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Parliament has little say in foreign policy

Foreign Minister Micheline Calmy-Rey is seen here on a visit to South Africa in February Keystone

Swiss foreign policy is playing an increasing role in shaping traditional areas of domestic policy.

At the same time, the Swiss parliament has less of a say in foreign policy issues.

If Switzerland were ever to join the European Union, the country’s domestic policy and parliament would lose even more of their importance unless changes were made to the system.

The government has so far failed to provide direction with regard to the EU.

It has no clear position on EU entry, nor is it passing on the necessary information that would allow parliament and the people to weigh up the advantages and disadvantages of further European integration. The last integration report dates back to 1999.

A political assessment of the situation would show that Switzerland’s sovereignty is already limited.

Since 1988, new laws have been systematically checked for their compatibility with European legislation, and when deemed necessary shaped to conform, primarily to meet the needs of the economy

Limits to decision-making

But it is not just the EU that is limiting national decision-making powers. With the increasing globalisation of the economy and membership of international organisations such as the World Trade Organisation, the Organisation for Economic Cooperation and Development, the European Council or the United Nations, economic and social integration is growing.

The resulting agreements and obligations are increasingly determining the domestic policy of individual states.

Parliament suffers as a result of this development because foreign policy in Switzerland – as in other countries – is very centralised, and leadership is basically the job of the federal authorities.

Membership of the EU would strengthen this tendency. It is estimated that work in EU bodies would take up about 50 per cent of government members’ time.

“The room for manoeuvre of parliament in decisions about foreign policy issues is relatively narrow. It boils down to a yes or no,” maintains constitutional expert Ulrich Klöti.

In many cases, the best parliament can do is express its displeasure, and this it seldom does.

“Passive” parliament

A study by the Swiss National Science Foundation shows that out of more than 800 foreign policy issues – new or amended state accords – only a quarter were actually discussed in parliament. And of those treated in parliament, the majority received little attention. Klöti speaks of the “relative passiveness” of parliament.

Only eight of these issues were actually put to a national vote, among them rejection of the European Economic Area, membership of the International Monetary Fund and World Bank, and entry into the United Nations.

Observers, not surprisingly, have spoken of a foreign policy that is “below the level of visibility”. But this does not seem to bother parliament, with reform suggestions coming mainly from constitutional experts.

Astrid Epiney of the Institute of European Law at the University of Fribourg feels it is time to give parliament more of a say in foreign policy matters. Amendments are needed now, she says, but would be even more necessary should Switzerland join the EU.

A look outside Switzerland shows that other countries have already given their parliaments greater powers to formulate objectives in foreign, and in particular European, issues.

Institutional changes

Institutional changes in Switzerland could include a proviso, for example, that parliament be informed in good time by the government about important EU intentions and the government’s negotiating position.

Another measure could be that the government would have to take into account the position taken by parliament.

Brussels has been trying to help out national parliaments in their foreign policy commitments.

The planned EU constitution says that the EU Commission will in future send “all legislative proposals and political strategy papers for the attention of the European Parliament and the Council of Ministers simultaneously to national parliaments of member states”.

Parliament would then have all the instruments at hand to involve itself with foreign policy affairs, and would be in a position to make enquiries and formulate suggestions, in so far as there is room for manoeuvre.

swissinfo, Katrin Holenstein

Globalisation and international integration have made domestic policy increasingly dependent on foreign policy.

This is shaping such issues as trade policy, transport policy, agriculture or asylum policy.

Swiss entry into the European Union would further increase the influence of foreign policy on domestic policy.

Parliament’s say is being eroded. Of 800 foreign policy issues, only a quarter were discussed in parliament.

Constitutional experts are calling for urgent reforms and amendments in the division of responsibilities.

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