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EUI Working Paper EPU No. 90/4
The Origin and Development
of the Question Time Procedure
in the European Parliament
Ma r t in We s tl a k e
opean University Institute, Florence
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EUROPEAN UNIVERSITY INSTITUTE, FLORENCE
EUI Working Paper EPU No. 90/4
The Origin and Development
of the Question Time Procedure
in the European Parliament
MARTIN WESTLAKE
BADIA FIESOLANA, SAN DOMENICO (FI)
EUROPEAN POLICY UNIT
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N o part o f this paper may be reproduced in any form without permission o f the author.
© Martin Westlake Printed in Italy in July 1990 European University Institute
Badia Fiesolana 1-50016 San Dom enico (F I)
Ita ly
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1 8.6 . 9 0
THE O R I G I N AND DEVELOPMENT OF THE QUESTI ON TI ME PROCEDURE I N THE EUROPEAN PARLI AMENT
BY
MARTI N WESTLAKE(*) * * )
(*) A d m i n i s t r a t o r in the S e c r e t a r i a t G e n e r a l of the C o m m i s s i o n of the E u r o p e a n C o m m u n i t i e s . T h e a u t h o r w i s h e s to m a k e it c l e a r that the v i e w s e x p r e s s e d
in t his p a p e r are his o w n and do not e n g a g e any o t h e r p e r s o n or o r g a n i s a t i o n .
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The European Policy Unit
The European Policy Unit at the European University
Institute was created to further three main goals.
First, to
continue the development of the European University Institute as
a forum for critical discussion of key items on the Community
a g e n d a .
S e cond, to enhance the documentation available to
scholars of European affairs.
Third, to sponsor indivi d u a l
research projects on topics of current interest to the European
Communities.
Both as in-depth background studies and as policy
a n a l y s e s in t h e i r ow n right, t h e s e p r o j e c t s should prove
valuable to Community policy-making.
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1 I . I nt r o d u c t i on On W e d n e s d a y e v e n i n g s , t y p i c a l l y , at the E u r o p e a n P a r l i a m e n t ' s p l e n a r y s e s s i o n s in S t r a s b o u r g , a c u r i o u s r itual u n f o l d s . V o t i n g on S i n g l e A ct ( C o o p e r a t i o n P r o c e d u r e ) r e p o r t s u s u a l l y s t a r t s at 5 . 0 0 p .m.. To h a v e any i n f l u e n c e on C o o p e r a t i o n P r o c e d u r e l e g i s l a t i o n . P a r l i a m e n t is r e q u i r e d to m u s t e r an a b s o l u t e m a j o r i t y - 260 - of its m e m b e r s * 1 ). The g r o u p w h i p s are o ut in f o r c e a nd the c h a m b e r is full. W i t h i n m o m e n t s of the c o m p l e t i o n of v o t i n g , h o w e v e r , the c h a m b e r has e m p t i e d , the i m p r e s s i o n of e m p t i n e s s b e i n g f u r t h e r e m p h a s i s e d by the fact that the t e l e v i s i o n lights h a v e b e e n t u r n e d o ff, and the c a m e r a m e n , n o r m a l l y s t a t i o n e d in the h e m i c y c l e , sent h ome. At the s ame t ime, the C o m m i s s i o n b e n c h b e g i n s to fill. On o c c a s i o n , as m a n y as ten of the s e v e n t e e n C o m m i s s i o n e r s may be p r e s e n t . T he a c t i n g P r e s i d e n t a n n o u n c e s a n a m e and a n u m b e r . A C o m m i s s i o n e r s t a n d s a nd g i v e s a b r i e f r eply. Of the f ew M E P s left in the C h a m b e r ( f r e q u e n t l y t h e r e a p p e a r to be m o r e
C o m m i s s i o n e r s than t h e r e are p a r l i a m e n t a r i a n s ) , o n e or two m i g h t s t a n d a nd ask s h o r t s u p p l e m e n t a r y q u e s t i o n s , to w h i c h the C o m m i s s i o n e r will in t u r n r e p l y . A n o t h e r n a m e and n u m b e r will t hen be a n n o u n c e d a nd the
C o m m i s s i o n will a g a i n t ake the floor, t h i s p r o c e s s b e i n g r e p e a t e d for an h our and a half.
T h i s is Q u e s t i o n T i m e to the C o m m i s s i o n w h i c h , t o g e t h e r w i t h Q u e s t i o n T i m e to the C o u n c i l and to the M i n i s t e r s m e e t i n g in P o l i t i c a l C o o p e r a t i o n * 3) ( j s o n e
of the m o r e v e n e r a b l e p a r t s of the P a r l i a m e n t ' s p r o c e e d i n g s , e s t a b l i s h e d in its p r e s e n t f o r m in 1973, and t r a c i n g its r o o t s b a c k as far as the C o m m o n A s s e m b l y of the E C S C * 3 ). T r a d i t i o n a l c o m m e n t a r i e s , p a r t i c u l a r l y b e f o r e the i n s t i t u t i o n of d i r e c t e l e c t i o n s in 1979, c o n s i d e r e d Q u e s t i o n T i m e an i m p o r t a n t w e a p o n in
P a r l i a m e n t ' s l i m i t e d a r m o u r y . F i t z m a u r i c e , for e x a m p l e , l i s t e d it a m o n g the f ive p o w e r s of c o n t r o l of the P a r l i a m e n t * 4 ), and C o h e n felt it was " c l e a r l y m o r e t han just a n o t h e r s u p e r v i s o r y p o w e r " ; "it p r o v i d e s p a r l i a m e n t a r i a n s w i t h o n e of their p r i n c i p a l a nd r e g u l a r d i a l o g u e s w i t h the C o m m i s s i o n , the C o u n c i l and the F o r e i g n M i n i s t e r s . " * ® )
TT5 Art. -7 T ”S'EA; Art. 149, EEC.
(2) S i n c e D e c e m b e r , 1976, Q u e s t i o n T i m e has b e e n
d i v i d e d into into two p arts. Q u e s t i o n T i m e to the C o u n c i l and the F o r e i g n M i n i s t e r s is i n v a r i a b l y h e l d on a d i f f e r e n t , g e n e r a l l y e a r l i e r , day. (3) C o h e n , 'The D e v e l o p m e n t of Q u e s t i o n T i m e in the E u r o p e a n P a r l i a m e n t , W i t h S p e c i a l R e f e r e n c e to the R o l e of B r i t i s h M e m b e r s , ' 16 C .M .L .R e v .1979, p.41. (4) F i t z m a u r i c e , T he E u r o p e a n P a r l i a m e n t , S a x o n H o u s e , F a r n b o r o u g h , 1978, p .10. H e r m a n a nd L o d g e , T h e E u r o p e a n P a r l i a m e n t and the E u r o p e a n C o m m u n i t y , M a c m i l l a n , L o n d o n , 1978, p.57. (5) Op ,c i t . , p .58.
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In a formal s e n s e this m i g h t still be the c a s e , but m a t t e r s h a v e c l e a r l y m o v e d on. T h e still u n f o l d i n g r a m i f i c a t i o n s of d i r e c t e l e c t i o n s and the S i n g l e E u r o p e a n A ct, to take but the two m o s t i m p o r t a n t
i n s t i t u t i o n a l d e v e l o p m e n t s s i n c e 1979, h a v e c o n s i d e r a b l y s t r e n g t h e n e d a nd e x t e n d e d P a r l i a m e n t ' s s u p e r v i s o r y p o w e r s . In p a r t i c u l a r , C o m m i s s i o n e r s and, i n c r e a s i n g l y , M i n i s t e r s of the C o u n c i l P r e s I d e n c y - I n - O f f i c e are f r e q u e n t v i s i t o r s to P a r l i a m e n t ' s s p e c i a l i s e d C o m m i t t e e s and r e g u l a r a t t e n d e r s of P a r l i a m e n t ' s p l e n a r y s e s s i o n s . It w as e v i d e n t that d i r e c t e l e c t i o n s w o u l d c h a n g e b o t h the s t r u c t u r e a n d the n a t u r e of m a n y of the P a r l i a m e n t ' s p r o c e d u r e s . T h i s p a p e r s e t s o ut to e x a m i n e the o r i g i n and d e v e l o p m e n t of one p a r t i c u l a r a s p e c t of the E u r o p e a n P a r l i a m e n t ' s q u e s t i o n i n g f u n c t i o n . Q u e s t i o n T i m e , and the w a y in w h i c h its p r o c e d u r e s , t o g e t h e r w i t h t h o s e of the o t h e r i n s t i t u t i o n s c o n c e r n e d , h a v e e v o l v e d . I I . O r i g i n , L egal B a s e and E v o l u t i o n A p a r l i a m e n t a r y c o n t r o l or s u p e r v i s o r y f u n c t i o n by w a y of q u e s t i o n i n g w a s f irst e s t a b l i s h e d in the E C S C T r e a t y . A rt. 2 3 , ( 3 ) p r o v i d e d that "The H i g h A u t h o r i t y s hall r e p l y o r a l l y or in w r i t i n g to q u e s t i o n s put to It by the A s s e m b l y or its
M e m b e r s . “
A rt. 23 a l s o e s t a b l i s h e d a d i s t i n c t i o n b e t w e e n the o b l i g a t i o n s of the e m b r y o n i c C o m m i s s i o n a nd C o u n c i l w h i c h has p e r s i s t e d to this day, s i n c e p ara. 4 p r o v i d e d o n l y that m e m b e r s of the C o u n c i l "shall be h e a r d at t heir r e q u e s t " . In p l a i n t erms, the H i g h A u t h o r i t y w as u n d e r an o b l i g a t i o n to r e p l y to the C o m m o n A s s e m b l y ' s q u e s t i o n s , w h e r e a s the C o u n c i l c o u l d r e p l y if It w i s h e d . For the f irst y e a r s of the C o m m u n i t y ' s life, the C o u n c i l d id not so w i s h , d e s p i t e the A s s e m b l y ' s r e c o m m e n d a t i o n s .
In fact, it w a s not u ntil a f t e r the s i g n i n g of the R o m e T r e a t y that the C o u n c i l a g r e e d to a n s w e r Q u e s t i o n s put by the n o w P a r l i a m e n t a r y A s s e m b l y . The H i g h A u t h o r i t y h ad m e a n w h i l e b e g u n to a n s w e r P a r l i a m e n t a r y Q u e s t i o n s - a total of s i x t y d u r i n g the C o m m o n A s s e m b l y ' s l i f e . (7) A n o t h e r t h e o r e t i c a l d i s t i n c t i o n m a d e in E C S C Art. 23 - b e t w e e n W r i t t e n and Oral Q u e s t i o n s - w as to b e c o m e i n c r e a s i n g l y a p p a r e n t in p r a c t i c e , a nd in the e a r l y 1 9 6 0 s the a n s w e r i n g i n s t i t u t i o n s w e r e to e s t a b l i s h t h e i r internal 67
(6) S ee the T955 P o h e r R e p o r t , A.C. D ocs. 1 9 5 5 / 5 6 n° 2, p ara. 40. See a l s o L i n d s a y , E u r o p e a n A s s e m b l i e s , L o n d o n , 1 9 6 0 , n o t e 2, p . 2 2 4 . (7) S ee C o h e n , o p . c i t . , p.42.
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3
p r o c e d u r e s a c c o r d i n g l y . (8) W r i t t e n Q u e s t i o n s p r e d o m i n a t e d ( f i f t y - s e v e n , a g a i n s t o n l y t h r e e Oral Q u e s t i o n s d u r i n g the w h o l e p e r i o d (1951 - 1 9 5 8 ) ) . T h e y c o u l d be t a b l e d at a ny time. S i n c e the C o m m o n A s s e m b l y met but four t i m e s a year on a v e r a g e , O ) the
p o s s i b i l i t i e s for t a b l i n g Oral Q u e s t i o n s w e r e l i mited. Indeed, the t a b l i n g of an Oral Q u e s t i o n w a s s o m e t h i n g of a p o l i t i c a l e v e n t ( '0)_ to a c e r t a i n e x t e n t r e f l e c t i n g the a b s e n c e of UK p a r l i a m e n t a r y t r a d i t i o n ( 1 1 ). W i t h the b e n e f i t of h i n d s i g h t , t h o s e e a r l y Oral Q u e s t i o n s w e r e far m o r e d i s c e r n i b l e as a n t e c e d e n t s of the c u r r e n t Oral Q u e s t i o n w i t h D e b a t e p r o c e d u r e ^^ ) > a p o i n t to be r e t u r n e d to later.
A r t i c l e 1 40 of the R o m e T r e a t y , the c u r r e n t legal b a s i s for Q u e s t i o n T i m e , c o n t i n u e d the d i s t i n c t i o n s b e t w e e n the o b l i g a t i o n s of the C o u n c i l a nd the
C o m m i s s i o n , and b e t w e e n W r i t t e n a nd Oral Q u e s t i o n s . Its p a r a g r a p h s 3 and 4 p r o v i d e that;
“T h e C o m m i s s i o n shall r e p l y o r a l l y or in w r i t i n g to q u e s t i o n s put to it by the E u r o p e a n P a r l i a m e n t or by
i ts m e m b e r s .
The C o u n c i l shall be h e a r d by the E u r o p e a n
P a r l i a m e n t in a c c o r d a n c e w i t h the c o n d i t i o n s laid d o w n by the C o u n c i l in its r u l e s of p r o c e d u r e . " The n e w l y e s t a b l i s h e d P a r l i a m e n t a r y A s s e m b l y h ad 142 m e m b e r s , as o p p o s e d to the 78 of the C o m m o n A s s e m b l y . T h i s fact, t o g e t h e r w i t h the C o u n c i l ' s n e w - f o u n d r e a d i n e s s to r e p l y , r e s u l t e d in the t a b l i n g of 41 Q u e s t i o n s d u r i n g the 1 9 5 8 - 1 9 5 9 s e s s i o n ^ 1 3 ), and
s i m i l a r l y large i n c r e a s e s in e v e r y y ear t h e r e a f t e r u ntil the Q u e s t i o n T i m e p r o c e d u r e itself w a s i n s t i t u t e d in 1973. T h u s , 180 W r i t t e n Q u e s t i o n s a nd 6 Oral Q u e s t i o n s w e r e a n s w e r e d in the 1 9 6 1 - 1 9 6 2 s e s s i o n . By 1 9 6 9 - 1 9 7 0 , 4 (Ô ) f o r the C o u n c i I , s ee H o u b e n , “L es C o n s e i l s de M i n i s t r e s des C o m m u n a u t é s E u r o p é e n n e s " , L e y d e n , 1964. For the H i g h A u t h o r i t y / C o m m i s s i o n , see S c h w e d , "Les Q u e s t i o n s E c r i t e s du P a r l e m e n t e u r o p é e n à la C o m m i s s i o n , " 13 RMC, 1970. For the P . E . , see EP R u l e s of P r o c e d u r e ( 1958) R u l e 25 and, for a d d i t i o n a l c o n d i t i o n s , E.P. D ocs. 1959, n° 71, p .8.
(9) See L i n d s a y , o p c . c i t . , p.218.
(10) See K a t e y n , L ' A s s e m b l é e C o m m u n e de la C o m m u n a u t é E u r o p é e n n e du C h a r b o n et de l' A c i e r , L e y d e n , 1962. (11) A l t h o u g h it w a s a D u t c h M P , Henk V r e d e l i n g w h o
f irst b e g a n , d u r i n g the late 1 9 6 0 s , to e x p l o i t oral q u e s t i o n s to a m a x i m u m . See b e low. (12) A m o r e e l a b o r a t e p r o c e d u r e , g o v e r n e d by R u l e 58 of the P a r l i a m e n t ' s c u r r e n t R u l e s of P r o c e d u r e . Oral Q u e s t i o n s w i t h D e b a t e m a y o n l y be t a b l e d by s e v e n or m o r e M e m b e r s of a C o m m i t t e e , or a p o l i t i c a l g r o u p , and are s u b j e c t to a n u m b e r of c o n s t r a i n t s on a d m i s s i b i l i t y a nd s u b j e c t m a t t e r . (13) S c h w e d , o p . c i t . , p . 3 6 5 - 3 6 6 .
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the f i g u r e s w e r e 5 08 and 17; in 1 9 7 0 - 1 9 7 1 , 5 8 3 a n d 16; a nd in 1 9 7 1 - 1 9 7 2 , 641 a nd 23 r e s p e c t i v e l y. * 141 C o h e n o b s e r v e s that t h e s e i n c r e a s e s w e r e “d u e l a r g e l y to the e x a m p l e set by the p e r s i s t e n t q u e s t i o n i n g u n d e r t a k e n by Mr V r e d e I i n g“ . * 15 1 F i t z m a u r i c e and J a c k s o n r e c o u n t that; "The D u t c h S o c i a l i s t H e n k V r e d e l i n g s o m e t i m e s a s k e d as m a n y as 60 per c ent of the q u e s t i o n s in a year, t hus e a r n i n g h i m s e l f the n i c k n a m e “V r a g e l i n g "
( v r a g e n - to ask). A B r i t i s h M e m b e r , L o r d O ' H a g a n , t o p p e d the t a b l e in h is p e r i o d : he is e v e n s a i d to h ave p l a c e d an a d v e r t i s e m e n t in the p r e s s a s k i n g for m a t e r i a l for q u e s t i o n s. ” * 161
The C o u n c i l ' s R u l e s of P r o c e d u r e did not e n l a r g e on the r e q u i r e m e n t s of Art. 140, para. 4 ( E E C ) * 1 7 1 , e x c e p t to p r o v i d e that a ny M e m b e r of the C o u n c i l c o u l d r e p r e s e n t it at m e e t i n g s of the P a r l i a m e n t or a l t e r n a t i v e l y that the C o u n c i l ' s v i e w s c o u l d be p r e s e n t e d in w r i t i n g * 1 6 1 . In the M a r c h - A p r i l 1 960 C o u n c i l s e s s i o n , the P r e s i d e n t of the C o u n c i l a n n o u n c e d that it had b e e n d e c i d e d to f o r w a r d r e p l i e s to P a r l i a m e n t a r y Q u e s t i o n s on m a t t e r s w h i c h the C o u n c i l had a l r e a d y c o n s i d e r e d * 1 9 1 . T h u s , by c o n v e n t i o n , the C o u n c i l c a m e to a c c e p t the d i s t i n c t i o n m a d e in A r t i c l e 1 4 0 ( 3 ) , b e t w e e n W r i t t e n a nd Oral Q u e s t i o n s , and b e l a t e d l y a c c e p t e d the p r i n c i p l e that it w as a n s w e r a b l e , t h o u g h a l w a y s on a v o l u n t a r y b a s i s , to the P a r l i a m e n t a r y A s s e m b l y . H o w e v e r , the C o u n c i l has n e v e r felt itself to be u n d e r an o b l i g a t i o n to be e x p a n s i v e a n d in a n y c ase has n e v e r b e e n a l o q u a c i o u s i n s t i t u t i o n . Its
t r a d i t i o n a l r e t i c e n c e on the o ne h and, a n d the
C o m m i s s i o n ' s o b l i g a t i o n s on the o t h e r , are r e f l e c t e d in the n u m b e r s of Q u e s t i o n s t a b l e d to e a c h i n s t i t u t i o n d o w n the y e a r s . (See T a b l e I) 141516171819 (14) C o c k s , T F e E u r o p e a n P a r l i a m e n t , H . M . S . O . , L o n d o n 1973, p . 1 3 4 . T h e s e f i g u r e s a re for p a r l i a m e n t a r y y e a r s . The f i g u r e s g i v e n in T a b l e O n e are for c a l e n d a r y e a r s . (15) C o h e n , o p . c i t . , p.42. (16) F i t z m a u r i c e a nd J a c k s o n , The E u r o p e a n P a r l i a m e n t , P e n g u i n B o o k s , H a r m o n d s w o r t h , 1979, p . 1 0 3 . See a l s o H e r m a n and L o d g e , o p . c i t . , p.62. (17) G i v e n the w a y in w h i c h the C o u n c i l ' s R u l e s of P r o c e d u r e w e r e to d e v e l o p , the p r o v i s i o n of A r t i c l e 1 4 0 ( 4 ) b e c a m e i n c r e a s i n g l y i n a p p r o p r i a t e . T he C o u n c i l R u l e s of P r o c e d u r e ( L u x e m b o u r g : O f f i c e for O f f i c i a l Pub Ii ca t ions o? the E u r o p e a n C o m m u n i t i e s , 1987) is an e x t r e m e l y s lim d o c u m e n t , a nd its a r t i c l e s , t w e n t y in all, are s t r i c t l y l i m i t e d to internal o r g a n i s a t i o n . T he c o n d i t i o n s
g o v e r n i n g the C o u n c i l ' s r e s p o n s e s are in fact laid d o w n in a n u m b e r of d e c i s i o n s , r e s o l u t i o n s a nd a g r e e m e n t s ,
t o g e t h e r w i t h s t a t e m e n t s of P r e s i d e n e i e s - i n - O f f i c e and d e c l a r a t i o n s of E u r o p e a n C o u n c i l s .
(18) C o c k s , o p . c i t . , p. 134.
(19) Ibid. In 1959, the C o u n c i l a l s o a g r e e d that m u t u a l c o n s u l t a t i o n b e t w e e n C o u n c i l and C o m m i s s i o n m i g h t p r o v e u s e f u l for Q u e s t i o n s a d d r e s s e d to b o t h i n s t i t u t i o n s , or a d d r e s s e d to one, but d i r e c t l y c o n c e r n i n g the o t h e r .
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TABLE ONE
WRITTEN AND ORAL QUESTIONS TO THE COMMISSION, THE COUNCIL, AND THE FOREIGN MINISTERS, 1969-1987
1969 1971 1973 1975 1977 1979 Wr i tten quest ions
Comm iss ion 504 633 637 747 1 152 1 674
Counc i1 1 3 115 115 176 223 Foreign Ministers 4 34 88 Total 505 636 752 866 1 362 1 977 Oral questions Commission 46 72 42 Counc i 1 34 14 22 7 Foreign Ministers 17 5 4 2 Total 89 103 51 65 98 51 1980 1981 1982 1983 1984 1985 1986 1987 Wr i tten quest ions
Comm i ss ion 1 995 1 744 2 022 1 946 1 976 2 949 2 671 2 628
Counci I 271 210 256 242 262 258 195 183
Foreign Ministers 57 37 66 49 73 125 157 161
Total 2 323 1 991 2 344 2 237 2 311 3 332 3 023 2 972 Oral questions
Comm iss ion 61 67 63 52 36 68 29 35
Counci I 23 29 22 12 19 19 14 8
Foreign Ministers 5 7 12 6 8 14 7 2
Total 89 103 97 70 63 101 50 45
Source: Forging Ahead, 3rd Edition 1989, General for Research, Office for Officia Communities, Luxembourg.
European Parliament, Pubiicat ions of the
Directorate European
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T h e P a r l i a m e n t a r y A s s e m b l y < 2 °) e s t a b l i s h e d its o w n r u l e s of p r o c e d u r e g o v e r n i n g the t a b l i n g of Q u e s t i o n s . T h e s e r e f l e c t e d the T r e a t i e s d i s t i n c t i o n b e t w e e n W r i t t e n a nd Oral Q u e s t i o n s , but m a d e a f u r t h e r d i s t i n c t i o n b e t w e e n Q u e s t i o n s for Oral A n s w e r W i t h o u t D e b a t e , and t h o s e for Oral A n s w e r W i t h D e b a t e . T h e p r o c e d u r e for Q u e s t i o n s w i t h W r i t t e n A n s w e r has r e m a i n e d a l m o s t the s a m e up to the p r e s e n t day. As T a b l e I m a k e s c l e a r , it has b e c o m e an e n o r m o u s u n d e r t a k i n g , p a r t i c u l a r l y w i t h r e g a r d to the C o m m i s s i o n , w i t h a l m o s t 3 , 0 0 0 W r i t t e n Q u e s t i o n s t a b l e d in 1987. For a long time it r e m a i n e d the p r e d o m i n a n t m e t h o d for the P a r l i a m e n t to f ulfil its s u p e r v i s o r y / c o n t r o I p o w e r s , a nd it has r e m a i n e d a b a c k b e n c h e r ' s tool par e x c e l l e n c e , m a k i n g it p o s s i b l e to r a i s e i ssues a nd g l e a n i n a d v e r tent i n d i s c r e t i o n s w h i c h c an t hen be p u r s u e d in o t h e r w a y s < 202 1 ). The s t a t i s t i c s s h o w t hat, as a p r o c e d u r a l i n s t i t u t i o n , it is in the b est of h e a I t h . A l t h o u g h s t e a d i l y m o r e h e d g e d a b o u t w i t h c o n d i t i o n s and p r o v i s o s , the i n s t i t u t i o n of Q u e s t i o n s for Oral A n s w e r W i t h D e b a t e h as a l s o s u r v i v e d m o r e or less in the s a m e b a s i c f orm d o w n to the p r e s e n t day. T he p r o c e d u r e
is s i m i l a r to, and p r o b a b l y b a s e d on the ' i n terpeI atI on ' p r o c e d u r e c o m m o n l y u s e d in c o n t i n e n t a l p a r I i a m e n t s (2 2 ). T h e r e w a s a l w a y s a t r e n d t o w a r d s u s i n g this v a r i a t i o n as a d e v i c e for s e t - p i e c e p o l i t i c a l d e b a t e s , a nd t his has n o w b e e n i n s t i t u t i o n a l i s e d by the 1 9 8 9 - 1 9 9 4 P a r l i a m e n t ' s d e c i s i o n to h o l d t h e m a t i c g r a n d s d e b a t s at e a c h p l e n a r y s e s s i o n , s u c h d e b a t e s b e i n g t y p i c a l Iy o r d e r e d a r o u n d a s e r i e s of Q u e s t i o n s for Oral A n s w e r w i t h D e b a t e . As r e m a r k e d b e f o r e , the c h i e f r e c o g n i s a b l e a n t e c e d e n t of Q u e s t i o n T i m e is the p r o c e d u r e for Q u e s t i o n s for Oral A n s w e r W i t h o u t D e b a t e . C o c k s d e s c r i b e d the p r o c e d u r e thus;
(20) The Par I i a m e n t a r y A s s e m b l y c h a n g e d its t i t l e to the E u r o p e a n P a r l i a m e n t on 30 M a r c h 1962. T h i s c h a n g e w as f i n a l l y e n s h r i n e d in the S i n g l e E u r o p e a n A c t , s i g n e d on 28 F e b r u a r y 1986. H e r e i n a f t e r the final t i t l e , E u r o p e a n Par Ii a m e n t , i s u s e d .
(21) See F i t z m a u r i c e , o p . c i t . , p . 1 5 0 , and F i t z m a u r i c e and J a c k s o n , o p . c i t . , p .103. (22) C o c k s , o p . c i t . , p . 1 3 5 , H e r m a n and L o d g e , o p . c i t . , p. .62.
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"As in the c a s e of Q u e s t i o n s for W r i t t e n A n s w e r , Q u e s t i o n s m u s t be b r i e f and r e l a t e to s p e c i f i c m a t t e r s and not to p r o b l e m s of a g e n e r a l n a t u r e . U n d e r the t e r m s of R u l e 4 6(2) of the R u l e s of P r o c e d u r e , the P a r l i a m e n t m a y set a s i d e not m o r e t h a n h alf a d ay in e a c h p a r t - s e s s i o n for a n s w e r s to Oral Q u e s t i o n s . Q u e s t i o n s left u n a n s w e r e d a fter t his are c a r r i e d f o r w a r d to the n ext p a r t - s e s s i o n or a n s w e r e d in w r i t i n g a c c o r d i n g to the c h o i c e of the q u e s t i o n e r . In p l e n a r y m e e t i n g s , the M e m b e r p u t t i n g a Q u e s t i o n r e a d s it out and m a y s p e a k u p o n it for up to ten m i n u t e s . T h e C o m m i s s i o n e r or m e m b e r of the C o u n c i l r e p l y i n g m a y g i v e a b r i e f r e p l y . If a Q u e s t i o n is d i r e c t e d to the C o m m i s s i o n , the M e m b e r p u t t i n g it m a y ask o ne or two s u p p l e m e n t a r y q u e s t i o n s , to w h i c h the C o m m i s s i o n e r m a y g i v e a b r i e f r e p l y ” ( 2 3)_
S i n c e the a d v e n t of Q u e s t i o n T i m e , the p r o c e d u r e has f a l l e n into a l m o s t c o m p l e t e d i s u s e ^ 2 4 ) and it is e asy to see w hy; in e f f e c t , Q u e s t i o n T i m e is a s e r i e s of Oral Q u e s t i o n s W i t h o u t D e b a t e . N o n e t h e l e s s , t h r o u g h o u t the 1 960s, the E u r o p e a n P a r l i a m e n t ' s q u e s t i o n i n g f u n c t i o n w a s a s s u r e d by t h e s e t h r e e p r o c e d u r e s - Q u e s t i o n s for W r i t t e n A n s w e r , Q u e s t i o n s for Oral A n s w e r W i t h o u t D e b a t e , a nd Q u e s t i o n s for Oral A n s w e r W i t h D e b a t e , g o v e r n e d by t heir
c o r r e s p o n d i n g R u l e s (45, 46 and 47 r e s p e c t i v e l y ) . In 1973, a f o u r t h v a r i a t i o n w as i n t r o d u c e d . III. The I n t r o d u c t i o n of Q u e s t i o n T i m e A l t h o u g h its e x a c t o r i g i n in r e l a t i o n to the E u r o p e a n P a r l i a m e n t is u n c l e a r , the Idea of i n s t i t u t i n g a r e g u l a r q u e s t i o n - a n d - a n s w e r s e s s i o n w a s a l r e a d y g a i n i n g c u r r e n c y by 1 970 <2 5 ). Se v e r a l of the M e m b e r S t a t e s ' p a r l i a m e n t a r y a s s e m b l i e s (e.g., the B e l g i a n C h a m b e r of R e p r e s e n t a t i v e s ) had s i m i l a r p r o c e d u r e s , and t h e s e p r o b a b l y s e r v e d as i n s p i r a t i o n . W i t h an e y e to the e v e r - i n c r e a s i n g n u m b e r s of Q u e s t i o n s b e i n g t a b l e d , a nd an ear to the u n d e r l y i n g i n t e r e s t t h e s e r e p r e s e n t e d , the P a r l i a m e n t ' s E n l a r g e d B u r e a u , on 7 O c t o b e r 1 971, d i r e c t e d the L egal A f f a i r s C o m m i t t e e to r e - e x a m i n e the
idea of e s t a b l i s h i n g a r e g u l a r Q u e s t i o n H our. Mr M e m m e I ( D / C D ) w a s a p p o i n t e d r a p p o r t e u r , and his r e p o r t , t o g e t h e r w i t h a p r o p o s a l for an a m e n d m e n t to R u l e 47, a nd a n n e x e d g u i d e l i n e s , w a s u n a n i m o u s l y a d o p t e d in C o m m i t t e e C 2 6 ) .
m i —
tbtj
:---(24) See, e . g . . S u m m a r y of the t e x t s c o n c e r n i n g r e l a t i o n s b e t w e e n the E u r o p e a n P a r l i a m e n t and the C o u n c i l , G e n e r a l S e c r e t a r i a t of the C o u n c i l , S ept. 1982, O f f i c e for O f f i c i a l P u b l i c a t i o n s , L u x e m b o u r g , p. 39.(25) J a c q u é , C h r o n i q u e P a r l e m e n t E u r o p é e n , 10 R . T . D . E . , 1974, P .730.
(26) E.P. D oes. 1 9 7 2 / 7 3 , n° 252, and O.J. 1 973 A n n e x n° 157, 1 8 . 1 . 7 3 , pp. 9 8 - 1 1 1 for p l e n a r y d e b a t e .
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W h a t t h e n h a p p e n e d w a s d e s c r i b e d by the r a p p o r t e u r as a " r e g u l a r c h a p t e r of a c c i d e n t s " ( 2 7 ) _ F i r s t , the C o m m i s s i o n " r a i s e d s o m e d i f f i c u I t i e s " ( 2 8 1 . The C o m m i t t e e r e - o p e n e d the d i s c u s s i o n on its r e p o r t o n 20 M a r c h 1972, t a k i n g on b o a r d the C o m m i s s i o n ' s o b j e c t i o n s a nd m a k i n g an a d d i t i o n to the r e p o r t . The n e w l y e n l a r g e d r e p o r t w a s a d o p t e d by the C o m m i t t e e on 24 April 1972, but f o u n d no f a v o u r w i t h the E n l a r g e d B u r e a u . In S e p t e m b e r , 1972, t h i s latter m a d e n e w p r o p o s a l s , so that the r e p o r t was a g a i n r e f e r r e d b a c k to C o m m i t t e e . The d o c u m e n t and the a m e n d m e n t to the R u l e s of P r o c e d u r e w e r e not f i n a l l y d e b a t e d and a d o p t e d u ntil J a n u a r y , 1973. T h i s h a p p e n e d to be the f i r s t P a r l i a m e n t a r y s e s s i o n in w h i c h the new B r i t i s h a r r i v a l s p a r t i c i p a t e d (2 9 ). T he i n f l u e n c e of the W e s t m i n s t e r m odel w a s b r o a d l y a c k n o w l e d g e d ^ 3 9 ) , but a l t h o u g h B r i t i s h p a r l i a m e n t a r i a n s w e r e to m a k e the d e v i c e l a r g e l y t heir o w n ^ 3 1 ), the c o i n c i d e n c e of Q u e s t i o n T i m e a nd B r i t i s h p a r t i c i p a t i o n w a s p u r e l y c o n t r i v e d :
"... w h e n the B u r e a u of the E u r o p e a n P a r l i a m e n t and the Legal A f f a i r s C o m m i t t e e took up t his s u g g e s t i o n of i n t r o d u c i n g by m e a n s of a R u l e 4 7 ( a ) , a time r e s e r v e d for q u e s t i o n s in our E u r o p e a n P a r l i a m e n t , we im a g i n e that they w e r e not a l t o g e t h e r u n m i n d f u l of the fact that our B r i t i s h c o l l e a g u e s w e r e to
j oin us on the b e n c h e s . It is a k i n d of w e l c o m i n g p r e s e n t : so that our c o l l e a g u e s s h o u l d not feel out of t heir e l e m e n t , t his d e b a t e has b e e n p l a c e d on t o d a y ' s a g e n d a . ” (3 2 ) (771 0 . J ., A n n e x n° 157, 1 8 . 1 . 7 3 , p.98. (28) Ibid. (29) A l t h o u g h the d e l e g a t i o n w a s at h a l f - s t r e n g t h ; the O c t o b e r 1972 L a b o u r P a r t y C o n f e r e n c e a nd a D e c e m b e r 1 972 P a r l i a m e n t a r y L a b o u r P a r t y m e e t i n g d e c i d e d that no L a b o u r M P s s h o u l d a t t e n d the E u r o p e a n P a r l i a m e n t u ntil the t e r m s of UK e n t r y
into the EC had b e e n r e n e g o t i a t e d . L a b o u r m e m b e r s f i n a l l y took up t heir s e a t s a f t e r the J u n e 1975 r e f e r e n d u m . See, e.g. B u t l e r and M a r q u a n d , E u r o p e a n e l e c t i o n s and B r i t i s h p o l i t i c s , L o n g m a n , L o n d o n , 1981, e s p e c i a l l y Ch . 2 . (30) F i t z m a u r i c e and J a c k s o n , o p . c i t . , p .104. (31) S ee C o h e n , o p . c i t . , p.58. (32) O.J. A n n e x n* 157, 1 8 . 1 . 7 3 , p . 1 0 4 . S ee a l s o J a c q u6, op. cit. p . 729. C o h e n p o i n t s out that, a l t h o u g h i n t e r e s t in the P a r l i a m e n t ran h igh, the 1 972 "Vedel R e p o r t " ( R e p o r t of the W o r k i n g P a r t y E x a m i n i n g the P r o b l e m s of the E n l a r g e m e n t of the P o w e r s of the E u r o p e a n P a r l i a m e n t , B u l l e t i n of the E.C., 1972, S upp. 4) m a d e o n l y a c a s u a l , p a s s i n g r e f e r e n c e to the P a r l i a m e n t ' s q u e s t i o n i n g p o w e r s , ( o p . c i t . , p . 4 3 . )
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9
T he n e w R u l e 4 7(a) r e a d as f o l l o w s ;
"1. A q u e s t i o n time shall be set a s i d e at the c o m m e n c e m e n t of the s e c o n d or t h i r d s i t t i n g day d u r i n g the p a r t - s e s s i o n , w h e n any R e p r e s e n t a t i v e may put a b r i e f oral q u e s t i o n to the C o m m i s s i o n or C o u n c i I .
R u l e 46 shall not be a f f e c t e d by t his p r o v i s i o n . T he d e t a i l e d p r o c e d u r e for the c o n d u c t of q u e s t i o n s shall be g o v e r n e d by g u i d e l i n e s .
2. B e f o r e the c l o s e of q u e s t i o n time any p o l i t i c a l g r o u p or at least five R e p r e s e n t a t i v e s m a y r e q u e s t that a d e b a t e be h eld i m m e d i a t e l y t h e r e a f t e r on the C o m m i s s i o n ' s a n s w e r to a c l e a r l y d e f i n e d q u e s t i o n of g e n e r a l t o p i c a l in t e r e s t d u r i n g w h i c h b r i e f oral q u e s t i o n s , s u g g e s t i o n s or c o m m e n t s m a y be a d d r e s s e d to the C o m m i s s i o n of the E u r o p e a n C o m m u n i t i e s . R u l e 47 shall not be a f f e c t e d by this p r o v i s i o n . The d e t a i l e d p r o c e d u r e for the c o n d u c t of s u c h d e b a t e s shall be g o v e r n e d by g u i d e l i n e s . ” F i v e p o i n t s are of p a r t i c u l a r i n t e r e s t in t h i s first v e r s i o n . F i r s t of all, the b a c k b e n c h e r ' s s o v e r e i g n r ight ( " a n y R e p r e s e n t a t i v e ” ) is e n s h r i n e d . S e c o n d l y , R u l e 46, g o v e r n i n g Q u e s t i o n s for Oral A n s w e r W i t h o u t D e b a t e , c l e a r l y was a f f e c t e d by this n e w p r o v i s i o n , as w a s s e e n a b o v e . T h i r d l y , the i n n o v a t i o n of l e a v i n g d e t a i l to a n n e x e d g u i d e l i n e s was i n t r o d u c e d . F o u r t h l y , the p r o v i s i o n for an i m m e d i a t e d e b a t e of g e n e r a l to p i c a l i n t e r e s t w o u l d , d e s p i t e para. 2., s e c o n d i ndent, to the c o n t r a r y , s e e m to h ave i m p i n g e d on the p r o v i s i o n s of R u l e 47, g o v e r n i n g Q u e s t i o n s for Oral A n s w e r W i t h D e b a t e . In p l a i n terms, the p i o n e e r i n g r u l e s for Q u e s t i o n T i m e fell, w i t h a c o n s i d e r a b l e d e g r e e of o v e r l a p , b e t w e e n the r u l e s g o v e r n i n g Oral A n s w e r s W i t h and t h o s e W i t h o u t D e b a t e . T he Legal A f f a i r s C o m m i t t e e ' s final d r a f t still w a v e r e d b e t w e e n the one and the o t h e r , b e t w e e n the b r o a d e d g e of t opical d e b a t e s w i t h d e t a i l e d q u e s t i o n i n g , and the c u t - a n d - t h r u s t of s h a r p
p a r l i a m e n t a r y s c r u t i n y . T h i s d i v e r g e n c e w a s r e f l e c t e d in the p a r l i a m e n t a r y d e b a t e b e f o r e a d o p t i o n ( 33)_
L a s t l y , and in the s a m e vein, the p r o v i s i o n in p a r a . 2 for d e b a t e i n i t i a l l y a p p l i e d o n l y to the C o m m i s s i o n . T he r a p p o r t e u r m a d e the r e a s o n for this c l e a r ;
(33 ) S ee b elow.
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"We can c o n s t r a i n the C o m m i s s i o n to c o m e h ere, we can e v e n s e n d it a way, if we so w i s h a nd a g r e e . W i t h the C o u n c i l we are p o w e r l e s s . We a re d e p e n d e n t on its g r a c e , f a v o u r and b e n e v o l e n c e . For that r e a s o n in R u l e 4 7 ( a ) we d e l i b e r a t e l y r e f r a i n e d f rom
i n c l u d i n g the C o u n c i l . It is t rue that the C o u n c i l has n o w a g r e e d to a t t e n d Q u e s t i o n T ime, but not the d e b a t e , if so r e q u e s t e d . " ( 3 4 )
Mr B R O E K S Z (Nl), s p o k e s m a n for the S o c i a l i s t G r o u p , c o n s i d e r e d it “v e r y i m p o r t a n t that w h e n q u e s t i o n s are put the C o m m i s s i o n e r c o n c e r n e d and, we w o u l d h o p e , the P r e s i d e n t of the C o u n c i l or his D e p u t y , will be p r e s e n t to a n s w e r the Q u e s t i o n s .“ *35) Mr B A A S (N), s p o k e s m a n for the L i b e r a l and A l l i e s G r o u p , a g r e e d w i t h Mr B R O E K S Z that "for a d i s c u s s i o n to be t r u l y to p i c a l the
C o m m i s s i o n and the C o u n c i l w o u l d h a v e to be p r e s e n t here. We can r e a d the s t e r e o t y p e a n s w e r s by the C o u n c i l , but t hey a re not s u f f i c i e n t l y i n t e r e s t i n g to a t t e m p t d e l v i n g d e e p e r into the m a t e r i a I. * 3 6 *
H o w e v e r , Mr B R O E K S Z r e c o g n i s e d that “O n l y w h e n the C o m m i s s i o n is p r e s e n t can Q u e s t i o n T i m e b e c o m e a s u c c e s s . ' * 3 7 *, and the r a p p o r t e u r w as u n d e r no i l l u s i o n s a b o u t the i m p o r t a n c e of C o m m i s s i o n c o o p e r a t i o n if the i n s t i t u t i o n w e r e to s e r v e a ny u s e f u l p u r p o s e . For the C o m m i s s i o n , Mr S C A R A S C I A M U G N O Z Z A , an I t a l i a n V i c e - P r e s i d e n t , m a d e p e r f e c t l y c l e a r the C o m m i s s i o n ' s i n t e n t i o n to e n g a g e in s u c h c o o p e r a t i o n ; " ... the C o m m i s s i o n is v e r y h a p p y that t h e r e s h o u l d be s c r u t i n y of its a d m i n i s t r a t i o n . T h i s is o n e of the r e a s o n s why, in o r g a n i s i n g the C o m m i s s i o n d e p a r t m e n t s , we a g r e e that the s i z e of the s t a f f w o r k i n g on p a r l i a m e n t a r y q u e s t i o n s s h o u l d be
i n c r e a s e d so that r e p l i e s to b o t h oral and w r i t t e n q u e s t i o n m a y be as p r o m p t , d e t a i l e d and
c o m p r e h e n s i v e as p o s s i b l e . T h i s p r o g r e s s is a p p a r e n t l y s l i g h t but is u n d o u b t e d l y of g r e a t
i m p o r t a n c e , and the C o m m i s s i o n will not try to e v a d e its r e s p o n s i b i l i t i e s ...
"The C o m m i s s i o n for its p art, in t e n d s to deal w i t h any q u e s t i o n s put to it in a s t r a i g h t f o r w a r d and c o m m i t t e d f a s h i o n , for we b e l i e v e that o n l y in t his w ay c an we m o v e f o r w a r d t o w a r d s b u i l d i n g E u r o p e ... we shall do our u t m o s t to see that t his n e w
p r o c e d u r e is a d o p t e d by the C o m m i s s i o n , to see that the d e b a t e is b r i e f but a l s o v ery c l e a r , p r o v i d i n g p r o o f of the c o n t i n u e d link b e t w e e n the C o m m i s s i o n a nd the E u r o p e a n P a r I i a m e n t ."* 38) T he C o u n c i l w a s a b s e n t from the d e b a t e . ("34l 0. J . . A n n e x n° 157, 1 8 . 1 . 7 3 , p.109. (35) Ibid. , p. 100. (36) Ibid. , p. 101 . (37) Ibid. , p. 110. (38) Ibid., p . 108.
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- 1 1
-U l t i m a t e l y , h o w e v e r , the C o u n c i l ' s a t t i t u d e w a s not q u i t e as d a r k as Mr M E M M E L had p a i n t e d it. In 1973, the C o u n c i l a d o p t e d a n u m b e r of g e n e r a l p r i n c i p l e s for W r i t t e n a nd Oral Q u e s t i o n s . In p a r t i c u l a r , the C o u n c i l :
c o n f i r m ( e d ) its d e c i s i o n to r e p l y to all w r i t t e n q u e s t i o n s a nd e x p r e s s ( e d ) its i n t e n t i o n to r e p l y h e n c e f o r t h to all oral q u e s t i o n s put to it; (was) p r e p a r e d to take all s t e p s n e c e s s a r y to im p r o v e or s p e e d up the p r o c e d u r e for p r e p a r i n g r e p l i e s to w r i t t e n and oral q u e s t i o n s . " ( 3 9 )
M o r e o v e r , in r e l a t i o n to Rule 47A (2) ( D e b a t e at the e n d of Q u e s t i o n T i m e ) , the C o u n c i l a d o p t e d a f u r t h e r p r i n c i p l e :
" ... If, at the e nd of Q u e s t i o n T i m e , the P a r l i a m e n t w i s h e d to h o l d a d e b a t e on the b a s i s of a r e p l y g i v e n by the C o u n c i l , the latter w o u l d w i t h i n the l i m i t s of its p o w e r s c o n t r i b u t e to that d e b a t e . " (4 0)
L a s t l y , in A p r i l , 1973, the C o u n c i l e s t a b l i s h e d an i n ternal p r o c e d u r e for the p r e p a r a t i o n of its
repli e s( 41 ) .
But in two i m p o r t a n t r e s p e c t s P a r l i a m e n t ' s
m i s g i v i n g s a b o u t the C o u n c i l ' s p r o b a b l e a t t i t u d e w e r e w e l l - f o u n d e d . F i r s t , P a r l i a m e n t a r i a n s f r e q u e n t l y a c c u s e the C o u n c i l of o b s e r v i n g the letter and i g n o r i n g the s p i r i t of the p r o c e d u r e . M u c h of t his has to do w i t h the C o u n c i l ' s p r e v i o u s l y r e m a r k e d - u p o n ,
t r a d i t i o n a l r e t i c e n c e , and m u c h of that r e t i c e n c e has to do w i t h the w a y in w h i c h r e p l i e s a re p r e p a r e d u n d e r the internal p r o c e d u r e r e f e r r e d to a b o v e . It is the C o u n c i l G e n e r a l S e c r e t a r i a t , m o n i t o r e d by the p e r m a n e n t r e p r e s e n t a t i o n s m e e t i n g t o g e t h e r in the W o r k i n g P a r t y on G e n e r a l A f f a i r s , w h i c h p r e p a r e s the d r a f t t e x t s of r e p l i e s . S u c h a p r o c e d u r e h a r d l y lends i tself to l o q u a c i o u s n e s s . F u r t h e r m o r e , it has b e c o m e an u n w r i t t e n c o n v e n t i o n of C o u n c i l P r e s i d e n c i e s that the M i n i s t e r t a k i n g Q u e s t i o n T i m e s h o u l d s t i c k to the p r e p a r e d text, and that a n s w e r s to S u p p l e m e n t a r y
Q u e s t i o n s s h o u l d be k ept s hort and to the p o i n t . T h e s e u n d e r s t a n d a b l e t e n d e n c i e s w e r e the a n t i t h e s i s of w hat the P a r l i a m e n t had so u g h t .
In a s e c o n d i m p o r t a n t r e s p e c t the C o u n c i l , t o g e t h e r w i t h the C o m m i s s i o n , d i s a p p o i n t e d the P a r l i a m e n t ;
"... the e f f i c a c i t y of Q u e s t i o n T i m e is u n d e r m i n e d by the fact that the P a r l i a m e n t q u e s t i o n s the C o m m i s s i o n a nd the C o u n c i l on d i f f e r e n t d a y s , and r 3T) R / 2 6 4 1 / 7 3 . (40) Ibid. (41) R / 1 0 5 6 / 7 3 .
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n e i t h e r b o d y is f o r m a l l y p r e s e n t to h e a r the o t h e r ' s r e p l i e s or to p a r t i c i p a t e in d e b a t e s to w h i c h t h e s e r e p l i e s I e a d. " * 4 2 5 N e i t h e r i n s t i t u t i o n w a s p r e p a r e d to e m b a r r a s s , n or be e m b a r r a s s e d , in f r o n t of the o t h e r , a n d t h i s c o n v e n t i o n h as c o n t i n u e d to the p r e s e n t day. H e r m a n a nd L o d g e* 4 3 5 d r e w a t t e n t i o n to a n o t h e r a s p e c t of the C o u n c i l ' s a p p a r e n t r e t i c e n c e , w h i c h t hey d u b b e d "the p a r l i a m e n t a r y v a c u u m . " T h e p r o b l e m , w h i c h w a s f i n a l l y r e s o l v e d , a l t h o u g h not n e c e s s a r i l y s o l v e d , by the e s t a b l i s h m e n t of a d i r e c t l y - e l e c t e d P a r l i a m e n t in 1979, w a s d e f i n e d as b e i n g " w h e r e p o l i t i c a l r e s p o n s i b i l i t y c an be l o c a t e d in n e i t h e r t he n a t i o n a l nor the E u r o p e a n p a r l i a m e n t a r y b o d i e s. " * 4 4 5 in 1976, t he t h e n P r e s i d e n t of the E u r o p e a n P a r l i a m e n t , Mr G e o r g e s S p A n a l e , c o m m e n t e d that; “ ... It is a b s o l u t e l y e s s e n t i a l that the C o u n c i l s h o u l d t h i n k a g a i n a b o u t t his p r o b l e m , s i n c e the r e p l i e s w h i c h h a v e b e e n g i v e n a re not s a t i s f a c t o r y . In fact, a f t e r r e p l y i n g 'We c a n n o t s p e a k a b o u t t h e s e m a t t e r s b e c a u s e t hey are c o n f i d e n t i a l ' , y o u a d d 'But y o u c an ask y o u r M i n i s t e r for the a n s w e r in y our n a t i o n a l P a r l i a m e n t . ' In o t h e r w o r d s , the P r e s I d e n t - 1 n - O f f i c e of the C o u n c i l c a n r e p l y in the N e t h e r l a n d s P a r l i a m e n t , as the N e t h e r l a n d s M i n i s t e r of F o r e i g n A f f a i r s , to t h o s e of o ur c o l l e a g u e s w h o a re M e m b e r s of the N e t h e r l a n d s P a r l i a m e n t , but he c a n n o t r e p l y to t h e m h e r e as P r e s I d e n t - i n - O f f i c e of the C o u n c i l . T h i s m e a n s that f r o m the C o u n c i l , w h i c h is a C o m m u n i t y i n s t i t u t i o n , we c an o n l y o b t a i n f r a g m e n t a r y r e p l i e s in our n a t i o n a l p a r l i a m e n t s ! F u r t h e r m o r e , by a c u r i o u s p r i s m a t i c p r o c e s s , the r e p l i e s w h i c h o ur M i n i s t e r s g i v e to our n a t i o n a l p a r l i a m e n t s do not a l w a y s c o i n c i d e e x a c t l y , w h i c h is not s a t i s f a c t o r y e i t h e r. " * 4 5 5 I r o n i c a l l y , w h i l e d i r e c t e l e c t i o n s r e s o l v e d o n e p r o b l e m , they m e r e l y m a d e the latter I n v i s i b l e s i n c e , w i t h the e x c e p t i o n of c e r t a i n s p e c i a l i s e d c o m m i t t e e s in s o m e M e m b e r S t a t e s ' p a r l i a m e n t s * 4 6 5 , n a t i o n a l M i n i s t e r s are no longer s u b j e c t e d to any s ort of s c r u t i n y of their a c t i o n s In the C o u n c i l by m e m b e r s of the E u r o p e a n P a r l i a m e n t , s a v e w h e n t heir M e m b e r S t a t e h o l d s the EC P r e s i d e n c y , and t h e n o n l y in that c a p a c i t y . 4243444546
(42) M e r m a n and L o d g e , o p . c i t . , p . 57. It w a s not e v e r thus. B e f o r e Q u e s t i o n T i m e w a s s p l i t into s e c t i o n s h e l d on d i f f e r e n t d ays, r e p r e s e n t a t i v e s of the t wo i n s t i t u t i o n s w e r e p h y s i c a l l y , but not f o r m a l l y , p r e s e n t at the s a m e time. (43) Ibid., pp. 5 7-58. (44) I b i d . , p.58. (45) O . J . , A n n e x n* 209, 1 7 . 1 1 . 7 $ , p.87. (46) See ' B o d i e s w i t h i n N a t i o n a l P a r l i a m e n t s s p e c i a l i s i n g in E u r o p e a n C o m m u n i t y A f f a i r s ' , A pril 1989, E u r o p e a n P a r l i a m e n t , D i r e c t o r a t e G e n e r a l for R e s e a r c h .
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- 13 -It is i n s t r u c t i v e to look b r i e f l y at s o m e of the c o n t r i b u t i o n s to the d e b a t e h eld i m m e d i a t e l y p r i o r to the a d o p t i o n of the Q u e s t i o n T i m e p r o c e d u r e , s i n c e t h e s e c l e a r l y e s t a b l i s h the P a r l i a m e n t ' s o r i g i n a l i n t e n t i o n s and e x p e c t a t i o n s . T h e r a p p o r t e u r , Mr M E M M E L , m a d e m u c h r e f e r e n c e to the UK H o u s e of C o m m o n s w h e r e “Q u e s t i o n T i m e has p r o v e d to be an i m p o r t a n t p a r l i a m e n t a r y i n s t r u m e n t w h i c h i n f l u e n c e s p u b l i c o p i n i o n , and is a m e a n s of s u b j e c t i n g the g o v e r n m e n t a nd the a d m i n i s t r a t i o n to c o n s t a n t s u p e r v i s i o n and c r i t i c i s m . " < 4 7 ) He h o p e d that “ the g e n u i n e p a r l i a m e n t a r y i n s t r u m e n t s " of Q u e s t i o n T i m e and d e b a t e m i g h t " s e r v e to s o m e e x t e n t to d r a w the E u r o p e a n P a r l i a m e n t out of its s h a d o w y e x i s t e n c e . Q u e s t i o n time a nd d e b a t e m a y a r o u s e p u b l i c int e r e s t in the s i t t i n g s of the P a r l i a m e n t , and p e r h a p s s e r v e to d r a w c l o s e r the b o n d s b e t w e e n it and o t h e r i n s t i t u t i o n s . " ( 4 8 >
For the C h r i s t i a n D e m o c r a t i c G r o u p , Mr M E I S T E R (D) a l s o s t r e s s e d the p u b l i c o p i n i o n a n g l e ; “not o n l y will
it p r o v i d e an e f f e c t i v e i n s t r u m e n t to i n f l u e n c e the p u b l i c , but ... p u b l i c i nterest in the P a r l i a m e n t ' s task will be a r o u s e d a nd p r o m o t e d 4 9 ) For the S o c i a l i s t G r o u p , Mr B R O E K S Z (NU) felt it g a v e P a r l i a m e n t "the o p p o r t u n i t y to p r o d in c a s e s of b u r e a u c r a c y and
i n a t t e n t i o n by the C o m m i s s i o n and its s e r v i c e s a n d by the C o u n c i l and its s e r v i c e s .” (50) For the L i b e r a l and A l l i e s G r o u p , Mr B A A S (NL) s a w Q u e s t i o n T i m e "as an o p p o r t u n i t y for a i r i n g to p i c a l m a t t e r s on w h i c h p o l i c y m a t t e r s are s o o n to be t aken, "(51) w h i l e Mr L E F E B V R E ( B / L I B ) s a w its p u r p o s e as “ to q u e s t i o n the C o m m i s s i o n , or if a p p r o p r i a t e the C o u n c i l of M i n i s t e r s , on the a p p l i c a t i o n of the T r e a t i e s . " ( 8 2 ) H o w e v e r , p e r h a p s the m o s t s u c c i n c t d e f i n i t i o n was left to a n e w B r i t i s h C o n s e r v a t i v e m e m b e r , Sir D e r e k W A L K E R - S M I T H ;
"The real v a l u e of a r e g u l a r q u e s t i o n t i m e is that it i m p o s e s on the e x e c u t i v e the k n o w l e d g e that all t h e i r a c t i o n s a re s u b j e c t to p a r l i a m e n t a r y s c r u t i n y and i n t e r r o g a t i o n and will be e x a m i n e d c l o s e l y and c o n s c i e n t i o u s l y in the i n terest of t h o s e m i l l i o n s w h o m we h ere s e e k to r e p r e s e n t . T hat k n o w l e d g e has a t o n i c e f f e c t on e x e c u t i v e b o d i e s . It is a s pur w h e r e s p e e d is n e e d e d and a b r a k e w h e r e
a d m i n i s t r a t i v e c o n s i d e r a t i o n s are in d a n g e r of o u t - r u n n i ng popuI a r w ill.
The a t t i t u d e of P a r l i a m e n t to the e x e c u t i v e s h o u l d be o n e of c r i t i c i s m and inquiry, t e m p e r e d by the r e a l i s a t i o n that a c t i o n , a d m i n i s t r a t i o n and the e f f e c t i v e p r a c t i c e of g o v e r n m e n t is i n h e r e n t l y and (47) 6 . J . , A n n e x n (48) Ibid. . p .99. (49) Ibid. (50) Ibid. , p . 1 0 0 . (51 ) Ibid. , p . 1 01 . (52) Ibid. , p .106.
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i n e s c a p a b l y m o r e d i f f i c u l t t han the t a s k of c o m m e n t a nd c r i t i c i s m w i t h o u t the f u n c t i o n of g o v e r n m e n t , w h i c h is all that r e s t s w i t h us h e r e in t his C h a m b e r . T he r e l a t i o n s h i p s h o u l d t h e r e f o r e be o ne of c o n t i n u a l c o n f r o n t a t i o n s t o p p i n g s h o r t of c o n f l l e t . "(53)
P a r l i a m e n t a r i a n s r e c o g n i s e d that a n u m b e r of e l e m e n t s w o u l d be vital for the s u c c e s s of the new p r o c e d u r e . T h r e e - g a r n e r i n g a s u f f i c i e n t l y h i g h level of p r e s s a t t e n t i o n , the c o o p e r a t i o n of the o t h e r
i n s t i t u t i o n s i n v o l v e d , and the s i m u l t a n e o u s p r e s e n c e and w i l l i n g n e s s to p a r t i c i p a t e of b o t h C o m m i s s i o n and
C o u n c i l , t o g e t h e r w i t h a g e n e r a l w i l l i n g n e s s to e n t e r into the s p i r i t of the n e w p r o c e d u r e - h a v e a l r e a d y b e e n m e n t i o n e d . A f o u r t h w as the n e e d for the C o m m i s s i o n e r r e s p o n s i b l e for a p a r t i c u l a r d o s s i e r to t a k e q u e s t i o n s re I e v a n t to it.
"Will the C o m m i s s i o n e r s to w h o m the q u e s t i o n s are put be p r e s e n t at the t ime w h e n the q u e s t i o n is p u t ? Or will t hey not be p r e s e n t ?
"The p o s i t i o n s h o u l d not be that the o ne
C o m m i s s i o n e r s a y s to the o t h e r : “Y o u are g o i n g to the m e e t i n g a n y w a y , t his is my a n s w e r , just r e a d it o ut; and as to the s u p p l e m e n t a r y q u e s t i o n s , y ou will be a b l e to get r o u n d t h e m . " If it is d o n e like this, the p l a n will fail. It will fail b e c a u s e it will not t hen be p o s s i b l e to c a r r y on the d e b a t e that m a y lie b e h i n d it w i t h the C o m m i s s i o n e r c o n c e r n e d . I c o n s i d e r it v e r y i m p o r t a n t that w h e n q u e s t i o n s a re put the C o m m i s s i o n e r c o n c e r n e d a nd we w o u l d hope, the P r e s i d e n t of the C o u n c i l or his D e p u t y , will be p r e s e n t to a n s w e r the q u e s t i o n s ."(54) "A r e p l y by a C o m m i s s i o n e r o t h e r t han the o ne
r e s p o n s i b l e s e e m s to me of little p u r p o s e . As s oon as P a r l i a m e n t k n o w s that the C o m m i s s i o n e r is
r e a d i n g the r e p l y . It w o u l d f ind it p a r t i c u l a r l y e a s y to e m b a r r a s s him by m e a n s of s u p p l e m e n t a r y q u e s t i o n s . I t h e r e f o r e h o p e that the C o m m i s s i o n will p r e p a r e itself. F r o m the r e p l y to a
s u p p l e m e n t a r y q u e s t i o n we shall k n o w w h e t h e r the C o m m i s s i o n e r k n o w s e x a c t l y w h a t he has t old us or w h e t h e r he h as m e r e l y r ead out a p i e c e of p r o s e that has b e e n p r e p a r e d for him. I u r g e n t l y a ppeal to the C o m m i s s i o n and the C o u n c i l that t h e y be a w a r e of this. It is s t a t e d q u i t e c l e a r l y in the p r o p o s a l that two s u p p l e m e n t a r y q u e s t i o n s m a y be put. T he s u p p l e m e n t a r y q u e s t i o n s o f f e r an o p p o r t u n i t y of t e s t i n g the C o m m i s s i o n or the C o u n c i I ."(55) T he C o m m i s s i o n ' s r e p l y to this p o i n t w a s that: r ST) Ibid., p .103. ( 5 4 ) I b i d . , p . 10 0. (55) I b i d . , p . 1 0 1 .
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15
"We w i s h C o m m i s s i o n e r s to be a b l e to a t t e n d all the m e e t i n g s in p e r s o n , to be p r e s e n t at the s i t t i n g s of the H o u s e and to r e p l y in p e r s o n to all t he p r o b l e m s r a i s e d . O b v i o u s l y a C o m m i s s i o n e r m a y be a b s e n t f rom t i m e to time, but in that c a s e a n o t h e r C o m m i s s i o n e r will t a k e o v e r w i t h e qual a u t h o r i t y . T h i s will be the e x c e p t i o n , h o w e v e r , not the rule.''^5 6 ^
L a s t l y , t h e r e w a s r e c o g n i t i o n of the n e e d for p r o c e d u r a l s t r i c t n e s s a nd for e m p a t h e t i c r u l i n g s f r o m the C h a i r ;
“We m u s t r e m e m b e r , h o w e v e r , that it will be
f a v o u r a b l e o n l y if Q u e s t i o n T i m e is c o n d u c t e d at an a p p r o p r i a t e l y h i g h level and d o e s not d e v i a t e into h u m d r u m q u e s t i o n s , q u e s t i o n s w h i c h p e r h a p s do
t r o u b l e M e m b e r s and i ndeed m u s t t r o u b l e them, but do not c o m e w i t h i n the r e s p o n s i b i l i t y of the C o m m i s s i o n or the C o u n c i l . V e r y p r e c i s e c o n d i t i o n s m u s t , t h e r e f o r e , be laid d o w n for q u e s t i o n s to be
a c c e p t e d : q u e s t i o n s m u s t be c l e a r l y w o r d e d , r e l a t e to c o n c r e t e p r o b l e m s , and s h o u l d not d e v i a t e into a b s t r a c t g e n e r a l i t i e s ; they m u s t be so f r a m e d as to e l i c i t s h o r t and c l e a r a n s w e r s w h i c h c an be g i v e n w i t h o u t t i m e - c o n s u m i n g p r e l i m i n a r y w o r k , d e t a i l e d s t u d y or r e s e a r c h , etc. Q u e s t i o n s on the a g e n d a for the day s h o u l d not be ra i s e d , s i n c e we do not w i s h to b y p a s s , f a v o u r or r e l e g a t e to Q u e s t i o n T i m e the d i s c u s s i o n of items on the a g e n d a .
"The p r i n c i p l e is a l s o i m p o r t a n t , Mr P r e s i d e n t , that q u e s t i o n s m ust in fact be a s k e d , r a t h e r t han
e x p l a n a t i o n s , s t a t e m e n t s , a s s e s s m e n t s or o t h e r i r r e l e v a n t m a t t e r be o f f e r e d . “ (5 7 )
“ It will be for the P r e s i d e n t to m a k e Q u e s t i o n T i m e into w hat we w a n t , n a m e l y a g e n u i n e e x e r c i s e of c o n t r o l by P a r l i a m e n t o v e r the C o m m i s s i o n a nd a w a y of d r a w i n g P a r l i a m e n t ' s e x i s t e n c e to the a t t e n t i o n of the g e n e r a l p u b l i c m o r e f i r m l y . “ (58)
In t his c o n t e x t , the L egal A f f a i r s C o m m i t t e e had b e e n at p a i n s in d r a f t i n g the a n n e x e d g u i d e l i n e s (or v a d e - m e c u m , as it was s o m e t i m e s r e f e r r e d to) to e n s u r e that Q u e s t i o n T i m e w a s m o r e likely to r e s u l t in i n s t i t u t i o n a l d i a l o g u e r a t h e r than a s e r i e s of s p e e c h e s or d e t a i l e d , c o n s i d e r e d , p o s i t i o n - 1 a k i n g . It is a c o m p l i m e n t to that C o m m i t t e e ' s w o r k that, w i t h o n e or two m i n o r c h a n g e s , t h o s e g u i d e l i n e s h a v e s u r v i v e d m o r e or less intact d o w n to the p r e s e n t day.
Q u e s t i o n s m u s t fall w i t h i n the c o m p e t e n c e of the i n s t i t u t i o n to w h i c h t hey a re a d d r e s s e d , and m u s t be of g e n e r a l i n t e r e s t . T h e y m u s t be b r i e f , c o n c i s e l y f o r m u l a t e d , and m u s t r efer to s p e c i f i c p o i n t s . T h e y c a n n o t r efer to a m a t t e r b e i n g d ealt w i t h e l s e w h e r e in P a r l i a m e n t ' s a g e n d a , c a n n o t c o n t a i n a s s e r t i o n s or T S 6 l Ibid., p .108. (57) Ibid., p .99. (58) Ibid., p .110.
