture, the Eur o p e a n Community f r a m e w o r k of the r e g u l a t i o n of cul t u r e in v i e w of market

(1) A r t i c l e 3 of the C o n v e n t i o n p r o v i d e s that "the

c o n t r a c t i n g P a r t i e s shall c o n s u l t with one anot h e r within

the f r a m e w o r k of the Council of E u rope with a view to

c o n c e r t e d a c t i o n in p r o m o t i n g cultural a ctivities of

E u r o p e a n i n t e r e s t . " The Council for Cultural Co-operation,

the S t a n d i n g C o n f e r e n c e of E u r o p e a n M i n i s t e r s of Education,

and a n u m b e r of s p e c i a l i s e d bodies (e.g. the Steering

C o m m i t t e e on the Mass Media) const i t u t e the

intergovernmental

(2) See infra.

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22 i n t e g r a t i o n v e r s u s c u l t u r a l i m p o r t a n c e of informal p r o c e implies ca r e in i n c l u d i n g such the p o l i t i c a l arena. An y c e n t r a l i s a t i o n w i t h r e s p e c t t< repeat pa s t errors. d i v e r s i t y . How e v e r , the

sses in the c u l t u r a l field

a ve r y s e n s i t i v e issue into

n o t i o n of a p o l i c y of

cui ture m u s t be a v o i d e d to

T h e r e is m u c h o p p o s i t i o n to. a b u r e a u c r a t i c or p o l i t i c i s e d form of cu l t u r e . Yet c u l t u r e is a c e n t r a l p o l i t i c a l issue.

In t o d a y ' s world, m a j o r c o n f r o n t a t i o n s t e n d to imply

c u l t u r a l c o n t r o v e r s y (e.g. r e g i o n a l a nd n a t i o n a l a u t o n o m y

c l aims such as in Spain, B e l g i u m , the USSR; or i n t e r n a t i o n a l c o n f r o n t a t i o n su c h as the I s r a e 1 i - P a 1e s t i n i a n c o n f l i c t or

the I r a n - I r a q war). Such d i s p u t e s i n d i c a t e the l i m i t a t i o n s

of mere e c o n o m i c r e a s o n i n g in i n t e g r a t i o n p r o c e s s e s , e v e n if

e c o n o m i c c o - o p e r a t i o n m ay p r o v e to be a p r e c o n d i t i o n of

t r a n s c e n d i n g such e u 1t u r a 1/ p o 1 i t i c a 1 c o n f lict.

C o m m u n i t y a c t i o n in c u l t u r e is c o n f r o n t e d w i t h the a m b i g u o u s

task of c o m b i n i n g e c o n o m i c c o m p e t e n c e w i t h c u l t u r a l

a m b i t i o n s in a strict legal frame w o r k . Its o b j e c t i v e s and

m e a n s h a v e still to be c l e a r l y d e f i n e d and its p o l i t i c a l

l e g i t i m a c y a ssured. It c e r t a i n l y implies that an y C o m m u n i t y

a c t i o n in cu l t u r a l a f f a i r s h as to a v o i d the s e a r c h for

u n i f o r m i t y in a p p l y i n g e c o n o m i c laws, and a l l o w for the

d i v e r s i t y of l i v i n g p a t t e r n s and cul t u r a l e x p r e s s i o n s w i t h i n

the E u r o p e a n C o m m u n i t y (e.g. m i n o r i t y l a n g u a g e groups,

m i g r a n t s ,e t c .).

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M o r e o v e r , E u r o p e a n c u l t u r e is not a m y t h i c a l or u n t o u c h a b l e

c o n c e p t c o n f i n e d to the l i m i t e d area of E u r o p e of the

Twelve, but r a t h e r a c o m p l e x of d i s t i n c t i v e spiritual, moral

i n t e l l e c t u a l , a nd e m o t i o n a l t r aits w i t h c o n c r e t e c ultural

m a n i f e s t a t i o n s w h i c h e x p r e s s the p l u r i f o r m i t y of the

E u r o p e a n s o ciety. A n y c o m m u n i t y a c t i o n in the field of

c u l t u r e will t h e r e f o r e ha v e to s h o w the m a x i m u m respect for the ethnic, social, and c u l t u r a l c h a r a c t e r i s t i c s of each of the d i f f e r e n t c o u n t r i e s and reg i o n s w i t h i n the C ommunity, if the r e a l i s a t i o n of the i nternal m a rket by the end of 1992 is

to be a st e p t o w a r d s f u r t h e r i n t e g ration. A mere

i n t e g r a t i o n t h r o u g h the m a r k e t opens up a E u r o p e a n cul t u r a l s p a c e w h i c h is v u l n e r a b l e to the outside, if a r e g u l a t i o n

t h r o u g h law is not a p p l i e d in some s p e c i f i c cases as a

p o s i t i v e d i s c r i m i n a t i o n ,

The C o m m u n i t y ' s legal c o m p e t e n c e and p o l i t i c a l legit i m a c y for e n t e r i n g the c u l t u r a l f ield is mo r e c o n t e s t e d than in

m a n y o t h e r areas. This is r e f l e c t e d by the a m b i g u o u s legal

stat u s of the ma i n l e g i s l a t i v e o rgan in this field: a hybr i d

i n s t i t u t i o n c a l l e d the "Council and the Mi n i s t e r s

r e s p o n s i b l e for C u l t u r a l A f f a i r s m e e t i n g with the Council",

w h i c h can a d o p t e i t h e r C o m m u n i t y acts (as "Council"),

i n t e r g o v e r n m e n t a l acts (as M i n i s t e r s r e s p o n s i b l e for

C u l t u r a l A f f a i r s " ) or m i x e d acts, the legal status of which is p r o b l e m a t i c (1). Such u n o r t h o d o x institu t i o n a l p rocedures

(1) J o h a n Ry n g a e r t , Le Consei 1 "mixte" culture: un événement

vi t e r e d i m e n s i o n n é , in R i v i s t a di Studi Politici I n t e r n a z i o n a l i , 1987, n. 216, p. 581-590.

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