3 20 fiUI 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 E U R O P E A N P O L I C Y U N I T In C o l l a b o r a t i o n W i t h The U N I V E R S I T Y OF S T R A S B O U R G and T E P S A E.U.I. W O R K I N G P A P E R No. 85/148 T H E D R A F T T R E A T Y E S T A B L I S H I N G T H E E U R O P E A N U N I O N R E P O R T ON THE U N I T E D K I N G D O M by
D a vid Edward, R i c h a r d Mc A l l i s t e r , R o bert Lane
Bad i a F iesolana , San D o m e n i c o di F i e s o l e (FI)
J a n u a r y 1985
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This paper may be cited as forthcoming in:
Bieber, Jacque, and Weiler(eds.), An Ever-Closer Union: A Critical Analysis of the Draft Treaty Establishing the
European Union, in European Perspectives, Luxembourg. All rights reserved. No part of this paper may be reproduced in any form without permission of the author.
(c) European Policy Unit Printed in Italy in January 1985
European University Institute Badia Fiesolana
50016 S. Domenico di Fiesole (FI) Italy
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T h e E u r o p e a n P o l i c y U n i t T h e E u r o p e a n P o l i c y Unit, at t h e 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 , w a s c r e a t e d t o f u r t h e r t h r e e m a i n g o a l s . F i r s t , to c o n t i n u e t h e d e v e l o p m e n t o f t h e 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 as a f o r u m f o r c r i t i c a l d i s c u s s i o n of k e y i t e m s o n t h e C o m m u n i t y a g e n d a . S e c o n d , to e n h a n c e t h e d o c u m e n t a t i o n a v a i l a b l e t o s c h o l a r s of E u r o p e a n a f f a i r s . T h i r d , t o s p o n s o r i n d i v i d u a l r e s e a r c h p r o j e c t s on t o p i c s o f c u r r e n t i n t e r e s t t o t h e E u r o p e a n C o m m u n i t i e s . B o t h as i n - d e p t h b a c k g r o u n d s t u d i e s a n d as p o l i c y a n a l y s e s in t h e i r o w n r i g h t , t h e s e p r o j e c t s s h o u l d p r o v e v a l u a b l e t o C o m m u n i t y p o l i c y - m a k i n g . In O c t o b e r 1984, t h e EPU, in c o l l a b o r a t i o n w i t h t h e U n i v e r s i t y o f S t r a s b o u r g a n d T E P S A , o r g a n i s e d a c o n f e r e n c e to e x a m i n e in d e t a i l t h e D r a f t T r e a t y E s t a b l i s h i n g t h e E u r o p e a n U n i o n . T h i s W o r k i n g P a p e r , p r e s e n t e d a t t h e c o n f e r e n c e a n d r e v i s e d in l i g h t o f t h e d i s c u s s i o n , w i l l a p p e a r in b o o k f o r m l a t e r in 1 9 8 5 a l o n g w i t h o t h e r s t u d i e s of t h e D r a f t T r e a t y . F u r t h e r i n f o r m a t i o n a b o u t t h e w o r k o f t h e E u r o p e a n P o l i c y U n i t c a n b e o b t a i n e d f r o m t h e D i r e c t o r , at t h e 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 F l o r e n c e .
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IN TROD UCTION
T h is R e p o r t is in t h r e e p a r t s . P a r t I deals with th e q u e s tio n w h e th e r , assum ing th a t th e n e c e s s a r y p olitical will e x i s t s , t h e r e a r e an y s t r i c t l y legal o r c o n s titu tio n a l o b s t a c le s to th e United
Kingdom 's a c c e s s io n to th e E u ro p e an U nion. O u r co n c lu sio n is th a t t h e r e a r e no s u c h o b s t a c l e s .
In P a r t I I , we c o n s id e r w h e th e r th e political will e x i s t s . Our co n c lu sio n is t h a t , f o r th e time b ein g at a n y r a t e , it does n o t.
T h e U nited Kingdom g o v e rn m e n t h a s not y e t ta k e n a policy d e cisio n on th e D ra ft T r e a t y , e i t h e r in p rin c ip le o r in d e ta il, b u t it is
a lre a d y r e a s o n a b ly c le a r th a t th e g o v e r n m e n t's p osition is lik ely to b e u n f a v o u r a b le . A p art from th e L ib e r a l- S D P Alliance we h av e b e e n u n ab le to id e n tify a n y s u b s t a n t ia l bod y of o p in io n , in
P arliam ent o r in th e c o u n t r y g e n e r a ll y , w hich f a v o u r s th e p ro p o sal o r is e v e n p r e p a r e d to ta k e it s e r io u s l y .
P a r t II also c o n s id e r s th e w ays in w hich th e D r a ft T r e a t y might r e a c h 'th e political a g e n d a ' in th e U nited Kingdom.
In P a r t I I I , we t r y to e x p la in th e n e g a t iv e c h a r a c t e r of B r i t i s h a t t i t u d e s , and we e x p r e s s some r e s e r v a t i o n s of o u r own ab o u t th e D r a ft T r e a t y .
One of th e m is fo rtu n e s of th o s e who comment on E u ro p e a n a f f a i r s in B r it a in is th a t th e y ru n th e r i s k , if t h e y a p p e a r e n t h u s i a s t i c , of b ein g called " e u r o - f a n a t i c s " at home o r , if t h e y do n o t , of b ein g called "a n ti-co m m u n a u ta ire " e ls e w h e re in E u r o p e . O u r R e p o r t may a p p e a r n e g a tiv e in tone and may t h e r e f o r e d is a p p o in t th o s e who look f o r a more p o sitiv e r e s p o n s e from th e U nited Kingdom . B u t we fe e l th a t it is more im portan t f o r u s to s t a t e th e p ro b le m s, as we see th em , f r a n k ly and r e a lis tic a ll y th a n to r e f r a i n from c r it ic a l
comment as a kind of p e r s o n a l p led g e of lo y a lty to th e Community. We b e lie v e th a t th e c a u s e of E u ro p e a n Union will not be prom oted , and may in d eed be h i n d e r e d , b y sw eeping th e d if f ic u lt ie s u n d e r th e c a r p e t . 1
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•s : Vv
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PA RT Is LEGAL AND C O N ST IT U T IO N A L IM PLICATION S
F o r th e U nited Kingdom, th e D ra ft T r e a t y e s ta b l is h in g th e E u ro p e an U nion, like th e T r e a t ie s of P a ris and Rome, p r e s e n t s few problem s of a c c e s s io n o r in c o r p o r a tio n . T h e c o n s titu t io n a l d if f ic u lt ie s , stemming from a la r g e ly u n w ritte n c o n s titu t io n and th e d o c tr in e of th e a b so lu te s u p rem acy of P arlia m e n t, c o n c e r n e n tr e n c h m e n t of th e T r e a t y as an autonomous and param ou nt le g a l o r d e r .
T h e power to e n t e r in to th e E u ro p e an Union
I t is almost s u f f ic ie n t to s a y t h a t , in re la tio n to e x t e r n a l
a f f a i r s , th e United Kingdom rem ains a m o n a rc h y . T h e e x t e r n a l t r e a ty -m a k in g power is a p r e r o g a t iv e r i g h t of th e C ro w n , w hich
c a n n o t be impugned within th e Kingdom in o r b y th e c o u r t s [ 1 ] , As a c o r o lla r y of th e d o c tr in e of p a rlia m e n ta ry s u p r e m a c y , h o w e v e r, t r e a t i e s a r e not d ir e c tly ap p lic a b le w ithin th e Kingdom , and th e c o u r t s c a n n o t ta k e ju d ic ia l n o tice of them u n til t h e y a r e embodied in s t a t u t e s e n a c te d b y P arlia m e n t. I t h a s r e c e n t l y b e e n in d ic a te d th a t E n g lis h c o u r ts will r e c o g n i s e p r in c ip le s of cu s to m a ry
in te r n a tio n a l law as form ing p a r t of E n g lis h law [ 2 ] , b u t th is does not in clu d e t r e a t y o b lig a t io n s ; f o r t h e s e , le g is la tio n is
n e c e s s a r y .
T h e le g al situ a tio n was b e s t summed up b y L o rd A tk in , s ittin g in th e J u d ic ia l Committee of th e P r iv y C ou ncil ( t h e n th e "S u p re m e C o u rt" of th e B r i t i s h E m p ir e ) :
Within th e B r i t i s h Em pire t h e r e is a w e ll- e s ta b lis h e d ru le th a t th e making of a t r e a t y is an e x e c u t i v e a c t , while th e
p e rfo rm a n c e of its o b lig a t io n s , if t h e y e n ta il a lte r a tio n of th e e x is t in g dom estic law, r e q u i r e s le g is la t iv e a c tio n . Unlike some o th e r c o u n t r i e s , th e s tip u la tio n s of a t r e a t y du ly
r a tif ie d do not w ithin th e E m p ire , b y v ir tu e of th e t r e a t y a lo n e , h a v e th e f o r c e of law. I f th e n a tio n al e x e c u t i v e , th e g o v e rn m e n t of th e d a y , d e cid e to in c u r th e o b lig a tio n s of a t r e a t y w hich involve th e a lte r a tio n of law t h e y h av e to ru n th e
2
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r i s k of o b ta in in g th e a s s e n t of P arliam ent to th e n e c e s s a r y s t a t u t e o r s t a t u t e s . To make th e m s e lv e s as s e c u r e as p o s s ib le th e y will o fte n in s u c h c a s e s b e f o r e fin a l r a tif ic a tio n s e e k to o b tain from P arliam ent an e x p r e s s io n of a p p r o v a l. B u t it h as n e v e r b e e n s u g g e s t e d , and it is not th e law, t h a t s u c h an e x p r e s s io n of a p p ro v a l o p e r a te s as law, o r th a t in law it p r e c lu d e s th e a s s e n tin g P arlia m e n t, o r an y s u b s e q u e n t P arlia m e n t, from r e f u s in g to give i t s sa n c tio n to a n y
le g is la t iv e p ro p o sals th a t may s u b s e q u e n t ly be b r o u g h t b e fo r e i t . [ 3 ]
T h u s th e power of a c c e s s io n to th e E u ro p e an Union is e x c lu s iv e ly th a t of th e Crown ( i . e . , de f a c t o , th e g o v e rn m e n t) in d e p e n d e n t of P a rlia m e n t. B u t th e power of im plem entation, o r of in c o r p o r a tio n , b e lo n g s e x c l u s i v e l y , in t u r n , to P arliam e n t.
T h e pow er to implement th e E u ro p e an Union
T h e h o n o u rin g of t r e a t y o b lig a tio n s in th e United Kingdom is b o th f a c i lit a t e d , and at th e same time im p e rille d , b y th e d o c tr in e of P a rlia m e n ta ry s u p re m a c y . A cco rd in g to th a t d o c t r i n e , t h e r e is no law w hich P arliam ent c a n n o t e n a c t , or r e p e a l, in its o r d in a r y
le g is la tiv e c a p a c i t y ; it can make o r unm ake a n y law w h a ts o e v e r .
In e lu c id a tin g th e d o c t r i n e , D icey form u lated t h r e e c e n t r a l p r o p o s it io n s :
F i r s t , t h e r e is no law w hich P arliam ent c a n n o t c h a n g e . . . a c tin g in its o r d in a r y le g is la tiv e c h a r a c t e r . A B ill f o r
re fo rm in g th e House of Commons, a Bill f o r a b o lis h in g th e House of L o r d s , a Bill to g iv e London a m u n ic ip a lity , a Bill to make valid m a rria g e s c e le b r a te d b y a p r e te n d e d c le r g y m a n , who is foun d a f t e r t h e i r c e le b r a tio n to b e not in o r d e r s , a re each e q u a lly w ithin th e c o m p e te n cy of P a rlia m e n t, t h e y e a c h may be p a s s e d in s u b s ta n t ia lly th e same m a n n e r, t h e y none of them when p a s s e d will b e , le g ally s p e a k in g , a whit more s a c r e d or
immutable th a n th e o t h e r s , f o r t h e y e a c h will b e n e it h e r more
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n o r le s s th a n an Act of P a rlia m e n t, w hich can b e re p e a le d as it had b ee n p a s s e d b y P arlia m e n t, and c a n n o t b e ann ulled b y any o t h e r p ow er. S e c o n d l y , t h e r e is u n d e r th e E n g lis h
c o n s titu tio n no m arked o r c le a r d is tin c tio n b etw een laws w hich a r e not fu n d am en tal o r c o n s titu tio n a l and th o s e laws w hich a r e fu n d am en tal or c o n s titu tio n a l . . . . T h i r d l y , t h e r e does not e x i s t . . . an y p e r s o n o r body of p e r s o n s , e x e c u t i v e , le g is la tiv e o r ju d ic ia l, which can p ro n o u n c e void a n y e n a c tm e n t p a s s e d b y th e B r i t i s h Parliam ent on th e g ro u n d of s u c h e n a c tm e n t b ein g opp osed to th e c o n s t i t u t io n , o r on a n y g ro u n d w h a te v e r , e x c e p t , of c o u r s e , its b e in g re p e a le d b y P a rlia m e n t. [4]
H erein lies b o th th e s t r e n g t h and th e w e a k n e s s of th e United Kingdom c o n s titu t io n . T h e law r e c o g n i s e s no d i f f e r e n c e b etw een c o n s titu tio n a l law s, o r g a n ic laws o r o r d in a r y la w s . T h e r e is no h i e r a r c h y of n o rm s; no law is "a whit more s a c r e d o r immutable" th a n a n o t h e r . A B ill s e e k in g th e most fu n d am en tal c o n s titu tio n a l c h a n g e e n c o u n te r s no g r e a t e r p r o c e d u r a l o b s t a c le s th a n d oes one s e e k in g to u n ite two o r t h r e e E n g lis h p a r i s h e s . I n d e e d , a s t a t u t e implementing th e E u ro p e an Union could commence its p a rlia m e n ta ry p r o g r e s s as a p r iv a t e m em ber's b ill, h o w e v e r u n lik e ly t h a t may b e .
Nor a r e t h e r e s u b s t a n t iv e d i f f ic u lt ie s : if P arliam ent is s u p re m e , it may d e le g a t e , or d is a b le it s e l f o f , a n y p a r t i c u la r pow er or pow ers it w is h e s . S u c h is th e d e s ig n and f o r c e , f o r th e p r e s e n t Com m unities, of S e c tio n 2 of th e E u ro p e a n Communities A ct 1972, w hich in c o rp o ra te d th e T r e a t i e s of P a r is and Rome [ 5 ] . B u t owing to th e a b s e n c e of any d is tin c tio n b etw een d i f f e r e n t t y p e s of law s, t h e r e e x i s t s in th e U nited Kingdom c o n s titu t io n no means of
e n tr e n c h m e n t of legal n o rm s . T h is is what L o rd S carm an c a lls "th e h e lp le s s n e s s of th e law in th e fa ce of th e le g is la t iv e s o v e r e ig n t y of P arliam ent" [6] and it c o n s t i t u t e s th e a p p a r e n tly in su rm o u n ta b le problem f o r th o s e who s e e k to d r a f t and e n t r e n c h a B r i t i s h B ill of R ig h t s [7] . 4
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T h e E u ro p e a n Communities Act s u c c e s s f u l ly in c o r p o r a te s th e
Community le g al o r d e r in th e U nited Kingdom f o r th e time b e in g b u t , at le a s t a c c o r d in g to the tra d itio n a l th e o r y of B r i t i s h
c o n s titu tio n a l law , it does not and c a n n o t e n t r e n c h i t . T h e th e o r e t ic a l p o s s ib ility of a b ro g a tio n of th e Community norm , b y simple p a rlia m e n ta ry m a jo rity , rem ains c o n s titu tio n a lly valid
w h a te v e r th e b r e a c h of Community law, and th e t h r e a t of s u c h a c o u r s e from some B r i t i s h q u a r t e r s is one of th e c a u s e s of c o n tin u e d d iscom fort in view ing th e commitment of th e United Kingdom to th e C om m unities.
T h e r ig o u r s of s t r i c t a d h e r e n c e to th e d o c tr in e of P a rlia m e n ta ry s u p re m a c y h a v e b e e n m itig a te d , in th e view of some ju d g e s , b y B r i t i s h m em bersh ip of th e p r e s e n t Com munities. L o rd D e n n in g , M aster of th e R o lls , s u g g e s t e d in an o b it e r dictum in 1979 t h a t th e d o c tr in e of implied re p e a l ( le x p o s te r io r d e r o g a t le g e p r i o r e ) no lo n g e r o p e r a te s in E n g lis h law to n u llify Community o b lig a tio n s in th e fa c e of u n in te n tio n a lly in c o n s is te n t s u b s e q u e n t s t a t u t e law; f o r P arliam ent to a b r o g a te th e Community t r e a t i e s it must do so in te n tio n a lly and e x p r e s s l y [ 8 ] . Implied s u p p o r t f o r th is
p ro p o sitio n is in d ic a te d in a more r e c e n t ju d g m en t of L ord Diplock in th e House of L o rd s [9] . B u t it seem s to be th e c a s e t h a t , if P arliam ent c h o s e to le g is la te e x p li c i t ly , th e c o u r t s could not r e f u s e to give e f f e c t to its will. So long as p a rlia m e n ta ry
s o v e r e ig n t y is in d e s t r u c t ib le b y le g is la tio n o r b y a n y o t h e r m ean s, c o n s titu t io n a l th e o r y c a n accommodate no m ore.
T h e r e is one p o s s ib le p r o c e d u r e , as y e t not fu lly t e s t e d in th e c o u r t s , b y w hich laws may become e n t r e n c h e d in th e U nited
Kingdom . It was not attem p ted in th e e n actm e n t of th e E u ro p e an Communities A c t, b u t might b e c o n s id e r e d if th e g o v e rn m e n t s o u g h t to implement th e E u ro p ean U nion. What a r e called "m an n er and form" s t a t u t e s impose p ro c e d u r a l r e s t r a i n t s upon th e f u tu r e a c t iv it ie s of P arliam ent in th e m anner p r e s c r i b e d b y th e s t a t u t e . T h e a r e a of s o v e r e ig n p ow er, as d is t i n c t from p r o c e d u r e , rem ains lim itle s s ; b u t b y th is t h e o r y , s o v e r e ig n t y is d iv isib le betw een P arliam ent as o r d in a r ily c o n s titu t e d and P arliam ent as c o n s titu t e d u n d e r th e e n t r e n c h e d p ro v is io n s of th e m anner and form s t a t u t e .
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T h u s , a c c o rd in g to th is t h e o r y , P arliam ent could b y s t a t u t e in c o r p o r a te th e o b lig a tio n s of th e E u ro p e an Union within th e dom estic sy ste m of th e United Kingdom , and p ro v id e w ithin th e s t a t u t e it s e lf th a t it may not b e amended o r re p e a le d s a v e b y r e c o u r s e to some s p e c ific p r o c e d u r e - s a y , a w eigh ted m ajo rity in P arlia m e n t. Any o r d in a r y ( p u r p o r t e d ) s t a t u t e s u b s e q u e n t ly s e e k in g to a b r o g a te th e Union b y re p e a l of th e in c o r p o r a tin g s t a t u t e ( o r p a r t s of it) would th e n be a n u llity .
T h e r e h a s b e e n some ju d ic ia l re c o g n itio n of m anner and form r e s t r a i n t s , p a r tic u la r ly in th e Commonwealth [ 1 0 ] , a lth o u g h some opinion d e n ies t h e i r e x is t e n c e [ 1 1 ] . T h e r e is also some d e b a te as to what may leg itim ately c o n s t i t u t e s u c h a r e s t r a i n t . N e v e r th e l e s s , s u c h a d e v ice might f r u it f u lly b e in c o r p o r a te d in to an y e n a b lin g s t a t u t e f o r th e E u ro p e an U nion, and if s u c c e s s f u l would more clo s e ly align B r i t i s h c o n s titu tio n a l a d h e r e n c e to Community norms to th a t of o t h e r member s t a t e s .
S u b je c t to t h a t , th e q u e s tio n of U nited Kingdom a c c e s s io n to th e E u ro p e an Union is u ltim ately a q u e s tio n of political r e a lity r a t h e r th a n c o n s titu tio n a l o r legal t h e o r y . It would d ep en d on th e political will of th e go v e rn m e n t of th e d ay and th e size of its P a rlia m e n ta ry m ajority . T h e r i s k s f o r a g o v e rn m e n t s e e k in g to a c c e d e to th e Union and to in c o r p o r a te its p r o v is io n s in dom estic law a r e illu s tr a te d b y th e h i s t o r y of a c c e s s io n to th e p r e s e n t C om m u nities.
T h e e le ctio n m anifesto of th e C o n s e r v a tiv e P a r t y in 1970 a n d , a f t e r th e e le c tio n , th e C o n s e r v a tiv e G o v e rn m e n t's White P a p e r , " T h e United Kingdom and th e E u ro p e an C om m u nities", c o n ta in e d a commitment to e n t r y if th e te rm s w ere a c c e p t a b l e . A fte r
n e g o tia tio n , th e g o v e rn m e n t s e c u r e d a m ajo rity of 102 in th e House of Commons on a motion ap p ro v in g th e p rin c ip le of e n t r y . On th e S e co n d R ead in g of th e E u ro p e a n Communities B ill, h o w e v e r , th e g o v e rn m e n t's m ajority was r e d u c e d to 8 , and th e m ajo rity on T h ir d R ead in g was only 17. T h u s , n o tw ith s ta n d in g a c c e s s i o n , th e
o b lig a tio n s a r is in g from a c c e s s io n w ere in c o r p o r a te d in dom estic law b y , b u t only b y , th e slimmest of m a rg in s .
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F in a lly , we should b r ie f ly mention th e t h e o r e t ic a l p o s s ib ilitie s of le g is la tio n b y P r iv a te Mem ber's Bill o r b y a Bill in tro d u c e d in th e House of L o rd s r a t h e r th a n th e House of Commons.
T h e g o v e rn m e n t could not be com pelled, a g a in s t its will, to a c c e d e to th e Union b y a P r iv a te M em ber's B ill; n o r would a P r iv a te M em ber's Bill s e e k in g to in c o r p o r a te th e law of th e Union in
dom estic law h a v e a n y p r o s p e c t s of s u c c e s s a g a in s t th e will of th e g o v e rn m e n t. T h e same ap p lie s to a Bill in tr o d u c e d in th e House of L o rd s w here th e g o v ern m en t does not n e c e s s a r i l y command a m a jo rity ,
s in c e th e le g is la tio n would h av e to p a s s th e Commons. T h e only u s e f u l n e s s of a P r iv a te M em ber's Bill would b e as a means of stim ulating d e b a te .
It is p o s s ib le t h a t , if th e go v e rn m e n t w ere a n x io u s to le g is la te and w ere u n c e r t a in of its m ajo rity in th e House of Commons, a E u ro p e a n Union B ill would be in tro d u c e d f i r s t in th e House of L o r d s , w here it might r e c e i v e more s y m p a th e tic c o n s id e r a t io n , so b lu n tin g th e e d g e of op p osition in th e House of Commons. T h is is not p r o b a b le . In th e a b s e n c e of a c le a r m ajo rity in th e House of Commons, a g o v ern m en t would not b e lik e ly to attem p t to le g is la te at all.
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PART I I : S O C IO -P O L I T I C A L ASSESSMENT
T h is p a r t of th e r e p o r t is d ivided in to s e v e n s e c t i o n s . S e c tio n 1 s e t s out th e pu blic r e a c tio n s of g o v ern m en t M in iste rs a n d , in summary form , th e p oin ts made to u s in inform al d is c u s s io n with g ov ern m en t s o u r c e s . S e c tio n 2 d e als with th e p olitical (a s opposed to s t r i c t l y le g a l) d if f ic u lt ie s f o r a g o v ern m en t s e e k in g to promote a T r e a t y f o r E u ro p e an U nion, and with th e ways in w hich th e p r e s e n t D ra ft T r e a t y might r e a c h th e political a g e n d a in
P a rlia m e n t. S e c tio n 3 deals with a t t i t u d e s of th e m ajor UK p olitical p a r t i e s . It d is c u s s e s in t u r n : th e p r e s e n t a ttitu d e s of th e fo u r main p a r t i e s ; th e likelihood of a n y s ig n ific a n t c h a n g e s of a ttitu d e in th e n e a r f u t u r e ; and th e r e la tio n s h ip of
th e views of MEPs on th e one h a n d , and th o s e of MPs and h o m e -b a s e d p a r t y r e s e a r c h d e p a rtm e n ts and a c t i v i s t s on th e o t h e r . S e c tio n 4 s k e t c h e s th e v ie w s, in s o fa r as t h e y h a v e b e e n fo rm u la te d , of lead in g i n t e r e s t g r o u p s . S e c tio n 5 d eals with th e E u ro p e an Movement. S e c tio n 6 comments on th e a t ti tu d e s of th e m edia. S e c tio n 7 d e als with pu blic opinion a s a whole.
S e c tio n 1: T h e G overnm ent
(a ) P ublic A t t it u d e s :
At th e time of w r itin g , th e U nited Kingdom go v e rn m e n t had not adop ted a d e fin ite policy on th e D ra ft T r e a t y . B u t a good in d icatio n of th e g o v e rn m e n t's in itial re a c tio n h a s b e e n g iv e n b y Mr Malcolm R ifk in d , M in ister of S t a t e at th e F o re ig n and Common w ealth O ffice and U .K . r e p r e s e n t a t i v e on th e ad hoc ( 'D o o g e ') committee on in s t itu tio n s of th e Community s e t up at th e
F o n ta in e b le a u summit.
A n sw erin g a P a rlia m e n ta ry Q u estion in th e House of Commons on 27 J u n e 1984, Mr. R ifk in d said :
A lthough t h e r e a r e some a s p e c t s of th e S p in e lli r e p o r t to w hich we do not o b j e c t , we h a v e made it c le a r th a t t h e r e a r e some
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p ro p o s a ls th a t we can n o t s u p p o r t . I draw sp e c ia l a tte n tio n to th e p ro p o sa l to p h a se out th e n atio n al v e to a f t e r 10 y e a r s and th e p ro p o sal to in c r e a s e th e pow ers of th e E u ro p ean
P arlia m e n t. We h ave made it c le a r th a t th o s e a r e th e two main recom m endations th a t we c a n n o t s u p p o r t . [12]
In a n s w e r to o t h e r P a rlia m e n ta ry Q u e s tio n s , b o th Mr R ifk in d and th e Prime M in ister h av e s t r e s s e d th e scop e a v ailab le u n d e r th e e x is t in g t r e a t ie s :
- T h e Prime M in ister : We a r e not c o n v in c e d of th e n e e d f o r a new t r e a t y s in c e th e e x is t in g t r e a t i e s p ro v id e p le n ty of scop e fo r th e f u r t h e r developm ent of th e Community. [13]
-M r . R ifk in d : O ur view is th a t th e e x is t in g t r e a t i e s p rov id e f o r th e f u r t h e r developm ent of th e Community and we a r e not p e r s u a d e d of th e need fo r a new t r e a t y . [14]
At th e time of th e f i r s t d e b a te s in th e E u ro p e a n Parliam ent on th e new t r e a t y (S e p te m b e r 1 9 8 3 ) , Mr R ifk in d gave a y e t more g e n e ra l view of th e g o v e rn m e n t's a p p ro a c h :
T h e E u ro p e a n Parliam ent h a s f o c u s s e d o u r a tte n tio n on th e is s u e [how th e Community can b e im proved] . . . in its d e b a te on [th e S p in e lli] r e p o r t which a r g u e s f o r a more e la b o ra te Community s t r u c t u r e with g r e a t e r pow ers f o r its c e n t r a l i n s t it u t io n s . T h a t is not o u r a p p r o a c h . To u s , in s t itu tio n s must be s u b s e r v i e n t to p o lic ie s. C lo s e r c o - o p e r a tio n should not be f o r c e d b u t must grow out of p r a c tic a l w ays in w hich a s a
Community we can w ork t o g e t h e r f o r o u r common good. S u b s t a n c e and r e a lit y must come b e f o r e form . [15]
He went on to lis t some of th e c o n c r e t e a r e a s w here 'w o rkin g t o g e t h e r can p ay re a l d iv id e n d s '.
( b ) In fo rm al in d ic a t io n s :
T h e p u b lic p ro n o u n ce m e n ts q u oted ab ov e show th a t th e United Kingdom g o v e rn m e n t is lik e ly to b e opp osed in p rin c ip le to two of th e
fu n d am en tal f e a t u r e s of th e D ra ft T r e a t y : th e p h a sin g out of th e ve to and th e in c r e a s e in th e pow ers of th e P arlia m e n t. In
inform al d is c u s s io n , o t h e r a r e a s of c o n c e r n h a v e b e e n id e n tif ie d ,
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some of them no le s s fu n d a m e n ta l. We s e t out th e p o in ts as th e y h a v e b e e n made to u s in summary f o r m :
-(1 ) R e la tio n sh ip with th e Community T r e a t i e s : T h e r e is n o th in g to p r e v e n t th e p a r tie s to th e Community T r e a t i e s a g r e e in g to a new T r e a t y which would s u p e r s e d e th e e x is t in g t r e a t i e s . B u t s u c h ag re e m e n t must be u n a n im o u s .' T h e p ro v isio n in th e D ra ft T r e a t y w h e r e b y it would ta k e e f f e c t o n ce r a tif ie d b y Member S t a t e s
r e p r e s e n t i n g tw o - th ir d s of th e population of th e Community is c o n t r a r y to in te r n a tio n a l law. ( A r t i c l e s 41 and 54 of th e V ien n a C o n v en tio n on th e Law of T r e a t i e s . )
( 2 ) C o m p eten ce: A rtic le s 11 and 12 h a v e th e e f f e c t of making it c o n s id e r a b ly e a s ie r th a n it now is to give com p eten ce to th e union r a t h e r th a n p ro c e e d b y co o p e ra tio n among th e Member S t a t e s . I t is not c le a r what s o rt of m ajo rity in C ouncil would be r e q u i r e d to
make th e s te p from c o o p e ra tio n to common a c tio n .
( 3 ) A ppointm ent of th e C o u rt of J u s t i c e : A rtic le 30 g iv e s th e P arliam ent th e fu n ctio n of a p p o in tin g h a lf of th e m em bers of th e C o u r t , th e o t h e r h alf b e in g ap p o in ted b y th e C o u n c il. Not only would th is d e s tr o y th e c o n v e n tio n th a t th e C ou rt of J u s t i c e is
com posed of ju d g e s r e p r e s e n t i n g e a c h of th e natio n al law s y s te m s of th e Com munity, b u t it is in h e r e n t ly o b je c tio n a b le f o r th e
le g is la t u r e to appoint th e ju d i c i a r y . T h e r e is n o th in g com parable in th e p r o c e d u r e f o r appointm ent of in te r n a tio n a l t r i b u n a l s . T h e n e a r e s t p a rallel is th e nomination of c a n d id a te s f o r ju d g e s on th e E u ro p e a n C o u rt of Human R ig h t s b y th e n a tio n al g ro u p s in th e C ouncil of E u rop e A ssem bly - b u t th o s e nom inations a r e in e f f e c t made b y th e S t a t e s p a r t i e s . It is an almost u n iv e r s a l
c o n s titu tio n a l p r a c tic e in dom estic law f o r th e e x e c u t i v e to ap p o int th e ju d i c i a r y , w h ich , on ce a p p o in te d , is e n t i r e l y
in d e p e n d e n t . T h is p ro v isio n would p o litic is e th e appointm ent of th e J u d g e s in a most u n d e s ir a b le w ay.
( 4 ) L e g is la t io n : T h e e f f e c t of A rtic le 3 8 ( 4 ) seem s to b e th a t a C ouncil d r a f t amended b y th e Commission and adop ted b y th e Parliam ent will p a s s into law u n le s s th e C ou ncil can m u s te r a qu alified m ajo rity to r e j e c t i t .
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( 5 ) B u d g e t : T h e e f f e c t of A rticle 7 1 ( 2 ) is th a t th e p r o c e d u r e f o r ad op ting o rg a n ic laws applies to amendment of th e p r e s e n t s y s te m of Own R e s o u r c e s o r c r e a tio n of a n y new sy ste m to r e p la c e i t . T h a t g iv e s th e P arliam ent a s u b s ta n t ia l role in a d e cisio n w hich at
p r e s e n t is in th e h a n d s of th e C ouncil and Member S t a t e s (on a p ro p o sa l b y th e Commission) u n d e r A rtic le 201 E E C . A rtic le 72 e f f e c t i v e l y a b o lis h e s th e p r e s e n t d is tin c tio n b etw een o b lig a to r y and n o n - o b lig a to r y e x p e n d it u r e . A rticle 76 c h a n g e s th e p r e s e n t b u d g e t a r y p r o c e d u r e a n d , as a r e s u l t of th e c h a n g e b r o u g h t ab ou t b y A rtic le 7 2 , g iv e s Parliam ent pow ers in re la tio n to o b lig a to r y
e x p e n d itu r e f a r b ey on d what it now h a s . B y A rticle 7 6 ( 2 ) ( f ) P arliam ent may on seco n d re a d in g r e j e c t b y a q u a lifie d m ajo rity
am endm ents ad op ted b y th e C o u n cil. T h is g iv e s P arliam ent th e la s t word on all b u d g e t a r y i s s u e s a n d , in e f f e c t , th e pow er to f o r c e th e Member S t a t e s to in c r e a s e dom estic ta x a t io n .
( 6 ) T h e Commission: In addition to its role in ta b lin g am endm ents to le g is la tio n u n d e r A rticle 3 9 , A rtic le 40 g iv e s th e Commission th e e x c lu s i v e pow er to is s u e r e g u la tio n s and d e c is io n s r e q u i r e d fo r th e im plem entation of law s. I t on ly h a s to inform P arliam ent and th e C o u n c il. T h e Commission is also g iv e n th e r ig h t to oppose am endm ents ap p ro v e d b y C ou ncil o r b y P arliam ent to th e b u d g e t on its f i r s t r e a d i n g , s u c h op p osition h av in g th e r e s u l t th a t th e
r e le v a n t arm of th e b u d g e t a r y a u th o r ity must ta k e a f r e s h d ecision b y qu alified m ajo rity on se co n d r e a d in g . On th e o t h e r h a n d , th e Commission lo s e s its e x c lu s i v e r i g h t to in itia te le g is la t io n : b y A rtic le 3 7 ( 2 ) it must in tr o d u c e a d r a f t if a s k e d to do so b y Parliam ent o r C ou n c il, o r if it fails to do s o , P arliam ent or C ouncil may in tro d u c e a d r a f t .
( 7 ) J u d ic ia l R ev iew : A rtic le 43 e x t e n d s th e p ow ers of re v ie w b y
th e E C J c o n s id e r a b ly . One point (w h ich could be an im provem ent on th e p r e s e n t s itu a tio n ) is th a t an e q u a l r ig h t of appeal and equ al
tr e a tm e n t is g iv e n f o r all th e in s t itu tio n s b e f o r e th e C o u rt of J u s t i c e . T h is would a p p e a r to h av e th e e f f e c t of g iv in g a r ig h t of a c tio n a g a in s t th e P arlia m e n t, w hich does not now e x i s t in a n u m b e r of i n s t a n c e s . T h e A rtic le g iv e s th e C o u rt ju r is d ic t io n to
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impose s a n c tio n s on a Member S t a t e 'fa ilin g to fu lfil its
ob lig atio n u n d e r th e law of th e U n ion '. Sim ilar pow er is g iv e n to th e E u ro p e an C ouncil in c a s e s of p e r s i s t e n t violation of
fu n d am en tal law s, b y A rtic le 4 4 . In re la tio n to fu n d am en tal law s, u n d e r A rticle 4 th e Union is to ta k e a d e c isio n on it s a c c e s s io n to th e E u ro p ean C onven tion on Human R ig h t s (E C H R ) and th e UN
C o v e n a n ts . T h e U .K . g o v e rn m e n t h a s h i t h e r t o s t r e n u o u s l y opposed th e idea of Community a c c e s s io n to th e ECHR and would h a v e sim ilar o b je c tio n s to i t s a c c e s s io n to th e C o v e n a n ts .
( 8 ) M on etary m a tte r s : T h e D ra ft T r e a t y e n v is a g e s ra d ic a l moves to w ard s m on etary union u n d e r its p r o v is io n s on th e E u ro p e a n m on etary s y s te m and f u n d . P a rtic ip a tio n would be o b lig a t o r y as would th e p a rtia l e le ctio n of nation al r e s e r v e s to th e EMF. T h e role of th e e c u would b e e x p a n d e d to th a t of a r e s e r v e c u r r e n c y .
( 9 ) D e fe n c e : T h e o b je c t i v e s of th e D ra ft T r e a t y r e f e r to s e c u r i t y and d e f e n c e m a tte r s . T h e s e a r e not e la b o r a te d in a n y c o h e r e n t m an n er b u t t h e r e a r e r e f e r e n c e to co o p e ra tio n in fie ld s r a n g in g from arm s s a l e s , MBFR and disarm am ent to g e n e r a l s e c u r i t y (A r tic le 9 ) . T h e s e aims a re u n lik e ly to b e a c c e p ta b le to all th e Member S t a t e s .
(1 0 ) Form s of C o o p e ra tio n : T h e D ra ft T r e a t y p r o p o s e s two le v e ls of com bined a c tio n b y Member S t a t e s : common a ctio n and c o o p e r a tio n , th e fo rm er r e f e r r i n g to a r e a s w here th e Union h a s e x c lu s i v e
c o m p e te n c e . Political co o p e ra tio n i t s e l f is im plicitly c o v e r e d b y co o p e ra tio n b u t b o th h e a d in g s rem ain o b s c u r e at k e y p o in ts in th e D ra ft T r e a t y .
(1 1 ) G e n e ra l: T h e D ra ft T r e a t y a tte m p ts to c o d ify a f a r w ider r a n g e of a c t iv it ie s th an is c u r r e n t l y c o v e r e d b y th e Community T r e a t i e s b u t without s u f f ic ie n t d e ta il to make f o r c o n s i s t e n c y o r c l a r i t y . In ad d itio n , it allows f o r o p e ra tio n a l p r a c t i c e s to b e d ecid ed b y in s t itu tio n s and o t h e r b od ies at a l a t e r s t a g e . T h is p re s u m a b ly means th a t th e ultim ate pow er to d e te rm in e th e s h a p e of Union I n s t it u t io n s would r e s t with th e P arlia m e n t.
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S e c tio n 2: P arliam e n t:
We h av e s u g g e s t e d in P a rt I th a t when a g ov ern m en t h a s made up its mind and h a s a re a s o n a b le m ajority in th e House of Commons, it can do almost w h a te v e r it w is h e s . H ow ever, in th e 1970s and 1 9 8 0 s , it h a s become le s s c le a r th a t th is is s o . S itu a tio n s h av e a r is e n
w here a go v e rn m e n t h as n eeded to r e ly on th e s u p p o rt o r b e n e v o le n t n e u t r a lit y of o t h e r g r o u p s , th e 'L ib - L a b P a c t 1 of 1977/78 b ein g one n o tab le e xam p le . While th is is not in i t s e lf u n p r e c e d e n t e d , th e E u ro p e a n Community h as become a new and s e p a r a te ideological is s u e in B r i t i s h p o litic s , and h a s a lre a d y b e e n r e s p o n s ib le f o r u p s e t tin g what w ere on ce th o u g h t to be th e 'norm al' p r o c e s s e s of g ov ern m en t in th e U nited Kingdom.
It is w orth r e c a llin g t h a t , a f t e r a c c e s s io n in 1973, th e is s u e of m em bership did not v a n ish from th e p olitical a g e n d a in th e U nited Kingdom : in s t e a d , new p r e c e d e n t s w ere se t w hich might be followed a g ain o v e r th is o r an y o th e r p ro p o sa l f o r E u ro p e a n Union. In p a r t i c u l a r , in 1974 th e L a b o u r P a r t y committed i t s e lf in its
e le c tio n m anifesto to re n e g o t ia te th e te rm s of e n t r y and to hold a r e fe re n d u m on th em . A fte r th e e le c tio n th e L a b o u r go v e rn m e n t d e c la re d i t s e l f bound b y th e r e s u lt of th e r e fe r e n d u m . T h i s , it h a s b een h eld [ 1 6 ] , had th e e f f e c t of u s u r p in g th e s o v e r e ig n t y of P arlia m e n t. It c e r t a in l y makes it e v e n more d iffic u lt to d e fin e w ith a n y p r e c is io n w here th e law s to p s and p o litics b e g in !
I t may well b e t h a t , e v e n if a f u t u r e g o v ern m en t w ere committed to a t r e a t y f o r E u ro p ean Union and s e c u r e d th e a p p ro v a l of P arlia m e n t, it would now also fee l boun d to subm it to a b in d in g re fe r e n d u m . T h u s , g o v e rn m e n t s u p p o rt f o r a c c e s s io n to a new t r e a t y is s till a n e c e s s a r y , b u t p e r h a p s not a s u f f i c i e n t , cond ition of a c c e s s i o n .
T h e 1975 R efe re n d u m cam paign also m arked a n o th e r d e p a r t u r e from 'norm al' UK p r a c tic e - th is time o v e r c o lle c tiv e C a b in e t r e s p o n s i b ilit y . L a b o u r M in isters w ere s e e n to oppose one a n o th e r in th e
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R efe re n d u m cam p aign. A g ain , th is h a p p e n e d a f t e r a c c e s s io n had b e e n accom plished b y a r e la tiv e ly u n ite d ( C o n s e r v a t iv e ) C a b in e t, r e la tiv e ly s u r e of its Commons m a jo rity . T h e e v e n t s of 1975 w ere a way of g e ttin g th e L a b o u r P a r t y 'off. th e hook' of its own deep d iv isio n s on th e i s s u e : b u t s u c h problem s could r e c u r o v e r E u ro p e a n Union, w h a te v e r th e p a r t y of g o v e rn m e n t.
As to th e w ays in w hich th e D ra ft T r e a t y now p ro p o s e d might be b r o u g h t to P arliam e n t's a t t e n t io n , th e following p o s s ib ilitie s
e x i s t . ( I t is im portant to em p h asise th a t th e y a r e not e q u iv a le n t to one a n o t h e r , in th e s e n s e t h a t , if follow ed, t h e y would lead to th e same r e s u l t . Some might b e in a p p r o p r ia te in th e c irc u m
s t a n c e s , and more th a n one might be followed c o n c u r r e n t l y . E x c e p t in th e la s t c a s e , we c o n c e n t r a t e on what might be done in th e House of Commons. )
(i) G overnm ent motion. We th in k th is u n lik e ly , u n le s s
c o n s id e r a b le p r e s s u r e were g e n e r a te d from th e Dooge Committee and/or t h e r e were e v id e n c e of c o n s e n s u s on m odification of th e D ra ft T r e a t y s u c h as to r e n d e r it more to th e G o v e rn m e n t's lik in g .
( ii) Opposition motion (on an 'O pposition D a y ') . T h is would h av e to be th o u g h t to h ave p olitical b e n e f it s f o r th e Opposition
ou tw eigh in g a n y e m b a r r a s s in g re v e la tio n of d i f f e r e n c e s . T h e L ib e r a ls h a v e one s u c h day at t h e i r d is p o s a l, h a lf of w hich th e y h a v e made availab le to th e S D P .
(iii) P r iv a te M em ber's (Monday o r F r id a y ) Motion. T h is would norm ally be e a s y fo r th e G overnm ent to n e u tr a lis e o r d e f e a t . I f ta k e n in P r iv a te Mem bers' tim e, w h a te v e r was said would not h av e th e s t a t u s of d e fin itiv e c o n s id e r a tio n of th e t e x t of th e D ra ft T r e a t y b y th e House.
( iv ) A 'T e n Minute R u le' B ill. T h is is u s u a lly r e g a r d e d as a u s e f u l method of v e n tila tin g th e id e as w hich s u c h a B ill c o n t a in s ; it is p e r h a p s not a lik e ly c h a n n e l f o r c o n s id e r a tio n of th e D ra ft T r e a t y . 1 4
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( v ) Q u e s tio n s . S e e th e p re v io u s S e c tio n .
( v i ) C o n s id e ra tio n b y a S e le c t Committee of th e House of Commons. P o te n tia lly , t h r e e Committees might be in v o lv e d : th e E u ro p e an L e g is la tio n e t c . Committee, th e F o re ig n A ffa irs Committee, and th e T r e a s u r y and C ivil S e r v ic e Committee. T h e te rm s of r e f e r e n c e of th e E u ro p e a n L e g is la tio n Committee a r e to " c o n s i d e r d r a f t p ro p o sa ls b y th e Commission of th e E u ro p e an Communities f o r le g is la t io n , and o t h e r docu m ents p u b lis h e d f o r su b m ission to th e C ouncil of
M in iste rs or to th e E u ro p ean C ou n c il, and to r e p o r t w h e th e r th e s e r a is e q u e s tio n s of legal o r p olitical i m p o r t a n c e . . . " e t c . At
p r e s e n t th e D raft T r e a t y does not come within th e s e te rm s of r e f e r e n c e ; b u t i f , f o r e xam p le , it o r its s u b s t a n c e becam e a d is c u s s io n docum ent at a E u ro p e an C o u n c il, th e n it would come within th e te rm s of r e f e r e n c e and b e a c a n d ia te to be recomm ended fo r d e b a t e , at w hich s ta g e th e g ov ern m en t would h av e to a r r a n g e fo r th e House to d e b a te it. A fin a l r e p o r t of th e Dooge Committee would also b e a c a n d id a te .
B o th th e F o r e ig n A ffa irs Committee and th e T r e a s u r y and Civil S e r v i c e Committee h av e shown c o n s id e r a b le in t e r e s t s in c e th e l a t t e r p a rt of 1983.
(v ii) C o n s id e ra tio n b y th e House of L o rd s S e le c t Committee on th e E u ro p e a n Com munities. T h e te rm s of r e f e r e n c e of th is Committee a r e d if f e r e n t fro m , and w ider t h a n , th o s e of th e e q u iv a le n t Commons Committee: "to c o n s id e r Community p r o p o s a ls , w h e th e r in d r a f t or o th e r w is e , o b ta in all n e c e s s a r y in form ation ab ou t th em , and r e p o r t on th o s e w h ic h , in th e opinion of th e Committee, r a is e im portan t q u e s tio n s of policy or p rin c ip le and on o t h e r q u e s tio n s to which th e Committee c o n s id e r th a t th e sp e c ia l a tte n tio n of th e House
should be d r a w n . . . " . T h e D ra ft T r e a t y is c le a r ly w ithin th e T erm s of r e f e r e n c e of th e L o rd s' Committee; and th e Committee, and
in d ivid u al mem bers of i t , h a v e a lre a d y b e e n in volved in d e cid in g how b e s t to p r o c e e d , and a r e at th e time of w ritin g ( J a n u a r y 1985) in v o lv e d in f u r t h e r s t e p s .
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T h e Committee is e x p e c te d to decid e in la te J a n u a r y or e a rly
F e b r u a r y 1985 w h e th e r to s e t up an ad hoc Committee on th e D raft T r e a t y ('a d h o c 1 b e c a u s e th e D ra ft T r e a t y does not fall n e a tly into one of th e L o rd s' Su b -C o m m ittee c a t e g o r i e s ) . Members of th e Committee a re to v isit th e In s titu tio n a l A ffa irs Committee of th e E u ro p e an Parliam ent in F e b r u a r y . EP M em bers, in t u r n , will b e in th e UK in April 1985 as p a r t of t h e i r g e n e r a l to u r to e a c h national P a rlia m e n t.
S e c tio n 3 : T h e Political P a r tie s
As m entioned in th e I n t r o d u c t io n , we h a v e b ee n u n ab le to id e n tify a n y s u b s ta n t ia l body of opinion in th e U K, o u tsid e th e Alliance p a r t i e s ( L ib e r a l s and Social D e m o c r a ts ) , w hich f a v o u r s th e D raft T r e a t y o r is e v e n p r e p a r e d to ta k e it s e r i o u s l y . A v e r y good in d ic a to r of th e im portan ce a tta c h e d b y a B r i t i s h p olitical p a r t y to a p a r t i c u la r is s u e in a n y y e a r is its p lace in th e a g e n d a of th e P a r t y C o n fe r e n c e in S e p te m b e r / O c to b e r . In 1 984, e v e n th e L ib e r a l P a r t y , th e most e n th u s ia s ti c f o r th e U nion, only h eld a d e b a te on th e '1984 E u ro E le c t io n s '. T h e motion f o r d e b a te lam ented th e p a r t y 's p e rfo rm a n c e , along with th a t of its SDP Alliance p a r t n e r , in th e EP e le c tio n s ; and was h ig h ly c r i t i c a l of its EP p a r t n e r s in th e F e d e ra tio n of E u ro p e an L ib e r a ls and D em ocrats ( E L D ) . T h e r e was h a r d ly a mention of th e D ra ft T r e a t y .
(a ) T h e C o n s e r v a tiv e P a r t y
As th e p a r t y of g o v e rn m e n t, h a v in g no need to ta k e a c c o u n t of an y coalition c o n s id e r a t io n s , th e a ttitu d e of th e C o n s e r v a t iv e s is
c r u c ia l fo r at le a s t th e n e x t t h r e e y e a r s . It i s , h o w e v e r , n e c e s s a r y to d is tin g u is h 'th e g o v e rn m e n t' from th e C o n s e r v a tiv e p a r t y at la r g e in th e UK; and to d is tin g u is h b o th from
C o n s e r v a tiv e MEPs.
T h e a t t i t u d e s of th e C o n s e r v a tiv e P a r t y as a whole h a v e b ee n summarized b y th e P a r t y 's R e s e a r c h D epartm en t as follow s:
1 6
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F i r s t l y ,
" T h e r e is a b e lie f th at th e time is not rip e f o r E u ro p ean
U nion, a lth o u g h th is does not dim inish th e su p p o rt in p rin c ip le f o r th e g e n e r a l idea in due c o u r s e " (u n d e r lin in g a d d e d ) .
S u c h q u a lific a tio n s s p e a k volu m es. T h e p r o je c t is firm ly in th e c a t e g o r y of 'not f o r to d a y 1 ! S e c o n d ly ,
" T h e r e is th e s t r o n g ly held view t h a t , s in c e th e UK h a s an u n w ritte n c o n s titu tio n u n lik e most of th e r e s t of o u r Community p a r t n e r s , . . . an 'e v o lu tio n a ry ' p r o c e s s tow ard s E u ro p ean Union is more d e s ir a b le th a n a 'r e v o lu t io n a r y ' a p p ro a c h ( b y means of a T r e a t y ) " .
Whilst th e line of re a s o n in g h e r e may not be o b v io u s , it p r o b a b ly r e f l e c t s u n e a s e th a t t h e r e would b e no c o n s titu tio n a l 'bu lw a rk ' a g a in s t p r o g r e s s i v e ero sio n of UK ' s o v e r e i g n t y '.
Many of t h e s e r e s e r v a t i o n s a r e s h a r e d b y s e v e r a l C o n s e r v a tiv e MEPs. T h is is so d e s p ite th e v o te s c a s t in fa v o u r of th e D raft
T r e a t y b y many of th em . ( T h e gro u p voted on 14 F e b r u a r y 1984: 22 in f a v o u r , 5 a b s t e n t i o n s , 6 a g a i n s t , 28 not v o t i n g ) . A f r e e vote was allowed d e s p ite a c e r t a in amount of r e s i s t a n c e to it b y P a r t y m a n a g e rs b a c k home. 'E x p la n a tio n s of vo te ' followed soon a f t e r . A f a ir ly ty p ic a l exam ple of th e t r u e meaning of a vote in f a v o u r came from C h r is to p h e r J a c k s o n , MEP :
U n d o u b te d ly some of th e id eas in th e d r a f t t r e a t y a re
c o n t r o v e r s i a l , fo r exam ple its recom m endations c o n c e r n in g th e v e to . I was among th o s e who voted f o r th e d r a f t as d e s e r v in g f u r t h e r d is c u s s io n y e t made c le a r th e im p ortan ce th e y a tta c h to th e c o n tin u a tio n of th e v e to . . . [ 1 7 ]
At th e time of th e f r e e vote in th e EP (14 F e b r u a r y 1984) D e rek P r a g , MEP, e x p la in e d th e ED G 's s ta n c e th u s :
T h e e s s e n t ia l d if f e r e n c e w ithin th e gro u p - and it is a f a ir and legitim ate d if f e r e n c e to a n y o n e who knows th e h i s t o r y b o th of th e U nited Kingdom and of Denm ark - is b etw een th o s e who b e lie v e th a t w ritte n t r e a t i e s a r e n e c e s s a r y in a v o lu n ta ry
union o r community of p eo p les and th o s e who b e lie v e in o rg a n ic d e v e lo p m e n t, th e e v o lu tio n a ry p r o c e s s , gradu alism and
p rag m atism . [18]
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T h u s , if t h e r e a p p e a rs to be a d e g r e e of am b ig u ity ab ou t
C o n s e r v a tiv e a ttitu d e s to th e D ra ft T r e a t y at p r e s e n t , it is not one which a f fo r d s much com fort to th e T r e a t y 's p r o m o te r s . An House of Commons vote on th e D ra ft T r e a t y will se e most
C o n s e r v a tiv e s vote as as t h e y a r e told b y th e p a r t y m a n a g e rs - r e f l e c t i n g t h e M inisterial view s a lr e a d y q u o te d . A few would b r e a k r a n k s ; r a t h e r more might a b s t a in .
( b ) T h e L a b o u r P a r ty
A cco rd in g to a P a r ty R e s e a r c h O f f i c e r , th e L a b o u r P a r t y h a s "to th e b e s t of my know ledge . . . n e v e r made a formal state m e n t on th e q u e s tio n of E u ro p ean U n io n ". Commenting on th e a b s e n c e of s u b s ta n t ia l d o cu m en tatio n , he added " T h a t might of i t s e l f b e a s ig n ific a n t r e fle c tio n of th e im p ortan ce a tta c h e d to th e is s u e b y th e L a b o u r P a r t y " .
T h e r e a p p e a r s to be no g r e a t d if f e r e n c e b etw e e n th e P a r t y 's s ta n c e in th e EP and its s ta n c e at home; and no likelihood of L a b o u r s u p p o rtin g th e D raft T r e a t y . At Community le v e l, in th e 1984 M anifesto of th e C o n fe d e ra tio n of th e S o c ia list P a r t i e s , L a b o u r e n t e r e d a r e s e r v e s ta tin g th a t it "did not s u p p o r t" th e s e c t io n s on 'I n s titu t io n a l im provem ents in f a v o u r of th e EP' and 'An im proved fin a n c ia l s y s t e m '. L a b o u r is also a b s e n t from th e A n n ex d e c la rin g P S I and PSD I s u p p o rt f o r th e D ra ft T r e a t y . [19]
In d e e d , L a b o u r 's own n a tio n al M anifesto f o r th e 1984 E u ro p e an e le c tio n s was c a r e f u l to le a v e open th e 'w ithdraw al' o p tio n . I t s ta te d th a t
[EEC ] r u le s may s ta n d in th e way of a L a b o u r G overnm en t when it a c t s to c u t u nem ploym ent. It is in th is c o n t e x t th a t we
b e lie v e th a t B r i t a i n , lik e all member s t a t e s , must r e ta in th e option of w ithdraw al from th e E E C .
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T h is is of c o u r s e a c a r e fu l com prom ise: b u t th e compromise o p e r a te s in r e v e r s e a s well. T h o s e most in f a v o u r of
'f u l l - h e a r t e d ' UK m em bership of th e EC do not wish to e x p o s e th e m s e lv e s too f a r b y an y open su p p o rt fo r th e D ra ft T r e a t y .
( c ) T h e L ib e r a l P a r ty
T h e L ib e r a ls h av e b een u n e q u iv o c a l in t h e i r s u p p o rt f o r th e D raft T r e a t y . T h e y h a v e , h o w e v e r, no voice in th e EP and on ly a v e r y small voice in th e UK House of Commons. From t h e i r point of view , much th e most prom ising place in w hich to f ig h t f o r a d e b a te on th e D ra ft T r e a t y is th e House of L o r d s . T h e y h a v e more r e p r e s e n ta t i v e s t h e r e (in c lu d in g s u c h 'e ld e r s ta te s m e n ' as Lord G la d w y n ), num erous and o fte n in flu e n tia l SDP a llie s , and in d e p e n d e n t
'c r o s s b e n c h ' s y m p a th i s e r s . A d e b a te in th e House of L o rd s could b e no more th a n an attem pt to 'show th e f l a g ', u n d e r ta k e n without an y e x p e c ta tio n th a t a m ajority f o r th e D ra ft T r e a t y in th e L o rd s
( i t s e l f u n lik e ly ) could 'sham e' th e Commons in to a g r e e m e n t.
T h e 'L ib e r a l Program me f o r E u ro p e ' (1 9 8 3 ) d e c la re d "We h av e b e e n fu lly committed to th e goal of P olitical and Economic Union f o r th e peoples of E u ro p e s in c e . . . 1 9 5 8 " . T h e docum ent c lo se d by
em p h asisin g " t h e im portan ce of w orking to w ard s E u ro p e an fe d e r a t io n " b u t , p e r h a p s s ig n if i c a n t ly , it did not mention th e S p in e lli
p ro p o s a ls w hich were due f o r d e b a te in th e E u ro p e an Parliam ent immediately a f t e r its p u b lic a tio n .
T h e n e x t s te p was th e d r a f tin g of th e jo in t L ib e r a l- S D P Alliance M anifesto f o r th e 1984 EP e le c tio n s . In C h a p t e r VI ('A n E f f e c t iv e D em ocratic E u r o p e ') th e p a r t i e s had an o p p o r tu n ity to 'go firm' on th e D ra ft T r e a t y . T h e y did n o t. In d e e d , one p e rs o n a c tiv e ly in v o lv e d in th e d r a f tin g had th e im p re ssio n t h a t , e v e n at th is le v e l of a tte n tio n and a w a r e n e s s , almost n o -o n e had h e a rd of th e D ra ft T r e a t y . C h a p te r VI i t s e lf is d elp h ic at c r u c ia l p o in ts :
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Repository.
We want to stre am lin e th e Com munity's s t r u c t u r e and its m ethods of d e c is io n -m a k in g . T h is can b e done w ithout c h a n g in g th e T r e a t ie s . . .
T h e u se of th e v e to in th e Council, must b e s e v e r e ly r e s t r i c t e d . . . Alliance MEPs will s e e k to join with lik e -m in d e d MEPs . . . in th e c o n s tr u c tio n of an e v e r - c l o s e r union among th e peoples of E u r o p e . [20]
E q u ally s ig n ific a n t was th e a b s e n c e of d e b a te on th e D ra ft T r e a t y at th e P a r t y 's Assem bly in th e late summer of 1984. A tte n tio n was f o c u s s e d in s te a d on th e P a r t y 's u n h a p p y r e la tio n s with th e EL D , and its d e lic a te re la tio n s with th e B r i t i s h S D P , to w hich we now t u r n .
(d ) T h e Social D em ocrats
Michael G a llag h er of th e SDP was th e sole A lliance MEP u n til J u n e 1984. V o tin g fo r th e D raft T r e a t y , he s a id ,
I wish to put it b ey o n d d ou b t th a t th e Alliance is solidly
b eh in d th e developm ent of E u ro p e an c o - o p e r a tio n along th e lin e s s e t out in th is p re lim in ary d r a f t t r e a t y ' .
P a r t y s o u r c e s h av e in d ic a te d , h o w e v e r, th a t t h e y h a v e b e e n u n d e r little p r e s s u r e so f a r to j u s t i f y t h e i r position on th e D ra ft
T r e a t y , alth o u g h th e y h a v e on o cc a sio n b e e n a tta c k e d b y th e C o n s e r v a tiv e s ab ou t i t . It h a s c a u s e d som e, th o u g h not s e r io u s , s t r a in in t h e i r re la tio n s with th e L i b e r a l s . T h e r e is more th a n a h in t of d if f e r e n c e in th e a p p r o a c h e s of some of th e S D P 's own l e a d e r s .
T h e g e n e ra lly fa v o u ra b le o rie n ta tio n of th e SDP shou ld not c o n c e a l two q u a lif ic a tio n s . F i r s t , Dr David Owen (now le a d e r of th e p a r t y ) is c le a r ly le s s e n t h u s ia s t i c ab o u t th e D r a ft T r e a t y th a n e it h e r th e L ib e r a ls or h is own p r e d e c e s s o r , Mr. R oy J e n k i n s . S e c o n d , th e SDP is not at all lik e ly to e x p o s e it s e l f to an y p olitical r i s k , o r 'h ig h p ro file ' in f a v o u r of th e D ra ft T r e a t y .
It is r e g a r d e d as a good idea in th e long te r m , b u t at p r e s e n t as a ' n o n - s t a r t e r ' in UK te r m s . 2 0
